Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Disaster Risk Reduction
Programme Guidance Note
SUMMARY
Definition
Disaster risk is the potential loss expressed in lives, health status, livelihoods, assets and
services, which could occur to a particular community or a society due to the impact of a
natural hazard1. Disaster risk reduction (DRR) is a systematic approach to identifying,
assessing and reducing that risk. Specifically, the purpose of disaster risk reduction is to
minimize vulnerabilities and disaster risks throughout a society in order to avoid (prevent) or
to limit (mitigate and prepare for) the adverse impacts of natural hazards, and facilitate
sustainable development. Disaster risk reduction is also recognized as a key climate change
adaptation strategy.
Purpose
This Note responds to the global recognition, including in the Millennium Declaration, of the
rise in disaster risk related to natural hazards and its impact on children, as well as to specific
calls for guidance and support from UNICEF field offices and partners working in countries
with high levels of disaster risk. This Guidance Note is intended to support the adoption on a
more strategic and consistent approach for UNICEF to disaster risk reduction at the global
level and most importantly, through Country Programmes. Annex 1 summarizes examples of
programming related to DRR which is intended to serve as a useful reference.
Summary of the Issue
Disasters and disaster risk are on the rise. Disasters negatively impact children’s and
women’s rights, disproportionately affect poor countries, erode development gains and set
back progress in achieving the MDGs. Disasters thus exacerbate already existing
vulnerabilities and inequalities of boys, girls, women and men. As disasters are a function of
hazard, vulnerability and capacity, they are both a humanitarian and a development concern.
UNICEF has an obligation to address disaster risk as it impedes progress towards the MDGs
and the realization of child rights.
DRR within UNICEF’s overall approach to development programming and
humanitarian action
Strengthening UNICEF’s work in disaster risk reduction is part of a wider organizational
effort to enhance the effectiveness of the country programme process, and a continued
commitment to excellence in humanitarian action. This process includes a set of principles,
approaches and specific interventions that cover preparedness, response and early recovery,
and thus bridge the gap between development and humanitarian programming. The vision for
humanitarian action is spelled out in the revised Core Commitments for Children in
Humanitarian Action. One of the approaches underpinning this vision is emergency riskinformed programming in all country contexts. Emergency risk informed programming is a
process that lays out steps in the programme cycle to help ensure that UNICEF regular
1
Adapted from ISDR, 2009
1
Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
programming better addresses priority emergency risks threatening the rights of children in a
given country through (1) increased prevention, mitigation, and preparedness related to these
risks (whether related to natural disasters, social/political conflict and/or health crisis), and
(2) improved response and recovery from actual emergencies. DRR is a key component of
emergency risk-informed programming and should be integrated accordingly. DRR can also
constitute a stand-alone programme outcome area for higher risk countries and contexts.
DRR further encompasses a set of specific programme actions that take place in humanitarian
action as well as development assistance, and forms a central part of Country Programme
cooperation.
Disaster risk reduction is closely related to capacity development, which is a key strategy of
UNICEF’s approach to both development and humanitarian action. Capacity development of
both rights-holders and also duty-bearers reduces underlying vulnerabilities, increases
resilience to disasters, and contributes to enhanced preparedness and early recovery2. Early
recovery, which is an approach that must be adopted from the onset of response, often results
in undertaking specific DRR programme actions.
BACKGROUND
Overview of Context
Disasters are first and foremost a “local” phenomenon. Local communities are on the
frontlines of the immediate impact of a disaster and the immediate emergency response. The
number of people affected globally by disasters has been increasing by an estimated 50,000
to 60,000 per decade, since the early 1970s, with 250 million affected per year over the last
decade3. Ninety-five percent of disaster deaths occur in developing countries. Climate
change impacts are projected to increase the numbers of children affected by disasters from
an estimated 66.5 million per year in the late 1990s, to as many as 175 million per year in the
coming decade.4 Between 1991 and 2005 disasters also caused economic losses of up to
US$1.2 billion – sometimes costing poor countries multiples of their GDP.
The United Nations declared the 1990s the first ‘International Decade for Disaster Reduction’
(IDNDR) and this led to the formation of the International Strategy for Disaster Reduction
(ISDR) in 2000. The ISDR Secretariat promotes disaster risk reduction and is tasked with
supporting governments in the implementation of The Hyogo Framework for Action: 2005 –
2015 ‘Building the Resilience of Nations and Communities to Disaster’ adopted by 168
member states in January 2005, containing the following five priorities:
1. To ensure that disaster risk reduction is a national and local priority with a strong
institutional basis for implementation;
2. To identify, assess and monitor disaster risks and enhance early warning;
3. To use knowledge, innovation and education to build a culture of safety and resilience
at all levels;
4. To reduce underlying risk factors;
5. To strengthen disaster preparedness for effective response at all levels.
For additional information, refer to the Oral report background note to the UNICEF Executive Board “The
approach of UNICEF to capacity development” (E/ICEF/2010/CRP.20, 3 August, 2010).
2
3
4
Humanitarian Costs of Climate Change, Tufts, 2009
SCF Legacy of Disasters, 2007
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Governments, civil society, and international cooperating partners are increasingly
developing DRR policies, networks, bodies and capacities. Much of the leadership behind the
support for disaster risk reduction increasingly has come from NGOs and from the South.
National platforms to advance disaster risk reduction have been established in an estimated
56 countries. Civil society and NGO disaster risk reduction networks5 have been created and
regional bodies, such as the Asian Disaster Preparedness Centre (ADPC), have been
mandated to develop the capacity of governments and civil society. In addition, many donors,
UN and other international organizations have developed disaster risk reduction policies and
increased their capacity in this area. Within the UN, for example, a guide for the UN Country
Team on integrating disaster risk reduction into country level processes has been developed
(for further detail see page 6 of this guidance note)
2009 Global Assessment Report
The flagship report produced by ISDR in June 2009 found that global disaster
risk is highly concentrated in poorer countries with weaker governance.
Particularly in low and low-middle income countries with rapid economic
growth, the exposure of people and assets to natural hazards is growing at a faster
rate than risk-reducing capacities are being strengthened, leading to increasing
disaster risk. The report also found that progress towards reducing disaster risk is
still mixed. In general terms, countries are making significant progress in
strengthening capacities, institutional systems and legislation to address
deficiencies in disaster preparedness and response, and in enhancing early
warning. However, countries report little progress in mainstreaming disaster risk
reduction into social, economic, urban, environmental and infrastructural
planning and development, and achieving results at the local level.
A considerable financing gap still persists to address disaster risk in developing countries6. At
the national level arrangements continue to focus primarily around limited regular budgetary
allocations mostly for humanitarian response and in limited cases for preparedness. Early
recovery, which is part of the response, is often under-funded as well. Additional resources
are obtained on an ad hoc basis in the aftermath of disasters, primarily via budgetary
reallocations and international community grants and loans. Some progress has however been
made through contingent credit arrangements, social funds and risk financing.
Disaster Risk Reduction and Climate Change Adaptation
Commitment to disaster risk reduction has also been marshalled by the climate change
agenda. The Bali Action Plan (2007)7 explicitly recognizes the importance of disaster risk
reduction. By 2011, the Intergovernmental Panel on Climate Change (IPCC) will prepare a
scientific assessment on managing the risk of extreme events and disasters to advance climate
change adaptation. This represents an unprecedented opportunity to bring the world’s
attention to accumulated knowledge and experience in reducing and managing disaster risk.
5
The Global Network of Civil Society Organisations for Disaster Reduction is an international network of 300 civil society
organisations in 90 countries
6 Chair’s Summary of the Second Session of the Global Platform for Disaster Risk Reduction, 2009
7
In December 2007 the thirteenth conference of the parties to the United Nations Framework Convention on Climate
Change (COP13) and the third Conference of the Parties serving as the Meeting of Parties to the Kyoto Protocol
(COP/MOP3) were convened in Bali, Indonesia to discuss, among others, the future of the international climate regime after
2012.
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
The recent Copenhagen Accord8 (2009) calls for international co-operation to support “the
implementation of adaptation actions aimed at reducing vulnerability and building resilience
in developing countries.” However the degree to which disaster risk reduction will be
explicitly included and funded remains unspecified.
Although disaster risk reduction and climate change adaptation have developed as
independent practice areas and within separate institutional frameworks, they share the
common goal of managing uncertainty, reducing vulnerability and building resilience for
communities at risk. The link between disaster risk reduction and climate change adaptation
is increasingly acknowledged by practitioners at local, national and international levels.
Disaster risk reduction has been conceptualized as the first line of defense against climate
change, supporting resilience of countries and communities by helping them anticipate, resist,
cope, respond and recover from hazard impacts.9 At the same time, climate change adaptation
policies can benefit from the proven risk reduction frameworks and methodologies. In the
face of climate change and variability, disaster risk reduction programmes need to take a long
term perspective to prepare communities not just against current, but also projected climate
related risk.10
Promoting Environmental Sustainability
Strengthening ecosystem services and environmental management reduce risk,
decrease poverty and achieve more sustainable development. Ecosystems are
affected by disasters, but also contribute to saving lives and protecting
livelihoods. The following should be noted:
 Healthy ecosystems provide natural defences, wetland ecosystems for
example function as natural sponges that trap and slowly release surface
water, while mangroves, dunes and reefs create physical barriers between
communities and coastal hazards.
 Conversely, degraded ecosystems reduce coping capacities of communities
and social systems. There is a strong causal relationship between poverty, a
degraded environment and higher disaster risk. Environmental management,
including community based resource management, help to increase
community resilience.
 Disaster recovery processes need to take the state of ecosystems and
ecosystem services into account to avoid re-creation or exacerbation of preexisting vulnerabilities.
 In some cases, human activities directly affect the nature of the hazard, in
particular through climate change and desertification.
(adapted from ISDR document, 2008)
Disaster Risk Reduction and Children’s Rights
Children typically represent 50-60 percent of those affected by disaster. Children are directly
affected by death and injuries as well as from diseases related to malnutrition, poor water and
8
Adopted at the 15th Conference of the Parties to the United Nations Framework Convention on Climate Change (COP 15)
9
For more on UNICEF and resilience, see Humanitarian Action for Children Report, 2011 (pages 1-5)
10
AP-HDNet (http://www2.undprcc.lk/ext/HDRU/index.php)
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
sanitation —conditions that are exacerbated by disasters. In addition, disasters disrupt
education and can cause psychological trauma.
Ignoring the different capacities of girls and boys means undermining those of the
community as a whole to address disaster risk and cope with disasters. Under the UN
Convention on the Rights of the Child (CRC) children have inalienable rights in all
circumstances—including disasters, when they are at their most vulnerable – and the right to
participate in decisions that ultimately affect them. The CRC and disaster risk reduction are
mutually reinforcing. For instance, educating a child about disaster risk and empowering the
child to use that knowledge supports Article 6 (life, survival and development), while
ensuring the participation and voice of a child in disaster risk reduction efforts upholds
Article 12 (respect of the child’s views).
Using Human Rights-Based Approach to Analyse DRR
Using a HBRA means asking the crucial questions of ‘what, why, and whose
capacities’? In the context of disaster risk, this means a risk analysis based on
human rights should ask the following questions:
 What disasters pose the biggest risk, where are these disasters happening, and
who is most vulnerable and therefore the most affected?
 Why are these problems occurring? What are the underlying and root causes
of the vulnerabilities which are leading certain groups to suffer from disaster
risk
 Who or which individuals and/or institutions have the duty to reduce these
disaster risks?
 What capacities are needed to address disaster risk, both for those who are
being denied their rights through disaster vulnerability, and those who have
the duty to address these problems?
Further supporting the need to involve children, a recent study11 commissioned by UNICEF
and the Children in a Changing Climate Coalition found that children can make a number of
positive contributions to disaster risk reduction: as analyzers of risk and risk reduction
activities; as designers and implementers of disaster risk reduction interventions at
community level; as communicators of risks and risk management options (especially
communications to parents, adults or those outside the community); and as mobilizers of
resources and action for community-based resilience. Both the vulnerability and experience
of children, therefore, constitute a crucial component of managing disaster risk.
Efforts to identify and reduce disaster risks faced by children have nonetheless been slow.
Reasons for this include a lack of disaggregated data on how girls and boys are affected by
and cope with disaster, limited mainstreaming of child-focused approaches in disaster
reduction policy and practice, insufficient progress in implementing the Hyogo Framework
for Action 2005-2015 at the community level, and limited leadership and advocacy at the
international level.
11
UNICEF (2009) Children and Disaster Risk: Taking Stock and Moving Forward.
http://www.childreninachangingclimate.org/docs/Child%20Led%20DRR_Taking%20Stock.pdf
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Using Gender Analysis in DRR
“Gender is a core factor in disaster risk and in the implementation of disaster risk reduction.
Gender is a central organizing principle in all societies, and therefore women and men are
differently at risk from disasters. In all settings - at home, at work or in the neighborhood gender shapes the capacities and resources of individuals to minimize harm, adapt to
hazards and respond to disasters.” (“Words Into Action” (2007))
Social inequalities, including poverty, social class, age group, ethnicity and gender, shape the
different vulnerability and capacities of girls, boys, women and men to respond to and
survive disasters. For example:
 The majority of those living in poverty are women, as such they are more likely to live in
places vulnerable to disaster risks, with poorer quality and location of housing;
 Women and girls are often assigned socially ascribed roles of caring for children and the
elderly, which may limit their mobility when a disaster strikes. This also positions them in
primary assistance roles in prevention and during disasters.
 Lower levels of education and less access to assets mean that women and girls often have
less involvement in decision-making, including in regards to disaster response.
 Women may have traditional knowledge of natural resources that can help manage
disaster risk and adaptation; their local knowledge of surroundings and natural resources
can be essential for recovery
 Women can play a key role in mobilizing community level action – thus encouraging
their participation leads to safer communities.
Using a gender analysis helps to highlight the different vulnerabilities, risks and capacities of
girls, boys, women and men that may influence their level of risk and their capacity to
respond. This information is critical to ensuring that DRR strategies are locally relevant,
targeted, efficient and effective. The Hyogo Framework for Action calls on a gender
perspective to be integrated into all DRR policies, plans and decision making processes. 12
UNDG’s Approach to Disaster Risk Reduction
In 2007, the UN Secretary General’s Policy Committee recommended further action to
mainstream disaster risk reduction and the Hyogo Framework for Action (HFA) into the UN
system policies and practices. As a result UNDG, with support from UNDP-BCPR and ISDR,
developed a Guide on ‘Integrating Disaster Risk Reduction into the CCA/UNDAF’. The
purpose of this Guide is to provide step by step advice on how to integrate disaster risk
reduction (DRR) into the process of CCA/UNDAF preparation, formulation and monitoring
and evaluation. The guidance is intended to complement and provide additionality to the
United Nations Development Group’s (UNDG) Guidelines for UN Country Teams on
Preparing a CCA and UNDAF. The document can also be useful to the wider development
community by providing helpful insights on integrating DRR into broader development
analysis, strategic planning and programming. The guidance note can be accessed – together
12
Additional commitments to assure the integration of a gender perspective into all disaster management decision-making
processes, including those related to risk assessments, early warning, information management, education and training
include: Manila Declaration for Global Action on Gender, Climate Change and Disaster Risk Reduction (2008) and Beijing
Agenda for Global Action on Gender-Sensitive Disaster Risk Reduction (2009).
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
with other tools and resources – on the new DRR web-space on the UNDG website:
www.undg.org/drr.
The UNDG guidance also provides useful information on how to use a Human Rights Based
Approach to assess disasters risk within the Situation Analysis and /or country analysis phase
of the development of a new UNDAF and Country Programme.
Partners’ Approach to DRR
Over the past decade, several key UNICEF partners in the UN and other international
organizations have developed policies and increased their capacity to engage in programming
for disaster risk reduction13. Whilst there is no official division of responsibilities, WFP
prioritizes risk assessment, disaster preparedness and food for assets to achieve resilience and
bolster livelihoods protections, whereas UNDP is focusing on developing a disaster risk
reduction perspective and the human, financial and legislative capacity of its national
counterpart. UNEP is integrating risk analysis into water resource management. UNESCO is
currently developing a disaster risk reduction strategy and promoting resilient education
systems and outreach to communities through disaster risk reduction education. OCHA sees
its role in strengthening the institutional preparedness of the humanitarian system (and the
capacity of national authorities to work with it). The International Federation of Red Cross
and Red Crescent Societies (IFRC), which is perhaps the largest international actor in this
field, through a ‘global alliance on disaster risk reduction’ is mobilizing its network of
volunteers in 186 countries to enhance community resilience; and Save the Children, Plan
International and World Vision each have a specific focus on children and disaster risk
reduction that includes national advocacy campaigns, school based learning and integrated
programming in high risk communities.
UNICEF’s Approach to Disaster Risk Reduction
Summary
UNICEF has long recognized the importance of disaster risk reduction. UNICEF fully
supported the International Decade for Natural Disaster Reduction in the 1990s. In its 1994
position paper14, UNICEF concluded that “disaster prevention and preparedness programmes
are not routinely or even frequently built-in to development programmes. Sustainable
development is therefore compromised.” In 2005 UNICEF committed to the Hyogo
Framework for Action and in 2006 became a formal member of the ISDR System. Since
2006, UNICEF has played a role not only in strengthening the ISDR System but has been an
active participant in a number of global, regional and national networks. Moreover, during
the 2009 Copenhagen Climate Conference (COP 15), UNICEF and its partners brought
together children and senior humanitarian leaders to advocate for the right of children to
participate in disaster risk reduction.
At the country level, UNICEF is uniquely placed to strengthen its programming on DRR
given its presence and focus on building partnerships with government and civil society from
the national to the community level. UNICEF should promote and help ensure adequate and
specific focus on the rights and vulnerabilities of girls, boys, adolescents and women. In line
13
Most agencies practice at national level links disaster risk reduction with adaptation to the humanitarian
consequences of climate change
14
IDNDR, UNICEF position paper, Rosemary Fieth, 1994
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
with emergency risk informed programming and building on the mainstreaming of
emergency preparedness and response all UNICEF Focus Areas in the framework of the
MTSP provide an opportunity to prepare for, prevent and mitigate disaster risk. Annex 1
summarizes examples of programming related to DRR which is intended to serve as a useful
reference.
DRR in the Revised UNICEF CCCs
DRR is an important component of the recently revised UNICEF Core Commitments for
Children in Humanitarian Action (CCCs). In addition to clarifying UNICEF’s commitments
to children in terms of standards and benchmarks to be measured during emergencies, the
CCCs formalize a new thrust of humanitarian action as representing a set of principles,
approaches and specific interventions that cover preparedness, response and early recovery,
and thus bridge the gap between development and humanitarian programming. This vision is
informed by the foundation principles that guide UNICEF's work overall, namely a Human
Rights-Based Approach to Cooperation and Gender Mainstreaming and a commitment to
apply humanitarian principles. Emergency Risk Informed Programming and Capacity
Development are key approaches that underpin this vision of humanitarian action.
DRR Programme Actions feature prominently in the revised CCCs, in recognition of the fact
that disaster risk reduction is essential to realizing the CCCs.





Examples of DRR Measures in Revised CCCs
Ensure periodic training of health workers, including community agents in
emergency preparedness and response
Undertake contingency planning for WASH, Nutrition, Health, Education and Child
Protection response
Promote school emergency preparedness plans, advocate for safe school structures
and include disaster risk reduction measures in school curricula
Ensuring WASH recovery interventions are based on a robust analysis of disaster
risk
Adapt nutrition information systems to facilitate decision making for enhanced
malnutrition prevention
UNICEF’s Strategic Framework and Programme Operations
There are already significant on-going initiatives on DRR in UNICEF. For example,
organizational early warning and emergency preparedness – including updates of emergency
risk assessment, preparedness planning and emergency response readiness as documented in
the EWEA system – is one of the main pillars of disaster risk reduction. UNICEF is also
integrating disaster risk reduction into the work of the global education, health, WASH and
protection clusters.
However, in order for UNICEF to address this challenge in a more strategic way, the
following framework for disaster risk reduction would enable UNICEF and its partners to:

Identify strategic opportunities to help identify, understand and significantly reduce the
specific disaster risk faced by boys and girls, including adolescents; as well as women,
and build on their capacities to respond when a disaster strikes ;
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)


Communicate what UNICEF does in disaster risk reduction better to facilitate internal
leadership as well as external accountability, advocacy and fund-raising;
Contribute to a coherent approach to climate change adaptation (meeting the
humanitarian consequences of climate change), at the local level, in national policy
frameworks and in international fora.
Protecting the rights of children, including fostering participation, cuts across all four of the
following strategic directions:
GOAL: The rights, safety and resilience of vulnerable girls, boys and women in hazard
prone communities, including those affected by climate change, are enhanced through a
reduction in disaster risk
Outcome
Supporting Strategies
1. DRR for children and
women is a national
and local priority
 Promote the inclusion of child focused DRR in Poverty Reduction
Strategies (PRS) and National Development Plans and related policy
and budget instruments
 Promote inclusion of child focused DRR in the Common Country
Assessment and UN Development Assistance Framework
 Include child focused DRR in UNICEF Country Programmes in line
with emergency risk-informed programming
 Collaborate with governments, UN, NGO and other partners to
advance the implementation of the Hyogo Framework for Action
 Promote the voice and participation of girls, boys, adolescents/young
people and women in DRR
2. Different risks faced by
girls, boys and women
are identified and
addressed
 Include a robust assessment of disaster risk, including related
vulnerabilities and capacities in UNICEF-supported Situation
Analysis, data collection and monitoring, and other child-focused
research
 Promote sub-national Vulnerability and Capacity Assessment in
high risk contexts as appropriate; ensure assessment is informed by a
gender and rights analysis.
 Include monitoring of risk in UNICEF’s programme management,
review and evaluation cycle
 Promote & strengthen national systems to assess and monitor risk
including people-centred early warning systems
 Collaborate with NGO partners and others to establish an evidence
and research base on disaster risks with a focus on differential
vulnerabilities and capacities of girls, boys, and women
 Promote DRR knowledge and awareness at household and
community level through C4D
 Strengthen school safety and the formal and non-formal education of
children in DRR and climate change adaptation
 Ensure water, sanitation & hygiene facilities are protected from
hazards and contribute to resilience
 Strengthen child protection systems and social policy strategies to
reduce risk posed by disasters
 Promote health and nutrition strategies to increase safety and
resilience
 Promote in specific high risk contexts an integrated programming
approach linking national development and policy processes to
community resilience frameworks; ensure approach is informed by a
3. Safer and more
resilient conditions for
girls, boys and women
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Outcome
Supporting Strategies
4. Strengthened
humanitarian
preparedness, response
& early recovery
gender and rights analysis.
 Support the capacity development of national and sub-national
partners in preparedness, response including early recovery
approaches.
 Support UNICEF led / co-led humanitarian clusters to advance
disaster risk reduction including capacity development of national
and sub-national partners mentioned above
 Strengthen UNICEF internal capacities in preparedness, early
warning, response with an early recovery approach.
Throughout the suggested approach, it is recognized that situation assessment and regular
monitoring are central to a sound strategy for DRR. This is also true of the broader approach
underpinning emergency risk informed programming, which strongly emphasizes the
requirement for Country Offices to work with government and partners to develop a robust
risk assessment within the SITAN process and documentation with a focus on the assessment
of priority emergency risks (caused by natural disasters, social/political conflict and health
crisis), the related different vulnerabilities and capacities of girls, boys and women and the
related capacities of regional, national and local actors to prevent, mitigate, prepare for,
respond and recover from disasters. Through sound assessment of emergency risks more
generally, disaster risks must be more specifically identified and analysed, as a basis to
design sound programme interventions.
In line with emergency risk informed programming, to deliver on the above framework a
minimum set of actions are required at all levels of UNICEF. The following Table outlines
the key actions and standards for DRR within UNICEF. This set of standards is divided
according to the level of risk of a country facing a natural disaster. Other factors, such as the
level of vulnerability of children and also the current capacity in each country to respond to a
natural disaster, should also be taken into consideration when defining the risk in each
country.
UNICEF’s Programme, Policy and Procedures Manual is currently being revised to reflect,
among other changes, the approach of emergency risk-informed programming, of which the
standards below are a subset.
Table: Key Actions and Standards for DRR within UNICEF
Office
Accountability
Country
Office
DRR included in
country programme
according to disaster
risk assessment
N.B. Standards are
cumulative for CO
risk level
Risk of Natural
Disaster
LOW RISK OF
NATURAL
DISASTERS (i.e.
unlikely to occur
during the
programme
cycle)
MEDIUM RISK
Standards
1. Ongoing Situation Analysis identifies and
analyses disaster risk including related
vulnerabilities and capacities, with gender
and age differentiation
2. Cross cutting emergency response readiness
self reported through key actions 1 to 13 in
the EWEA system
3. Emergency preparedness included in the
management results of UNICEF rolling
workplans
4. Child-focused DRR included in the
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Office
Accountability
Risk of Natural
Disaster
OF NATURAL
DISASTERS
(i.e. may occur
during the
programme
cycle)
Standards
5.
6.
7.
8.
9.
Regional
Office
HIGH RISK OF
NATURAL
DISASTERS
(i.e. will likely
occur during the
programme
cycle)
Ensure each CO addresses DRR
10.
11.
1.
2.
3.
4.
Headquarters Provide global advocacy, policy,
guidance and technical support
1.
2.
3.
4.
5.
CCA/UNDAF and UNICEF CPD/CPAP
DRR promoting strengthened community
resilience included under sectoral
programme components in UNICEF
CPD/CPAP and rolling workplans
Capacity Development for CCC
interventions in place
Evidence base, good practice & lessonslearning processes in place
Advocacy and policy engagement strategy
on children & disaster risk
Sectoral emergency response readiness self
reported through key actions 14 to 20 in the
EWEA system
DRR as an explicit UNDAF outcome and
CPD/CPAP and rolling workplan
programme component result (including
community resilience whenever
appropriate)
Capacity in place to implement DRR
outcome
Regional office management plans and
workplans include monitoring and analysis
of disaster risk
DRR technical support available to assist
high risk countries
Regional collaboration and advocacy for
HFA implementation.
Advocacy strategy on children & disaster
risk
Global DRR policy, guidance, tools and
good practices
Technical support to RO and selected CO in
place
DRR knowledge management support
Global inter-agency advocacy
Resource mobilisation support.
Annex 1 provides examples and case studies in various contexts of DRR programming.
Annex 2 summarizes the currently available support and Annex 3 provides a list of useful
references.
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Annex 1: Examples/Case Studies
In 2009, UNICEF and its partners published a research report that included 15 case studies of
child focused DRR15. Additional examples within UNICEF programming are set out below
under the above four outcomes:
DRR for girls, boys and women is a national and local priority



In Cote D’Ivoire in 2010, UNICEF worked with the UN Country Team to support the
establishment of a national DRR platform to advance the HFA.
To highlight the impact disasters have on children’s rights and the reducing their risk,
UNICEF has included this issue on the agenda of a High Level Meeting on International
Cooperation for Child Rights in the Asia Pacific Region (October 2010).
To advocate for governments and negotiators at the Copenhagen Climate Conference
(COP15) to address children and DRR in future agreements, UNICEF co-led a side event
on children and climate change.
Strengthened humanitarian preparedness, response and early recovery through
capacity development

In Mozambique, UNICEF and WFP co-led an inter-agency process to develop a joint UN
programme on capacity development for government and other partners for emergency
preparedness. This resulted in enhanced early warning, more timely response and
ultimately lives saved during the 2009 floods.

In Laos, UNICEF in partnership with French Red Cross has implemented CommunityBased Disaster Risk Management trainings for district officers responsible for Heath,
Water Supply and Sanitation provinces affected by 2008 Mekong flooding, in order to
give them the knowledge needed to conduct CBDP training at community level. Nine
pilot villages have developed Disaster Risk Reduction Plans as a result. Government of
New Zealand has shown interest to support scale up of this activity through UNICEF.
Different risks faced by girls, boys, adolescents and women are identified and addressed
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15
In Kenya, in order to gain a better understanding of disaster risk faced by children and
women, UNICEF has led a process to carry out a gender-sensitive vulnerability and
capacity assessment at the district level. In partnership with the Kenya Red Cross and
local government, this participatory process has helped inform local and national
humanitarian and development plans.
In Haiti, UNICEF partnered with Plan International to ensure children’s voices and their
perspectives of disaster risk were included in the Post Disaster Needs Assessment
(PDNA) and subsequent recovery plans.
In Mozambique, UNICEF co-organized a national workshop on Gender in Emergency
Preparedness and response, which contributed to building the capacity of national and
international partners to strengthen the gender-dimensions of their disaster preparedness
programmes (November 2009).
http://www.childreninachangingclimate.org/docs/Child%20Led%20DRR_Taking%20Stock.pdf
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Safer and more resilient conditions for girls, boys and women
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In Algeria, to reduce disaster risk posed by earthquakes, UNICEF supported activities in
64 schools. This included the training of emergency focal points (teachers and
children), the provision of emergency and first aid kits and the establishment of
evacuation plans. Simple life schools, such as to ‘duck, cover and hold’ (a measure to
reduce the likelihood of a being hit by falling objects during a quake) were also included
in school curricula.
In Central Asia (Tajikistan, Kazakhstan and Uzbekistan), UNICEF partnered with the
European Commission and others to implement a programme on DRR and education. At
the national level more than 50 senior government officials engaged in the programme
while 10,000 teachers and disaster management officials were trained on school safety
and 380,000 school children were taught basic life-skills to help ensure their safety at
school and within their communities
In Brazil, UNICEF is leading an initiative to improve conditions for children and women
at municipal level. The ‘Municipal Seal’ (seal of approval) is awarded to mayors on the
basis of their proven ability to make municipalities safe for children. This includes
addressing factors such as exclusion from education and inequity that contribute to
vulnerability to disasters (including in the favelos).
In Zimbabwe, UNICEF is reviewing its WASH programme from the perspective of
disaster risk. This is to prevent wells and latrines from being destroyed and to reduce the
likelihood of an associated further cholera outbreak.
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Annex 2: Available Support
A selected list of internal/external resources, websites and institutions is included in Annex3.
Internal Support
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Dedicated DRR technical capacity and support is provided by EMOPS Recovery and
Risk Reduction Section (RRRS) (NY and Geneva)
Programme Policy and Guidance (DPP).
Dedicated Preparedness and Early Warning technical capacity and support is provided by
EMOPS Early Warning Preparedness (EWP) Section (Geneva).
Dedicated DRR technical capacity and support is provided by Regional Offices.
DRR Community of Practice on the Emergencies Portal
UNICEF research report on Children and Disaster Risk Reduction.
Dedicated support to address gender dimensions of DRR is provided by EMOPS,
Humanitarian Policy Section, and the Gender and Humanitarian Action Community of
Practice on the Emergencies Portal.
A UNICEF Community of Practice on DRR
External Support
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The International Strategy for Disaster Reduction (ISDR) has technical support capacity
in most regions.
The ISDR Prevention Web has a significant database of good practice, community of
practices, academic resources and tools
The United Nations Development Group (UNDG) has developed guidance and technical
support capacity in integrating DRR and climate change adaptation in the CCA/UNDAF
Regional bodies such as Asian Disaster Preparedness Centre (ADPC), All India Disaster
Management Institute (AIDMI) and academic institutions, including the University of
Cape Town, exist in most regions
The Gender and Disaster Sourcebook provides an electronic guide to integrating gender
in disaster preparedness and response: http://www.gdnonline.org/sourcebook/
International Financial support
The international community has begun efforts to provide financing, and a number of donor
governments have allocated funds to disaster risk reduction. As early as 2004, for example, at
least one donor government announced a policy to reserve 10% of its contribution for each
natural disaster to prepare for and mitigate the impact of future disasters.
The EU allocated EUR180 million in 2009 for disaster risk reduction to the African,
Caribbean and Pacific regions and in 2010 is expected to seek an additional EUR 100m from
the European Parliament. Since its establishment in 2006, the World Bank’s Global facility
for disaster reduction and recovery (GFDRR) has committed an estimated $54 million to
“risk assessment, mitigation financing and capacity building programmes to the strengthen
resilience of communities”.
The Adaptation Fund established by the United Nations Framework Convention on Climate
Change (UNFCCC) under the Kyoto Protocol is estimated to have $450 million available
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
until 2012. Several International Financial Institutions (IFIs) have also begun to explore the
use of contingent credit arrangements. In 2009, the Inter-American Development Bank
(IADB) announced a new $600 million contingent credit facility to cover urgent post-disaster
financing needs. Additional financing opportunities also exist from the private sector (eg.
Insurance Companies).
While donor policy on disaster risk reduction and climate change adaptation continues to
evolve, further specific detail on the current policies and practice of donors can be accesses
on respective websites or by contacting UNICEF headquarters.
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Programme Guidance Note on Disaster Risk Reduction (February 10, 2011)
Annex 3: References (selected)
AusAID, Investing in a Safe Future, (2009)
http://www.ausaid.gov.au/publications/pdf/disasterriskreduction.pdf
Benfield Hazard Research Centre
http://www.benfieldhrc.org
Benson, C. and J. Twigg ‘Measuring Mitigation’: Methodologies for Assessing
Natural Hazard Risks and the Net Benefits of Mitigation (2004), ProVention Consortium
http://www.proventionconsortium.org/?pageid=37&publicationid=33
DFID (2006) Reducing the Risk of Disasters (2007)
http://webarchive.nationalarchives.gov.uk/+/http://www.dfid.gov.uk/pubs/files/disaster-riskreduction-policy.pdf
Global Network of Civil Society Organisations Clouds but Little Rain (2009)
http://www.preventionweb.net/files/globalplatform/VFLsummaryreport0609.pdf
IFRC World Disasters Report: Focus on Reducing Risk, International
International Federation of the Red Cross and Red Crescent Societies, Geneva
http://www.ifrc.org/publicat/wdr2009/index.asp?navid=09_03
Interagency Network for Education in Emergencies (INEE)
http://www.ineesite.org/
INEE, Guidance Notes on Safer School Construction (2009)
http://www.ineesite.org/index.php/post/safer_school_construction_initiative/
IPCC, Fourth Assessment Report, 2007
http://www.ipcc.ch/ipccreports/ar4-wg1.htm
ISDR, Global Assessment Report (2009)
http://www.preventionweb.net/english/hyogo/gar/
ISDR, Prevention Web
http://www.preventionweb.net/english/
Netherlands Red Cross Red Cross Red Crescent Climate Guide (2003)
http://www.climatecentre.org/site/publications/85
Pelling, M. The Vulnerability of Cities: natural disasters & social resilience (2003),
Earthscan
http://www.preventionweb.net/english/professional/publications/v.php?id=643
Provention Consortium, Community Risk Assessment Methodologies & Case Studies
http://www.proventionconsortium.org/?pageid=43
SCF-UK. A legacy of disasters (2007)
http://www.savethechildren.org.uk/en/docs/legacy_of_disasters.pdf
SCF-UK. In the face of disaster(2008)
http://www.childreninachangingclimate.org/docs/In%20the%20Face%20of%20Disaster.pdf
Twigg, John. Characteristics of a Disaster Resilient Community,(2008)
http://www.benfieldhrc.org/disaster_studies/projects/communitydrrindicators/community_drr_indicat
ors_index.htm
UNDG, Integrating Disaster Risk Reduction in the CCA and UNDAF (2009)
http://www.undg.org/docs/9866/UNDG-DRR-Guidance-Note-2009_DUP_08-07-2009_11-43-02734_AM.PDF
UNICEF, Climate Change and Children, A Human Security Challenge, (2008)
http://www.unicef-irc.org/publications/pdf/climate_change.pdf
World Bank, Global Facility for Disaster Reduction and Recovery
http://gfdrr.org/index.cfm?Page=home&ItemID=200
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