UN SYSTEM REFORM FOR DISASTER RISK REDUCTION (ISDR)

1. UN SYSTEM REFORM NATURAL DISASTERS HIGHLIGHTSNATURAL DISASTER HIGHLIGHTSJENNIFER WORRELLSENIOR ADVISORDISASTER REDUCTION UNITUNDP – BUREAU FOR CRISIS PREVENTION & RECOVERY

2. UN SYSTEM REFORM FOR DISASTER RISK REDUCTION (ISDR) • Adoption of policy framework and action plan for managing and reducing disaster risk at Kobe, Hyogo, Japan in 2005. • 168 governments adopted a 10 year plan to make the world safe from natural hazards The Hyogo Framework of Action represents a global blue print for DRR in the next decade and offer guiding principles for action

3. HYOGO FRAMEWORK“PRIORITIES FOR ACTION” • Make Disaster Risk Reduction a Priority • Know the Risk and Take Action • Build Understanding & Awareness • Reduce Risk • Be Prepared & Ready to Act

4. MAIN ELEMENTS OF PROPOSED ISDR REFORMS • Overall responsibility for the strategy within the UN would remain with the Under-Secretary-General for Humanitarian Affairs, with a permanent vice-chairman represents the United Nations Development Group, supported by a management oversight board • An expanded and reformed Inter-Agency Task Force on Disaster Reduction that would serve as a Global Forum on Disaster Risk Reduction and advise on and commit to supporting the implementation of the Hyogo Framework. Its membership would include governments and United Agencies, required organizations and civil society and it would be renamed the global platform for Disaster Risk Reduction. • A Subsidiary Programme Advisory Board would review and coordinate the work programme of the global platform and it associated entities

5. MAIN ELEMENTS OF PROPOSED STRENGTHENED ISDR SYSTEM • A strengthened Strategy Secretariat would have the following core functions : • Trackingthe overall implementation of HFA, facilitation reviews of experience and preparing progress reports • Promoting a worldwide culture of risk reduction, acting as a “Clearing House” for information and communication materials, advocated with broad inter-agency collaboration and networks of expertise • Facilitating and serving the successor of the task force, the management oversight board and regional and thematic platform and networks encouraging policy development and review and supporting cooperation among members • Supporting national platforms for disaster risk reduction with information and policy advice, acting as a broker for the provision of technical expertise and resources to national & thematic programmes • Serving as the focal point within the United Nations system for the coordination & harmonization of policies & strategies for disaster risk reduction, encouraging synergy between humanitarian and socio-economic development policies and strategies of the UN system. • Advocating resource mobilization, establishing tracking & reporting system, administering the strategy trust fund for disaster reduction.

6. DISASTER MANAGEMENT TRAINING PROGRAMME (DMTP) • 1990 – created as an inter-agency learning platform to enhance the capacities of governments and UN system at the country level for their disaster related work. • 1990-98, jointly managed UNDP and OCHA; Secretariat is now housed UNDP. • Core service areas: UNCT workshops (national & regional level), training materials development, workshops for Governments on their disaster related roles. • As a result of 2004 review of the DMTP and a Feb 2006 global meeting, DMTP will start to function more as an alliance or resource for capacity development for disaster risk reduction, focused on the “how to” or practice of capacity development.

7. EARLY WARNING SYSTEM • Good progress is made for the development of an EWS for tsunami in the Indian Ocean • There is agreement on the establishment of a multi-lateral mechanism for strengthening regional ocean observing systems and exchanging data & warning information under the leadership of UNESCO – Intergovernmental Oceanographic Commission. • Interim tsunami advisory system has been put in place and WMO is taking steps to upgrade the necessary telecommunication capabilities. • Multi agencies assessment reports are underway to identify country need for technical assistance in early warning and countries of the region are working towards establishing national tsunami warning centers. • Training for technical persons is ongoing • People centered early warning & community preparedness happening in vulnerable communities to help development capacities of communities to understand the tsunami risk and effectively respond to warning

8. HUMANITARIAN RESPONSE SYSTEM • Humanitarian response need to become more predictable in all emergencies and need to have a more predictable response capacity in areas where now there are too often gaps. • Need to strengthen field coordination structures, notably by better preparing and equipping United Nations Country teams, strengthening the leadership of the Humanitarian Coordinator. • Ensuring that sufficient & flexible resources are immediately available to support these field structures • Need predictable funding that meet the needs of vulnerable communities – need to ensure that the generous outgoing of global support to the tsunami crisis becomes the rule and not the exception • We need to include in this reform process a series of proposals for new standby arrangements for personnel and equipment to ensure the capacity to respond to natural disasters and other emergencies, if need be in several areas at the same time • Need to examine whether the existing central emergency revolving fund CERF should be upgraded or a new funding mechanism should be established.

9. THE CLUSTER APPROACH • The development of the cluster approach for priority sectors of humanitarian response • This cluster approaches was applied in the response to South Asia Earthquake in Pakistan • What is evolving from this experience of the early recovery cluster in Pakistan are indication of the key issues that need to be addressed in the transition period following natural disaster impacts

10. CLUSTER APPROACH The Cluster approach aims to • Improve the predictability, timeliness and effectiveness of humanitarian response and the way for recovery • Strengthen the leadership and accountability of key sectors and not replace sectors • Initial 6 clusters were identified through the HRR and other process as required strengthening : • Protection (including comp management and camp coordination) • Emergency Shelter • Water & Sanitation • Nutrition & Feeding • Reintegration & Recovery Early Recovery Cluster • Logistics & Emergency Telecommunication • By the time of Pakistan 9 clusters were operational

11. WORKING GROUP ON EARLY RECOVERY (WGER) • UNDP – Lead Agency • Recognizing that reintegration & recovery is no a sector but a multi dimensional process, the WGRR agreed to form an “early recovery” with the humanitarian context combing both natural disaster & conflict • Agreed upon definition of early recovery to cover both natural disaster & conflict situations • Conducted a gap analysis for natural disaster & conflict • Developed a matrix defining and identifying the key elements of cluster responsibilities • Conducted a mapping exercise of agencies existing capacities • Developed actionable recommendations and implementation plans to fill gaps

12. WORKING GROUP ON EARLY RECOVERY(actionable recommendation & implementation planning) • In order to promote coordination and complementary humanitarian and recovery related interventions and to accelerate impact of development activity the WG recommended on 11 step – concrete action aimed to establishing a working group for early recovery as the “early recovery hub”. • To serve as the single repository of tools, instruments, methods & approach for different types of crisis and to be accountable for ensuring cluster development and operational function • The hub was to be supported by a technical & operational platforms IRP for conflict to be established • Work of these platforms to be organized through a phased approach • Identifying priority themes/sectors and critical gaps on ER and facilitating knowledge impact, training, inter agency partnership

13. ACHIEVEMENTS OF ER CLUSTER IN PAKISTAN (HIGHLIGHTS) • Completion of a multi sectoral rapid assessment of early recovery needs within weeks of the earthquake • Negotiation & agreement on UN system support for guiding principles for recovery among UN system, key donors and IFI; • Formulation of Government approved UN system strategic framework for Early Recovery to guide programming implementation (including cost plan & project profiles) • Establishment of sector working groups under the umbrella of government ERRC specializing in livelihoods & shelter/housing. These working groups may turn into full clusters as the early recovery & reconstruction efforts gain momentum. • Establishment of 2 field based clusters in Mansehra & Muzaffarabad

14. KEY LESSONS (HIGH LIGHTS) • A general lack of understanding in the humanitarian community on early recovery, the standard areas of intervention for early recovery and how these complement the efforts of the humanitarian actors and IFI’s • Competition between ER with ongoing humanitarian response • Inability to full engage and coordinate with the World Bank • Consistent government participation in the cluster remained a challenge • The role of the cluster in the transition was not clearly defined during the pre-disaster phase e.g. : which clusters will remain or be transformed during the transition phase • How these structures during transition will support the natural institutional mechanism for Humanitarian Response & Early Recovery ELA/ERRA was not was clear. • Division of labor & exchange between field, Islamabad & Geneva based clusters need to be clarified • Real time evaluation of the cluster approach – PKK- will provide more insights

15. KEY ISSUES/ DEVELOPMENTS RELATIONG TO ER / TRANSITION PAKISTAN CASE • The humanitarian clusters are in the process of preparing their exit strategies and the UN system as a whole is rethinking how best to support the transition to an early recovery & reconstruction process that is strongly led and owned by the government • Coordination gap : The RC function need to explicitly include responsibilities for recovery co-ordination enabling continuity & linkage between humanitarian coordination & longer term development. • More by UNDG to support Recovery Coordination in post tsunami situations demonstrates that the system is already beginning to think about this • However capacity needs to be built with the system to absorb or refine existing Humanitarian infrastructure to support the coordination needs of early recovery period • Operational Mechanisms : Whilst a number of mechanisms exist to support the RC/HC in humanitarian coordination (UNDAC, HIC), no such formal mechanism exists as yet to support recovery • IRP – work on Post Disaster Needs Assessment and Surge Capacity for recovery is also a step in right direction

16. KEY ISSUES/DEVELOPMENTS RELATIONG TO ER / TRANSITION PAKISTAN CASE • In the case of Pakistan, discussions are underway to establish an RC office that supports humanitarian and recovery coordination functions • The ERC in Pakistan is now recommending that it is gradually transformed into an entity that supports the RC’s coordination function to full the existing gaps in recovery coordination and ensure recovery issues are adequately addressed with Government & IFI’s in the remaining early recovery period • It is suggested that the proposed entity will focus on providing normative support to the recovery process and address the outstanding task of the ERRC . • The IASC working group in recovery & reintegration has noted that UNDP – the cluster head should have a key role in supporting recovery coordination on behalf of the RC in the same way that OCHA supports humanitarian coordination and recommends the UNDP continuing to chair the ERRC follow-up entity

17. EMERGING DIRECTION / OBJECTIVIES OF ERR CLUSTER DURING THE TRANSITION • Support the Humanitarian/Resident Coordinator, the government & earthquake affected communities in coordinating & strategically planning early recovery and integrity risk reduction measures at the very early stages. • Assist in the monitoring & evaluation of progress towards achievements of results indicated in the Early Recovery Framework & guiding principles agreed upon by the group of 7. • Support knowledge management through analysis & systematic documentation of lessons learned and good practices from early recovery operations. • Support the development & review of policies and practices that facilitate speedy implementation and sustainability of early recovery programmes. • Enable the integration of early recovery into existing programming and funding mechanism and or develop alternatives for enhancing resource mobilization efforts. • Foster inclusive & consultative decision making during the recovery process.

18. ONGOING FUNDING FOR HUMANITARIAN RESPONSECURRENT ISSUES“Financial tools available to the system inadequate” • The system needs to enable immediate response to sudden disasters and address large unmet needs in neglected emergencies – financial tools available to the system inadequate • Recognizing the necessity of dynamic & flexible response to changing needs in humanitarian crisis, drive to ensure predictability and flexibility in funding to the UN agencies, fund & programmes and to other key humanitarian organization • No available funding mechanism for early recovery in Natural Disasters : • Funding for capacity building for risk reduction in high risk countries severely inadequate. • System needs to have a structure to ensure funding of humanitarian action in new crisis does not adversely affect the meeting of needs in ongoing crisis.

19. REFORMS CERF : • Adopting a landmark resolution enacting a key reform sought by the UN SG and enclosed by political leader of the 2005 world summit, the assembly established the Central Emerging Response Fund (CERF), replacing the current Central Emergency Revolving Fund to ensure swift response to humanitarian emergencies with funds expected to total 500 million – to be made available with 3-4 days. • Need for flexible criteria for the new CERF so that funding for ER, may be considered. • Support for some of the internal issue emerging from the Good Humanitarian Donor ship Initiative (forum for donors to discuss good practice in funding humanitarian assistance). This GHD needs to be effectively put into practice to support funding needs

20. OTHER CREATIVE FUNDING MECHANISMS OCCURS • Inclusion of ER needs in flash appeal process • Mixed reaction from donors to this. • Include issues of early recovery in reconstruction conferences • Mixed reaction also Tsunami, Grenada, Pakistan • Cluster appeal of 2006 to support cluster functions at the global level including capacity building for effective implementing cluster roles & responsibilities for ER • Current appeal 99 USD Let’s see??? • ER action plan to be presented to donors Objective: Not to appeal for additional pledges but to help translate existing pledges into operational interventions in the ground.

21. ECOSOC REFORMS (Relevant to Natural Disasters) ECOSOC :To address the economic & social challenges threats, and crisis as and when they occur. Progress • A Draft resolution for ECOSOC Reforms was presented in Jan 26, 2006. Some elements include: The council should be able to convene for this purpose as and when required and should be triggered by request made by a member state or on the recommendation of the President/Bureau • Should address the coordination and broad policy implementation of a situation, threat or crisis. • Within the overall focus of sustainable development, the council should monitor the threats to the realization of development challenges and emerging trends in economic and financial areas that could have an impact on development prospects and facilitate coordinate response to such threats. • ECOSOC may be supported by a UN system based Crisis Support ream • 10-11 May 2006 organizational session of ECOSOC to discuss draft resolution

22. SOME GLOBAL INITIATIVES TO SUPPORT IMPROVED UN SYSTEM AGENCIES FOR THE DISASTERS • Global Mainstreaming Initiative • Global Risk Identification Programme • Rethinking Capacity Development for Disaster Risk Reduction • Emerging cross-cutting role for DMTP in support of HFA • Understanding conflict /Natural Disasters Interface for improved country level programming and opportunities for peace building – linked to global mainstreaming initiative. • Need to look at transition after natural disasters for countries where conflict exist – Sri Lanka, Indonesia