UNISDR: Development of the Post-2015 Framework for Disaster Risk Reduction
UN Office for Disaster Risk Reduction
Zero draft submitted by the Co-Chairs of the Preparatory Committee (20 October 2014)
GENEVA, 21 October 2014 – The Zero Draft of the post-2015 framework for disaster risk reduction is an early draft of the final document which will be adopted at the Third UN World Conference on Disaster Risk Reduction in Sendai, Japan, next March.

[Excerpt from Preamble]
A. Preamble
1. This post-2015 framework for disaster risk reduction was adopted at the Third United Nations World Conference on Disaster Risk Reduction, held from 14 to 18 March 2015 in Sendai, Miyagi, Japan. The World Conference represented a unique opportunity for countries to: i) adopt a concise, focused, forward-looking and action-oriented post-2015 framework for disaster risk reduction and ii) identify modalities of cooperation and the periodic review of its implementation based on the assessment and review of the implementation of the Hyogo Framework for Action (HFA) and the experience gained through the regional and national strategies, institutions and plans for disaster risk reduction, as well as relevant regional and multilateral agreements.

The Hyogo Framework for Action: lessons learned and gaps identified

2. Since the adoption of the HFA in 2005, and as documented in national and regional progress reports on HFA implementation as well as in other global reports, progress has been achieved in reducing disaster risk at local, national, regional and global levels by countries and other stakeholders. This has contributed to decreasing mortality risk in the case of hazards,[1] such as floods and tropical storms. There is growing evidence that reducing disaster risk is a cost effective investment in preventing future losses. Countries have enhanced their capacities. International mechanisms for cooperation, such as the Global Platform for Disaster Risk Reduction and the regional platforms for disaster risk reduction have been instrumental in the development of policies, strategies, the advancement of knowledge and mutual learning. Overall, the HFA has been an important instrument for raising public and institutional awareness, generating political commitment, and focusing and catalyzing actions by a wide range of stakeholders at local, national, regional and global levels.

3. Over the same 10-year time frame, however, disasters have continued to exact a heavy toll. Over 700 thousand people lost their lives, over 1.4 million were injured, and around 23 million were made homeless as a result of disasters. Overall, more than 1.5 billion people were affected by disasters in various ways. The total economic loss was more than $1.3 trillion. In addition, between 2008 and 2012, 144 million were displaced by disasters. Disasters are increasing in frequency and intensity, and those exacerbated by climate change are significantly impeding progress toward sustainable development. Evidence indicates that exposure of people and assets in all countries has increased faster than vulnerability[2] has decreased, thus generating new risk and a steady rise in disasters losses with significant socio-economic impact in the short, medium and long term, especially at the local and community level. Recurring small scale, slow-onset and extensive disasters particularly affect communities, households and small and medium enterprises and constitute a high percentage of all losses. All governments — especially those in developing countries where the mortality and economic losses from disasters are disproportionately higher — and businesses are faced with increasing levels of possible hidden costs and challenges to meet financial and other obligations. The security of people, communities and countries may also be affected.

4. We are at a crossroads. It is urgent and critical to anticipate, plan for and act on risk scenarios over at least the next 50 years to protect more effectively human beings and their assets, and ecosystems.

5. There has to be a broader and a more people-centred preventive approach to disaster risk. Enhanced work to address exposure and vulnerability and ensure accountability for risk creation is required at all levels. More dedicated action needs to be focused on tackling underlying risk drivers and compounding factors, such as demographic change, the consequences of poverty and inequality, weak governance, inadequate and non-risk-informed policies, limited capacity especially at the local level, poorly managed urban and rural development, declining ecosystems, climate change and variability, and conflict situations. Such risk drivers condition the resilience of households, communities, businesses and the public sector. Moreover, it is necessary to continue increasing preparedness for response and reconstruction and use post-disaster reconstruction and recovery to reduce future disaster risk.

6. Disaster risk reduction practices need to be multi-hazard based, inclusive and accessible to be efficient and effective. It is necessary to ensure the engagement of all stakeholders and the participation of women, children and youth, persons with disabilities, indigenous peoples, volunteers, the community of practitioners, and older persons in the design and implementation of policies, plans and standards. There is a need for the public and private sectors to work more closely together and create opportunities for collaboration, and for business to integrate disaster risk into their management practices, investments and accounting….