practice note disaster risk reduction 2011

8/13/2019 Practice Note Disaster Risk Reduction 2011

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Contribution of Volunteerismto Disaster Risk Reduction

P R

A C T I C E

N O T E S


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Front Cover: In response to the Indian Ocean Tsunami in 2004, UN Volunteer Suranga Kahandawa conducts disaster risk management training sessions with beneficiaries in Sri Lanka. (UNV, 2007)


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CONTENTS . 1

TABLE OF CONTENTS

List of acronyms 2

Executive summary 3

Background and rational 4

Disaster Risk Reduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4Volunteerism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5Volunteerism and Disaster Risk Reduction. . . . . . . . . . . . . . . . . . . . . . . . . . . 5

UNV and Disaster Risk Reduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Volunteerism in action: Case studies 9

Case Study #1 : Integrating volunteerism into community disaster riskpreparedness. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Case Study #2 : Developing local capacities for risk reduction throughvolunteerism. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Case Study #3 : Involving an entire population in disaster risk reduction. . . 12Case Study #4 : Engaging volunteer-involving organizations for sustainable

capacity building . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14Case Study # 5 : Enabling communities to identify and mitigate risks . . . . . 15Case Study # 6 : Promoting the role of children in disaster response . . . . . 16

Conclusion 17

Community participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17Gender, youth and marginalized groups. . . . . . . . . . . . . . . . . . . . . . . . . . . . 17Stakeholder participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18Programming aspects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18Capacity building. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19


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2 . UNITED NATIONS VOLUNTEERS: PRACTICE NOTES

LIST OF ACRONYMS

BCPR UNDP Bureau for Crisis Preventionand Recovery

CPP Cyclone Preparedness Programme(Bangladesh)

DRR Disaster Risk ReductionECHO European Commission

Humanitarian Aid and CivilProtection

HFA Hyogo Framework for ActionICMC International Catholic Migration

CommissionIFRC International Federation of Red

Cross and Red Crescent SocietiesISDR United Nations International

Strategy for Disaster Reduction

NGO non-governmental organizationSGCO self-governing community

organizationsSNGR Secretara Nacional de Gestin de

Riesgos (Ecuador)UN United NationsUNDP United Nations Development

ProgrammeUNICEF United Nations Childrens FundUNOPS United Nations Office for Project

ServicesUNV United Nations VolunteersVIOs Volunteer Involving OrganizationsWMO World Meteorological Organization


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EXECUTIVE SUMMARY . 3

reduction at all levels. United Nations General Assembly resolution (A/RES/56/38) identifies disaster response as one of the leading areas in whichvolunteers can contribute to society and development.

All too often national, regional and local disaster riskmanagement plans do not acknowledge thecontribution and role of volunteers, even though theyusually play an important role when implementingthose plans. In these cases the risk of an ad hoc anduncoordinated approach to the involvement of volunteers is high. It is therefore part of the UNVprogramme strategy to work toward better integrationof volunteerism into disaster management plans andto support national and local capacities for mobilizingand managing volunteers.

The PN provides an overview and understanding of how volunteerism can enhance the capacities of national and local actors in mitigating and coping with

natural disasters. It intends to strengthen UNVscapacity to better support national and local actors inidentifying ways that volunteerism can make adifference in the area of DRR and to more effectivelyintegrate volunteerism into any disaster risk reductionand/or response plan.

EXECUTIVE SUMMARY

The Practice Note (PN) on the Contribution of Volunteerism to Disaster Risk Reduction (DRR) wasdeveloped to provide an understanding of volunteerism and its relationship to this focus area.This document is primarily intended for UNVprogramme staff based in the organizationsheadquarters and field units. It intends to contribute tostrengthening UNVs capacity to more effectivelyengage partners in Disaster Risk Reduction during itsadvocacy and programming work.

The PN presents relevant background information andbasic concepts related to DRR. It also highlights goodpractices and lessons learned drawn from analysis of case studies of volunteering contributions of UNV andnon-UNV programmes and projects in this field.

The role of volunteerism in general and mobilizing andmanaging volunteers in particular are importantcomponents of any disaster risk management strategy

that aims at fostering community recovery, strengthand resilience in vulnerable areas. The HyogoFramework for Action 2005-2015 acknowledges thatcivil society, including volunteers and community-based organizations, are vital stakeholders insupporting the implementation of disaster risk


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BACKGROUND AND RATIONAL

Disaster Risk ReductionThe explanation and definition of DRR terms arebased on United Nations International Strategy for Disaster Reduction (ISDR), International Federationof Red Cross and Red Crescent Societies (IFRC)and Peace Corps publications.

A disaster can be caused by natural or human-induced hazards that affect a community or asociety, causing loss of life, damage to property,economic loss and/or environmental degradation.

Disaster risk refers to the probability of potentiallosses due to a hazard - these include loss of life,health, livelihoods, assets and/or services - whichcould occur to a particular community or a societyover a specified time period in the future.

In particular, disaster risk is a combination of:

Hazard : the probability of an event occurring in aspecific area, over a specified period of time, witha certain intensity level;

Vulnerability : the susceptibility of acommunity/society or system (building, bridge,pipeline, etc.) to that specific hazard, due tophysical, social, economic and environmentalfactors; and

Exposure : people, property, systems or other element present in hazard zones that are subjectto potential losses.

Geological hazards (earthquakes, volcaniceruptions, tsunamis, and landslides), hydro-meteorological hazards (tropical cyclones,thunderstorms, tornados, blizzards, heavy snowfall,avalanches, floods, droughts, heat waves) and wildland fires are natural hazards that can causedisasters, but are not disasters in and of themselves.

For instance, anearthquake that occurs

in a desert area may nottrigger a disaster because there is little tono population or property that could beaffected.

Disaster risk can bereduced by addressingthe underlining factorsof risk to reducevulnerability and/or exposure.

DRR, then, is definedby ISDR as the conceptand practice of reducingdisaster risks throughefforts to reduce exposure to hazards, vulnerabilityof people and property, land management and theenvironment, and improve disaster preparedness .

The World Conference on Disaster Reduction, heldfrom 18-22 January 2005 in Kobe, Hyogo, Japan,adopted the Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters. The Hyogo Frameworkfor Action is a ten-year plan to make the world safer from natural hazards. The Hyogo Framework for

Action presents a comprehensive approach toreduce disaster risk (see box).

Measures that can be adopted to reduce risks includethe construction of dams, flood levies, earthquake-resistant construction, and evacuation shelters.

Additional measures might be the adoption of building


1. 2009 UNISDR Terminology on Disaster Risk Reduction, ISDR, 2009.2. Community-Based Disaster Risk Reduction for Field Practitioners, IFRC,

2009.3. Integrating disaster preparedness and mitigation in your work, Idea Book

Series M0084, Peace Corps, 2001.4. Living With Risk: A global Review of Disaster Reduction Initiatives,

UNISDR, 2004;pag.175. See 1

Priority actions proposedin the Hyogo Framework

for Action1. Ensure that disaster risk

reduction is a national anda local priority with astrong institutional basisfor implementation.

2. Identify, assess andmonitor disaster risks andenhance early warning.

3. Use knowledge,innovation and educationto build a culture of safetyand resilience at all levels.

4. Reduce the underlyingrisk factors.

5. Strengthen disaster preparedness for effectiveresponse at all levels.

www.unisdr.org/we/coordinate/hfa


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codes, land use planning laws and their enforcement(that, for example, would avoid construction in high-

risk zones), risk assessment, and public awarenessprogrammes. The complete avoidance of risks is oftennot feasible, but DRR measures can significantlyreduce disaster risk and associated losses.

In order to effectively manage disasters, it isimportant to understand that there are differentmeasures that can be taken during the three phasesof a natural disaster: before, during and after.

BEFOREPrevention and mitigation actions andmeasures taken to avoid or limit the adverseimpacts of hazards. Examples includereforestation, watershed management, urbanplanning and zoning, improved infrastructure (i.e.communications, transportation), utilization of drought-resistant seed, and improved constructionpractices (i.e. earthquake-resistant housing).

Preparedness activities and actions taken to

prepare for and ensure that an effective responseto the disaster takes place. Preparedness actionscan include risk analysis, development of earlywarning systems, contingency planning,stockpiling of supplies, training and field exercises.

Actions also include education and trainingactivities that aim at capacity building for effectivedisaster management and response.

DURINGResponse the provision of emergency servicesand public assistance during or immediately after a disaster.

AFTERRecovery restoration and improvement, whenappropriate, of facilities, livelihoods and livingconditions of disaster-affected communities,including efforts to reduce disaster risk factors.Rehabilitation and reconstruction begin soon after the emergency phase has ended.

VolunteerismVolunteerism is a fundamental source of community

strength and resilience that exists in all societiesthroughout the world. Volunteerism is expressedthrough a wide range of activities, including traditionalforms of mutual aid and self-help, formal servicedelivery, campaigning and advocacy, as well as other forms of civic participation. The UN General Assembly(A/RES/56/38) defines volunteerism as undertaken of free will, for the general public good and wheremonetary reward is not the principal motivating factor.

Following the International Year of Volunteers in2001, the UN General Assembly (A/RES/57/106)recognized that volunteerism is an importantcomponent of any strategy aimed atpovertyreduction, sustainable development, health, disaster prevention and management and social integrationand, in particular, overcoming social exclusion anddiscrimination. Furthermore, the General Assemblynoted that volunteering, particularly at thecommunity level, will help to achieve thedevelopment goals and objectives set out in the UN

Millennium Declaration.

Volunteerism and Disaster Risk ReductionIn disaster response, the role and contribution of volunteerism is well recognized. In fact, when adisaster happens, volunteers are normally the first toact. The impact of volunteers in disaster responsecan be tremendous, as the extent of damage interms of economic and human loss is greatlyinfluenced by the initial response to a disaster.

In 1995, it was the massive voluntary response of citizens to the Hanshin earthquake in Japan that ledto the International Year of Volunteers being held in2001. In turn, this fostered a greater understanding of the role of volunteers in the humanitarian field and inDRR. The increased recognition of volunteerism inDRR was marked by UN General AssemblyResolution 57/106 Follow up to the International Year of Volunteers in 2003 and the Yokohama Strategy and Plan of Action for a Safer World in 1994.

BACKGROUND AND RATIONAL . 5


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organizations, promote good volunteer management and advocate the value of

volunteerism.

2. Identify, assess and monitor disaster risks andenhance early warning. Assist national level risk assessments. Facilitate national vulnerability and capacity

assessments. Support the creation of early warning systems.

3. Use knowledge, innovation, and education tobuild a culture of safety and resilience at alllevels. Share good practices. Engage in policy forums. Promote discussion and cooperation on DRR. Ensure dissemination of information, build

public awareness and promote strong voluntaryaction at the community level.

Support the production of village- andprovincial-level disaster risk management plansand ensure full ownership by communities.

4. Reduce the underlying risk factors. Support DRR projects. Provide vital links between government and

affected communities, empowering communitiesto participate actively in rehabilitation andsustainable livelihood schemes.

Increase the capacities of volunteers to respondto disasters.

Integrate volunteerism in DRR strategies. Pilot emergency plans.

5. Strengthen disaster preparedness for effectiveresponse at all levels. Support initiatives to build community

knowledge and resources, such as village-specific maps, evacuation plans andcontingency strategies.

Help develop preparedness and responsecapacities of local authorities and volunteers.


The Hyogo Framework for Action also highlights theimportance of volunteerism in DRR, stating that civil

society, including volunteers and community-basedorganizations, the scientific community and theprivate sector are vital stakeholders in supportingthe implementation of disaster risk reduction at alllevels. The Priorities for Action of the Frameworksuggest that community participation in disaster riskreduction includes the strategic management of volunteer resources and calls for the development of specific mechanisms to engage active stakeholder participation in particular by building on the spirit of volunteerism. Further, it acknowledges that civilsociety, including volunteers and community-basedorganizations, the scientific community and theprivate sector are vital stakeholders in supportingthe implementation of disaster risk reduction at alllevels. The Hyogo Framework also called for education and training to promote community-based training initiatives, considering the role of volunteers, as appropriate, to enhance localcapacities to mitigate and cope with disasters.

Volunteerism was also highlighted as a way of contributing to community resilience, communityengagement and good governance for allstakeholders, particularly those most vulnerable todisasters.

Volunteerism contributes to the five HFA priorities for action in the following ways:

1. Ensure that disaster risk reduction is anational and local priority with a stronginstitutional basis for implementation. Develop national volunteer infrastructure, which

could include supporting the development of specific volunteer legislation and nationalvolunteer schemes.

Support the mobilization of volunteers:coordinate the activities of volunteer-involving

6. UN General Assembly A/RES/56/38 Distr. 10 January 20027. UN General Assembly A/RES/57/106 December 2002


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The UN GA Resolution 2001 had expanded theUNV mandate on raising on raising awareness

and promote volunteerism for development.

The UN GA Resolution 2005 support for corporatevolunteering.

UNDPs Executive Board (DP/2007) encouragedUNV to increase its focus on assisting programmecountries in developing sustainable, nationalcapacities and to mobilize volunteers domesticallythrough national volunteer schemes, volunteer centres and networks (DP/2007/2).

UNDPs Executive Board Decision 2008 callsUNV to contribute to environmental sustainabilityand Climate Change agenda.

The 2011-2013 UNV Programme Strategy identifiesCrisis Prevention and Recovery as one of thestrategic focus areas for the work of the organization.

UNV interventions in the above priority area will be

supported by the three crosscutting themes of youth, gender and marginalised persons , alsodefined as the social inclusion pillars. At communityand institutional levels the social inclusion pillars willbe reflected in the above focus area through theinclusion of the relevant target groups in allvolunteerism and related institutional initiatives.

At policy levels, each pillar may be addressedseparately in so much as it relates to volunteerism,without a direct link to a specific focus area .

Under this thematic area, the Programme Strategyidentifies the following key sectors wherevolunteerism can intervene to provide an undisputedadded value:

disaster prevention and risk reduction;recovery, including livelihoods; andlocal post-conflict resolution/reconciliation/peace-building/human rights recovery and local conflictprevention.

UNV and Disaster Risk ReductionThe United NationsVolunteers (UNV)programme is the UNorganization thatpromotes volunteerismto support peace anddevelopment.Volunteerism benefitsboth society at largeand the individualvolunteer by strengthening trust, solidarity andreciprocity among citizens, and by purposefullycreating opportunities for participation. UNVcontributes to peace and development byadvocating for volunteerism globally, encouragingpartners to integrate volunteerism into developmentprogramming, and mobilizing volunteers. Thesebeliefs inform the concept of volunteerism for peace and development , which is at the core of UNV's mission.

UNVs mandate has significantly evolved since itsestablishment in 1970, when its initial role was torecruit, place and administer the services of qualifiedvolunteers, who provided professional support to UNagencies, funds, programmes and governments invarious countries. The key UN General AssemblyResolutions and UNDPs Executive Board Decisionsthat have defined and advanced the UNV mandateare the following:

The UN General Assembly (GA) Resolution 1976had called on UNV to promote the advancementof the role of youth in Development and to be amajor operational unit of the UN for the executionof youth programmes.

The UN GA Resolution 1978 had called UNDP Administrator and Executive Heads of UN systemorganizations to promote, the use of UNVolunteers in UN-assisted project and activities.

BACKGROUND AND RATIONAL . 7

8. UNV Programme Strategy 2010-2012

UNVs comparativeadvantage is the ability

and knowledge to bringabout transformationalchange throughvolunteerism, communityvoluntary action and civicengagement throughactive partnerships withcivil society, volunteer-involving organizations,United Nations agenciesand governments. This isinspiration in action.


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UNV supports countries that have an identified riskand high vulnerability to disaster to mitigate the

effects of crisis and address its root causes.

At the national level, UNV can:Support the establishment of a commonawareness and understanding of crises amongkey stakeholders, including local authorities andlocal communities;

Support governments in preparing, coordinatingand implementing crisis-sensitive developmentand recovery plans, including establishing and/or strengthening contextually appropriate nationalvolunteer programmes or schemes for disaster relief;

Advocate for the recognition of the role andcontribution of volunteerism of local communitiesand authorities in designing DRR plans;

Facilitate the development of institutionalcapacities of national and/or local authorities to

strategically plan, constructively negotiate, formconsensus, coordinate, mobilize, register, supportand monitor local volunteers and civil societyorganizations for disaster relief activities; and

Provide coordination, operational and technicalsupport to district administrations, non-governmental organizations andvolunteer-involving organizations in theimplementation of disaster risk assessment andreduction plans.

At the community level, UNV can:Create a space for inclusive dialogue and supportthe capacity development of community-basedorganizations to engage, empower and mobilizecommunity members in grassroots disaster riskmanagement efforts;

Raise awareness, promote preparedness andconduct community level hazard, risk, vulnerability

and capacity assessments, in order to developlocal disaster plans that feed into district and

national disaster plans;

Mobilize community contributions (volunteer, in-kind and other resources) for the implementationof local disaster risk management plans;

Facilitate the inclusion and participation of affected communities, especially women andyouth, in the planning and implementation of disaster risk management plans and tools;

Mobilize extended volunteer support to other districts/regions hard-hit by disasters; and

Revitalize the voluntary and/or mutual supportpractices and/or self-help activities of communities for the implementation of disaster risk management plans in times of crisis, recoveryand reconstruction.

The most natural partners for UNV in the area of

DRR are the UNDP Bureau for Crisis Prevention andRecovery (BCPR) and the United NationsInternational Strategy for Disaster Reduction (ISDR).In addition, UNV should work with nationalgovernments as well as national and internationalNGOs.


9. www.undp.org/cpr 10. www.unisdr.org


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Bangladesh isparticularly vulnerable

to losses during naturaldisasters which aremostly meteorologicaland hydrological innature due to acombination of itsunique geographicallocation and having oneof the lowest per capitaincomes in the world,with a population thatrelies largely onagriculture.

Disaster preparednessand risk reduction havelong been a nationalpriority and the resultsare tangible. As early as 1965, the governmentinitiated early warning systems for residents livingalong coastal zones. Following Cyclone Bhola in

1970, the Bangladesh Red Crescent Society incollaboration with Bangladeshs Ministry of Disaster Management and Relief, and supported by theInternational Federation of Red Cross and RedCrescent Societies, established a CyclonePreparedness Programme (CPP). The CPP relies ona volunteer structure to provide early warning toresidents. There are currently nearly 43,000 localvolunteers, half of whom are women, who use asystem of radios and megaphones and hand sirensto warn residents of impending weather events andto help relocate them to evacuation sites. Some2,500 elevated cyclone shelters have beenconstructed in coastal areas.

CPP volunteers are organized in an efficient networkof units, unions and sub-districts. Each unit servesone or two villages with an approximate populationof two to three thousand each. Fifteen volunteersare recruited for each unit by the villagers. Ten unitsform a union and ten unions compose the sub-

CASE STUDIES . 9

2. VOLUNTEERISM IN ACTION:

CASE STUDIESThe case studies have been selected to providegeographical coverage and to highlight the role of volunteerism in Disaster Risk Reduction, particularlyin addressing issues related to gender, youth andthe involvement of marginalized groups.

The methodology for the development of the casestudies followed a four-step process:

1. A desk and literature review based on interviews,project documents and articles;

2. Analysis and integration of information from theinterviews, project documents and articles;

3. Synthesis of results of the case studies;

4. Identification of lessons learned.

For each case study, project officers and/or volunteers were interviewed. The methodology wasparticipatory and consultative in approaching keystakeholders who were involved in the coordinationand implementation of project activities.

Case Study #1: Integratingvolunteerism into community disaster risk preparedness

A community-based DRR programme in Bangladeshsignificantly reduces loss from tropical cyclones

Bangladesh is one of the most disaster pronecountries in the world and has suffered some of thehighest casualties from natural disasters in history.In 1970, Cyclone Bhola struck killing 500,000people. Again in 1991, Cyclone Bangladesh claimed150,000 lives.

Bangladesh, a denselypopulated country that isfrequently beset by naturaldisasters, has been struckby three major cyclones inthe past 37 years but theresultant loss of life hasdiminished 100-fold (fromsome 300,000 in 1970 toaround 4,000 in 2007).This bald statistic aloneindicates that theGovernment of Bangladesh,together with a range of UNagencies and national andinternational NGOs, hasdeveloped an effectivestrategy that encompassesboth disaster preparednessand response activities.

Peter Tatham, Karen Spens, RichardOloruntoba, May 2009: abstract,Cyclones in Bangladesh A CaseStudy of Whole Country Response toRapid Onset Disaster


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district. Information iscollected from the

BangladeshMeteorologicalDepartment, which istransmitted to zonaloffices and sub-districtoffices. The sub-districtoffices pass thisinformation to unions (atthe village level)through high-frequencyradios. Unit teams thenspread out, issuingcyclone warningsthroughout villages.

Another importantcomponent of CPP istraining of volunteers incyclone characteristics,cyclone warnings andtheir dissemination, evacuation, rescue, first aid

emergency relief, the usage of radio communicationequipment and gender issues. Team leadersundergo a five-day training course on the abovesubjects, as well as leadership training. Officers andsub-district team leaders, who are also in charge of volunteer training, attend disaster management andleadership training, in addition.

CPP volunteers raise awareness at the communitylevel as an integral component of cyclonepreparedness. CPP volunteers use the following

tools to increase public awareness; cyclone drillsand demonstrations, film/video shows and folksongs, publicity campaigns, radio and television,posters, leaflets and booklets.

CPP volunteers are well-integrated and influential intheir communities. They work closely with localadministrations, NGOs, sub-district disaster management committees, and educational andreligious institutions. Nevertheless, involving womenin conservative Muslim or Hindu communities


remains a challenge. Women typically are notallowed to attend meetings, but by partnering with

local committees and creating local womensassociations, the situation changed. Gender issuesare addressed through workshops targeting religiousleaders and informing them about the work of theRed Crescent, as well as encouraging religiousleaders to endorse womens participation. As aresult, an increasing number of women are nowvolunteering with the Red Crescent and arebecoming more involved in their communities.These women have been active in awareness-raising campaigns to ensure the evacuation of women in case of disaster, as traditionally they areexpected to stay at home to look after the childrenand the household.

Analysis and Lessons LearntThe Bangladesh case study shows howvolunteerism and a low-cost, low-tech DRR strategycan produce impressive and measurable results. Astructured community-based approach topreparedness can save thousands of lives. The

prime example of this was the low casualty figurefrom Cyclone Sidr in 2001 attributed mainly to major community-based efforts led by some 5,000 trainedRed Crescent volunteers (see box).

The success of the CPP can be attributed to:simplicity, integration of socio-cultural aspects,community-based volunteerism and an effectiveearly warning communication network.

The effective organization of a network of

volunteers, combined with training and awareness-raising, are important success factors. Use of atraining-of-trainers strategy further helps to ensurelong term and sustainable DRR capacity incommunities. In addition, partnering with localcommittees, religious leaders and creating localwomens associations significantly increased thelevel of participation of women. Involving thenational government in CPP ensures long-termsustainability and national ownership.

Around 5,000 trainedvolunteers worked throughthe night of 14 November toalert residents of theapproaching cyclone.Megaphones and handsirens were used to warncommunities andencourage people toevacuate their homes andmove to cyclone sheltersand other safe places. As aresult, no lives were lost inthe area of Kuakata (BritishRed Cross and BangladeshRed Crescent, 2008).Although more than 3,000lives were lost and threecoastal towns and 1.5million homes destroyedthroughout the wholecountry, this disaster was afraction of the size it wouldhave been had no warningbeen available.Excerpt from World Disasters Report 2009


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a vulnerability atlas for Sri Lanka, the developmentof community and district level disaster plans, mock

drills at the community level, organization of localtask forces, and technical training for communitiesand the development of the second phase of theRoadmap for Comprehensive Disaster Management.

In rolling out these plans, a participatory approachwas adopted which supported capacity-building atthe community level. The role of the communitieswas recognized in disaster management plans.Vulnerable groups were involved in disaster preparedness activities as well as mock drills inorder to test the proposed disaster managementprogramme. As a result, marginalized groups wereable to access services not accessible before.

As an example, issues surrounding youth in disaster risk reduction were addressed in the village of Kirinde. Three schools received DRR trainingcourses and 83 youth received swimming classes. Inthe districts of Kalmunai and Batticaloa, the

programme had a particular focus on empowermentof women by targeting widows to prevent domesticviolence and providing vocational training. The rightsof children were covered too, through 17 workshopsfor children on human rights, child rights andleadership.

The efficient response of the Sri Lanka governmentto the 2008 landslides demonstrated the success of these UNV efforts and an enhanced nationalcapacity in DRR. While hundreds of thousands of people were displaced, the loss of life was kept to aminimum.

In Indonesia, UNV worked with UNDP and thenational government on the project, UNV Support toTsunami Rehabilitation and Recovery in Aceh andNorthern Sumatra. 132 UN Volunteers supportedthis project, of which 87 were national and roughly39% female. The UN Volunteers were deployed tonational government offices and were instrumental in

CASE STUDIES . 11

Case Study #2: Developing local

capacities for risk reduction throughvolunteerism

Rapid UNV response to the Indian OceanTsunami evolves into disaster risk reductionprojects

The destruction caused by the Indian Oceantsunami in December 2004 was tremendous. India,Indonesia, the Maldives, Sri Lanka, and Thailandwere among the hardest hit countries. More than227,000 people died and economic losses wereupwards of US$ 9.9 billion.

Within 48 hours of the disaster, UNV had deployedvolunteers to Sri Lanka, the Maldives and Indonesia.By the end of 2007, 238 UN Volunteers weremobilized in the region. Of this 238, most werenational UN Volunteers, and almost 39% werewomen. UNV operated within the overall UNDPTsunami Response framework. The initial focus on

recovery and reconstruction support eventuallyevolved into disaster preparedness programmes.

In Sri Lanka, the project Strengthening LocalCapacities for Disaster Risk Management aimed tobuild national DRR capacity. The project wasimplemented by the Disaster Risk ManagementCentre of the Government of Sri Lanka, with supportfrom UNDP. A total of 40 UN Volunteers workedclosely with communities and with the Disaster RiskManagement Centres. This helped bridge the gapbetween the national government and localcommunities and to better coordinate with allstakeholders. UN Volunteers were key players inDRR activities such as: hazard, risk and vulnerabilityassessments with communities, the development of

11. Sources: UNV Support to Tsunami Rehabilitation and RecoveryIndonesia, Sri Lanka, Maldives, UNV; Final Evaluation of Tsunami UNVResponse Framework for Sri Lanka and Strengthening local capacitiesfor disaster risk management, E.J. Goodyear, 2008; Final Evaluation of United Nations Volunteers Tsunami Rehabilitation and Recovery in

Aceh and Northern Sumatra, E.J. Goodyear et al., 2007 .


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strengthening the capacity of district offices inreaching out to communities. UN Volunteers

reported on community needs, conducted monitoringand evaluation services, and helped strengthencoordination with national and internationalorganizations. UN Volunteers also worked with other UN agencies supporting activities such as:emergency education, health, psychology, finance,housing and settlement, monitoring and evaluation,community development, water and sanitation, siteconstruction, urban planning, quality control, fieldsecurity, communication, data management, HIVprevention, livelihood training, village planning andproject management.

One particularly successful element of the projectwas the establishment of Village RecoveryCommittees (VRC) to design and implementcommunity-based approaches for development anddisaster risk reduction. The International CatholicMigration Commissions (ICMC), one of the partner organizations in the project, supported the creationand development of these VRC. VRC members

were elected volunteers from the communities, andreceived training on their roles and DRR. Thecommittee members encouraged rural communitiesto participate in the planning and implementation of livelihood and income diversification activities,psycho-social community initiatives, and to supportextremely vulnerable individuals (women, peopleliving with HIV and AIDS, disabled, displacedpeople, and returnee communities) that often areoverlooked in the social mobilization process.

ICMCs community-based approach empoweredcommunities while developing organizational skillsthat could advance social and developmentalattitudes, skills and knowledge. Moreover, throughthe use of effective communication processes,community leaders, local government and theultimate beneficiaries were integrated into aneffective community-participation planning andimplementation process and were encouraged toshare experiences and newly acquired skills with

neighboring communities. In Banda Aceh, datacollection was disaggregated by sex to help highlight

gender issues in DRR planning and rehabilitationprocesses.

Analysis and Lessons LearntThe use of a balance between self-help and externalassistance was key to stimulating rural communityanimation and relief assistance. Deployingvolunteers from rural areas highlighted the addedvalue gained from using residents of the affectedcommunities. This action showed respect for communities as partners in recovery anddevelopment processes, as opposed to the actionsof other agencies that were said to have merelyconducting needs assessments and disappeared.The added value of local volunteers is that ithumanizes recovery activities, and minimizes thestigma and dependency tendencies often attachedto external assistance.

Through the extensive work of volunteers, bothnational and community-level capacity was built. The

creation of disaster management committees at thevillage level and the performing of mock drills raisedtsunami awareness and preparation. Theassignment of volunteers to work in nationalinstitutions helped build institutional capacity andensured involvement of all stakeholders in allphases of the project. Promoting national ownershipand institutional capacity development has led to thesuccessful integration of the UNV tsunamiprogramme into DRR systems and processes.

Case Study #3: Involving an entirepopulation in disaster risk reduction

Culture of safety in Cuba

Cuba is the largest of the Caribbean islands and hasa population of 11.3 million people. It is in the path of hurricanes, with almost 500,000 people exposed torisk every year. Yet Cuba has been recognized as


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Community level exercises such as community riskmapping, updating of community plans, and

simulation exercises actively involve a significantportion of the population. Practice drills (calledmeteoro) take place throughout the country in Mayeach year, before the beginning of the hurricaneseason. The Red Cross likewise participates in themeteoro to test their capacity for activatingvolunteers and staff country-wide, as well as other elements of their contingency plan that supportsnational response plans. Making each citizen awareof disaster risks and enabling them to implementappropriate measures to protect their lives, their families and their communities have helped create aculture of safety. Every citizen transforms into avolunteer to help reduce risks and threats to their community.

An important aspect for preparedness in Cuba isthat the country has an effective early warningsystem in place. The Cuban Meteorological Serviceprovides timely early warnings that are broadcast toeveryone through the national media, 74 hours in

advance. At the same time, civil protectioncommittees check evacuation plans and shelters.With a storm 48 hours away, authorities targetwarnings at high-risk areas. Local officials check thatvulnerable people are being evacuated. Volunteersharvest crops and move animals to higher grounds.With 12 hours to go, everyone who needs to beevacuated should be in shelters and homessecured.

Community members, who are well prepared andorganized, become active in disseminating earlywarning. Some citizens are also in charge of measuring rainfall and the level and flow of therivers. They communicate this information back tothe center of risk management at the municipalgovernment level. In Cuba, all of the following areinvolved in disaster risk reduction activities andevacuation and rescue operations: the National CivilDefense and the High Command of the NationalCivil Defense, the Cuban Red Cross, the

one of the leastvulnerable countries to

hurricane hazards.When HurricaneGeorge struck in 1998,only six people died inCuba, while 209 werekilled in Haiti. The sixhurricanes that hit Cubabetween 1996 and 2002killed 16 people; 649were killed elsewhere inthe region.

Cubas ace in the holehas been an effectiveDRR plan. This plansuccessfully integratesvolunteerism, with mostcommunity membersacting as volunteers,and awareness raisingand education. The

Cuban Meteorological Service plays an active part inraising the awareness of citizens and institutions byexplaining the characteristics of hurricanes, their phenomena, their risks and how to reduce them, aswell as how to respond to hurricane warningmessages.

Through social and mass organizations, citizens areactively involved in orientation activities and disaster preparedness information sessions. The populationreceives DRR education at work, in school, in their communities, and through videos that arebroadcasted on national and local television. Localorganizations also assist civil defense organizationswith community preparedness. The Red Cross andother NGOs participate as well. Citizens work onreducing their own risk while helping other membersof the community at the same time. This concept isconveyed by the sentence Run, tell your neighbor!

seen in the 2005 World Disaster Report.

CASE STUDIES . 13

The consistently lowhurricane death-tolls inCuba are, of course, areflection of its uniquecircumstances, including ahighly centralizedgovernment and well-developed civil defence,including a militia. The wayCuba deploys its expertiseat local level to helpvulnerable communities, inparticular, may havelessons for everyone.Cubas example, it isargued, shows thatprotecting citizens fromdisaster is as much to dowith political will and goodorganization as materialwealth. (Not to mention arespected Red CrossSociety well able to play tothe full its role asgovernment auxiliary.)

International Federation of Red Crossand Red Crescent Societies, 2009:Disaster: How the Red Cross Red Crescent Reduces Risk , p. 2


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support the government in disaster situations acrossthe country.

The project involves local communities as membersof a national body coordinated by. This national bodyexists since 2004 and is composed of 27 nationaland international VIOs. In particular, three provinceshave been chosen for project implementation:Chimborazo (volcano and earthquake risks), Manabiand Guayas (flood, drought and earthquake risk). In2010, three national UN Volunteers working wereassigned to the selected regions. The nationalvolunteers trained local volunteers using a training-of-trainers approach and provided them withmethodologies and tools to be able to further disseminate and pass on information and skills tocommunities.

Gender issues are tackled through gender-sensitiveplanning exercises, consultative processes for risk-mapping and involvement of men and women indecision making processes for DRR. UNDP, SNGR,and UNV are sharing experiences, expertise and

knowledge of gender perspectives in DRR.

The key stakeholders are the local communities,national and local VIOs, national institutions incharge of DRR, as well as local authorities, due tothe specific context in each province of intervention.Stakeholders are involved from the preparationphase onwards and during all phases of the project.In particular, national authorities are in charge of theproject and local government authorities areinvolved, as far as possible, in order to guaranteethe sustainability of the project. This case studyshows that by involving and developing thecapacities of VIO and local volunteers in DRRactivities, they can pass on this capacity to thecommunities by transferring the knowledge acquiredand therefore contribute to sustainable responses.

Analysis and Lessons LearntCommunity and volunteer organization involvementis the central facet of this project. Sustainable

International Federation of the Red Cross,community volunteers, social organizations,

womens organizations and youth organizations.

Analysis and Lessons LearntThe Cuban example shows that even with limitedresources it is possible to develop an effective andfar-reaching DRR strategy. The strong nationalcommitment to DRR objectives, the solid institutionalframework for disaster preparedness, an effectiveearly warning system, educational and awareness-raising campaigns (the culture of safety), and thedeep roots of community volunteerism makes Cubaexemplary. According on an Oxfam report, Thesingle most important thing about disaster responsein Cuba is that people cooperate en masse. TheCuban model is often held up as an example for reproduction in other countries around the world.

Case Study #4: Engaging volunteer-involving organizations for sustainable capacity building

Strengthening volunteer-involving organizationsto support DRR and climate change strategies atthe community level in Ecuador

Ecuador is prone to volcanic eruptions, earthquakes,floods, landslides and lengthy dry seasons. Yet, thecountry has limited capacity to respond to disastersas shown by the floods in January and February2008. A project called Strengthening Volunteer-Involving Organizations (VIO) implemented by UNV,UNDP and the Secretara Nacional de Gestin deRiesgos (SNGR), supports DRR strategies inEcuador. Started in 2010, the project involvesvolunteers and VIOs in broader DRR efforts,increasing the capacities of VIOs, whilecomplementing the current efforts of UNDP and theEcuadorian government. Until recently, VIOs andvolunteers have only been involved in the responseto disasters and not in DRR. As a result of thisproject, VIOs will be able to complement and


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womens vulnerability by disaggregating data bygender is included. The SGCOs are encourage to

utilize indigenous knowledge and locally-availablematerials.

As a result, community members are empowered toactively contribute to reducing the risk in their community. Twelve SGCOs were formed in projectdistricts and members received training. About 50percent of SGCO members are women. The SGCOsserve as a link between their communities and theprogramme and they mobilize local resources aswell as maintain records of external support. SGCOsand community members designed and successfullyimplemented DRR activities. Hazard mapping andrisk assessment activities were completed for participating villages.

The project was also implemented in the KathmanduValley to reduce the risk to communities fromseismic activity. The focus was on community-basedemergency plans and the creation of disaster management committees. Community members

were provided with training and the necessaryequipment for disaster preparedness.

Analysis and Lessons LearntBy partnering with community networks and throughthe creation of self-governing communityorganizations, which collaborated with thegovernment and local communities, these DRRprojects enhanced the participation of communitiesin disaster response. Gender issues were addressedby developing a methodology for assessing womensvulnerability and by disaggregating national data bygender.

The project promotes an important shift fromfocusing on disaster relief and rescue to community-led disaster preparedness and mitigation.

CASE STUDIES . 15

capacity is being built through involvingcommunities, VIOs and vulnerable people in all

activities and phases of the project and assigningthem clear roles, from risk assessment to training, tothe design and implementation of emergency plans.In addition, the production of training materials, toolsand methodologies, which are transferred to VIOsduring the training sessions, also helps to buildcapacity.

Case Study # 5: Enabling communitiesto identify and mitigate risks

Nepals participatory disaster managementprogramme

Nepal is prone to flooding, earthquakes, drought,landslides, epidemics, Glacial Lake Outburst Floods,fire, and ecological hazards. Between 1983 and1998, approximately 18,000 people lost their livesdue to disasters. UNDP has been supporting Nepalsince 1985 to respond to disaster and with

development programmes. The initial focus was ondisaster relief and rehabilitation, but this has evolvedto include a broader community-based approach torisk mitigation. Two projects the ParticipatoryDisaster Management Programme andStrengthening Disaster Management Capacity weredesigned to increase the capacity of the Nepalesepeople and authorities to manage risks associatedwith natural disasters and to influence organizationsto include disaster mitigation in their regular development programming.

The programme partners are the Ministry of Home Affairs, UNOPS, UNDP/Japan Women inDevelopment Fund, and the International Centre for Integrated Mountain Development. Theprogrammes approach to reducing water-relatedhazards and risks is to create self-governingcommunity organizations (SGCOs) and developstandard operation procedures in collaboration withthe government. A methodology for assessing


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All these materials impart information to children andadults on what to do in case of flooding, drought,

cyclones, and forest fires. The River Game allowschildren to learn in a playful way how to cope withfloods.

The use of radio and theatre helps stimulatecommunity discussion on DRR, such as the causesof floods and measures to increase communitypreparedness. The programme also includes trainingactivities and material development for teachers. It iscareful to involve community members, communityleaders and district education authorities. As it fallsin line with national educational policy, theprogramme received strong support from thegovernment. At the national level, there wasproductive collaboration with the National Institutefor Disaster Management, which will help ensure theprojects sustainability and replication in other partsof the country.

Through this project, children became powerfuladvocates of disaster preparedness and DRR in

their communities, delivering the informationreceived through the River Board Game and other materials to their peers and community members.

Analysis and Lessons LearntThe active participation of children and other community members was ensured through the useof engaging educational and interactive tools. Ahands-on, learning-by-doing approach was adoptedand the methods were tailored to the needs of children, with emphasis on learning while playing.The involvement and support of the government willhelp ensure the sustainability of the programme andencourage replication in other parts of the country inthe future.

According to the report Local Voices, GlobalChoices: For Successful Disaster Risk Reduction(Sarah Moss, 2008) the project also played a part inhelping to change attitudes towards the role of children in communities. The enthusiasm and


Case Study # 6: Promoting the role of

children in disaster response

Children and DRR in Mozambique

Between 1956 and 2008, Mozambique suffered 10droughts (resulting in the death of over 100,000people), 20 floods (1,921 deaths) and 13 tropicalcyclones (taking 697 lives). Millions more peoplewere affected by these disasters. In Mozambique,most families rely on farming, making themextremely vulnerable to natural hazards, such asfloods, droughts and crop diseases.

Save the Children works in Mozambique focusing onseveral areas: HIV and AIDS, food security, health,education, disaster response and disaster preparedness. Jointly with UNICEF and theEuropean Commission Humanitarian Aid and CivilProtection (ECHO), Save the Children has beenpromoting DRR in communities and in particular working with children in flood-affected areas of

Mozambique.

The project Children and DRR specifically aims atempowering children aged 12-18 and communitiesin two districts of the Zambezi Province Morrumbala and Mopeia that have been affectedby flooding of the Zambezi River. These floods haveincreased in frequency and become more severeover the last decade. And this trend is predicted toworsen in the future due to climate change in thesouthern Africa region.

The project promotes the active role of children indisaster response and mitigation and disaster preparedness by disseminating information andgood practices. Volunteer teachers use low-cost,local materials for books, games and toys to helpchildren learn by doing. Educational and interactivetools include school magazines, communitybrochures, informative material, radio programmes,theatre and a project called the River Board Game.


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activities helps to build capacity at all levels; raiseawareness, increase disaster preparedness and

address the needs of the community.

Partnering with community-based social networksincreases community participation. The deployment of local volunteers who have a sound knowledge of theculture, religion and language of the region helpsvolunteers to gain the communitys trust and, as aresult, promotes greater participation and a spirit of volunteerism in the community.

Gender, youth and marginalized groupsEvery year, millions of people are affected by naturaldisasters. The most vulnerable - such as women,children and marginalized groups - usually suffer themost. Volunteers should work to identify the needs of vulnerable groups and involve them in the process of DRR activities and planning.

Gender issues can be addressed by partnering withlocal womens committees or creating local womensassociations, such as those in Bangladesh (see case

study 1). This has significantly increased the level of participation of women in DRR and womens needsare therefore taken into greater account in DRRplanning. An example of a good practice was the UNVolunteer working with the NGO Badan Rehabilitasidan Rekontuksi in Banda Aceh who developed adatabase to manage projects and coordinate therehabilitation process, in which all data wasdisaggregated by gender.

Volunteers can also help by expanding marginalizedgroup access to services that were inaccessiblebefore.

Several case studies highlight the importance of providing training to women, youth and marginalizedgroups, that can empower them to reduce bothpersonal and community risks. UNICEFs project(case study 6) shows that it is particularly important for children to be involved in community-level DRRprojects. Developing childrens skills and raising their

engagement by children helped to convince parents,community leaders and teachers that children are

not just victims when these events occur but havean important role to play when they do.

Sources: E. Back et al, 2009: Children and Disaster Risk Reduction: Taking stock and moving forward; UNICEF, 2009:UNICEF and Children in a changing climate; Save the Children:Coping with Flood, Children and Disaster Risk Reduction along the Zambezi River.

3. CONCLUSION

Increasingly, volunteerism is supporting initiatives tomitigate and prevent natural disasters, as well asprepare communities, should disasters occur.Volunteerism in DRR is a powerful means of engagingpeople. Volunteers play a strategic role in communitydevelopment processes and in strengtheningcommunity resilience to disasters. Through the use of participatory methods, awareness-raising andeducation, the great dedication of volunteers canmobilize communities and contribute to building

preparedness and response capacities at the national,local and community levels.

Several general conclusions can be highlighted:

Community participationCommunity members are the first to respond when acrisis strikes. Therefore, it is important that volunteersensure that DRR planning and activities involve thetarget communities. Communities need to beprioritized based on their need for assistance andencouraged to contribute toward and supportextremely vulnerable individuals. Communities alsorequire household income to meet basic requirementswhile building equity for asset replenishment.

Cooperation among volunteers, local authorities andNGOs enables national authorities to bridge the gapwith communities and respond to their needs. Activeinvolvement of the community, national, and localstakeholders in DRR, recovery and reconstruction

CONCLUSION . 17


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awareness of disaster risks can reduce their helplessness and vulnerability.

Cultural and religious aspects need to be taken intoaccount to increase the participation of the mostvulnerable populations. The example of the CyclonePreparedness Programme in Bangladesh (case study1) shows that involving women in DRR in aconservative religious environment can bechallenging. In conservative Muslim or Hinducommunities, some women are not allowed to attendmeetings. Volunteers have partnered with localcommittees in creating local womens associationsand have organized workshops with religious leadersin order to tackle this issue. As a result, an increasingnumber of women are volunteering with theBangladesh Red Crescent and are becoming moreinvolved in their communities.

Stakeholder participationMany cases show that coordinated, multi-agencyaction, combined with education at the grassrootslevel, can help alleviate suffering and save lives.

Volunteerism plays a key role in this. National andinternational volunteers can contribute through acombination of sound technical skills and a high levelof motivation, commitment and spirit of volunteerism to a positive collaboration among stakeholders,governments, UN agencies and NGOs. Defining clear roles and tasks is crucial in this process. Successfulcollaboration is enabled by involving all stakeholdersin every phase of the project, from the planning phaseonward. Good collaboration ensures that all partnersunderstand the benefits of their participation andcooperation. Collaborating partners each bringcomparative advantages, experiences andperspectives into the process of achieving commongoals, and complement each others efforts.

The community at risk, as well as national and localgovernment authorities, should be frontline partners inthe development of DRR initiatives. This helpsguarantee the sustainability of the project. Likewise, itis essential to involve community-based organizations

and local VIOs in prevention and mitigation plans.These organizations can play a key role in

strengthening local capacities to prevent and reducethe impact of natural disasters.

Programming aspectsVolunteering is a spontaneous response when naturaldisasters occur. Volunteers can be considered a defacto resource that becomes critical during theemergency phase of a natural disaster. Strengtheningthe capacities of this resource increases the efficiencyof their participation during the response phase. It isalso important to establish national and/or localvolunteer schemes that can facilitate the organizationand management of this influx of spontaneousvoluntary action. Moreover, involving spontaneousvolunteers in prevention and mitigation plans, beyondthe actual response to the emergency, reinforces their sense of participation and bridges the gap betweennational plans, policy-makers and affectedcommunities.

DRR strategies need to integrate volunteer skills into

the project planning phase. The integration of volunteerism into a DRR strategy and a countrysdisaster management plans leads to long-termcapacity building and sustainability in the community.

The recruitment of national volunteers, familiar withtheir countrys culture, religion and language, is highlyrecommended. Incorporating a strategic mentoring,monitoring and evaluation strategy within eachinitiative can strengthen effective communication andcoordination within programmes and projects.

For effective programme and project implementation,it is important that clear roles are assigned tovolunteers and long-term assignments guaranteed.Training should be a key component of everyprogramme and project and as there is often a highturnover of volunteers it is necessary to conducttraining on a continuous basis.



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capacity. It is also important to provide communitieswith tools and methodologies that can be replicated in

the future.

Training is a key component in capacity developmentstrategies. Training should target communities,national institutions and the volunteers themselves. Infact, deployed volunteers are not always sufficientlytrained, so training becomes integral to the success of the project. A long-term training strategy can be veryeffective and will build sustainable capacity at thecommunity level. Training programmes that include atraining-of-trainers strategy may be particularlysuccessful in ensuring that community capacity ismaintained long term. DRR training that targetswomen, youth or marginalized people needs to takeinto account their specific needs and requirements.For instance, the use of interactive tools such asgames, toys and theatre plays can help children learnby doing and playing. Investments in childrenseducation and training on DRR can have long-termbenefits for both families and society. In addition, thelanguage and images need to be adapted and

relevant to local contexts.

Capacity buildingCapacity building should be a long-term, continuous

process, in which all stakeholders participate(ministries, local authorities, NGOs, communities,professional associations, academics and others). Theassignment of volunteers to work and live amongcommunities or work in national institutions helps toencourage participation and develop capacity at thecommunity and national level. It also contributes tofilling an immediate capacity gap after a disaster hasstruck.

Employing participatory methods can enhancecommunity involvement, while building long-termcapacity at the national and community level. Involvingthe community in earlier stages of the DRR processhelps in the collection of needs and requirements,allowing more accurate targeting and programming.Further involvement of communities in risk andvulnerability assessments, design of disaster plans,implementation of projects, mock drill exercises, andthe creation of disaster committees empowers them toacquire knowledge and tools to be better prepared for

disasters, while simultaneously building long-term

CONCLUSION . 19


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UNV is administered by theUnited Nations Development Programme

(UNDP)

practice note disaster risk reduction 2011

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