Post Graduate Diploma in Disaster Management - 7th Batch

Institute of Disaster Management & Vulnerability Studies

Faculty of Social Science
University of Dhaka

Assignment

Title: Overview of Sendai Framework and future

challenges: Bangladesh Context

Date of Submission: 19 June 2015

Course Title: Social and Environmental Issues in Disaster
Management and Response to Disaster and Climate Change
Course Number: PGDDM 108

Student Name: Mohammad Ali

Student ID: PGDDM14732
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Table of content
Page
Chapter 0ne

3-3

Introduction
Chapter Two

4-7

Hyogo Framework for Action: lessons learned, gaps identified and

future challenges
Chapter Three

8 - 11

Position of Bangladesh

Chapter 0ne
Introduction:
The Sendai Framework for Disaster Risk Reduction 2015-2030 was adopted at the Third United
Nations World Conference on Disaster Risk Reduction, held from 14 to 18 March 2015 in Sendai,
Miyagi, Japan, which represented a unique opportunity for countries to:
(a) Adopt a concise, focused, forward-looking and action-oriented post-2015 framework for disaster risk
reduction;
(b) Complete the assessment and review of the implementation of the Hyogo Framework for Action
2005-2015: Building Resilience of Nations and Communities to Disasters;
(c) Consider the experience gained through the regional and national strategies/institutions and plans
for disaster risk reduction and their recommendations, as well as relevant regional agreements for the
implementation of the Hyogo Framework for Action;
(d) Identify modalities of cooperation based on commitments to implement a post-2015 framework for
disaster risk reduction;
(e) Determine modalities for the periodic review of the implementation of a post-2015 framework for
disaster risk reduction.
During the World Conference, States also reiterated their commitment to address disaster risk reduction
and the building of resilience to disasters with a renewed sense of urgency within the context of
sustainable development and poverty eradication, and to integrate, as appropriate, both disaster risk
reduction and the building of resilience into policies, plans, programmes and budgets at all levels
and to consider both within relevant frameworks.

Chapter Two
Hyogo Framework for Action: lessons learned, gaps identified and future challenges
1. Since the adoption of the Hyogo Framework for Action in 2005, as documented in national and
regional progress reports on its 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 relevant stakeholders, leading to a decrease in mortality in the case of some hazards. 3
Reducing disaster risk is a cost-effective investment in preventing future losses.
Effective disaster risk management contributes to sustainable development. Countries have
enhanced their capacities in disaster risk management. International mechanisms for strategic
advice, coordination and partnership development for disaster risk reduction, such as the Global
Platform for Disaster Risk Reduction and the regional platforms for disaster risk reduction, as well
as other relevant international and regional forums for cooperation, have been instrumental in the
development of policies and strategies and the advancement of knowledge and mutual learning.
Overall, the Hyogo Framework for Action has been an important instrument for raising public and
institutional awareness, generating political commitment and focusing and catalysing actions by a
wide range of stakeholders at all levels.
2. Over the same 10-year time frame, however, disasters have continued to exact a heavy toll, and as a
result the well-being and safety of persons, communities and countries as a whole have been affected.
Over 700 thousand people have lost their lives, over 1.4 million have been injured and approximately
23 million made homeless as a result of disasters. Overall, more than 1.5 billion people have been
affected by disasters in various ways, with women, children and people in vulnerable situations
disproportionately affected. The total economic loss was more than $1.3 trillion. In addition, between
2008 and 2012, 144 million people were displaced by disasters. Disasters, many of which are
exacerbated by climate change and which are increasing in frequency and intensity, significantly
impede progress towards sustainable development. Evidence indicates that exposure of persons and
assets in all countries has increased faster than vulnerability4 has decreased, thus generating new
risks and a steady rise in disaster-related losses, with a significant economic, social, health, cultural
and environmental impact in the short, medium and long term, especially at the local and community
levels. Recurring small-scale disasters and slow-onset disasters particularly affect communities,
households and small and medium-sized enterprises, constituting a high percentage of all losses. All
countries especially developing countries, where the mortality and economic losses from disasters
are disproportionately higher are faced with increasing levels of possible hidden costs and
challenges in order to meet financial and other obligations.
3. It is urgent and critical to anticipate, plan for and reduce disaster risk in order to more effectively
protect persons, communities and countries, their livelihoods, health, cultural heritage, socioeconomic
assets and ecosystems, and thus strengthen their resilience.
4. Enhanced work to reduce exposure and vulnerability, thus preventing the creation of new disaster
risks, and accountability for disaster risk creation are needed at all levels. More dedicated action needs
to be focused on tackling underlying disaster risk drivers, such as the consequences of poverty and
inequality, climate change and variability, unplanned and rapid urbanization, poor land management
and compounding factors such as demographic change, weak institutional arrangements, non-riskinformed policies, lack of regulation and incentives for private disaster risk reduction investment,
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complex supply chains, limited availability of technology, unsustainable uses of natural resources,
declining ecosystems, pandemics and epidemics. Moreover, it is necessary to continue strengthening
good governance in disaster risk reduction strategies at the national, regional and global levels and
improving preparedness and national coordination for disaster response, rehabilitation and
reconstruction, and to use post-disaster recovery and reconstruction to Build Back Better, supported
by strengthened modalities of international cooperation.
5. There has to be a broader and a more people-centred preventive approach to disaster risk. Disaster
risk reduction practices need to be multi-hazard and multisectoral, inclusive and accessible in order to
be efficient and effective. While recognizing their leading, regulatory and coordination role,
Governments should engage with relevant stakeholders, including women, children and youth, persons
with disabilities, poor people, migrants, 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 and civil society organizations, as well as academia and scientific and
research institutions, to work more closely together and to create opportunities for collaboration, and for
businesses to integrate disaster risk into their management practices.
6. International, regional, subregional and transboundary cooperation remains pivotal in supporting the
efforts of States, their national and local authorities, as well as communities and businesses, to reduce
disaster risk. Existing mechanisms may require strengthening in order to provide effective support and
achieve better implementation. Developing countries, in particular the least developed countries, small
island developing States, landlocked developing countries and African countries, as well as middleincome countries facing specific challenges, need special attention and support to augment domestic
resources and capabilities through bilateral and multilateral channels in order to ensure adequate,
sustainable, and timely means of implementation in capacity-building, financial and technical assistance
and technology transfer, in accordance with international commitments.
7. Overall, the Hyogo Framework for Action has provided critical guidance in efforts to reduce disaster
risk and has contributed to the progress towards the achievement of the Millennium Development
Goals. Its implementation has, however, highlighted a number of gaps in addressing the underlying
disaster risk factors, in the formulation of goals and priorities for action, 5 in the need to foster disaster
resilience at all levels and in ensuring adequate means of implementation. The gaps indicate a need to
develop an action-oriented framework that Governments and relevant stakeholders can implement in a
supportive and complementary manner, and which helps to identify disaster risks to be managed and
guides investment to improve resilience.
8. Ten years after the adoption of the Hyogo Framework for Action, disasters continue to undermine
efforts to achieve sustainable development.
9. The intergovernmental negotiations on the post-2015 development agenda, financing for
development, climate change and disaster risk reduction provide the international community with a
unique opportunity to enhance coherence across policies, institutions, goals, indicators and
measurement systems for implementation, while respecting their respective mandates. Ensuring
credible links, as appropriate, between these processes will contribute to building resilience and
achieving the global goal to eradicate poverty.
10. It is recalled that the outcome of the United Nations Conference on Sustainable Development, held
in 2012, The future we want, 6 called for disaster risk reduction and the building of resilience to
disasters to be addressed with a renewed sense of urgency in the context of sustainable development

and poverty eradication and, as appropriate, to be integrated at all levels. The Conference also
reaffirmed all the principles of the Rio Declaration on Environment and Development.
11. Addressing climate change as one of the drivers of disaster risk, while respecting the mandate of
the United Nations Framework Convention on Climate Change,8 represents an opportunity to reduce
disaster risk in a meaningful and coherent manner throughout the interrelated intergovernmental
processes.
12. Against this background, and in order to reduce disaster risk, there is a need to address existing
challenges and prepare for future ones by focusing on: monitoring, assessing and understanding
disaster risk and sharing such information and how it is created; strengthening disaster risk governance
and coordination across relevant institutions and sectors and the full and meaningful participation of
relevant stakeholders at appropriate levels; investing in the economic, social, health, cultural and
educational resilience of persons, communities and countries and the environment, as well as through
technology and research; enhancing multi-hazard early warning systems, preparedness, response,
recovery, rehabilitation and reconstruction. To complement national action and capacity, there is a need
to enhance international cooperation between developed and developing countries and between States
and international organizations.
13. This Framework will apply to the risk of small-scale and large-scale, frequent and infrequent,
sudden and slow-onset disasters caused by natural or man-made hazards, as well as related
environmental, technological and biological hazards and risks. It aims to guide the multi-hazard
management of disaster risk in development at all levels as well as within and across all sectors.
14. Against this background, and in order to reduce disaster risk, there is a need to address existing
challenges and prepare for future ones by focusing on: monitoring, assessing and understanding
disaster risk and sharing such information and how it is created; strengthening disaster risk governance
and coordination across relevant institutions and sectors and the full and meaningful participation of
relevant stakeholders at appropriate levels; investing in the economic, social, health, cultural and
educational resilience of persons, communities and countries and the environment, as well as through
technology and research; enhancing multi-hazard early warning systems, preparedness, response,
recovery, rehabilitation and reconstruction. To complement national action and capacity, there is a need
to enhance international cooperation between developed and developing countries and between States
and international organizations.
15. This Framework will apply to the risk of small-scale and large-scale, frequent and infrequent,
sudden and slow-onset disasters caused by natural or man-made hazards, as well as related
environmental, technological and biological hazards and risks. It aims to guide the multi-hazard
management of disaster risk in development at all levels as well as within and across all sectors.
The United Nations Office for Disaster Risk Reduction (UNISDR) organized the World Conference on
Disaster Risk Reduction in Sendai, Japan from 14-18 March, 2015. Through a marathon round of
negotiations, representatives from 187 countries have adopted the Sendai Framework as the first major
agreement on the post 2015 development agenda on Disaster Risk Reduction for 2015-2030.
Margareta Wahlstrm, Head of UNISDR, said that adoption of this new Framework for disaster risk
reduction opens a major new chapter in sustainable development as it outlines clear targets and
priorities for action which will lead to a substantial reduction of disaster risk and losses in lives,
livelihood and health.
The 2015 Global Assessment Report on Disaster Risk Reduction states that economic losses from
disasters are now reaching an average of US$250 billion to US$300 billion annually. Another report by
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UNDP says, in the last 30 years, natural disasters have cost the world some USD 3.5 trillion. In the
Asia-Pacific region alone, the economic costs of disasters have risen, on average, by a factor of 16.
More than 1.3 million people have been killed by disaster in the last two decades, almost all of them (95
percent) in developing countries. Disasters have prevented many countries from achieving the
Millennium Development Goals (MDGs), and increasingly threaten development assistance
investments.

Chapter Three
Position of Bangladesh
In Sendai, Bangladesh presented its experiences and learning about how it made tremendous progress
in different dimensions of development aspects facing myriad limitations along with increasing number
of disasters. UNDP recently mentioned Bangladesh as a global leader in its institutional framework for
disaster risk reduction and sustainable development, with a number of core government policies and
programmes incorporating risk reduction from their earliest stages. Although Bangladesh has made its
image as global model for disaster risk reduction but several statistics showed the disaster vulnerability
of our country. The Intergovernmental Panel on Climate Change mentions, rising sea levels will wipe
out more cultivated land that will lead to a loss of 17% of total land of Bangladesh by 2050 and cause
20 million environmental refugees. Comprehensive Disaster Management Programme reports,
economic growth has been averaging 6% for the last decade, poverty has decreased from 40% in 2005
to 24.7% in 2014 and Bangladesh has already achieved five out of eight of the MDGs. This has all been
achieved against the backdrop of being exposed to natural and human-induced hazards.
It is estimated that 14% of Bangladeshs GDP is exposed to disasters on an annual basis. This is a
testament to the innate resilience of the Bangladeshi people who continue to make developmental
progress while living with disasters and climate risk. The report shows, highly dense population (1,203
people/sq km), rapid and unplanned urbanisation (at a rate of 2.9% per year) combined with a
significant earthquake risk pose a severe threat to lives, livelihoods and property in Bangladeshs cities.
Slow onset and persistent disasters like salinity, water logging and drought merit increased attention.
Drivers to economic growth currently also contribute to increased risk which makes clear the need for
integrated efforts on climate adaptation and risk reduction programming to enhance resilience in
Bangladesh.
So far Bangladesh has taken several necessary and time oriented steps for disaster risk reduction like
National Sustainable Development Strategy, Bangladesh Perspective Plan 2010-2021, Sixth Five Year
Plan 2011-2015. The government made a division Disaster Management and Relief Division
upgrading the bureau of disaster management and relief. Department for Disaster Management was
established through the Disaster Management Act 2012. Although several administrative reforms have
been made, still we have many rooms to improve.
Over population with rapid uncontrolled growth of unplanned urbanisation, infraction of building codes is
very common in large cities like Dhaka, Chittagong and Sylhet. It increases the possibility of drastic loss
and damages by earthquake and can cause a devastating impact on lives and assets. The earthquake
specialists gave warning and expressed deep concern due to higher potential of earthquake threat in
Bangladesh. Earthquake Disaster Risk Index ranked Dhaka among the 20 cities most vulnerable to
earthquakes in the world. It is not possible to reconstruct the risky and vulnerable buildings in Dhaka
and other earthquake prone cities within a short time and financial factor for reconstruction is a major
issue in such case. Is it fine if we wait until a devastating earthquake takes place and causes severe
loss of human lives and assets? Are we ready for affording the extreme damage and costs because of
such disaster? The only answer is, no. So, It is high time the government took a long-term initiative to
reconstruct the risky buildings across the country. The government can make zones and start rebuilding
the most risky and vulnerable buildings on a priority basis. Certainly, it needs a huge investment.
However, the government must compel the violators of building codes to reconstruct buildings
accordingly and provide subsidy through a standard category. This mega initiative may be a long row to
hoe but it can be materialised by synergistic efforts of mass people, government, development partners
and other potential stockholders.
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As a part of combating disaster risk initiative, the government is working for making 65,000 volunteers
who will respond rapidly in any natural disasters. These volunteers will surely be a resource if they
remain active at grassroots level. But lack of regular training, inadequate knowledge of using rescue
equipment, improper monitoring on capacity building and less activeness at grassroots level have made
the whole voluntary rescue system less efficient than it is expected. Increasing the number of
volunteers will not strengthen the voluntary rescue system except enhancing skills and capacity of the
volunteers.
Use of ICT can make a remarkable difference in practice. Mobile phone-based early warning and
forecasting service for floods and other natural disasters is one of the significant initiatives by the
Comprehensive Disaster Management Programme. Introducing digital data bank for disaster issues
and using technology in comprehensive disaster management system can be a fruitful initiative.
The government must create a strong implementation and monitoring cell for ensuring sustainability of
the taken initiatives. Regular mobile court can be introduced to check and maintain administrative
policies, laws and regulations at all levels that will make the whole system more accountable,
transparent, effective and sustainable.
It has been seen that we are more focused on managing disaster rather than fixing the underlying
factors of disaster risk like climate change, unplanned urbanisation, violation of existing laws and
policies, population growth, migration, poverty etc. It is noteworthy to mention that development
strategies must incorporate the concerned dimensions that have inextricable linkage with disaster.
Thus, cohesion among different ministries, development partners, civil societies, NGOs and media is a
must to incorporate and achieve the sustainable development agendas.
UN Secretary General says, development cannot be sustainable if the disaster risk reduction approach
is not fully integrated with development planning and investments. Development investment that does
not consider disaster risk will lead to the accumulation of more risk. Now after the Sendai declaration,
we need to tailor our policy framework and development strategies that will make most suitable
adjustment with Sendai Framework. Bangladesh must strengthen the total disaster risk reduction and
resilience strategies to build a national bulwark for ensuring the sustainable development agendas.

Building a resilient Bangladesh: Reflections

Khurshid Alam
The third World Conference on Disaster Risk Reduction, hosted by the city Sendai where 15,000
people died from the 2011 Tohoku earthquake and tsunami, was attended by 8,000 delegates including
community members, 20 Heads of State, heads of the UN Agencies, parliamentarians, civil society
groups, academia, and business leaders.

The UN Secretary General Ban Ki-moon stressed how $6bn annual investments can help avoid $360bn
in losses over the next 15 years. Japan pledged $4bn to support implementation of the Sendai
Cooperation Initiative for Disaster Risk Reduction over the next four years.
The highlight of the conference was the agreement by 187 UN member states of the Sendai Framework
for Disaster Risk Reduction 2015-2030 that marks a significant milestone in making risk reduction a
major development priority.
Adopted during the third World Conference on Disaster Risk Reduction in Sendai, Japan, the Sendai
Framework follows the Hyogo Framework of Action, approved immediately after the Indian Ocean
Tsunami in 2005.
The framework sets out global priorities, targets, principles, and means of implementation to achieve its
outcome: A substantial reduction of disaster risk and losses in lives, livelihoods, and health and in the
economic, physical, social, cultural, and environmental assets of people, businesses, communities and
countries
At the conference, Bangladesh shared its lessons on how it was able to continue to make progress in
human development, food production, economic growth, and poverty reduction despite a threefold
increase in disaster occurrence.
However, it cannot be denied that disaster still poses a significant and inseparable threat to the
countrys progress. Roughly 14% of Bangladeshs GDP is exposed to disasters annually, and with
climate change and seismological hazards, disasters will most likely shape its development context in
coming decades.
The country is capable of achieving speedier human development and the desired middle income
country status when it makes disaster and climatic risk reduction a central pillar of its development
efforts. The question remains -- how? Well, implementing the Sendai priorities in Bangladesh is a good
start.
The Sendai framework puts disaster risk management as central to development agenda, with cross
reference to SDG and upcoming a new climate change agreement also likely in 2015.
Bangladesh needs to set a priority to ensure that upcoming SDGs are risk informed in its formulation
and implementation. The country has already incorporated disaster and climatic risk in the background
papers of the five-year plan, which must now be formally integrated in the finalised plan as central and
cross-sectoral elements. Implementation of the plan should be supported by investment in capacity
building of all ministries and agencies at national and local government levels.
Building resilience is considered the highest priority within the Sendai Framework, and is well suited to
Bangladesh, where disaster risks are permanent features of development.
Our countrys progress in reducing disaster mortality is a result of both dedicated disaster management
and development efforts, where people living in risk are able to utilise development opportunities for
building their own resilience. Empowering people to continue to achieve resilience is a key priority,
which should focus on addressing the underlying causes of vulnerabilities.
Bangladesh can learn a lot from Japans disaster management experience. Japan has integrated
disaster management throughout all aspects of life. Communities, companies, schools, civil society
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organisations, the government at all levels, young people, the elderly, and many more all have a role to
play in reducing risks and responding to disasters.
The key character of Japans disaster management is the investment in innovation, use of technology,
and whole-of-society approach. Not all aspects can be applied in Bangladesh, but the country should
make specific investment to utilise its dormant capacities within the private sector, academia, and
through the leadership of women. We need sectoral champions to push the importance of
preparedness and risk informed planning, in all sectors and across government.
Emphasis should also be placed on building resilience in the first place. Although disasters are
inevitable, they offer the opportunity to strengthen communities and households adaptive capacity in
the recovery process.
Post-disaster recovery has been a recurrent public expenditure, but recovery has been driven by
practice, rather than intentional institutional arrangements. The government needs to ensure that all
ministries have adequate capacity and financing mechanisms to support early recovery and
reconstruction. In recovery, we should not only aim to make infrastructure better and resilient, but also
society, by addressing historical inequalities.
Bangladesh needs to set its national targets and indicators, creating an excellent opportunity to engage
the whole of society and government to determine the change they want to see.
It should look at the differential impacts of disaster on population groups, and particularly in areas
where Bangladesh has yet to make strong progress, including womens leadership, technological
disasters and urban risk at a mega scale.
Bangladesh has made considerable progress in disaster risk reduction, but building resilience against
growing disaster and climatic risk requires full efforts from the society as well as from the government.
The Sendai Framework provides another opportunity to strengthen our efforts and continue to create a
Bangladesh that is safer from disasters. International cooperation has been the key driver for
Bangladeshs progress so far, and such support will assist the country in the implementation of the
Sendai Framework.
Reference
- See more at: http://www.dhakatribune.com/op-ed/2015/mar/31/building-resilient-bangladeshreflections#sthash.ysBo9Po7.dpuf

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