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Selected application of disaster reduction measures5In Cuba, a national hurricane preparedness plan is practised every year before the start ofthe hurricane season, when the early warning system is tested. The system is activated atthe first information notice by the military authorities and civil defence, involving thepolitical party authorities and all provincial or municipal government officials, representativesof all administrative and political institutions, companies, co-operatives, etc. Plannedmeasures are then activated according to different levels of warning, including an InformativePhase, a Cyclone Alert, a Hurricane Alarm and a concluding RehabilitationPhase, if required.Hurricane Michelle, Cuba, November 2001 - a success storyHurricane Michelle formed in the Gulf of Honduras on the 2 November, 2001, landedon Cuba 4-5 November, reaching wind speeds of up to 220 km/h (category 4 Saffir-Simpson-Scale). Michelle has been the strongest hurricane affecting Cuba in the last 50years.Upon early notice from the Institute of Meteorology the evacuation plan came intoaction.Twelve provincial and 150 municipal headquarters for civil defense involving 87000 peoplewere activated. More than 5000 vehicles were deployed for evacuation, etc.Over 700,000 persons were evacuated, of which 270,000 for a longer time and providedwith temporary accommodation and basic needs. 777,000 animals were also moved to safeareas. Reports indicated only 5 fatalities and 12 people injured.Nevertheless, a major economic setback was the result of the hurricane. Principal damageswere to building infrastructure, agriculture and communications facilities.contribute more effectively to early warning anddisaster preparedness systems on a regionalbasis. Another recommendation was furtherdevelopment of comprehensive implementationand contingency plans by countries that integrateearly warning systems, disaster preparednessand related mitigation activities into overallnational disaster management frameworks.Thanks to UNDP support, the Viet Nam DisasterManagement Unit (DMU) is benefitingfrom a nationwide information system thatprovides a combination of real-time informationto the Central Committee for Flood andStorm Control (CCFSC), the primary Governmentagency for disaster management. Thesystem provides early warning information,updates on developing disaster situations, andrelated information about damage or needsassessments through a computerized networklinking CCFSC-DMU, the national hydrometeorologicalservices and all of the 61 provincialcommittees for flood and storm control.The system is also able to draw on informationsupplied by the Ministry of Agriculture andRural Development. Internet provides anexpanded opportunity to disseminate timelywarnings about floods to the public and toaddress immediate emergency requirements,or disseminate general information related todisaster management. Since early 2001, theproject has benefited from more advancedinformation technology provided by additionalfunding from OFDA/USAID. Expandedactivities include the design of weather andnatural disaster warning systems based oncomputer graphics for use by Viet Nam Televisionto enable the dissemination of more effectivepublic warnings. Flood maps for all of thecentral provinces in Viet Nam are being createdwith the latest GIS technology, accompaniedby training that will encourage its effectiveuse by provincial and local authorities. A newflood-hazard alerting system is also beingdesigned for the areas most prone to rapid orflash flooding.265
5Living with Risk: A global review of disaster reduction initiativesPublic knowledge and participationThe second requisite for an effective early warningsystem is public participation in the design, implementationand assessment of warning formulationand dissemination. The following principles weredeveloped to provide concrete guidance for the applicationof early warning at the national and local level.They cover the issues discussed in this subsection.Early warning messages should reach, be understood,believed and personalized by the public at riskto enable it to take action to reduce its vulnerabilityto hazards. Therefore community involvement isnecessary to design locally efficient and socially relevantearly warning systems. Such involvement permitsa continuous dialogue between users andauthorities to make collective decisions and choices.Investment in modern technology and topdownprofessional expertise to forecast hazardsand issue warnings can only be justified if warningseffectively reach every citizen likely to beaffected. In this regard, there is much to be gainedand learned from providing support to grass-rootsbottom-up approaches. Communities and NGOsthat represent their interests are key elements inoperating early warning systems, i.e. disseminatingmessages, operating and maintaining warningequipment, organizing training and regular testingto avoid surprises at times of crisis, raising awarenessof the responsibility people have for their ownsurvival, providing motivation and coping strategies,avoiding confusion, contradiction and conflicts.Principles for the application of earlywarning at NATIONAL and LOCAL levels1. Early warning practices need to be a coherent set of linked operational responsibilities established at national and local levels ofpublic administration and authority. To be effective, these early warning systems should themselves be components of abroader programme of national hazard mitigation and vulnerability reduction.2. Within each country, the sole responsibility for the issuance of early warnings for natural and similar disasters should rest with anagency, or agencies, designated by the Government.3. The decision to act upon receipt of warning information is political in character. Authoritative decision makers should be identifiedand have locally recognized political responsibility for their decisions. Normally, action resulting from warningsshould be based on previously established disaster management procedures of organizations at national and local level.4. In the chain of political responsibility, initial hazard information is often technically specialized or specific to a single typeof hazard authority. To be applied effectively, warnings need to be clearly understood and operationally relevant to local agenciesthat are more frequently oriented towards non-specific hazard functions.5. Early warning systems must be based upon risk analysis that includes the assessment of the occurrence of hazards, thenature of their effects and prevailing types of vulnerability, at national and local levels of responsibility. The warningprocess should lead to demonstrated practices that can communicate warning and advisory information to vulnerable groups ofpeople so that they may take appropriate actions to mitigate loss and damage.6. Locally predominant hazard types and patterns, including small-scale or localized hydrometeorological hazards related to patternsof human, economic or environmental exploitation, must be incorporated if early warning is to be relevant to riskreduction practices.7. There is a continuing need to monitor and forecast changes in vulnerability patterns, particularly at local levels, such as suddenincreases in vulnerability resulting from social developments. These may include conditions of rapid urbanization, abruptmigration, economic changes, nearby civil conflict or similar elements that alter the social, economic or environmentalconditions of an area.8. The primary responsibilities must rest at local levels of involvement for producing detailed information on risks, acting on thebasis of warnings, communicating warnings to those individuals at risk and, ultimately, for facilitating appropriate communityactions to prevent loss and damage. A high resolution of local knowledge and developed experience of local risks,decision-making procedures, definitive authorities concerned, means of public communication and established copingstrategies are essential for functions to be relevant.9. Groups of people that exhibit different types of vulnerability will have different perceptions of risk and various copingstrategies. Locally appropriate warning systems will provide a range of communication methods and should provoke multiple strategiesfor protection and risk reduction.10. To be sustainable, all aspects of the design and implementation of early warning systems require the substantive involvement of stakeholdersat the local and national levels. This includes production and verification of information about perceived risks,agreement on the decision-making processes involved, and standard operational protocols. Equally important abilitiesinvolve the selection of appropriate communication media and dissemination strategies that can assure an effective level ofparticipation in acting upon receipt of warning information.266
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DLiving with RiskA global review of
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Bastien Affeltranger, FranceTom Alc
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IntroductionThis is a preliminary v
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“Imagine all the people…”It w
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Eruption of Mount Agung, Bali, Indo
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Living with risk - focus on disaste
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The shift towards disaster reductio
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Taking these developments into acco
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Disaster risk reduction - a sharedr
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A disaster is a function of the ris
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Disaster risk management and reduct
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Chapter2Risk awareness and assessme
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Understanding the nature of hazards
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Risk awareness and assessment2Map-
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The figure below illustrates the fo
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Trends in disaster impactWhile no c
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Trends in hazardsUntil recently, th
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Risk awareness and assessment2Nyira
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Risk awareness and assessment2ISDR
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Risk awareness and assessment2Reduc
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Risk awareness and assessment2Wildl
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Risk awareness and assessment2Prima
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Risk awareness and assessment215 la
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dering external debts that constitu
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The identification of hazards usual
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consideration about the nature of i
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Risk awareness and assessment2Bern
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Risk awareness and assessment2THE P
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Risk awareness and assessment2The R
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Risk awareness and assessment2Ecoci
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Chapter3Policy and public commitmen
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Policy and public commitment: the f
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Policy frameworks in practiceAsiaDi
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process that emphasizes the partici
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announced the creation of the Offic
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established with necessary legislat
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Key policy proposals contained in t
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Under the mandate of the CTGC, a se
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Following recommendations, the city
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underway to upgrade the Swiss Natio
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damage to introducing means that ca
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The last earthquake to devastate Ka
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• Formulating distinctive risk re
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AfricaSouthern AfricaPolicy and pub
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y the conduct of monthly meetings d
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develop closer working relationship
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mechanisms among SAARC countries fo
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ients as unencumbered assistance. A
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able outcomes within individual Pac
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EuropeWestern EuropeResearch is one
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http://europa.eu.int/comm/environme
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ter. By working together with commu
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ing socio-economic considerations w
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Case: Central American countries,co
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experience of National Societies of
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Chapter4Building understanding: dev
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Building understanding: development
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International scope of informationT
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environmental changes, including el
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Regional initiativesRegional inform
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North AmericaThe Natural Hazards Re
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EuropeA different type of informati
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created a more readily understood c
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Technical information service conve
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ole in defining these future requir
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A second initiative to disseminate
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support, contribute to the establis
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issues, climatic uncertainty, chang
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anism that has been exploited to on
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preparedness are frequently attribu
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Institutional basis to transmit exp
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lic information must necessarily in
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information including links to many
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ized a workshop with the support of
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nication remains the local language
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In 2001, government officials, ADRC
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challengesFuture challenges and pri
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Chapter5A selection of disasterredu
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5Living with Risk: A global review
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Photo: ISDR Secretariat
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Annexesa1Annex 1Terminology: Basic
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Emergency management involves the p
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Recovery (rehabilitation and recons
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Annexesa2Annex 2Directory: Internat
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Annexesa2Business and Industry Coun
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Annexesa2Comisión Nacional de Prev
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Annexesa2Disaster Management Center
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Annexesa2Experimental Climate Predi
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Annexesa2Instituto Nicaraguense de
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Annexesa2International Drought Info
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Annexesa2Musokotwane Environment Re
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Annexesa2Organization of Eastern Ca
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Annexesa2South Asian Association fo
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Annexesa2Unit for Sustainable Devel
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Annexesa3Annex 3aList of ACRONYMSAC
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Annexesa3CREDCRIDCSDCSDSCSIRCSTCSWC
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GEOGESIGFMCGHIGIEWSGISGLIDESGLO-DIS
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Annexesa3mMABMADERMANDISAMARNMATEMC
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Annexesa3SARCOFSARDCSARECSBOSCF-UKS
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Annexesa4Annex 4aBibliographyAbramo
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Annexesa4eDisaster Relief. Worldwid
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Annexesa4kKent,m lRandolph. 1987. A
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Annexesa4Thompson, C. 1993. Drought
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The International Strategy for Disa
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