Natural Disaster Preparedness and Response Measures
Statement delivered by Chris Lamb, Head, Humanitarian Advocacy Department, International Federation, to the United Nations Economic and Social Council Substantive session of 2001, Geneva
13 July 2001



Mr Chairman,

As an international organisation involved for over 80 years in disaster response and preparedness, the International Federation of Red Cross and Red Crescent Societies is grateful for the opportunity to discuss ways of strengthening and improving coordination of humanitarian assistance in natural disasters.

The International Federation has a unique perspective on such issues, for not only are we an international organisation in the full and technical sense of the term, but we are a federation of National Societies functioning in virtually all countries in the world. The National Societies, in turn, enjoy a unique status as they are normally formed as a consequence of government ratification of the 1949 Geneva Conventions. This means that the International Federation can serve as a bridge between intergovernmental organisations and civil society, just as the National Societies can bridge their government and civil society in their countries. Understanding this is of great significance to understanding the way the Red Cross Red Crescent Movement can contribute to the task of disaster management in the modern world.

The future outlook for natural disasters does not give us any reason to be optimistic. In the year 2000 the world saw more natural disasters than in any other year in the decade, affecting more than 250 million people. Climate-related disasters, which have doubled since 1996, could cost between US$ 6-10 trillion over the next 20 years - 10 times more than the anticipated flow of development assistance, in all its forms, over the same period. For disaster response coordination to work, we must start looking at helping the victims in a more structured way and improve a range of elements of emergency response. We must also, as a matter of the greatest priority, look for ways to prepare more effectively for disasters, particularly in disaster-prone regions.

The International Federation strongly believes that we must move away from the treatment of disaster response and disaster preparedness as separate issues. We need to think differently, and it is the International Federation's strong belief that aid organisations should move to a model of disaster management, which would encompass all the above elements. Disaster management should not be seen as divorced from development - emergency relief aid is no longer enough if we want to break the cycle of disaster-response-disaster. Furthermore, the way people are assisted needs to be reassessed so that developmental gains are not swept away and people become more resilient to any future disasters.

One of the key "ingredients" for a successful disaster cooperation is local community involvement. Disaster preparedness and response programmes which actively involve the community to find local solutions are vital for effective disaster management.

The International Federation has a grassroots presence in 177 countries around the world, through its unique network of National Red Cross and Red Crescent Societies. Their staff and volunteers are ordinary people from the communities, and they are best placed to respond to a disaster and provide first assistance to victims. With proper training, they provide early warning, local knowledge, local capacity, local expertise, response in first emergency phase and they can help in coordination. If their local capacity is built, if they are actively involved in all stages of disaster recovery and rehabilitation, the effects of disaster will diminish faster. The Red Cross and Red Crescent network is in an ideal position to deliver this, and many cases have proven this point.

As a very recent example of one emergency relief operation which strongly involved local community, and which was well coordinated and executed for the benefit of the victims, the International Federation would like to highlight the operation which was mobilised immediately after the earthquake that struck India's Gujarat State on 26 January 2001. It clearly showed how local network can be used to deliver services, how needs assessments were done effectively and needs targeted properly, and how the local input was critical in enabling effective coordination.

Within hours of the earthquake, Indian Red Cross volunteers were on the scene, providing immediate assistance and support to victims and helping to locate and rescue survivors from the rubble. The initial assessment was well timed and well executed. Based on this report, the International Federation started coordinating the emergency response with a number of National Societies who wished to deploy their Emergency Response Units. Within only 5 days a 400-patient capacity field hospital was deployed and ERUs and other response teams from some 15 National Societies were operational in the affected area. Throughout the emergency phase of the operation all parts of the Red Cross and Red Crescent Movement showed an ability to coordinate their efforts and work together.

Their work together involved, of course, close cooperation with the Indian Red Cross, the Indian Government, the local authorities and the international community. The success of the operation has been praised as an excellent example of strong and coherent leadership by both the International Federation and the Indian Red Cross. One of the special marks of the work done in the Red Cross Red Crescent Movement is the partnering that takes place between the international community represented by the International Federation and the national authorities as represented by the National Society. It is a hallmark of our work in the Movement that the fundamental leadership should rest with the National Society to the greatest extent possible in the circumstances.

As the rescue and emergency needs evolved into recovery and rehabilitation phase in Gujarat, the International Federation and Indian Red Cross identified the need for consolidated and comprehensive framework for Red Cross/Red Crescent action in the medium and long term, and took appropriate steps to achieve that.

As the Report by the India Earthquake Recovery and Rehabilitation Mission of the International Federation and Indian Red Cross stated: "The International Federation and member Societies have demonstrated and admirable capacity for focused and determined cooperation in their deployment of several Emergency Response Units and support teams. There is a clear opportunity for a lesson-learning exercise for the benefit of future such deployments".

The Report also highlighted the coordinating role of the International Federation as a strong point, and it is the area which can be supported even more in the future. Knowledge and expertise can be shared and can help improve coordination in future disasters, and the International Federation has been actively cooperating with OCHA and UNDAC in a number of emergency relief efforts. It is such partnerships and their facilitation, both between the International Federation and other international organisations, as well as between local government and National Society, that add substantial value to what coordination on the ground can achieve at times of disaster.

But much of the success of the India earthquake operation is thanks to the actions and involvement of local people, volunteers from Red Cross and other humanitarian organisations at the grassroots level. And it is the belief of the International Federation that investing more in the capacity of local structures to respond to both demands of a disaster and to preparedness training and programmes is a key to reducing the impact of natural disasters.

Here we should not forget the plight of internally displaced people, an area of continuous concern for the International Federation. It is well-known, but not often enough stated, that by far the largest number of IDPs in the modern world are people displaced by natural disaster. IDPs need the same support and the same inclusion in disaster response, and their involvement and training in the recovery and rehabilitation phase can substantially reduce the stress of integration into the new community. Furthermore, especially vulnerable groups of population, such as children and elderly, need particular attention and support, and disaster management processes should include specific measures related to addressing this issue.

The International Federation has as a basic foundation priority the need to ensure that disaster preparedness projects should work with the capacities of survivors, empowering them to retake charge of their lives and strengthening local institutions. One of the objectives of international relief operations supported by the International Federation will always be the building of member Societies' capacities to respond. Again, we repeat, the answer is at the grassroots level!

However, while reminiscing of such actions, we should never forget that it is in fact States that have the primary responsibility for the protection of their country population. Organisations like the Red Cross and Red Crescent are there to assist States in discharging that responsibility. But they need support, funding and backing of States to fulfil their role.

In 1999, States Party to the Geneva Conventions and National Red Cross and Red Crescent Societies agreed that there is a need for improved coordination and better quality assistance. The International Conference of the Red Cross and Red Crescent adopted a four year Plan of Action, which stated a clear commitment from the Red Cross and Red Crescent Movement to improve cooperation and coordination in our international activities, both internally and with States, the UN system, and other actors. But this commitment can become reality only if this type of partnership receives strong endorsement and practical support, both on country and regional levels, from States as well as international and regional organisations.

A questionnaire has been prepared which is now being circulated to States and National Societies. Responses will help share knowledge and experience between all participants, and also provide a clearer indication of needs and priorities at all the levels responsible for action in this and the other areas covered by the Plan.

The Federation has in the past few years developed some specialised means and tools for increasing overall field cooperation at times of emergencies, and in particular in relation to its local counterparts, the Red Cross and Red Crescent Societies. These include things such as Emergency Response Units, ready-made teams of experts and equipment based in various countries, able to be deployed in the shortest possible timespan. ERUs have been developed with focus on main areas of emergency response, so there are specialised units for water and sanitation, logistics, health, telecommunications etc. They are maintained at the highest possible level of standards and expertise, and have been used in a number of emergencies, most recently in India.

Field Assessment and Coordination Teams - FACTs, are another such grouping, consisting of experts in disaster assessment, coordination and operations start up. Again, as speed and appropriate action are clearly key factors of success of an emergency operation, FACTs are ready to be deployed on a 24 hour notice. The value of having such a response mechanism has been demonstrated most recently and most vividly in the El Salvador earthquake and the above-mentioned India operations. FACT is one of the prime examples of a productive coordination body, with strong links to UN emergency agencies, in particular UNDAC teams.

Another facility which should be mentioned is the International Federation's Disaster Relief Emergency Fund (DREF). It is a key emergency response tool, allowing funds to be released immediately after a disaster and facilitating the rapid start up of an emergency operation. DREF resources are made available in response to an appeal, in the process leading to an appeal, or in response to a small scale emergency where an appeal is not feasible. Because allocations are provided on a refundable basis, the DREF is a revolving fund, and contributions are used as leverage so that one donation provides aid well in excess of the actual amount contributed.

Finally, there is the DMIS - disaster management information system. In pre-disaster situation the key to preparedness is analysis of information, prediction, anticipation, early warning systems. During a disaster all stakeholder, from local to global level, require information on local conditions, the changing operational environment, human resources, and other knowledge. The International Federation is in the process of developing an Internet-based interactive system which will enable all users to receive early warnings and analyse disaster situation, context and trends, helping increase the effectiveness of the response. And indeed even the Appeal Process of the International Federation is geared and structured in a way that allows us to work by using local knowledge and understanding of the situation to generate a global coordinated response.

Statements and discussions on disaster issues normally focus, naturally, on disasters which are either well-known because of media interest or which have obtained a priority for other reasons including their strategic location or the nature of the people affected. The International Federation, however, gives its attention to disasters wherever they happen, and however they occur. In this sense it is very important to call attention to the problems faced by people in disaster zones after the media spotlight has moved on, and even more critically, to people affected by slow onset disasters.

One of the latter category which deserves to be singled out for special mention today is the drought in Tajikistan. This disaster, which has wreaked havoc on the country, its economy and most of all its people, has unfortunately not obtained the attention it deserves, and the consequence is continuing suffering for the people affected and little hope that their problems will be addressed. The International Federation is currently working with the Red Crescent Society of Tajikistan to develop fresh approaches to the solution of the country's perennial drought problems, and trusts that the international community will be ready to participate in this effort as it matures.

Similarly, the International Federation is working hard to address the consequences of drought elsewhere in the world. Ethiopia is a case in point, and a glance at the International Federation's website - www.ifrc.org - shows how we set out needs, provide situation updates, and the other information donors and the concerned international community needs to address the situation in practical ways.

In the last decade of the 20th century much has been done to achieve better quality, coordination and professionalism in emergency aid delivery. However, there are still many issues that can be resolved or improved, and one of these is of major concern to the International Federation.

It is clear that the most critical period of any post-disaster operation is the first 48 hours, whether looking at search and rescue or immediate treatment of victims, food and water delivery, or shelter. Time and time again this so called "48-hour rule" proved critical, and one of the frequent obstacles in achieving instant access has been lack of a legal framework for disaster response, which may have caused unnecessary difficulties in responding to disasters.

There are already in existence certain elements of this framework, namely various UN resolutions, as well as conventions for use of radio communication, or examples of customary law. It is these laws that constitute the basis for the launch of the International Federation's initiative to explore the development of International Disaster Response Law (IDRL).

Based on the International Federation's experience in disasters, the agreement of the meeting of experts in Geneva in February 2001 that a study of International Disaster Response Law is needed, and the backing of such an initiative by the Governing Board, the International Federation embarked on the process of building a comprehensive compilation of existing law, which could then be analysed along with the declaratory and other legal material.

The International Federation wants this process to be completely inclusive. The ultimate aim is to involve and inform of the progress all stakeholders, and in particular the UN system, as well as States. It is critical that all interested parties are fully informed, and in particular States, for if the study exposes a need for gaps in the law to be filled, that work will have to be considered by States. So far the International Federation has already received support from the UN, especially OCHA, for initiating this process, and we are grateful for that.

The essence of the IDRL study is that there is a need for a clear understanding of the legal framework within which disaster assistance is provided and used. There must be a visible and usable framework which enables mechanisms to provide responses to natural and technological disasters. It must be sensitive to the needs and wishes of both the providing and receiving States, as well as to international organisations and community organisations. It must respect the needs of the people whose right to dignity and life itself have been ruined.

Such framework needs to take account of international law, as well as law and practice at regional and national levels. It must include instruments that have become the benchmarks for good practice in regions and the world. Some of these have been endowed with legal status; some have gathered their force from usage. Among those which the IDRL study will consider are the Sphere standards, and the Code of Conduct for Non-Government Organisations. Both are products of work generated by the International Federation of Red Cross and Red Crescent Societies.

As things stand now, the International Federation sees the study phase as concluding by mid next year, the results being published immediately afterwards, and the findings and proposals delivered for consideration to the States Party to the Geneva Conventions and their National Societies at the International Conference of the Red Cross and Red Crescent due to be held in Geneva in 2003.

By doing this study the International Federation in no way intends to counter or distract the processes that are already under way in some areas related to disasters and respective legal framework. The International Federation is actively supportive of the Tampere Convention and we are hoping it will soon achieve the desired number of ratification to become a reality.

Similarly, we are actively participating in the consultative process related to the International Convention on Urban Search and Rescue, contributing our views and opinions based on the direct field experience and our understanding of practical operational matters. It is our hope that ECOSOC will take a keen interest in the work done so far, especially concentrating on the outcome of the Core Group meeting held in June 2001, and consider ways and means of promoting the generally shared objective of improving international assistance to urban search and rescue in that critical first 48 hours after the onset of a disaster.

It is the duty of all of us in the humanitarian arena to ensure there is effective and efficient coordination of humanitarian assistance in the aftermath of disasters, as well as in the preparedness field. Things are not perfect, and there are always examples, such as the Hurricane Mitch disaster back in 1998, which can help us asses the mistakes and improve our service delivery. Again, the response during the India earthquake clearly shows major improvements and that we do indeed learn from past experience. Much more can be done, and we must continue building the institutional framework within which coordination takes place, and developing the necessary legal base for action. But our focus remains on two main issues: building local capacity and helping the victims, who are entitled to receive adequate and immediate support and assistance, and be assisted in building their disaster resilience.

The International Federation uses all the resources at its disposal, including the considerable resources of its National Societies, to look for innovative and bold solutions to the problems posed by disasters. We undertake to continue to do so, and to share the outcome of that thinking with Governments, International Organisations and the international community as a whole. We are looking for a renewal of commitment to work for victims, and for the alleviation of the distress that disasters inevitably bring.

One way of sharing our experiences and possible solutions, as well as advocating for and on behalf of the victims is through the annual publication of the International Federation, the World Disaster Report. This unique document, in many respects the most important annual publication of quality on disasters issues, focuses on effects and consequences of disasters, and proposes possible ways of responding to these. The 2001 WDR is entitled "Focus on Recovery", and its message is quite clear from the following quote: "The ever-increasing risk posed by disaster will only be contained by putting the planet's vulnerable people at the centre of disaster response and of humanitarian advocacy".

The International Federation is actively engaged in coordination of emergency humanitarian response with other aid organisations, and it will continue to work progressively on building even better cooperation with the UN agencies, especially OCHA, in a bid to ensure appropriate, quick and relevant emergency humanitarian assistance. We will also continue working on helping individual governments to develop or improve their country disaster strategies and coordination mechanisms, and we hope that together with all the stakeholders we can achieve a reduction in fatalities and better prepared communities.

Thank you