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Disaster Risk Reductionin Multilingual Settings

David AlexanderUniversity College London

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Definitions

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Vol. 1 Vol. 2

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"...to worry about what the term'disaster' means is not to dedicate oneselfto an academic exercise without meaning.Instead it is to focus in a fundamental

way on what should be consideredimportant and significant..."

(Quarantelli 1995)

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"If scholars in the field cannot evenagree on the question of whether a'disaster' is fundamentally a social

construction or a physical event, thenclearly the discipline has problems."

(Quarantelli, 1998)

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In disaster risk reductionwe have a definitional morass

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The structure of the field

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Recoveryand

reconstruction

Mitigationandresilience

Preparationandmobilisation

Emergencyintervention

Quiescence

Crisis

The disastercycle

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Recoveryand

reconstruction

Mitigationandresilience

Preparationandmobilisation

Emergencyintervention

Crisis

Emergencyplanning andorganisation

ofsecuritysystems

Warning and

preparation;damage

limitationmeasuresactivated

Emergencyoperationsand damagelimitation

Recovery andrestoration

Safetymanage-ment of

emergencyoperations

Quiescence

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Emergency Disaster Catastrophe

Scenarios for emergency planning- fundamental concepts -

(Hazard x Vulnerability x Exposure)Resilience= Risk

[ → Impact → Response]

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Civil contingencies

Resilience

management

The risk environment

Businesscontinuity

Civildefence

Disaster Risk Reduction (DRR)

Civilprotection

HumanitarianRelief

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RiskCivil defence

Hazard

Vulnerability

Threat

Exposure

Response

Mitigation Protection

Civil protection

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Armed aggressionon the part of states

Civil defence

Natural disasters

Civil protection

Armed aggressionon the part of

groups of dissidents

"Homeland security"(civil defence)

"Generic" disasters

"Civil contingencies"(resilience)

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Civil DefenceCivil Protection

Instabilitythreats

Enhancednatural hazards

Complexhazards

Naturalhazards

Evolvingstrategicsituation

Largetechnological

hazards

Evolvingclimatechange

'Na-tech'(hybrid)hazards

Majorgeophysical

events

Top-down

Bottom-up

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Locus ofcontrol

Locus ofcollaboration

(support)

Tension ofopposites

Commandfunctionprinciple

Supportfunctionprinciple

Spectrum ofalternatives

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Co-locate

Communicate

Co-ordinate

Jointly understand risk

Share situational awareness

Commonoperating picture

JointEmergencyServicesInter-operability

Programme

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Formerly the Monitoringand Information Centre

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IMPLEMENTATION ACTIONS(employing resources)

MONITORING AND FEEDBACK

ETHICALPRINCIPLES

& CORE VALUES

STRATEGICDECISIONS (finding

and committing resources)

TACTICAL DECISIONS(allocating resources)

FLOW OFDIRECTION AND

HARMONISATION

FLOW OFEXPERIENCEAND FIELDINFORMATION

'Top-down' and'bottom-up'

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Command function principle:command and control

model

Support function principle:collaborative and cooperation

model

Informationtechnology

Managementdecisions

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Emergency management:an evolutionary approach

Proxy Participatory

Civil defence...............Civil protection

Command and controlVertical chainof commandPopulation excludedLaw and orderSecrecy

CollaborationTask forces

Population consultedand included

Problem solvingOpenness

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Organisationalsystems:management

Socialsystems:behaviour

Naturalsystems:function

Technicalsystems:

malfunction

VulnerabilityHazard

Resilienc

e

Politicalsystems:decisions

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Culture

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THE WAR ON HAZARDS AND DISASTERS

CULTURE

HISTORY

EVENTS

CONTEXT

RISKSINCREASING

MOREFREQUENTIMPACTS

LOSSES RISING

VULNERABILITY

HAZARDS

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DisasterRisk

Reduction

Culture

Econom

ics

Access toknowledge

The w

eight

of h

isto

ry

CONSTRAINTS

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Diffusion of information

Perceptual filter

Cultural filter

Emergency not decoded

Emergency decoded

Ignorance

Imagesof reality

Symbolicconstructions

Enlightenment

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Filter

Perception

Culture

Decision

Action

Result

Positive Negative

Risk

Accurate Inaccurate

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Technologyas risk

mitigation

Technologyas a source

of vulnerability

Research,development

and investmentin technology

individualfamilypeer grouporganisationcommunitysocietyinternational C

ultu

ral filter

Sociocentrism Technocentrism

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Kenneth L. Pike1912-2000

Etic and emic

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Long term

Short term

Emic components

Etic components

METAMORPHOSISOF CULTURE

Experiences of culture[mass-media and consumer culture]

Accumulated cultural traits and beliefs

Inherited cultural background

Ideological(non-scientific)interpretations

of disaster

Learned(scientific)

interpretationsof disaster

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Valuesystem

Familyculture

Workculture

Peergroupculture

Personalculture

National culture

Regional culture

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Etic elementsof culture

Emic elements

of culture

Areaof culturalinterpenetration

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Retribution Judgement Portent

DISASTERMEANING ACCEPTANCE

Retrospectiveinterpretation

Predictiveinterpretation

Traditional view of disaster - modern parallels?

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Symbolisminherent in

technologicalculture

Traditionalsymbolism

and portent

Event

Interpretation

Dynamic culturalmetamorphosis

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Resilientculture

Culture ofresilience

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INSTRUMENTS OFDISSEMINATION

• mass media• targeted campaign• social networks

• internet

Augmentation

MASSEDUCATIONPROGRAMME

HUMANCAPITAL

HABIT

CULTURE

The creation of a culture of civil protection

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BENIGN (healthy)at the service of the people

MALIGN (corrupt)at the service of vested interests

interplay dialectic

Justification Development

[spiritual, cultural, political, economic]

IDEOLOGY CULTURE

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Learning to work together

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Basic concepts:hazard, vulnerability,

exposure, risk,impact, resilience, etc.

Hazardanalysis

Technical skills:telecomminications

computer, GIS, etc.Emergencyplanning

Emergencymanagement

Disastersociology andpsychology

Public informationmanagement

Recovery andreconstruction

planning

Methods ofrisk mitigation

Fieldexercises

Disaster and emergencymanagement training

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HAZARD,

RISK &

DISASTER

STUDIES

SEVEN SCHOOLSOF THOUGHT

Criminal justice

and forensic

science

and perhapsan eighth...

Sociology

Psychology

& psychiatry

Economic &

financial studies

Development

studies

Disaster medicine

& epidemiology

Physical &

construction

sciences

Geography &

anthropology:

cultural (human)

anthropology

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Ecology

Geology

(& Geomorphology)

Geophysics

(inc. Seismology)

VolcanologyClimatology

Hydraulics

Hydrology

Meteorology

Architecture

Civil engineering

Geotechnical engineering

Structural engineering

Mechanical &

electrical engineeringInformation &

communication

technology (ICT)

Computer technology

Remote sensing

Risk analysis (inc.

risk identification,

estimation,

management &

communication)

Cartography

Development studies

Economics

Geography, History

Jurisprudence & legal stds

Urban & regional planning

Mass media studies

Psychology

Sociology

Epidemiology

Nursing

Nutrition

Pharmacology

General medicine

Surgery &

emergency medicine

Public health, hygiene

& epidemiology

Veterinary sciences

Health sciencesSocial & spatial sciences

Computational

& analytical

sciences

Construction sciences

Atmospheric & water sciences

Earth & environmental sciences

HAZARD,

RISK &

DISASTER

CONSTITUENTDISCIPLINES

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Broad professional training in emergency management

Professional experienceand training

Disciplinary training(e.g. bachelor's degree)

Commonculture

Commonlanguage

Commonobjectives

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PractitionersEmergency services

Emergency managementagencies

Volunteer NGOs

ResearchersAcademicsConsultants

UsersThe general public

Businesses

Threeconstituencies

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survivors andbeneficiaries

emergency managersand responders

policy makers andemergency planners

internationaldimension

marginalisedgroups

domesticdimension

tourists and visitorsTHE

TRANSLATOR

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The international dimension

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The international relief system

PUBLIC ANDCORPORATEDONORS

INTERNATIONALNGOs

DONOR COUNTRYGOVT. AGENCIES

RECIPIENT COUNTRYGOVERNMENT AGENCIES

RECIPIENT COUNTRYDONORS

LOCALNGOs

AFFECTED POPULATION AND VICTIMS

UNITED NATIONS AGENCIESUN Office for the Co-ordination of

Humanitarian Affairs (UN-OCHA)UN Disaster Assistance Team (UNDAC)International SAR Advisory Group (INSARAG)UN High Commission for Refugees (UNHCR)World Food Programme (WFP)Other UN Agencies

RAPID RESPONSE TEAMSInternational SAR teamsDisaster Assistance Response Teams (DARTs)

RED CROSS-RED CRESCENTInternational Committee of the RC (ICRC)International Federation of RC Socs. (IFRC)National societies - donor countriesNational societies - recipient countries

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UN Resident Co-ordinator (UN-RC)UN Humanitarian Aid Co-ordinator (UN-HC)

Emergency Response Co-ordinator (UN-ERC)(Undersecretary General for Humanitarian Affairs)

Permanent Interagency Support Committee (UN-IASC)[UN humanitarian agencies; UNHCR,

Red Cross, World Bank, various NGOs]

Civil-Military Humanitarian Co-ordination (UN-CMCoord)

Department of Humanitarian Affairs (UN-DHA)Office for the Co-ordination

of Humanitarian Affairs (UN-OCHA)

In the assisted country:-

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War andconflict

Pove

rty

Naturaldisasters

Inse

curity

Vulnerability andmarginalisation

Military

Humanitarian assistance

assistance

The "Military Cross"

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What falls outof the sky?

Cluster bombs

Humanitarian rations

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Justice Impartiality

Humanitarianism

Hijacking ofassistance

Relief

Robberyand rapeof victims

Totalwar

Politicisation ofrelief suppies

Whatfuture?

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Justice system

Rights Responsibilities

Moral

Ethical

Legal

Constitution Disaster

Context of disaster

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welfare mobility

sovereignty identity

entitlementproxy wars

?

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• prevalence of myths and misassumptions

• migration and evacuation

• informal settlements

• precarious livelihoods

• crises of leadership.

Some parallels between disaster risk reduction (DRR) and human mobility

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XenophobiaDistrust ofunfamiliar

people

CompassionDesireto helprefugees

RejectionismIt is not

our problemDistancingNot in myback yard

The role of mass cognitive dissonance

CharityWillingnessto donate

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Conclusions

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• disaster response is increasinglyinternationalised, with up to130 countries participating

• interoperability is vital: civilprotection needs a common culture

• beware of the clash between top-downand bottom-up approaches incivil defence and civil protection.

Take-away messages

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• culture is facilitator or inhibitor of DRR:initiatives must be culturally compatible

• minorities should not be neglectedand marginalised (especially inhuman mobility and conflict situations)

• suppression of democracy, human rightsand people's cultures must be opposed.

Take-away messages

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