DRAFT.

May 30, 2007

The Search for Principles of Disaster Management

by David Etkin, Graduate Program Dire tor, Di!a!ter and Emergen y Management, Atkin!on Fa u"ty o# $ibera" and A%%"ied &tudie!, 'ork (niver!ity, etkin)yorku. a and *an Davi!, +i!iting Pro#e!!or in Di!a!ter Management, ,ran#ie"d, ,oventry, -.#ord /rooke! and 0yoto (niver!itie!, i.davi!)n1o.#ord.demon. o

This is a working paper in draft form. Comments and suggestions are welcomed by the authors. 1. Why are principles needed for disaster management
T2e -.#ord di tionary de#ine! a %rin i%"e a! a fundamental truth as (a) basis of reasoning. Principles guide peoples decisions and actions, policies and procedures developed by organizations, and laws and doctrines of political entities. T2e ,o""in! Eng"i!2 $anguage Di tionary #urt2er de#ine! a %rin i%"e a! ! general rule that you try to obey in the way that you try to achieve something. Principled actions or behaviour, based on clear guidance concerning the way to act. T2e!e de#inition! %"a e em%2a!i! on t2e im%"i it aut2ority ontained in a %rin i%"e a! a 3#undamenta" trut23 or 4genera" ru"e3. T2eir %ur%o!e on ern! %ra ti a" a tion, t2u! %rin i%"e! e.i!t to 4guide a tion!3, 4a 2ieve !omet2ing3, or de#ine t2e 45ay to a t3. T2e !tatement "e hold these truths to be self evident# 6(.&. ,on!titution 7 T2oma! 8e##er!on9 i! one o# %rin i%"e!. *# t2ere i! not a "ear under!tanding and !tatement o# %rin i%"e!, t2en t2ere annot be a on!i!tent, o2e!ive and embra ing di!a!ter management !trategy, or e##e tive ommuni ation bet5een di##erent organi:ation!. A #urt2er in entive to deve"o% guiding %rin i%"e! to %rovide dire tion to de i!ion making in bot2 di!a!ter management and di!a!ter ri!k management; 2a! ome #rom e.terna" %re!!ure! being e.erted by donor government! and *nternationa" Finan ia" *n!titution!
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*n re ent year! t2e!e term! 2ave been 5ide"y a e%ted. $isaster %anagement re#er! to t2e %o!t1 di!a!ter management o# emergen ie! 52i"e $isaster &is' %anagement de! ribe! t2e %ro1a tive %ro e!!e! o# ri!k a!!e!!ment and ri!k redu tion. Anot2er term, $isaster &ecovery %anagement re#erring to "onger1term di!a!ter re overy, i! gradua""y being added to t2e!e de! ri%tion! a! re overy !e ure! be"ated re ognition among!t %o"i y maker! and #unding in!titution!.

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May 30, 2007

6*F*!9. *n return #or t2eir !u%%ort to deve"o%ing ountrie! needing grant! and "oan! #o""o5ing di!a!ter!, t2ey are in rea!ing"y demanding im%roved a ountabi"ity to bene#i iarie! o# a!!i!tan e and overa"" tran!%aren y o# o%eration! 7e!%e ia""y in #inan ia" management. For t2e!e demand! to be !ati!#ied !2ared et2i a" %rin i%"e! are needed to !u%%ort %o"i ie! and %ra ti e. AD/ 6200<9 =it2in t2e #ie"d o# emergen y and di!a!ter management t2ere are a %"et2ora o# %rin i%"e! 6,R>?et 200<9 de! ribed in variou! book! 6e.g. A"e.ander, 20029 and organi:ationa" 5eb!ite! 6e.g. Eig2t Prin i%"e! o# Di!a!ter Management@ 2tt%@AA555.on%2i"ant2ro%y. omAbe!t%ra tAb%200210B1;C.2tm"9. T2e!e %rin i%"e! %ur%ort to %rovide a guiding and enduring ba!i! #or 2o5 t2e %ra ti e o# di!a!ter management i! %ur!ued. 'et, a %eru!a" o# t2e variou! !et! o# %rin i%"e! revea"! "itt"e onvergen e. =2y i! t2i! !o and 52at are t2e im%"i ation! o# t2i! diver!ityD T2e aut2or! !ugge!t t2at t2e divergen e emerge! be au!e o# t2ree ba!i rea!on!. 6;9 T2e #ir!t re"ate! to di##eren e! in #undamenta" va"ue! and organi:ationa" mandate!. For e.am%"e, an ?G- !u 2 a! t2e Red ,ro!! or ,ARE 5it2 a !trong #o u! on di!a!ter a!!i!tan e at t2e ommunity "eve" 5i"" not !2are a"" o# t2e !ame va"ue! or %ur%o!e! a! t2e =or"d /ank, 52i 2 tend! to 5ork at internationa" and nationa" "eve"!, t2oug2 di!a!ter management i! im%ortant to bot2. T2eir u"ture! are Euite di##erent, one rooted in 2umanitarian a!!i!tan e and t2e ot2er in a 2ig2"y %o"iti i:ed e onomi environment 52ere deve"o%ment 2a! traditiona""y been vie5ed t2roug2 t2e %er!%e tive o# neo1 "a!!i a" e onomi !. -t2er di##eren e! may re"ate to di! i%"ine. A meteoro"ogi a" agen y may #o u! on te 2no"ogy and advan e 5arning, 52i"e a deve"o%ment agen y mig2t #o u! on ommunity !u!tainabi"ity. 629 /ut a"!o, divergen e e.i!t! be au!e di##erent %eo%"e or organi:ation! addre!! di!a!ter management #rom di##erent o%erationa" %er!%e tive!. An a ademi mig2t be %2i"o!o%2i a", a government agen y !trategi and a re"ie#1ba!ed o%eration ta ti a". A! !u 2 t2eir %rin i%"e!, 52i 2 !2ou"d re#"e t t2eir %er!ona" or organi:ationa" %ur%o!e, 5ou"d "ook Euite di##erent t2oug2 t2ey mig2t not be in on#"i t 5it2 ea 2 ot2er. For e.am%"e, t2e #ir!t o# t2e eig2t %rin i%"e! #rom t2e %2i"ant2ro%y 5eb!ite noted above i! F$o no harmG, 52i"e t2e #ir!t %rin i%"e #rom Au# der >eide 6;HBH9 i! F(ecause of the limited resources available, disaster preparedness proposals need to ta'e cost) effectiveness into consideration.G T2e!e t5o %rin i%"e! bear "itt"e re"ation!2i% to ea 2 ot2er, t2oug2 it i! Euite %o!!ib"e t2at %ro%onent! o# bot2 5ou"d not obIe t to t2e a!!ertion o# t2e ot2er. 639 Fina""y, %eo%"e or organi:ation! may 5ork in di##erent %art! o# t2e di!a!ter management !%e trum 6mitigation, %re%aredne!!, re!%on!e and re overy9. Ea 2 o# t2e!e F%i""ar!G 2a! it! o5n reEuirement! t2at 5ou"d re!u"t in varying on ern! and !trategie!. /eyond t2e more idea"i!ti a!%e t! o# organi:ationa" mandate! "ie! t2e o#ten un!tated tenden y o# organi:ation! to en!ure t2eir o5n !urviva" and gro5t2, even at t2e e.%en!e o# o%tima""y a!!i!ting di!a!ter vi tim!. ?umerou! e.am%"e! o# t2i! !e"#1intere!t an be dete ted. For e.am%"e, a#ter t2e 200J A!ian T!unami, nationa" and internationa" agen ie! %oured into t2e a##e ted ountrie! and embarked on energeti #unding

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May 30, 2007

am%aign!, o#ten in om%etition 5it2 ot2er agen ie! even t2oug2 it 5a! ra%id"y be ame a%%arent to everyone in t2e re"ie# !y!tem t2at t2ere 5a! a %"et2ora o# agen ie! %re!ent 7 5e"" beyond "o a" need!. *t 5a! a"!o a%%arent t2at #ar more money 2ad been o""e ted t2an ou"d %o!!ib"y be managed given "imited "o a" a%a itie! or avai"ab"e #unding 2anne"!. *n addition, t2ere 5a! a marked "a k o# oo%eration bet5een many o# t2e 2undred! o# ?G-! 52i"e 5orking to a!!i!t t2e di!a!ter vi tim!. From t2i! 2aoti !ituation !u e!!ive eva"uation! 2ave 2ig2"ig2ted t2e urgent need #or !ome on!en!u! to be rea 2ed #rom agreed1to guiding %rin i%"e!. T2i! 5ou"d enab"e agen ie! to 4!ing #rom t2e !ame !ong !2eet3 =it2out !u 2 oo%eration one an e.%e t more ! enario! "ike t2e &ri $anka ?G- ir u! o# un oordinated a tion! o# 2undred! o# internationa" and! nationa" ?G-3!, 52ere ea 2 %ur!ue! t2eir o5n individua" goa"!. T2e ri!k i! o# t2i! %attern being re%eated in a"" #uture mega1di!a!ter! t2at attra t t2e attention o# va!t number! o# agen ie!. ,om%etition #or %roIe t! by agen ie! a"!o a%%"ied to om%etition to !e ure media attention. ,"inton, 6200C9K & 2e%er 6200C9K Te"#ord and ,o!grave 620079 Furt2er e.am%"e! re"ate to t2e %o"iti a" tur# 5ar! during and a#ter t2e >urri ane 0atrina di!a!ter in t2e (& t2at 2indered e##e tive re!%on!e, Fe5, i# any, organi:ation! are mono"it2i enter%ri!e! 7 om%eting agenda! and interna" %rioritie! inevitab"y e.i!t even in di!a!ter !ituation!.2 T2e!e i!!ue! o# agen y !e"# intere!t be oming dominant on ern! 2ig2"ig2t t2e ontinua" need #or guiding %rin i%"e! t2at a!!ert! t2e %riority or %rimary mi!!ion o# 2umanitarian agen ie! to be ba!ed e. "u!ive"y on t2e 4need! o# t2e a##e ted ommunity3 rat2er t2an any ot2er interna" on!ideration. T2i! 5a! t2e %re i!e motivation o# t2e 4*ood +umanitarian $onorship *nitiative. 6Good >umanitarian Donor!2i%, 20039 and t2e Red ,ro!! 52en t2ey #ir!t %romoted t2e 4,nternational -ode of -onduct in ;HH<. /y February 2007 an a!toni!2ing tota" o# J0J nationa" and internationa" agen ie! 2ave !igned t2e ode, meaning t2at t2ey 5i"" !eek to abide by it! ondition! or %rin i%"e!. T5o o# t2e 4 ode!3 give a #"avour o# t2e overa"" #o u!@ Code of Conduct No. 1.
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*an Davi! 5a! on t2e management board o# an internationa" re"ie# agen y during t2e ;H703! and 5itne!!ed t2e #or e! o# !e"#1intere!t in a tion. >e re a""! !ome a"arming boardroom di! u!!ion! 52ere t2e agen y #inan ia" dire tor 5ou"d e.%re!! t2e 4need3 #or a maIor di!a!ter to o ur 5it2in a given #inan ia" year to %rodu e t2e on!eEuent in#"u. o# #und! #rom agen y !u%%orter! to en!ure t2at !ta## redundan ie! 5ou"d not o ur. T2i! 5a! on a ount o# a ;J 120L a""o ation o# admini!trative and 2and"ing 2arge! t2at t2e agen y dedu ted #rom every ontribution and di!a!ter! %rovided t2e maIor 4#inan ia" !urge!3 needed to #i"" t2e agen ie! admini!trative budget. T2ere#ore, 5e 5ere #a ed a! board member! 5it2 t2e b"unt rea"ity t2at i# t2ere 5ere #e5 di!a!ter! in a given year t2e agen y 2ad to "oo!e !ta## and ut ba k on e!!entia" admini!trative reEuirement!. >o5ever, !ome 4 reative a ounting3 me 2ani!m! 5ere introdu ed by ertain agen ie! to o##!et t2i! ri!k by dubiou!"y 2arging t2e !a"arie! o# 2ome or over!ea! ba!ed aid admini!tration !ta## a! a %roIe t or donation item, a! a 5ay to boo!t t2e admini!tration 4to%1 !"i e3. ?eed"e!! to !ay, "oya" on!tituen y !u%%orter! o# agen ie! 5ere never in#ormed about !u 2 !ubt"etie! a! t2e agen y 4adIu!ted3, 6or mani%u"ated9 t2eir !u%%orter! ontribution! to meet t2e agen y3! interna" reEuirement!

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May 30, 2007

The Humanitarian imperative comes first. .he right to receive humanitarian assistance, and to offer it, is a fundamental humanitarian principle which should be en/oyed by all citizens of all countries#. Code of Conduct No. 2. Aid is given regardless of the race, creed or nationality of the recipients and without adverse distinction of any ind. Aid priorities are calculated on the !asis of need alone. "herever possible, we will base the provision of relief aid upon a thorough assessment of the needs of the disaster victims and the local capacities already in place to meet those needs. "ithin the entirety of our programmes, we will reflect considerations of proportionality. +uman suffering must be alleviated whenever it is found0 life is as precious in one part of a country as another. .hus, our provision of aid will reflect the degree of suffering it see's to alleviate. ,n implementing this approach, we recognize the crucial role played by women in disaster)prone communities and will ensure that this role is supported, not diminished, by our aid programmes. .he implementation of such a universal, impartial and independent policy, can only be effective if we and our partners have access to the necessary resources to provide for such e1uitable relief, and have e1ual access to all disaster victims. *nternationa" Federation o# Red ,ro!! and Red ,re! ent &o ietie! 6*FR,&9 6;HH<9 4,ode o# ,ondu t3 *FR,&@ Geneva >o5ever, given 2ig2 "eve"! o# agen y !ta## turnover in *nternationa" ?G-3!, it i! %o!!ib"e t2at initiative! !u 2 a! t2e *ood +umanitarian $onorship or t2e -ode of -onduct may be tota""y unkno5n to ne5 !ta##. *n 2007 *an Davi!, t2en a on!u"tant to one o# t2e "arge!t G"oba" ?G-3! 652o are deve"o%ing an *nternationa" &trategy to guide t2eir g"oba" 2umanitarian %rogramme!9, in varied di! u!!ion! 5it2in a do ument on et2i a" on ern! noted t2at t2ere 5a! a tota" ab!en e o# any re#eren e to t2e ,ode o# ,ondu t de!%ite t2e #a t t2at t2i! agen y 5a! one o# t2e ear"y !ignatorie!, agreeing to abide by t2e reEuirement! o# t2e ode. &ub!eEuent enEuirie! indi ated t2at t2i! 5a! be au!e key !ta## 5ere tota""y una5are o# t2e e.i!ten e o# t2e ode and t2eir o5n agen ie! agreement to abide by it! ontent!. Drabek 6200<9 %re!ent! anot2er rea!on 52y t2e #ie"d o# di!a!ter management doe! not 2ave a 5e"" de#ined !et o# %rin i%"e!, and t2at i! be au!e t2ere i! no genera" t2eory t2at under"ie! it. >e argue! t2at t2ere are a!%e t! o# t2eorie! !u 2 a! t2o!e oming #rom !o ia" on!tru tioni!m, !u!tainab"e deve"o%ment and vu"nerabi"ity t2eory t2at are and an be u!ed a! a #oundation o# an emergen y management t2eory, but t2at it i! !ti"" very mu 2 in a !tage o# deve"o%ment. A"ong a !imi"ar vein, A"e.ander 6;HHH9 note! t2at %odels and interpretations of disaster abound, but the phenomenon is so multi) faceted that a general theory of universal e2planatory power is unli'ely ever to be formulated.

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T2e aut2or! %ro%o!e t2at t2e #ie"d o# di!a!terAdi!a!ter ri!k management 5ou"d bene#it great"y #rom a dia"ogue on t2e to%i o# %rin i%"e! #or t2e %ur%o!e o# reating a greater degree o# onvergen e. T2ere 5ou"d a%%ear to be t2ree rea!on! 52y a body o# agreed %rin i%"e! are needed@ !irst" they allow organi#ations to create more coherent sets of policies of procedures. T2e!e 5ou"d a!!i!t in!titution! 5it2 di##erent va"ue! and mandate! to better under!tand and ta"k to ea 2 ot2er. /ut beyond !u 2 di! our!e, i# "ear"y de#ined %rin i%"e! are a e%ted and agreed u%on bet5een di##erent organi:ation! t2en it i! %o!!ib"e #or genuine oo%eration and oordination to o ur on t2e ba!i! o# on!en!u!. Second" principles can pro$ide an agreed upon and ethical base for action. *t i! e!!entia" to em%2a!i!e t2e et2i a" dimen!ion in a"" a!%e t! o# di!a!ter ri!k management !in e t2e "ive! o# %eo%"e and t2e viabi"ity o# ommunitie! are at !take. Prin i%"e! an a!!i!t in enab"ing de i!ion maker! to di!tingui!2 bet5een relative et2i a" i!!ue! and universal et2i a" i!!ue! 6!ee be"o5 #or a di! u!!ion on t2e di!tin tion9. Et2i a" %rin i%"e! #orm t2e bedro k or %"at#orm to a!!i!t de i!ion maker! a! t2ey !eek, 6or are re"u tant"y %u!2ed9 into be oming more a ountab"e to bene#i iarie! o# t2eir !u%%ort, a! 5e"" a! be oming tran!%arent in 2and"ing t2eir o%eration! and managing t2eir #inan e!. Third" principles are needed to guide the $arious elements in disaster planning and implementation T2ey an a!!i!t in t2e deve"o%ment o# %o"i y, !trategy, %"anning, ta ti ! and a tion! on t2e ground a! 5e"" a! %o!t di!a!ter "earning and ada%ting. *t i! e!!entia" to undertake di!a!ter %"anning in a"" ountrie!, and 5it2out guiding %rin i%"e! di!a!terAdi!a!ter ri!k management an be "itt"e more t2an a dire tion"e!! #orma"ity. T2ere are an abundan e o# %rin i%"e! to guide di!a!ter manager! and ea 2 o# t2e!e 4re"ative, or "o a""y a%%"i ab"e %rin i%"e!3 an be tai"ored to !uit an organi!ation and it! ro"e. *t i! im%ortant to re ogni!e t2at 52i"e !ome %rin i%"e! may be on! iou!"y #o""o5ed, ot2er! may be !ub on! iou!"y re ogni!ed and a%%"ied. A! 5e"", !ome %rin i%"e! are e.%"i it 52i"e ot2er! im%"i it"y under%in o%eration!. An im%ortant %art o# t2e e!!en e o# any u!e#u" %rin i%"e i! in it! !im%"i ity, but di!a!ter! are a"5ay! om%"e. event! t2at re"ate to varied 2a:ard! a##e ting mu"ti%"e !take2o"der!, many "eve"! o# de i!ion making and diver!e !e tor! managed by a 2o!t o# "ine mini!trie! and de%artment!. T2u! %rin i%"e! inevitab"y !im%"i#y 6or over1!im%"i#y9 !ubt"e nuan e! and varied !ituation! or demand!. ?evert2e"e!!, de!%ite t2i! in2erent om%"e.ity, it remain! e!!entia" in guiding o##i ia"! 52o need to a t in a de i!ive and %o!itive manner, to 4boi" do5n3 om%"e. variab"e! into !im%"e, dire t and ea!i"y om%re2en!ib"e %rin i%"e! to a!!i!t t2e %ro e!!.

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%. The ethical basis for principles

Di!a!ter management #undamenta""y dea"! 5it2 a re!%on!e to 2uman mi!ery and "o!!e! o# %eo%"e3! "ive"i2ood! and a!!et!, 52i"e di!a!ter ri!k management i! on erned 5it2 mitigating or %reventing !u 2 "o!!e!K bot2 %ro e!!e! tend to be rat2er ant2ro%o entri . Peo%"e and !o ietie! engage in !u 2 2umanitarian a tion! be au!e t2ey be"ieve it i! t2e 4rig2t t2ing to do3, and t2ere#ore t2i! #ie"d i! "o!e"y tied to et2i ! and mora"ity. Et2i ! i! not about 52at i!K rat2er, it i! about 52at !2ou"d be. Et2i a" t2eorie! u!e %rin i%"e! tied to t2e norm! o# !o iety in order to a!!e!! and Iu!ti#y a tion! and be2avior!. *n t2i! !en!e t2ey are %re! ri%tive and normative 6de! ribing 52at oug2t to be9 a! o%%o!ed to de! ri%tive, 52i 2 de! ribe! 52at i! 6t2oug2 one 2o%e! t2e t5o are "o!e"y "inkedM9. T2e ba!i! #or a !et o# di!a!ter management %rin i%"e! ou"d "ie 5it2in t2e onte.t o# a !o ia" ontra t bet5een government and it! iti:en!, or u%on mora" t2eory 6Na k, 200C9. A !o ia" ontra t i! ba!ed u%on t2e idea t2at t2e %ur%o!e o# government i! to make "i#e better #or it! iti:en!, and #or t2at %ur%o!e t2ey on!ent to be governed. T2e %rimary Eue!tion! t2at need to be addre!!ed #rom t2i! %er!%e tive, a ording to Na k, are "hat do governments owe citizens in situations in which government is temporarily dysfunctional3, and F"hat responsibilities does it have in terms of preparing for disasters3G +arying an!5er! are %o!!ib"e, de%ending u%on !u 2 #a tor! a! 52et2er %ro%erty i! %ub"i "y or %rivate"y o5ned, 52at degree o# ri!k iti:en! !2ou"d a e%t #or "iving and deve"o%ing in 2a:ardou! area!, and t2e degree to 52i 2 a government a e%t! benevo"en e a! an o%erating %rin i%"e. A !o ia" ontra t 5ou"d be ba!ed u%on a t2eory o# !o ia" Iu!ti e 6!ee #or e.am%"e, ! .heory of 4ustice by 8o2n Ra5"e!9, 52i 2 5ou"d be ba!ed u%on eit2er di!tributive Iu!ti e or retributive Iu!ti e. T2e #ormer i! ba!ed u%on a #air di!tribution o# good!, re5ard! or bene#it!. T2i! i! %arti u"ar"y im%ortant to t2e i!!ue o# di!a!ter om%en!ation and re overy. T2e "atter i! ba!ed u%on %uni!2ing 5rong doing! and em%2a!i:e! #air %ro e!!, #air tria"! and %ro%ortiona" !enten ing. T2i! a%%roa 2 2a! a very "ong 2i!tory in !o iety3K an e.am%"e 5ou"d be !uing a ontra tor 52o bui"t a 2ou!e im%ro%er"y 5it2 t2e re!u"t t2at it 5a! damaged in a di!a!ter. T2ere are t5o main ty%e! o# mora" t2eorie!. T2e #ir!t, a""ed et2i a" re"ativi!m, !tate! t2at mora"ity varie! bet5een %eo%"e and !o ietie! a ording to t2eir u"tura" norm!. T2e !e ond, a""ed univer!a"i!t or obIe tivi!t mora" t2eorie! !tate! t2at t2ere are obIe tive, #undamenta" %rin i%"e! t2at are invariant t2roug2out time and !%a e. /ot2 ty%e! o# t2eorie! 2ave bot2 !trengt2! and 5eakne!!e!. For e.am%"e, u"tura" re"ativi!m !ugge!t! 6taken to an e.treme9 t2at one !2ou"d a e%t t2e murderou! e. e!!e! o# et2ni "ean!ing, !im%"y be au!e anot2er u"tura" grou% a e%t! it a! it! u"tura" norm. Mo!t %eo%"e, and ertain"y t2e aut2or!, #ind t2i! re%ugnant. A"ternate"y, di!regarding va"ue! o# ot2er u"ture!, even %aterna"i!ti a""y, an "ead to unintended and negative on!eEuen e! 6e.g. 8igya!u, 200<9.
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For e.am%"e, "a5 22H o# t2e ,ode o# >ammurabi #rom ;7C0 /.,. !tate! t2at ,f a builder build a house for some one, and does not construct it properly, and the house which he built fall in and 'ill its owner, then that builder shall be put to death.

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An e.am%"e o# a 4re"ative3 et2i a" %rin i%"e in di!a!ter management ou"d be a! #o""o5!@ (efore decisions and actions are ta'en that will either increase or decrease the ris's facing a given community, responsible government officials need to actively consult people who are at)ris', or their representatives and be prepared to ta'e account of such local opinion. =it2in 5e!tern demo ra ie!, it i! "ike"y t2at t2ere 5ou"d be genera" agreement on t2e above %rin i%"e, 5it2 t2e %o!!ib"e e. e%tion o# %eo%"e 2o"ding %o"iti a" vie5! #rom t2e e.treme rig2t. Furt2ermore, mo!t %eo%"e 5ou"d %robab"y a!!ume t2at t2i! %rin i%"e i! univer!a""y a%%"i ab"e rat2er t2an being mere"y re"ative. >o5ever, 5e 2ave %"a ed t2i! %rin i%"e in t2e re"ative ategory !in e t2ere are many !o ietie!, !u 2 a! ,2ina 6or %o!!ib"y ,uba9 52ere t2e 4rig2t3 to being "i!tened to or on!u"ted on matter! o# %ub"i %o"i y i! not %art o# t2e urrent %o"iti a" ideo"ogy or o%erationa" %ro e!!. A #urt2er e.am%"e on ern! t2e eva uation o# ommunitie! 52en #a ed 5it2 an im%ending t2reat or a tua" 2a:ard im%a t. For e.am%"e, in many 5e!tern demo rati u"ture! di!a!ter eva uation i! vo"untary and on!eEuent"y o#ten ine##e tive, in ontra!t to ot2er more ontro""ed !o ietie! !u 2 a! ,uba, 52ere eva uation %"anning i! not o%tiona" and t2ere#ore 2ig2"y e##e tive. A more ommon e.am%"e o# t2e "a!2 o# di##ering %rin i%"e! re"ate! to t2e o""i!ion bet5een %rogre!!ive deve"o%ment t2inking and entren 2ed traditiona" attitude!. -ne o# Mi""ennium Deve"o%ment Goa"! 6MDG9 on ern! t2e aim o# !e uring gender eEua"ity by t2e year 20;<. Doubt"e!! t2i! i! a nob"e intention, but 52at %o!!ib"e 2an e doe! !u 2 an a!%iration 2ave o# being rea"i:ed, given dee%"y 2e"d ma"e dominated u"tura" and re"igiou! norm! %re!ent 5it2in !ome u"ture!D T2i! i!!ue inevitab"y %rovoke! a !o ia" ontrover!y, !in e t2e entire %ro e!! o# deve"o%ing and a%%"ying %rin i%"e! gro5! out o# va"ue! and attitude!, 52i 2 are inevitab"y in on#"i t 5it2 ot2er !et! o# va"ue!. /ut 1 in a %"ura"i!t 5or"d mo!t 5ou"d agree t2at t2e Eue!t #or %rin i%"e! mu!t never be ome !im%"y a !ermon #rom a %u"%it but !2ou"d rat2er be ba!ed, at "ea!t in %art, u%on a %ragmati under!tanding and a e%tan e o# di##ering va"ue !y!tem!. T2i! !ugge!t! a re ognition o# t2e im%ortant di##eren e bet5een 52ere !o ietie! 4are 6de! ri%tive et2i !9, and 52ere 5e mig2t 5i!2 t2em 4to be 6normative et2i !9. An e.am%"e o# a 4univer!a"3 et2i a" %rin i%"e in di!a!ter ri!k management 6t2oug2 "ear"y t2ere 2ave been many government! t2at 2ave vio"ated t2i! notion9 mig2t be a! #o""o5!@ People have a basic right to safety and it is a fundamental obligation of all governments to ensure that their citizens are protected to a reasonable degree from 'nown ris's, and that citizens are informed and warned of any ris's 'nown to governmental officials that threaten public safety.

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Dun#ee 620009 !ugge!t! !evera" ot2er %rin i%"e! t2at mig2t be on!idered univer!a" 6or 2y%ernorm!9@ .o respect the e1ual dignity of all human beings, recognizing a basic right to life and subsistence. .he condemnation of coarse public sector corruption .he obligation to respect human autonomy. T2ere are di##erent kind! o# obIe tivi!t mora" t2eorie! 6/o!!, 200<9, in "uding uti"itariani!mA on!eEuentia"i!m 6ma.imi:ing !ome uti"ity, !u 2 a! 2a%%ine!!, by on!idering out ome! o# a tion! 7 t2oug2 t2e i!!ue o# 52at 2a%%ine!! i! be ome! a t2orny one9, one! t2at em%2a!i:e dutie! and rig2t! 6deonto"ogy9, and one! t2at #o u! on being virtuou! in 2ara ter and intent. Di##erent mora" t2eorie! an re!u"t in very di##erent di!a!terAdi!a!ter ri!k management !trategie!. ,on!ider di!a!ter #inan ia" a!!i!tan e a! an e.am%"e. *# one ba!ed t2i! !trategy on a uti"itarian et2i em%2a!i:ing re overy to a %re1di!a!ter !tate, t2en a %rogram ba!ed u%on t2i! 5ou"d rea""o ate !o ietie! re!our e! to a"" vi tim!, a! needed. >o5ever, one ba!ed u%on t2e "ibertarian %er!%e tive on individua" rig2t! mig2t take a very di##erent a%%roa 2 and re"y u%on vo"untary donation! to 2arity to a!!i!t di!a!ter vi tim!. T2i! divergen e i! very mu 2 evident in t2e "imate 2ange debate, 52ere !ome grou% 6environmenta"i!t! and "imato"ogi!t!, #or e.am%"e9 argue #or mandatory redu tion o# green2ou!e ga! emi!!ion! 52i"e ot2er! 6o#ten #unded by t2e %etro"eum indu!try9 argue! #or vo"untary redu tion! 6Etkin, 20079. +irtue et2i !, duty et2i ! and on!eEuentia"i!m Auti"itariani!m are a"" im%ortant to di!a!ter management. &ome %eo%"e 5i"" a"5ay! %er#orm virtuou! a t!, %arti u"ar"y in re!%onding to di!a!ter!K many %eo%"e 2ave dutie! to ot2er!, !u 2 a! %arent! to 2i"dren or #ir!t re!%onder! to vi tim!K and t2e on!eEuen e! o# a tion! need to be on!idered, !u 2 a! being e##i ient and e##i a iou! in t2e a""o ation o# re!our e!. +irtue et2i ! em%2a!i:e! rig2t being over rig2t a tion and i! more about t2e overar 2ing Eua"ity o# goodne!! t2an a "i!t o# !%e i#i trait! 6!u 2 a! ourage, 2one!ty et 9. Ari!tot"e and ,on#u iu! are e.am%"e! o# %2i"o!o%2er! 52o be"ieved in virtue et2i !. E.am%"e! o# dutie! are5 6=.D. Ro!!3! &even Prima Fa ie Dutie!9@ (eneficence 7 t2e duty to do good and %romote 2a%%ine!! 6onmaleficence 7 t2e duty to do no 2arm and to %revent 2arm 7idelity 7 dutie! ari!ing #rom %a!t ommitment! and %romi!e! &eparation 7 dutie! t2at !tem #rom %a!t 2arm! *ratitude 7 dutie! ba!ed u%on %a!t #avor! and unearned !ervi e! 8elf improvement 7 t2e duty to im%rove our kno5"edge and virtue 4ustice 7 t2e duty to give ea 2 %er!on eEua" on!ideration &etributive /ustice 7 %uni!2ment #or 5rongdoing $istributive /ustice 7 #air di!tribution o# bene#it! and burden! Ea 2 ty%e o# mora" t2eory 2a! it! !trengt2! and 5eakne!!e!. +irtue et2i ! i! riti i:ed a! being in om%"ete and not %roviding enoug2 guidan e #or making rea" "i#e de i!ion!. *t doe!, 2o5ever, give mora"ity a %er!ona" #a e. Deonto"ogy %"a e! im%ortan e o# duty B

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and Iu!ti e, and rig2t a tion!, but #ai"! to in or%orate !entiment and are i!!ue!J. (ti"itariani!m 2a""enge! u! to riti a""y ana"y:e traditiona" mora" va"ue! and to on!ider out ome!, 52i 2 an be riti a". /ut, by on!idering on"y on!eEuen e! it ignore! im%ortant i!!ue! !u 2 a! integrity and re!%on!ibi"ity, and goa"! ot2er t2an an 4arbitrari"y3 2o!en uti"ity !u 2 a! %"ea!ure. &ome %2i"o!o%2er! argue t2at 2oi e! mu!t be made bet5een t2e di##erent mora" t2eorie!, but to t2e aut2or! it !eem! rea!onab"e t2at a"" t2ree are re"evant to di!a!ter management and t2at a b"ended a%%roa 2 !2ou"d be u!ed. >i!tori a""y, mora" t2eory #o u!ed %rimari"y u%on dutie!. For e.am%"e, #euda" !o iety 5a! ba!ed u%on re i%ro ity 1 !et! o# mutua" ob"igation! 52ere dutie! 5ere %aramount 7 t2e va!!a" to t2e "ord and t2e "ord to 2i! va!!a". T2e notion o# 4nob"e!!e ob"ige3 i! a"!o ba!ed in duty, in t2at 5it2 %o5er and %rivi"ege ome re!%on!ibi"ity 6to t2o!e "e!! #ortunate9. Modern 5e!tern !o iety em%2a!i:e! rig2t! to a mu 2 greater e.tent 6#or e.am%"e, t2e on!titution o# t2e (nited &tate! de "are! t2at %eo%"e 2ave ina"ienab"e rig2t!9. T2e notion t2at rig2t! and dutie! need to be "inked i! a !trong one, in t2at rig2t! are derived #rom dutie! 6/o!!, 200<9. T2e a"ternative ome! #rom natura" rig2t! t2eory 6!u 2 a! e.%re!!ed by 8o2n $o ke9, 52i 2 !ay! t2at 2aving rig2t! doe! not im%"y dutie! to ot2er!.< *t i! beyond t2e ! o%e o# t2i! %a%er to e.amine di##erent ty%e! o# mora" t2eorie! in detai" and 2o5 t2ey a%%"y to di!a!ter management 6t2e reader i! re#erred to Na k, 200C or Dun#ee, 2000 #or more on t2i! i!!ue9 7 !u##i e it to !ay t2at a !et o# %rin i%"e! o# di!a!ter and di!a!ter ri!k management mu!t, o# ne e!!ity, in or%orate !u 2 notion! or "a k t2e roadma% needed to avoid going a!tray. >aving a "ear vi!ion o# et2i a" %rin i%"e! t2at under"ie a di!a!ter management !trategy 5i"" a"!o en2an e ommuni ation and oordination bet5een di##erent organi:ation!. An e.am%"e o# t2i! i! in#ormation !2aring. *t i! ommon #or organi:ation! to on!ider data t2at t2ey 2ave gat2ered on#identia" 7 yet not !2aring in#ormation an make di!a!ter re overy mu 2 more di##i u"t, tediou! and "e!! e##e tive. T2e tradeo## 2ere i! a %ro e!! t2at may bene#it an in!titution a! o%%o!ed to one t2at may bene#it di!a!ter vi tim!. -n e t2e va"ue! o# an organi:ation 2ave been "ear"y arti u"ated, in#ormation !2aring 6t2e aut2or! 2o%e, re#"e ting a 2e"%ing et2i t2at #o u!e! on t2e im%ortan e o# vi tim! a! om%ared to in!titution!9 5ou"d be great"y en2an ed. -t2er tradeo##! an be mu 2 "e!! "ear and #ar more tortuou!. For e.am%"e, =a"" 6;HHB9 in 2i! book 7amine -rimes di! u!!e! 2o5 t2e %ra ti e o# 2umanitariani!m in A#ri a, t2oug2 o#ten %ra ti ed 5it2 t2e mo!t nob"e o# intention!, nevert2e"e!! 2indered t2e #ormation o# t2e ne e!!ary !o ia" ontra t needed to tru"y reate a !o iety re!i"ient to t2i! ty%e o# di!a!ter.

%. The comple&ity of current principles

J

T2e im%ortan e o# are and !entiment 2a! been given greater #o u! a! a re!u"t o# t2e in or%oration o# #emini!m into mora" t2eory. < An e.am%"e o# t2i! i! 52et2er or not %roviding di!a!ter a!!i!tan e to %eo%"e i! "inked to t2eir taking rea!onab"e %re aution! to mitigate t2eir ri!k. For e.am%"e, i# !omebody kno5ing"y bui"d! in a #"ood :one 52en t2ey 2ave a"ternative o%tion!, do t2ey 2ave a rig2t to om%en!ation in t2e event o# a di!a!trou! #"ood.

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An internet !ear 2 u!ing t2e %2ra!e Fdi!a!ter managementG re!u"ted in ;CB mi""ion 2it!K F%rin i%"e! o# di!a!ter managementG re!u"ted in ;B mi""ion 2it!. ,"ear"y, t2e 5ord! are mu 2 in u!eM *n order to get a !en!e #or t2e varian e o# !tated %rin i%"e!, t2e aut2or! !e"e ted ;< !our e! in a rat2er arbitrary #a!2ion, in "uding variou! government and ?G- 5eb !ite! and book!. T2e !tated %rin i%"e! varied great"y in number, %er!%e tive, and de%t2. &ome 5ere om%ri!ed o# a #e5 !2ort !tatement!, !ometime! embedded in mu 2 "onger do ument! 6#or e.am%"e, t2e Re%ub"i o# &out2 A#ri a Di!a!ter Management /i""C9, 52i"e ot2er! 5ent into on!iderab"e de%t2 and 5ere mu"ti1tiered 6T2e =ing!%read Prin i%"e!@ A ,ommunity +i!ion #or &u!tainabi"ity7 and GuIarat &tate Di!a!ter Management Po"i yB9 &ome !tatement! em%2a!i:ed va"ue! and et2i ! 6&out2 A!ia@ $ive"i2ood ,entered A%%roa 2 to Di!a!ter Management 7 a Po"i y Frame5orkH9 52i"e ot2er! 5ere more management oriented 6Erik Au# Der >eide@ Di!a!ter Re!%on!e@ Prin i%"e! o# Pre%aration and ,oordination;09. T2e!e e.am%"e! !u%%ort t2e notion t2at t2e #ie"d o# di!a!ter management "a k! a o2e!ive a%%roa 2, in term! o# %rin i%"e!. T2e t2ree e.am%"e! be"o5 6Tab"e ;9 i""u!trate !ome o# t2e!e %oint!. T2e #ir!t, taken #rom t2e Government o# ,anada i! manageria" in onte.t, re#"e ting re!%on!ibi"itie! at di##erent "eve"! o# !o iety. T2ere i! not2ing in t2i! "i!t t2at re#"e t! normative va"ue! or et2i !, or 2o5 di!a!ter! !2ou"d be o%ed 5it2 in term! o# ty%e! o# a tion!. T2e !e ond, taken #rom t2e &P>ERE >umanitarian ,2arter i! very di##erent, em%2a!i:ing 2o5 %eo%"e !2ou"d "ive and a t, and t2e #undamenta" va"ue! t2at drive organi:ation!. T2e t2ird e.am%"e, taken #rom Au# der >eide 6;HBH9 are mu 2 more %ra ti a""y oriented, #o u!ing on im%"ementation !trategie! and error avoidan e. Table 1' (&amples of Principles of Disaster Management from Three Sources' )1* !act Sheets' Canada+s (mergency Management System11
Emergen y management in ,anada i! ba!ed on t2e #o""o5ing %rin i%"e!@ ;. *t i! u% to t2e individua" to kno5 52at to do in an emergen y. 2. *# t2e individua" i! unab"e to o%e, government! re!%ond %rogre!!ive"y, a! t2eir a%abi"itie! and re!our e! are needed. 3. Mo!t "o a" emergen ie! are managed by "o a" re!%on!e organi:ation!, 52i 2 are norma""y t2e #ir!t to re!%ond. J. Every %rovin e and territory a"!o 2a! an Emergen y Management -rgani:ation 6EM-9, 52i 2 manage! any "arge ! a"e emergen ie! 6%revention, %re%aredne!!, re!%on!e and re overy9 and %rovide! a!!i!tan e and !u%%ort to muni i%a" or ommunity re!%on!e team! a! reEuired. <. Government o# ,anada de%artment! and agen ie! !u%%ort t2e %rovin ia" or territoria" EM-! a! reEue!ted or manage emergen ie! a##e ting area! o# #edera" Iuri!di tion. From %o"i ing, nu "ear !a#ety, nationa" de#en e and border !e urity to t2e %rote tion o# our environment and 2ea"t2, many #edera" de%artment! and agen ie! a"!o 5ork to %revent emergen ie! #rom 2a%%ening or are invo"ved in !ome 5ay in a re!%on!e and re overy e##ort.

C 7

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)%* Sphere ,umanitarian Charter and Minimum Standards in Disaster -esponse1%

=e rea##irm our be"ie# in t2e 2umanitarian im%erative and it! %rima y. /y t2i! 5e mean t2e be"ie# t2at a"" %o!!ib"e !te%! !2ou"d be taken to %revent or a""eviate 2uman !u##ering ari!ing out o# on#"i t or a"amity, and t2at ivi"ian! !o a##e ted 2ave a rig2t to %rote tion and a!!i!tan e. *t i! on t2e ba!i! o# t2i! be"ie#, re#"e ted in internationa" 2umanitarian "a5 and ba!ed on t2e %rin i%"e o# 2umanity, t2at 5e o##er our !ervi e! a! 2umanitarian agen ie!. =e 5i"" a t in a ordan e 5it2 t2e %rin i%"e! o# 2umanity and im%artia"ity, and 5it2 t2e ot2er %rin i%"e! !et out in t2e ,ode o# ,ondu t #or t2e *nternationa" Red ,ro!! and Red ,re! ent Movement and ?on1Governmenta" -rgani!ation! 6?G-!9 in Di!a!ter Re"ie# 6;HHJ9. 1.1 The right to life with dignity T2i! rig2t i! re#"e ted in t2e "ega" mea!ure! on erning t2e rig2t to "i#e, to an adeEuate !tandard o# "iving and to #reedom #rom rue", in2uman or degrading treatment or %uni!2ment. =e under!tand an individua"Q! rig2t to "i#e to entai" t2e rig2t to 2ave !te%! taken to %re!erve "i#e 52ere it i! t2reatened, and a orre!%onding duty on ot2er! to take !u 2 !te%!. *m%"i it in t2i! i! t2e duty not to 5it22o"d or #ru!trate t2e %rovi!ion o# "i#e1!aving a!!i!tan e. *n addition, internationa" 2umanitarian "a5 make! !%e i#i %rovi!ion #or a!!i!tan e to ivi"ian %o%u"ation! during on#"i t, ob"iging !tate! and ot2er %artie! to agree to t2e %rovi!ion o# 2umanitarian and im%artia" a!!i!tan e 52en t2e ivi"ian %o%u"ation "a k! e!!entia" !u%%"ie!. 1.% The distinction between combatants and non.combatants T2i! i! t2e di!tin tion 52i 2 under%in! t2e ;HJH Geneva ,onvention! and t2eir Additiona" Proto o"! o# ;H77. T2i! #undamenta" %rin i%"e 2a! been in rea!ing"y eroded, a! re#"e ted in t2e enormou!"y in rea!ed %ro%ortion o# ivi"ian a!ua"tie! during t2e !e ond 2a"# o# t2e t5entiet2 entury. T2at interna" on#"i t i! o#ten re#erred to a! 4 ivi" 5ar3 mu!t not b"ind u! to t2e need to di!tingui!2 bet5een t2o!e a tive"y engaged in 2o!ti"itie!, and ivi"ian! and ot2er! 6in "uding t2e !i k, 5ounded and %ri!oner!9 52o %"ay no dire t %art. ?on1 ombatant! are %rote ted under internationa" 2umanitarian "a5 and are entit"ed to immunity #rom atta k. 1./ The principle of non.refoulement T2i! i! t2e %rin i%"e t2at no re#ugee !2a"" be !ent 6ba k9 to a ountry in 52i 2 2i! or 2er "i#e or #reedom 5ou"d be t2reatened on a ount o# ra e, re"igion, nationa"ity, member!2i% o# a %arti u"ar !o ia" grou% or %o"iti a" o%inionK or 52ere t2ere are !ub!tantia" ground! #or be"ieving t2at !A2e 5ou"d be in danger o# being !ubIe ted to torture. ;. /e au!e o# t2e "imited re!our e! avai"ab"e, di!a!ter %re%aredne!! %ro%o!a"! need to take o!t1e##e tivene!! into on!ideration. 2. P"anning !2ou"d be #or di!a!ter! o# moderate !i:e 6about ;20 a!ua"tie!9K di!a!ter! o# t2i! !i:e 5i"" %re!ent t2e ty%i a" inter1organi:ationa" oordination %rob"em! a"!o a%%"i ab"e to "arger event!. 3. *ntere!t in di!a!ter %re%aredne!! i! %ro%ortiona" to t2e re en y and magnitude o# t2e "a!t di!a!ter. J. T2e be!t time to !ubmit di!a!ter %re%aredne!! %rogram! #or #unding i!, rig2t a#ter a di!a!ter 6even i# it 2a! o urred e"!e52ere9. <. Di!a!ter %"anning i! an i""u!ion un"e!!@ it i! ba!ed on va"id a!!um%tion! about 2uman be2avior, in or%orate! an inter1organi:ationa" %er!%e tive, i! tied to re!our e!, and i! kno5n and a e%ted by t2e %arti i%ant!.

)/* (rik 0uf Der ,eide' Disaster -esponse' Principles of Preparation and Coordination1/

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C. /a!e di!a!ter %"an! on 52at %eo%"e are R"ike"yR to do, rat2er t2an 52at t2ey R!2ou"dR do 7. For di!a!ter %"anning to be e##e tive, it mu!t be inter1organi:ationa". B. T2e %ro e!! o# %"anning i! more im%ortant t2an t2e 5ritten do ument t2at re!u"t!. H. Good di!a!ter management i! not mere"y an e.ten!ion o# good everyday emergen y %ro edure!. *t i! more t2an Iu!t t2e mobi"i:ation o# additiona" %er!onne", #a i"itie!, and !u%%"ie!. Di!a!ter! o#ten %o!e uniEue %rob"em! rare"y #a ed in dai"y emergen ie!. ;0. *n ontra!t to mo!t routine emergen ie!, di!a!ter! introdu e t2e need #or mu"ti1organi:ationa" and mu"ti1di! i%"inary oordination. ;;. *n di!a!ter!, 52at are t2oug2t to be R ommuni ation! %rob"em!R are o#ten oordination %rob"em! in di!gui!e. ;2. T2o!e 52o 5ork toget2er 5e"" on a dai"y ba!i! tend to 5ork toget2er 5e"" in di!a!ter!. ;3. Di!a!ter! reate t2e need #or oordination among #ire de%artment!, "a5 en#or ement agen ie!, 2o!%ita"!, ambu"an e!, mi"itary unit!, uti"ity re5!, and ot2er organi:ation!. T2i! reEuire! inter1agen y ommuni ation net5ork! uti"i:ing om%atib"e radio #reEuen ie!. ;J. Pro edure! #or ongoing need! a!!e!!ment are a %rereEui!ite to e##i ient re!our e management in di!a!ter!. ;<. A ba!i on e%t o# triage i! to do t2e greate!t good #or t2e greate!t number o# a!ua"tie!. ;C. Triage im%"ie! making t2e mo!t e##i ient u!e o# avai"ab"e re!our e!. ;7. Good a!ua"ty di!tribution i! %arti u"ar"y di##i u"t to a 2ieve in Rdi##u!eR di!a!ter!, !u 2 a! eart2Euake! and tornadoe!, t2at over "arge geogra%2i area!. ;B. E##e tive triage reEuire! oordination among medi a" and non1medi a" organi:ation! at t2e di!a!ter !ite and bet5een t2e !ite and "o a" 2o!%ita"! ;H. Pani i! not a ommon %rob"em in di!a!ter!K getting %eo%"e to eva uate i! 20. *nEuire! about "oved one! t2oug2t to be in t2e im%a t :one are not "ike"y to be di! ouraged, but an be redu ed or 2anne"ed in "e!! di!ru%tive 5ay!, i# t2e needed in#ormation i! %rovided at a "o ation a5ay #rom t2e di!a!ter area. 2;. Many o# t2e Eue!tion! t2at 5i"" be a!ked by re%orter! are %redi tab"e, and %ro edure! an be e!tab"i!2ed in advan e #or o""e ting t2e de!ired in#ormation. 22. ?e5!5ort2y in#ormation 5i"" ra%id"y !%read among ne5! organi:ation! and #rom one ty%e o# media to anot2er. 23. T2e media 5i"" o#ten 5it22o"d ne5!5ort2y di!a!ter !torie! it #ee"! 5ou"d be detrimenta" to t2e %ub"i . 2J. $o a" o##i ia"! 5i"" 2ave to dea" 5it2 di##erent ne5! media in time! o# di!a!ter t2an t2o!e 5it2 52i 2 t2ey inter#a e on a routine ba!i!. 2<. AdeEuate di!a!ter %re%aredne!! reEuire! %"anning 5it2 t2e rat2er t2an #or t2e media. 2C. T2e %ro%en!ity #or t2e media to !2are in#ormation and to a!!ume R ommand %o!tR %er!%e tive #a i"itate! t2e e!tab"i!2ment o# a entra" !our e o# di!a!ter in#ormation.

/. 1ntroducing models
*n vie5 o# t2e !ome52at 2aoti !tate o# e.i!ting %rin i%"e!, a! noted above, t2e aut2or! %ro%o!e t2at t2e #ie"d o# di!a!terAdi!a!ter ri!k management need! to engage in a

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di! our!e o# it! %rin i%"e!. *n order to %rovide !ome !tru ture to t2e di! u!!ion, 5e %re!ent a mode" t2at 5e 2o%e 5i"" "ari#y t2e di! u!!ion, and a %ro e!! t2at ou"d be u!ed #or a %er!on or organi:ation to deve"o% an a%%ro%riate !et o# %rin i%"e!. /.1 Principles Pyramid =e %ro%o!e a #our "eve" 2ierar 2y o# %rin i%"e! 6Figure ;9 t2at an be u!ed to %rovide !tru ture to t2i! i!!ue. $eve" ;, t2e broade!t, re#"e t! t2e #undamenta" va"ue! and et2i ! t2at motivate our be2avior!. $eve" 2 i! !trategi and "eve" 3 ta ti a". $eve" J dea"! 5it2 im%"ementation. $eve"! ; and 2 are broad enoug2 !o t2at t2ey !2ou"d be genera""y a%%"i ab"e over a "arge range o# %o!!ibi"itie!. >o5ever, "eve"! 3 and J be ome in rea!ing"y !en!itive to "o a" u"ture and "egi!"ation and are very di##i u"t or im%o!!ib"e to genera"i:e. 2e$el 1. Et2i a", ,ore +a"ue Prin i%"e!, 52i 2 re"ate to t2e under"ying !2ared be"ie#! and on ern! o# organi:ation! and o# t2eir mandate a! it !eek! to undertake ommunity ba!ed di!a!ter ri!k management 6,/DRM9. (!ing a #ood meta%2or, $eve" ; 5ou"d re"ate t2e et2i ! o# #ood %rodu tion 6!u 2 a! a 2uman rig2t! ba!ed a%%roa 29. An e.am%"e 5ou"d be t2e &P>ERE %rin i%"e in Tab"e ; 1 ! right to a life with dignity. 2e$el %. &trategi Prin i%"e! t2at on ern t2e %o"i y dire tion o# ,/DRM 5i"" be in#ormed and be ba!ed u%on t2e et2i a" %rin i%"e! arti u"ated in $eve" ; 6!u 2 a! 52at a tion! to on!ider taking152y, 52ere and 5it2 52at e.%e ted on!eEuen e!D9. (!ing a #ood meta%2or, $eve" 2 5ou"d be a nutrition guide. An e.am%"e o# t2i! "eve" o# %rin i%"e 5ou"d be t2e ,anadian %rin i%"e in Tab"e ; 7 ,f the individual is unable to cope, governments respond progressively, as their capabilities and resources are needed. 2e$el /. Ta ti a" Prin i%"e! t2at on ern t2e %ra ti a" out5orking o# t2e !trategi %rin i%"e!. (!ing a #ood meta%2or, $eve" 3 5ou"d be a ookbook 6!u 2 a! 2o5 to ado%t t2e agreed !trategy, on!idering !ta##ing A #inan ia" im%"i ation! et 9. An e.am%"e o# t2i! mig2t be a !%e i#i mutua" aid agreement bet5een t5o organi:ation! or t2e %o!t audit o# t2e re!%on!e o# an organi:ation to a di!a!ter, !u 2 a! o urred 5it2 FEMA a#ter >urri ane 0atrina. 2e$el 3. *m%"ementation Prin i%"e! t2at are re"ated to a"" t2e %re eding "eve"!@ ore va"ue!, !trategie! and ta ti ! 6!u 2 a! a tion! taken a! 5e"" a! t2eir monitoring and eva"uation9. (!ing a #ood meta%2or, $eve" J 5ou"d be eating t2e mea" a! 5e"" a! ongratu"ating t2e ook or 5riting a "etter o# om%"aint to t2e re!taurant. An e.am%"e mig2t t2e e. 2ange o# vu"nerabi"ity and vi tim in#ormation bet5een ?G-!. *t i! im%ortant to note t2at t2e aut2or! do not on!ider t2i! to be a "inear unidire tiona" %ro e!!, but rat2er one t2at ne e!!itate! ontinua" #eedba k bet5een et2i a" %rin i%"e! and 2o5 t2ey are im%"emented. *t i! not Iu!t t2at t2eory in#orm! %ra ti e 1 it i! a"!o t2e rever!e. A! a %er!on or organi:ation deve"o%! it! !trategie!, it 5ou"d 2ave to revi!it t2e more #undamenta" %rin i%"e! on an ongoing ba!i!, and a"!o on!ider 2o5 2ange! to

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va"ue! mig2t a##e t 2ig2er "eve"! o# t2e %yramid. *t i! not Iu!t about reating a F!tate #un tionG but more about deve"o%ing a F%ro e!!G t2at in or%orate! et2i ! and va"ue! in an ongoing 5ay. Figure ;
*?&ERT F*G(RE ; >ERE

/.% Principles Matri& T2e %ra ti e and t2eory o# di!a!ter management de%end! u%on variou! #a tor!, !u 2 a! 52i 2 %i""ar o# di!a!ter management i! being on!idered 6mitigation, %re%aredne!!, re!%on!e or re overy9, di!a!ter ty%e, a%a ity, ! a"e and om%"e.ity. T2oug2 under"ying va"ue! are "ike"y to be #air"y robu!t, !trategie!, ta ti ! and im%"ementation in rea!ing"y de%end u%on t2e!e #a tor!. For e.am%"e, t2e mitigation o# droug2t mig2t in "ude mu"ti "eve"! o# government 5orking toget2er to deve"o% !trategie! to on!erve 5ater, deve"o% ro% in!uran e %"an! and in entive! to !5it 2 to droug2t re!i!tant ro%!, 52i"e re!%onding to terrori!m mig2t em%2a!i:e a ommand and ontro" #ir!t re!%onder! a%%roa 2. At "arger ! a"e! o# mitigation 6#or natura" 2a:ard! in %arti u"ar9, environmenta" !te5ard!2i% and !u!tainab"e deve"o%ment 5ou"d be im%ortant to in "ude, t2oug2 not #or t2e a!e o# re!%on!e to !ma""er ! a"e te 2no"ogi a" emergen ie!. T2e aut2or! t2ere#ore !ugge!t a matri. met2odo"ogy, to 2e"% di!tingui!2 bet5een t2e!e #a tor! 6Figure 29.

Figure 2 *?&ERT F*G(RE 2 >ERE Figure 2 !2o5! an e.am%"e o# 2o5 t2e %yramid di! u!!ed above mig2t be !"otted into t2e matri. mode", in order to 2e"% #o u! t2e deve"o%ment o# %rin i%"e!. &imi"ar #igure! ou"d be on!tru ted u!ing di##erent variab"e!K di!a!ter ty%e i! t2e mo!t obviou! one. For e.am%"e, di!a!ter! t2at are ra%id on!et, 5e"" de#ined and under!tood, o# natura" origin and o# !2ort time #rame 5ou"d reEuire a very di##erent !et o# o%ing !trategie! t2an one t2at 5a! !"o5 on!et, di##u!e, i"" de#ined, %oor"y under!tood and o# te 2no"ogi a"A2uman origin.

/./ Constructing Principles ,on!tru ting %rin i%"e! o# di!a!terAdi!a!ter ri!k management i! a om%"e. ta!k t2at !2ou"d, i# it i! to be e##e tive, invo"ve an entire organi:ation. A u!e#u" %ro e!! mu!t a""o5 #or a di! u!!ion !2ou"d begin at a very #undamenta" "eve", one t2at de#ine!

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5or"dvie5 and t2en move! in rea!ing"y to5ard! a more detai"ed %er!%e tive. T2e aut2or! !ugge!t t2at a t2ree !te% %ro e!! be u!ed a! #o""o5!@ ;. &te% one begin! 5it2 de#ining a !rame of -eference. T2i! re#er! to a %er!on3! ro"e a! it re"ate! to di!a!ter management, t2eir va"ue!, mora" ode and 5or"dvie5. E.am%"e! o# ro"e! ou"d be@ managing a government agen y t2at %rovide! di!a!ter a!!i!tan e, a bu!ine!! ontinuity manager #or */M, a vi tim 5it2out a e!! to re!our e! 52o annot re over 5it2out 2e"%, or a Red ,ro!! vo"unteer 52o re!%ond! to di!a!ter!. -# our!e, %eo%"e in di##erent #rame! o# re#eren e mig2t !2are t2e !ame va"ue!, but it i! not un ommon #or t2em to a%%roa 2 di!a!ter! #rom a very di##erent !et o# need! and %er!%e tive!K 2en e, t2e !ort o# %o!t di!a!ter on#"i t t2at an ari!e bet5een re overing vi tim! and in!uran e om%anie!;J. *n a!e! !u 2 a! t2i!, t2e va"ue! a!!o iated 5it2 di!a!ter re"ie# an on#"i t 5it2 ot2er im%ortant in!titutiona" va"ue!, !u 2 a! %ro#itabi"ity. 2. T2e !e ond !te% in t2e %ro e!! i! to de#ine a Purpose of Disaster Management. De%ending u%on %2i"o!o%2y, et2i and Iob, di##erent %ur%o!e! !eem %o!!ib"e. T2ree %o!!ib"e one! are "i!ted be"o5 7 more an ertain"y be on!tru ted. a. Minimi:e t2e "o!!, %ain and damage au!ed by di!a!ter!, 5it2in t2e "arger !o ia" onte.t. b. Minimi:e t2e damage au!ed by di!a!ter!, 52i"e maintaining t2e !tru ture! o# rig2t!, %o5er and 5ea"t2 5it2in !o iety, a! 5e"" a! t2e in!titution! t2at !u%%ort t2em. . Provide Iob!, areer! and %en!ion! to %eo%"e 52o 5ork in organi:ation! re"ated to di!a!ter management, and en!ure t2at t2e!e organi:ation! are 5e"" #unded;<. T2i! di! u!!ion !2ou"d begin 5it2 e.%"i it !tatement! o# t2e nature o# t2e !o ia" ontra t and mora" t2eorie! t2at are 2o!en. ,"ear di!tin tion! need to be dra5n bet5een de! ri%tive et2i ! 652at i!9 and normative et2i ! 652at oug2t to be9. *n a!e! 52ere rig2t! and dutie! on#"i t 5it2 ea 2 ot2er, it i! !ugge!ted t2at t2ey be ranked 52ere %o!!ib"e. 3. T2e t2ird !te% i! to on!tru t a Set of Principles, "inked to t2e above, u!ing t2e 2ierar 2i a" !tru ture and matri. mode"! di! u!!ed above. *t i! "ear t2at di##erent organi:ation! 5i"" arrive at di##erent re!u"t! u!ing t2e above %ro e!!. T2ere i! no F orre tG an!5er 7 in #a t engaging in t2e %ro e!!;C may 5e"" be more im%ortant t2an any !%e i#i !et o# re!u"t!.

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For e.am%"e, a#ter t2e >urri ane 0atrina di!a!ter vi tim! "aun 2ed a "a!! a tion !uit again!t &tate Farm *n!uran e and Ameri an *nternationa" Grou% regarding denia" o# "aim! or "a k o# re!%on!e. ;< -ur t2ank! to Denni! Mi"eti #or t2i! !ugge!tion. ;C T2i! %er!%e tive 5a! %ut #ort2 by D5ig2t D. Ei!en2o5er 52o !aid, R.he plan is useless0 it9s the planning that9s important.R

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3. 0pplications
T2e mu"ti1"ayered 2ierar 2y o# %rin i%"e! de! ribed above in Mode" ; 5a! te!ted by *an Davi! by a%%"ying t2e on e%t 5it2in t5o %roIe t! t2at 2e 2a! aut2ored or o1aut2ored. T2e #ir!t, undertaken in 200<A0C #or t2e A!ian Di!a!ter Pre%aredne!! ,entre 6ADP,9 5a! entit"ed@ 4-ommunity) (ased $isaster &is' %anagement.3 6Davi! and Mur!2ed, 200C9. T2e !e ond 5a! :earning from $isaster &ecovery) *uidance to $ecision %a'ers %ub"i!2ed by t2e *nternationa" Re overy Programme 6*RP9 in 2007 6Davi!, 20079. !1-ST (40MP2(' "Critical #uidelines $ Community$%ased &isaster 'is (anagement) T2i! do ument attem%ted to deve"o% a !et o# %rin i%"e! and indi ator! re"ating to %er#orman e and out ome! to enab"e variou! grou%! invo"ved in di!a!ter ri!k redu tion to mea!ure %rogre!!. *n t2i! do ument t2e #our "eve"! de! ribed in Figure ; 5ere ado%tedK t2e re!u"t! 5ere a! #o""o5!@ 2(5(2 1' (T,1C02 P-16C1P2(S 1.1 7bser$e basic rights of beneficiaries (;thical ,ssue5 &especting human dignity)<= Peo%"e %o!!e!! ba!i rig2t! t2at are to be ob!erved, re!%e ted and #o""o5ed 52en undertaking ,ommunity /a!ed Di!a!ter Ri!k Management 6,/DRM9 T2e!e in "ude rig2t! to@ o !a#ety, o be "i!tened to, o be on!u"ted over any i!!ue t2at may a##e t t2eir 5e""1being or #uture, o re eive a%%ro%riate a!!i!tan e #o""o5ing di!a!ter im%a t. 1.% Share risk information (;thical ,ssue5 Protecting lives) Any %er!on or organi:ation undertaking "o a" ri!k a!!e!!ment and di! overing t2at a given ommunity i! 4at1ri!k3, 2a! an et2i a" re!%on!ibi"ity to !2are t2i! %otentia""y "i#e %re!erving in#ormation 5it2 t2e individua"!, #ami"ie! and ommunitie! in Eue!tion. 1./ Share assessment data (;thical ,ssue5 &especting human dignity) Grou%! o""e ting %o!t1di!a!ter damage, need! and a%a ity a!!e!!ment! 5i"" !2are !u 2 in#ormation 5it2 ot2er ?G-3! or government! to avoid mu"ti%"e Eue!tioning o# a##e ted ommunitie! and du%"i ation in re!%onding to need!. T2i! %rin i%"e gro5! #rom a on ern to re!%e t t2e dignity o# bene#i iarie! o# a!!i!tan e. 1.3 Collaborate rather than compete (;thical ,ssue5 ,ntegrity)
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T2e i!!ue! !tated a#ter ea 2 %rin i%"e, 6a! !et in ita"i !9, 2ave been added to t2e origina" te.t

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Given a ommon overriding de!ire to !erve t2e need! o# t2e %oor and vu"nerab"e, t2ere i! an et2i a" demand #or ?G-3! undertaking ,/DRM to agree to o""aborate 5it2 ot2er ?G-3! and "o a" government!, rat2er t2an om%ete 5it2 t2em. T2i! on ern i! e.%re!!ed by@ o avoiding om%etition to !e ure #und! or %roIe t!, o avoiding %oa 2ing !ta## #rom t2e "o a" government or adIa ent agen ie! o u!ing a urate image! and data in %ub"i ity #or #und1rai!ing o !2aring in#ormation16a! noted above under ;.2 and ;.39 o a e%ting government oordination o# t2eir 5ork o %roviding mutua" !u%%ort to a!!i!ting bodie!

2(5(2 %' ST-0T(81C P-16C1P2(S 2.1 -ecognise strategic considerations (8trategic ,ssue5 ,ntegrity through Planning>$esign) /e#ore embarking on ,/DRM a given ?G- or government 5i"" bui"d t2e #o""o5ing into %roIe t de!ign@ o indi ator! to mea!ure %rogre!!, o a "ear aim and t2e obIe tive! to rea 2 it, o ba!e"ine data, o 5ay! to en!ure tran!%aren y and a ountabi"ity to bene#i iarie!, o monitoring and eva"uation %ro edure!, o an e.it !trategy. 2.2 9alance of trust $s. control (8trategic ,ssue5 ;2pert /udgment) *n mea!uring t2e e##e tivene!! o# ,/DRM it i! vita" to !e ure a #ine ba"an e bet5een tru!t and ontro", !in e t2e greater t2e "eve" o# tru!t t2e !ma""er t2e need #or ontro"!. E. e!!ive ontro"! in t2e #orm o# %er#orman e and out ome indi ator! and a "a k o# invo"vement o# key !take2o"der! in t2e #ormu"ation o# indi ator! 5i"" !igni#i ant"y erode tru!t. 2.* (nsure staff commitment and competence (8trategic ,ssue5 ,ntegrity through 1uality control) Agen y and government o##i ia"! 52o im%"ement ,/DRM %roIe t! and %rogramme! need to be #u""y onvin ed t2at %er#orman e and out ome indi ator! are ne e!!ary and t2at t2ey an !igni#i ant"y im%rove t2e e##i ien y and Eua"ity o# ri!k redu tion mea!ure!. Training 5i"" be reEuired to !u%%ort t2i! %ro e!!. 2(5(2 /' T0CT1C02 P-16C1P2(S 3.; -ecognise tactical considerations (.actical ,ssue5 ,ntegrity though measuring effectiveness) To be e##e tive, %er#orman e and out ome indi ator! need to !ati!#y a range o# demand!. E##e tive indi ator! are@ o tran!%arent, ;7

DRAFT. o o o o o o o o o o robu!t, re%re!entative, re"evant, re%"i ab"e, nationa""y om%arab"e, !u!tainab"e, mea!urab"e, a 2ievab"e, time1#ramed, ea!i"y under!tood.

May 30, 2007

3.2 (stablish baseline positions (.actical ,ssue5 ,ntegrity through measuring effectiveness) For ea 2 %er#orman e indi tor a ba!e"ine indi ator i! ne e!!ary. /./ Measure both :uantifiable as well as non.:uantifiable indicators (.actical ,ssue5 (.actical ,ssue5 ,ntegrity through measuring effectiveness) Given t2e bia! o# %er#orman e indi ator! to5ard! tangib"e, mea!urab"e and Euanti#iab"e e"ement! it i! e!!entia" to devi!e a"ternate 5ay! to maintain and mea!ure %er#orman e !tandard! #or non1Euanti#iab"e mea!ure!. 3.J (stablish minimum re:uirements (.actical ,ssue5 ,ntegrity through 1uality control) Minimum reEuirement! are needed to make ri!k redu tion e##e tive to en!ure t2at t2e om%eten y o# %er!onne", e##e tivene!! o# %ro edure!, Eua"ity o# mea!ure! doe! not #a"" be"o5 a e%tab"e !tandard!. 3.< (nsure rele$ance of indicators (.actical ,ssue5 ,ntegrity through 1uality control) Ea 2 %er#orman e indi ator !2ou"d de#ine t2e ondition! to 52i 2 it a%%"ie! !in e it i! not e.%e ted t2at indi ator! 5i"" a%%"y in a"" !ituation!. 3.C Mainstream actions into normal de$elopment (.actical ,ssue5 ,ntegrity through 1uality control) A tion! taken to im%"ement ,ommunity /a!ed Di!a!ter Ri!k Management need to be integrated into norma" deve"o%ment %o"i ie!, %"anning, %rogramming, and %ra ti e. 2(5(2 3' 1MP2(M(6T0T176 P-16C1P2(S J.; 0dapt indicators to suit local cultures (,mplementation ,ssue5 &especting human dignity) A"" %er#orman e indi ator! need to be on!idered to !ati!#y "o a" !o ia", u"tura", e onomi and environmenta" variab"e!. J.2 9e aware of potential negati$e side effects (;thical ,ssue5 ,ntegrity)

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*n any %roIe t indi ator! are needed to indi ate 52et2er une.%e ted !ide e##e t! are taking %"a e, to enab"e !5i#t eva!ive a tion to be taken.

C7MM(6TS 76 T,(S( P-16C1P2(S A"mo!t t5o year! a#ter 5riting t2e above %rin i%"e!, 5it2 t2e bene#it o# re#"e tion, #our i!!ue! emerge@ *t i! mu 2 ea!ier to deve"o% %rin i%"e! t2at a%%"y to t2e et2i a" or !trategi "eve" t2an at t2e ta ti a" or im%"ementation "eve". T2i! i! on a ount o# t2e more general re"evan e o# i!!ue! at et2i a" or !trategi "eve"! and t2e more specific re"evan e at ta ti a" and im%"ementation "eve"!. *n deve"o%ing %rin i%"e! it i! im%ortant to under!tand t2eir under"ying et2i a" intention!, a! !tated in ita"i ! a#ter ea 2 %rin i%"e. T2i! i! a %o!itive %ro e!! t2at %rovide! an im%ortant em%2a!i! on t2e under"ying ore va"ue! o# di!a!ter ri!k management. Many o# t2e 4%rin i%"e!3 %ro%o!ed #or ta ti a" or im%"ementation "eve"!, an be better regarded a! 4i!!ue!3 or 4re ommendation!3. T2ere are #ar too many %rin i%"e! #or t2i! !%e i#i ta!k in managing ommunity ri!k!, !in e o##i ia"! 52o 2ave t2e ta!k o# a%%"ying t2em are un"ike"y to remember a"" #i#teen and t2u! ri!k ignoring a"" o# t2em. >o5ever, t2e %ro e!! o# !y!temati t2oug2t needed to deve"o% t2i! !et o# %rin i%"e!, 5it2in t2i! 2ierar 2y o# ategorie!, 5a! o# %arti u"ar im%ortan e #or u! a! t2e aut2or! o# t2i! re%ort, and o# even more im%ortan e a! 5e debated t2em 5it2 a 5ork!2o% o# e.%erien ed o##i ia"! in /angkok in 8anuary 200<. T2i! i! a reminder t2at a process o# enEuiry an be more im%ortant t2an a !ub!eEuent product. T2e !e ond do ument 52ere %rin i%"e! 5ere in "uded i! :earning from $isaster &ecovery) *uidance to $ecision %a'ers %ub"i!2ed by t2e *nternationa" Re overy Programme 6*RP9 in 2007 6Davi!, 20079. *n 5riting t2i! book, 52i 2 ontain! t5e"ve t2eme! ea 2 re"ating to di!a!ter re overy, t2e initia" intention 5a! to a%%"y t2e #u"" 2ierar 2y o# %rin i%"e! to ea 2 t2eme, to on "ude ea 2 2a%ter o# t2e book. >o5ever, revie5er! o# t2e dra#t 2a%ter! ommented t2at t2ere 5a! a 4be5i"dering e. e!! o# %rin i%"e!3 and !ugge!ted t2at t2ey be re%"a ed by a !ing"e %rin i%"e #or ea 2 2a%ter. S(C76D (40MP2(' "+earning from &isaster 'ecovery$ #uidance to &ecision (a ers) T2i! re%ort anti i%ate! t2e "ater %ub"i ation o# t2e #u"" book and in "ude! Iu!t t5o o# t2e 2a%ter! on t2e to%i ! o# &educing &is's in $isaster &ecovery and 4?rganising &ecovery. T2e %rin i%"e! !e"e ted #or ea 2 2a%ter are a! #o""o5!@ 8uiding Principle' 4-educing -isks in Disaster -eco$ery; 4Ri!k Redu tion i! a entra" aim o# re overy management. T2ere#ore, it i! e!!entia" to u!e t2e re overy %ro e!! to redu e #uture ri!k! to avoid a re%etition o# t2e di!a!ter. To a 2ieve !u 2 %rote tion it i! ne e!!ary #or o##i ia"! to !e ure adeEuate budget and %o"iti a" !u%%ort a! 5e"" a! t2e 4buy1in3 o# t2e intended bene#i iarie! o# t2e undertaking.

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=2en t2i! !u%%ort i! a!!ured, and on"y t2en, devi!e and im%"ement an integrated ri!k redu tion !trategy3 8uiding Principle' 47rganising -eco$ery; 4E##e tive re overy reEuire! a !ing"e %oint o# overa"" re!%on!ibi"ity in government. T2i! may be be!t a 2ieved by 2aving a dedi ated organi:ation at t2e a%e. o# %o"iti a" %o5er and de i!ion making. T2e organi!ation a"!o need!@ a "ear mandate !u%%orted by a%%ro%riate "egi!"ation adeEuate #inan ia", 2uman and materia" re!our e! to be ba!ed on t2e et2i a" %rin i%"e! o# a ountabi"ity and tran!%aren y dire t "ink! to a"" "ine mini!trie! kno5"edge o# t2e dynami ! o# t2e di!a!ter re overy %ro e!! me 2ani!m! t2at %ermit ontinua" t5o15ay on!u"tation 5it2 !urviving ommunitie! an e##e tive Di!a!ter Re overy Management *n#ormation &y!tem 6DRM*&93 Three Comments on these Principles' Fir!t@ *t i! not an ea!y %ro e!! to a%ture t2e e!!en e o# a om%"e. ta!k and !ummari!e it 5it2in a !ing"e guiding %rin i%"e. &e ond@ T2e 4Guiding Prin i%"e!3 ited above ou"d a"!o be de! ribed a! re ommendation!, or riti a" i!!ue!. T2ird@ T2e!e 2a%ter! ontaining t2e above %rin i%"e! 5ere !ubmitted to a !enior te 2ni a" editor, em%"oyed by one o# t2e !%on!oring (? agen ie! 52o ommi!!ioned t2i! %ub"i ation @ 4T2e *nternationa" &trategy #or Di!a!ter Redu tion3 6*&DR9 *n t2e #ina" ver!ion o# t2e %a%er, #o""o5ing 2eavy interna" editing, bot2 o# t2e %rin i%"e! !tated above 5ere e. "uded. >o5ever, t2e broad !%irit o# t2e !entiment! t2at are im%"i it 5it2in t2em 2a! been retained, but 5it2out t2e #or e o# t2e de!ignation 4%rin i%"e3. T2i! omi!!ion may i""u!trate a re"u tan e on t2e %art o# an o##i ia" internationa" body !u 2 a! t2e (nited ?ation! to !et out 4%rin i%"e!3 "e!t t2e!e be regarded a! ontrover!ia", attra ting riti i!m or be au!e t2ey may 2ave %o"i y or #inan ia" im%"i ation!.

<. Conclusions and where ne&t

At t2e out!et 5e !tated t2at %rin i%"e! are e!!entia" to 4guide a tion!3, 4a 2ieve !omet2ing3, or de#ine t2e 45ay to a t3. =e 2o%e t2at t2e di! u!!ion in t2i! %a%er add! !ub!tan e to t2i! onvi tion. T2e #o""o5ing on ern! need to be noted and re!%onded to. 5aried Perspecti$es

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Devi!ing a !et o# univer!a" %rin i%"e! i! not an ea!y ta!kK in #a t it may not even be %o!!ib"e, due to u"tura" re"ativi!m and varying #rame! o# re#eren e. A !et o# %rin i%"e! #or an identi a" di!a!ter re overy o%eration 5ou"d tend to di##er #or !urvivor!, t2e nationa" government, t2e %rivate !e tor and internationa" re"ie# agen ie!. Di!a!ter! o ur 5it2in diver!e u"tura" !etting!, !o it i! 2ig2"y un"ike"y t2at !%e i#i 4ta ti a"3 or 4im%"ementation3 %rin i%"e! o# di!a!ter management t2at ou"d re"ate to ,anada 5ou"d be re"evant to ,ambodia. ?evert2e"e!!, t2e diver!ity o# !tand%oint! an %re!ent a u!e#u" 2a""enge in !ear 2ing #or a ommon a%%roa 2, a !2ared under!tanding and ommon %rin i%"e! t2at e##e tive"y merge! di##erent intere!t!. To do t2i! 5i"" reEuire 6;9 a di! i%"ined t2oug2t %ro e!! and 629 a dia"ogue to e!tab"i!2 an et2i a" on!en!u! #rom a"" !tand%oint!. *t i! !ugge!ted t2at any %rin i%"e #or di!a!ter re overy !2ou"d !tart #rom t2e %rimary obIe t o# on ern 1name"y t2e need! o# t2e !urviving %o%u"ation. T2ere i! an im%ortant di!tin tion to be made bet5een process and content. T2ere 5i"" be many di##i u"tie!, 6i# not im%o!!ibi"itie!9 in reating uni#orm !et! o# %rin i%"e! t2at are a%%"i ab"e to di##erent u"ture! or organi:ation!. /ut, t2e %ro e!! o# !ear 2ing #or %rin i%"e! are, in t2e aut2or! o%inion, e!!entia". T2e #our !tage 2ierar 2y o# %rin i%"e! introdu ed in t2i! %a%er %rovide! a u!e#u" tem%"ate #or %rogramme and %roIe t manager!. T2e %ro e!! en ourage! an et2i a" ba!i! #or %"anning and de i!ion making. >o5ever, 5e re ogni:e t2e on ern o# o##i ia"!, a! noted in a ited e.am%"e, to redu e %rin i%"e! to a manageab"e tota". =e be"ieve t2at t2e %ro e!! o# reating %rin i%"e! !eem! "ike"y to yie"d many !igni#i ant bene#it!, by 2e"%ing %eo%"e and organi:ation! to reate %o"i ie! t2at are on!i!tent 5it2 t2eir va"ue!, to e.%"i it"y on!ider 2o5 a tion! and va"ue! re"ate to ea 2 ot2er, and by 2e"%ing to reate a !2ared under!tanding, not on"y 5it2in individua" organi:ation! but bet5een t2em. D5ig2t D. Ei!en2o5er !aid, @.he plan is useless0 it9s the planning that9s important@K t2i! !ame notion 2a! a%%"i abi"ity to t2e i!!ue o# di!a!ter management and in t2e deve"o%ment o# %rin i%"e!. Maintaining Principles =2i"e %rin i%"e! o# di!a!ter management e.i!t, and in t2e a!e o# t2e Red ,ro!! 4,ode o# ,ondu t 4 2ave been 5ide"y endor!ed, it i! nevert2e"e!! "ear t2at t2i! i! in!u##i ient to en!ure t2eir om%"ian e in t2e "ong term. Given t2e ra%id turnover o# agen y !ta## and minima" indu tion training #or ne5 !ta## in mo!t agen ie!, it 5ou"d a%%ear to be ne e!!ary #or organi:ation! to regu"ar"y re1"aun 2 et2i ! training. 1nternational Dialogue T2e time !eem! to be ri%e #or an internationa" on#eren e under (? au!%i e!, 6or Red ,ro!! au!%i e!9 to !%e i#i a""y addre!! t2i! i!!ue@ .he 1uest for wor'ing Principles of $isaster %anagement T2i! ou"d u!e#u""y in "ude a di! u!!ion on erning t2e 5ay %rin i%"e! are being #o""o5ed in t2e &%2ere Guide"ine! a! 5e"" a! in t2e Red ,ro!! ,ode

2;

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o# ,ondu t T2e on#eren e and !ub!eEuent book ou"d u!e#u""y over bot2 Di!a!ter Management 6%o!t1event9 and Di!a!ter Ri!k Management 6%re1event9.

=. -eferences 6to be om%"eted9

AD/, -E,D and Tran!%aren y *nternationa" 6200<9. ,urbing ,orru%tion in T!unami Re"ie# -%eration! Mani"a@ A!ian Deve"o%ment /ank 6ADP9 , -rgani!ation #or E onomi ,o1o%eration and Deve"o%ment 6-E,D9 and Tran!%aren y *nternationa" A"e.ander 6;HHH9. in =2at i! a Di!a!terD ?e5 An!5er! to -"d Sue!tion! A"e.ander, D. 620029. Prin i%"e! o# Emergen y P"anning and Management >ar%enden@ Terra Au# der >eide, Erik. 6;HBH9. Di!a!ter Re!%on!e@ Prin i%"e! o# Pre%aration and ,oordination. 2tt%@AAorgmai"2. oe1dm2a.orgAdrA*mage!AMain.!5#. A"e.ander de =aa" 6;HHB9. Famine ,rime!K Po"iti ! and t2e Di!a!ter Re"ie# *ndu!try in A#ri a 6A#ri an *!!ue!9, *ndiana (niver!ity Pre!!. /o!!, 8.A. 6200<9. Ana"y:ing Mora" *!!ue!@ T2ird Edition, ?e5 'ork, M Gra51>i"" ,"inton, /. 6200C9. $e!!on! #or a &a#er Future@ Dra5ing on t2e e.%erien e o# t2e *ndian - ean t!unami di!a!ter . E"even key a tion! #or bui"ding nation!3 and ommunitie!3 re!i"ien e to di!a!ter!. ?e5 'ork and Geneva@ *&DR ,R>?et 6200<9. T2e Prin i%"e! #or Di!a!ter Management a! a 0ey #or &u e!!#u" Management. *n@ Redu ing Ri!k T2roug2 Partner!2i%!. Pro eeding! o# t2e 2nd Annua" ,anadian Ri!k and >a:ard! ?et5ork 6,R>?et9 &ym%o!ium. Toronto, ,anada, ?ovember ;71;H, 200<. Davi!, * 620079. :earning from $isaster &ecovery) *uidance to $ecision %a'ers Geneva@ *nternationa" Re overy Programme 6*RP9 Davi!. *. and Mur!2ed, N 6200C9. ,ommunity1 /a!ed Di!a!ter Ri!k Management /angkok@ A!ian Di!a!ter Pre%aredne!! ,entre 6ADP,9 6t2i! do ument an be ordered #rom ADP, by onta ting +i ky Pu:on1Dio%ene! at +i ky)ad% .net or it may be do5n"oaded #rom 555.ad% .net9 de =aa" A.6;HHB9. Famine ,rime!K Po"iti ! and t2e Di!a!ter Re"ie# *ndu!try in A#ri a 6A#ri an *!!ue!9, P$A,ED@ *ndiana (niver!ity Pre!!.

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Drabek, T.E. 6200<9. T2eorie! re"evant to emergen y management ver!u! a t2eory o# emergen y management. 8ourna" o# Emergen y Management, +o" 36J9, JH1J. Dun#ee, T.=. and &trud"er, A. 620009. Mora" Dimen!ion! o# Ri!k Tran!#er and Redu tion &trategie!. *n Di!a!ter Ri!k Management &erie! no. 2@ Managing Di!a!ter Ri!k in Emerging E onomie!, =a!2ington D.,@ =or"d /ank, 0reimer A. and Arno"d M. editor!, %%. ;0H1;20. Erik Au# der >eide, Di!a!ter Re!%on!e@ Prin i%"e! o# Pre%aration and ,oordination Tbook on1"ineUK avai"ab"e #rom 2tt%@AAorgmai"2. oe1dm2a.orgAdrA!tati .2tm. Etkin, D. and >o, E. 620079. ,"imate ,2ange@ Per e%tion! and Di! our!e! o# Ri!k. 8ourna" o# Ri!k Re!ear 2 6in %re!!9. Good >umanitarian Donor!2i% 620039. 4Prin i%"e! and Good Pra ti e o# >umanitarian Donor!2i%3 ;7 8une 2tt%@AA555.re"ie#5eb.intA g2dAaL2023L20Prin i%"e! L20E?1 G>D;H.;0.0JL20 RED.do 8igya!u, R. 6200<9. $isaster5 ! &eality or -onstruct3 Perspective 7rom the ;ast, in =2at i! a Di!a!terD & 2e%er, E et a" 6 200C9. *m%a t o# t2e t!unami re!%on!e on "o a" and nationa" a%a itie!. T!unami Eva"uation ,oa"ition, 6 ited %.2;9 o# Te"#ord,8 and ,o!grave, 8 620079 T2e internationa" 2umanitarian !y!tem and t2e 200J *ndian - ean eart2Euake and t!unami! Di!a!ter! +o". 3; ?o.; Mar 2 2007 Te"#ord,8 and ,o!grave, 8 620079. T2e internationa" 2umanitarian !y!tem and t2e 200J *ndian - ean eart2Euake and t!unami! Di!a!ter! +o". 3; ?o.; Mar 2 2007 %% ;12B Na k, ?. 6200C9. P2i"o!o%2y and Di!a!ter!. >ome"and &e urity A##air!, +o". 26;9

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!igure 1

2J

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May 30, 2007

!igure %

2<