Description
The IDRM Operational Plan introduces an integrated approach. The IDRM approach is based on a vision of disaster resilience combined with three basic DRM principles: (i) many development actions carry potential disaster risk but also provide opportunities to strengthen resilience; (ii) DRM investments may underperform and ultimately even exacerbate disaster risk if climate change is ignored.
OPERATIONAL PLAN FOR
INTEGRATED DISASTER
RISK MANAGEMENT
2014–2020
ASIAN DEVELOPMENT BANK
Operational Plan for Integrated Disaster Risk Management 2014 - 2020
The Operational Plan for Integrated Disaster Risk Management, 2014–2020 seeks to strengthen disaster
resilience in the developing member countries of the Asian Development Bank (ADB). The operational
plan has three key objectives toward this intended outcome: (i) to promote an integrated disaster risk
management approach in ADB’s operations, (ii) to strengthen ADB’s developing member country integrated
disaster risk management capabilities, knowledge, and resources, and (iii) to mobilize additional public and
private partnerships and resources for integrated disaster risk management.
The operational plan recognizes the importance of reducing disaster risk in both the immediate and long
term, taking the possible efects of climate change into account. It also highlights the urgent need to enhance
the management of residual disaster risk, including through the establishment of adequate disaster risk
?nancing arrangements. It outlines a series of crosscutting actions to address these needs, focusing on
institutionalizing integrated disaster risk management, strengthening capacity and knowledge, investing in
disaster resilience, and engaging stakeholders.
About the Asian Development Bank
ADB’s vision is an Asia and Paci?c region free of poverty. Its mission is to help its developing member
countries reduce poverty and improve the quality of life of their people. Despite the region’s many successes,
it remains home to approximately two-thirds of the world’s poor: 1.6 billion people who live on less than $2
a day, with 733 million struggling on less than $1.25 a day. ADB is committed to reducing poverty through
inclusive economic growth, environmentally sustainable growth, and regional integration.
Based in Manila, ADB is owned by 67 members, including 48 from the region. Its main instruments for
helping its developing member countries are policy dialogue, loans, equity investments, guarantees, grants,
and technical assistance.
ASIAN DEVELOPMENT BANK
6 ADB Avenue, Mandaluyong City
1550 Metro Manila. Philippines
www.adb.org
ASIAN DEVELOPMENT BANK
OPERATIONAL PLAN FOR
INTEGRATED DISASTER
RISK MANAGEMENT
2014–2020
APRIL 2014
Printed on recycled paper
© 2014 Asian Development Bank
All rights reserved. Published in 2014.
Printed in the Philippines.
ISBN 978-92-9254-504-8 (Print), 978-92-9254-505-5 (PDF)
Publication Stock. No. RPT146429-3
Cataloging-In-Publication Data
Asian Development Bank.
Operational plan for integrated disaster risk management 2014–2020
Mandaluyong City, Philippines: Asian Development Bank, 2014.
1. Integrated disaster risk management. 2. Disaster risk ?nancing. 3. Resilience. 4. Asia and Paci?c
I. Asian Development Bank.
The views expressed in this publication are those of the authors and do not necessarily re?ect the views and policies of the
Asian Development Bank (ADB) or its Board of Governors or the governments they represent.
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iii
Contents
Abbreviations iv
Executive Summary v
I. Rationale 1
A. Introduction 1
B. Challenges and Issues 2
C. ADB Practice and Experience 3
II. Directions 6
A. Outcome and Objectives 6
B. The Integrated Disaster Risk Management Approach 7
C. Implementing ADB’s Integrated Disaster Risk Management Approach 9
1. Institutionalizing Integrated Disaster Risk Management 9
2. Capacity Development and Knowledge Solutions 11
3. Investments in Disaster and Climate Resilience 14
4. Stakeholder Engagement 16
D. Crossovers with Other Development Challenges 18
III. Implementation Plan 20
IV. Monitoring and Reporting 22
Appendix 1: IDRM Operational Plan Results Framework 23
iv
Abbreviations
ADF
ADF-DRF
APDRF
CPS
DEAP
DMC
DRF
DRM
DRR
EAL
IDRM
PDNA
PPP
RSDD
–
–
–
–
–
–
–
–
–
–
–
–
–
–
Asian Development Fund
Asian Development Fund Disaster Response Facility
Asia Paci?c Disaster Response Fund
country partnership strategy
Disaster and Emergency Assistance Policy
developing member country
disaster risk ?nancing
disaster risk management
disaster risk reduction
emergency assistance loan
integrated disaster risk management
post-disaster needs assessment
public–private partnership
Regional and Sustainable Development Department
v
Disaster risk
presents one of
the most serious
threats to inclusive
sustainable
socioeconomic
development in
Asia and the Paci?c
Executive Summary
Strategy 2020 identi?es disaster and emergency assistance as one of the Asian Development
Bank’s (ADB) areas of operations, re?ecting the considerable challenges that natural hazards
pose to development in Asia and the Paci?c. The region is subject to all major types of natural
hazard and dominates disaster impact rankings, including with regard to loss of life. Direct
physical losses are increasing more rapidly than regional gross domestic product as both
exposure and vulnerability to natural hazards continue to grow. The intensity and, in some areas,
frequency of climatic extreme events is expected to increase with climate change, potentially
exacerbating this trend in future years. Disaster risk now presents one of the most serious
threats to inclusive sustainable socioeconomic development in Asia and the Paci?c and has a
particularly detrimental impact on the poorest members of society. Poverty and vulnerability to
natural hazards are closely linked and mutually reinforcing. Disasters are a source of hardship and
distress, potentially forcing the near-poor temporarily below the poverty line and contributing
to more persistent, chronic poverty. The poor, in turn, are among the most vulnerable to
natural hazards.
Between August 1987 and December 2013, ADB approved $19.5 billion for a total of 631 disaster
risk management (DRM) and DRM-related loans, grants, and technical assistance projects.
Just over a third of this assistance was provided for post-disaster response. ADB’s engagement
in this area has been guided by a succession of policies. The current policy, the 2004 Disaster
and Emergency Assistance Policy (DEAP), established three key objectives: (i) to strengthen
support for disaster risk reduction in developing member countries (DMCs), (ii) to provide
rehabilitation and reconstruction assistance following a disaster, and (iii) to leverage ADB’s
DRM activities by developing partnerships. A companion DEAP Action Plan was launched in
2008 to enhance the implementation of the DEAP. More recently, ADB has also ventured into
the relatively new area of disaster risk ?nancing.
The Operational Plan for Integrated Disaster Risk Management, 2014–2020 (hereafter IDRM
Operational Plan) builds on ADB’s signi?cant support for DRM and good performance in this
area, while remaining in alignment with the 2004 DEAP. It seeks to (i) promote an integrated
disaster risk management (IDRM) approach in ADB’s operations, supporting related products
and business processes to strengthen disaster resilience and enhance residual risk management
and encouraging a more coordinated, systematic approach to DRM; (ii) further strengthen
DMC IDRM capabilities, knowledge, and resources to reduce disaster risk and to respond
to disaster events in a timely, cost-efcient manner; and (iii) mobilize additional public and
private partnerships and resources for IDRM. This operational plan succeeds the 2008 DEAP
Action Plan.
The IDRM approach is based on a vision of disaster resilience combined with three basic DRM
principles: (i) many development actions carry potential disaster risk but also provide opportunities
to strengthen resilience; (ii) DRM investments may underperform and ultimately even exacerbate
disaster risk if climate change is ignored; and (iii) levels of expenditure on risk reduction and
residual risk management should increase to re?ect long-term risk pro?les. These principles in
turn imply three key DRM requirements: to integrate disaster risk reduction into development,
to address the intersection between DRM and climate change adaptation, and to ensure that
vi Operational Plan for Integrated Disaster Risk Management 2014–2020
there are adequate ?nancing arrangements in place to reduce risk and to manage and transfer
residual risk.
The IDRM approach will address these three requirements through a series of common,
crosscutting actions to institutionalize IDRM, strengthen capacity and knowledge, invest in
disaster resilience, and engage stakeholders. These actions will reduce disaster risk in both
the immediate and long term and enhance residual risk management for efective disaster
response, collectively strengthening disaster resilience. This IDRM approach will be re?ected
in individual projects in hazard-prone areas, in country partnership strategies (CPSs), and in the
development of revised and new sector and thematic operational plans.
Tools and guidance materials will be developed to strengthen the mainstreaming of IDRM
into ADB’s core business processes. ADB already addresses disaster risk in a number of CPSs
and embeds DRM considerations in a wide range of development projects. However, further
institutionalization is essential, providing a strong underpinning for a more strategic approach.
Guidance will be prepared on the incorporation of disaster and climate risk concerns into the
sector and thematic work undertaken during CPS preparation. ADB will also enhance existing
disaster and climate change risk project screening tools to ensure they include adequate
coverage of disaster risk.
ADB will support IDRM capacity development both within ADB and in DMCs, and will provide
related knowledge products to support DRM mainstreaming into DMC development policy
and practice and ADB operations. In particular, it will strengthen capacity for the integration
of IDRM into DMC development plans, regulatory and legislative frameworks, and budgetary
processes; develop IDRM-related public goods and services; establish an informal network of
ADB staf working on IDRM actions and initiatives; strengthen IDRM representation across
all communities of practice; continue to provide IDRM training for ADB staf; and prepare
knowledge products to capture ADB’s considerable practical experience in many aspects of
DRM and to provide sector-based guidance on DRM interventions.
Progress against each of the three requirements under the IDRM approach will be supported
through continued investment in disaster and climate resilience projects. ADB will focus on
three speci?c areas of investment: disaster risk reduction, post-disaster response, and disaster
risk ?nancing.
Finally, ADB will support strengthened stakeholder engagement and coordination through the
further development of a wide range of DRM partnerships, the promotion of private sector
involvement in IDRM, and eforts to mobilize additional public and private resources for IDRM.
The IDRM Operational Plan recognizes signi?cant synergies between actions to support disaster
resilience and to support poverty reduction, urban resilience, gender equality, food and water
security, and the particular needs of fragile and con?ict-afected situations. In implementing
the Operational Plan, particular consideration will be paid to these synergies.
Responsibility for implementing the IDRM Operational Plan rests primarily with operational
departments and the Regional and Sustainable Development Department. Other support
departments will also share responsibility, where relevant. The IDRM Operational Plan
introduces ADB’s ?rst results framework for DRM. Annual accomplishment reports will be
prepared detailing progress in the implementation of the IDRM Operational Plan as well as
updates to the results framework.
The IDRM
approach
is based
on a vision
of disaster
resilience
1
Disaster and
emergency
assistance is
directly relevant
to progress
and envisaged
achievements under
Strategy 2020’s
three strategic
agendas: inclusive
economic growth,
environmentally
sustainable
development, and
regional integration
I. Rationale
A.?Introduction
Strategy 2020 identi?es disaster and emergency assistance as one of three other areas of
operations of the Asian Development Bank (ADB). The area is directly relevant to progress
and envisaged achievements under Strategy 2020’s three strategic agendas: inclusive
economic growth, environmentally sustainable development, and regional integration.
Disasters can undermine social and economic gain, with a particularly detrimental impact
on the poorest members of society. By virtue of their difering social, cultural, economic,
and political environments, the poor and near-poor are more likely to sufer loss of lives,
homes, productive assets, livelihoods, and schooling as a consequence of disasters. More
marginalized groups within poorer segments of society, such as women, children, the elderly,
and the disabled, are often particularly vulnerable. By implication, disaster and emergency
assistance supports inclusive economic growth. Strengthened resilience also supports
environmentally sustainable development as natural hazards are themselves environmental
phenomena, against which protection is required. Finally, as witnessed in the aftermath of
the 2011 earthquake and tsunami in Japan and ?oods in Thailand, closer regional economic
integration can spread the impact of a disaster well beyond immediately afected areas, in
turn implying a need for disaster and emergency assistance to strengthen resilience and
support timely post-disaster recovery and reconstruction eforts. Strategy 2020 indicates
that ADB will continue to mainstream disaster risk management (DRM) and provide
early and medium-term disaster response and assistance in partnership with specialized
aid agencies.
ADB’s engagement in DRM has also been guided by a succession of related policies. Its
?rst disaster policy was approved in 1987, focusing on small developing member countries
(DMCs).
1
A second policy was introduced in 1989, focusing on all DMCs.
2
These policies were
superseded in 2004 by the Disaster and Emergency Assistance Policy (DEAP),
3
a far more
wide-ranging policy than its predecessors. The DEAP established a series of objectives to
(i) strengthen support for disaster risk reduction (DRR) in DMCs; (ii) provide rehabilitation
and reconstruction assistance following a disaster; and (iii) leverage ADB’s DRM activities by
developing partnerships. A companion DEAP Action Plan
4
was launched in 2008. The action
plan was set out in three parts, comprising (i) minimum actions required to implement the
mandatory aspects of the DEAP, (ii) actions required to address lessons learned since the
DEAP was approved, and (iii) additional considerations that could deepen ADB’s incorporation
of DRM into operations. The action plan was intended to be implemented over a period of 3–5
years. A 2012 Special Evaluation Study on ADB’s Response to Natural Disasters and Disaster
Risks found that the DEAP and DEAP Action Plan had provided sound guidance on DRM.
5
1
ADB. 1987. Rehabilitation Assistance to Small DMCs Afected by Natural Disasters. Manila.
2
ADB. 1989. Rehabilitation Assistance after Disasters. Manila.
3
ADB. 2004. Disaster and Emergency Assistance Policy. Manila.
4
ADB. 2008. Action Plan for Implementing ADB’s Disaster and Emergency Assistance Policy. Manila.
5
ADB. 2012. Special Evaluation Study on ADB’s Response to Natural Disasters and Disaster Risks. Manila.
2 Operational Plan for Integrated Disaster Risk Management 2014–2020
This Operational Plan for Integrated Disaster Risk Management 2014–2020 (hereafter IDRM
Operational Plan) provides new operational guidance on the implementation of the 2004 DEAP.
It succeeds the 2008 DEAP Action Plan.
6
It also introduces ADB’s ?rst results framework for
DRM, creating a mechanism for monitoring performance and regularly and publicly reporting
on progress to Management.
B.?Challenges and Issues
Asia and the Paci?c is subject to all major types of natural hazards and dominates disaster
impact categories across all regions of the world. Between 1970 and 2012, 1.8 million natural
hazard-related deaths were recorded in the region, 51% of the global total. Reported direct
physical losses totaled almost $1.5 trillion (in real 2012 terms) over the same period, equivalent
to an average $95 million loss per day.
7
Physical losses accounted for 43% of the total global
losses, far higher than the region’s share in global gross domestic product.
Despite considerable advances in DRM understanding and know-how over the past few
decades, there is no evidence of a long-term decline in loss of human life in the region.
8
Meanwhile, direct physical losses are increasing more rapidly than regional gross domestic
product as both exposure and vulnerability to natural hazards continue to grow. The intensity
and, in some areas, frequency of climatic extreme events is expected to rise with climate change,
potentially exacerbating this trend. Nine Asian cities topped the results of recent analysis of risk
from changing weather systems and temperatures in 50 cities of current and future importance
to global business.
9,
10
Over the past 5 years alone, an estimated 834 million people have been
afected by natural hazard events in ADB’s DMCs. In 2012, 22.2 million people in 22 Asian
countries were temporarily or permanently displaced by disasters and the region accounted
for 81% of new displacement globally as a consequence of disasters between 2008 and 2012.
11
The November 2013 typhoon in the Philippines, Typhoon Yolanda (internationally known as
Haiyan), has alone afected 12.2 million people and left 4.4 million people homeless.
12
Continuing losses re?ect disappointing progress toward strengthened resilience. According
to the latest results from national self-assessments of progress against the Hyogo Framework
for Action: Building the Resilience of Nations and Communities to Disasters, DMCs typically
report that they have made some commitment to DRR and developed some capacity but
that their progress has not been substantial.
13
Some of the key issues and trends raised in
these progress reviews include the weak translation of DRM policies and legislation into
action; inadequate risk and vulnerability information; insufcient budget allocations for DRR;
insufcient implementation capacities; weak progress in addressing gender and women’s issues;
6
The term operational plan, rather than action plan, is adopted in accordance with the Staf Instructions on
Processing and Monitoring Sector and Thematic Operational Plans.
7
The statistics on disaster losses are based on data extracted from EM-DAT: The OFDA/CRED International
Disaster Database (www.emdat.be). Université Catholique de Louvain, Brussels.
8
ADB. 2012. Investing in Resilience: Ensuring a Disaster-Resistant Future. Manila.
9
In order of ranking: Dhaka, Manila, Bangkok, Yangon, Jakarta, Ho Chi Minh City, Kolkata, Mumbai, and
Chennai.
10
Maplecroft. 2013. Climate Change and Environmental Risk Atlas 2013: Country-by-Country Risk Analysis and
Mapping. Bath.
11
Internal Displacement Monitoring Center. 2013. Global Estimates 2012: People Displaced by Disasters.
Geneva.
12
National Economic Development Agency. 2013. Reconstruction Assistance on Yolanda. Manila.
13
The Hyogo Framework for Action is a 10-year plan adopted by 168 governments at the World Conference
on Disaster Reduction in January 2005. The latest assessment reports cover the period 2011–2013.
I.?Rationale 3
Without concerted
region-wide action
on the part of all
stakeholders to
address disaster
risk, losses look set
to continue to rise
and inadequate results in achieving social equity.
14
Governments have also struggled to deal
with the consequences of disasters due to insufcient liquidity, considerably exacerbating their
adverse economic and social impacts.
In consequence, disaster risk now presents one of the most serious threats to inclusive
sustainable socioeconomic development in Asia and the Paci?c. DRM needs in the region
are enormous and, without concerted region-wide action on the part of all stakeholders to
address risk, losses look set to continue to rise. This increase will re?ect insufcient eforts to
tackle existing vulnerability in Asia and the Paci?c; the continuing expansion of populations
and capital assets in some of the most hazard-prone areas in the region, increasing exposure;
and anticipated increases in the frequency and intensity of weather-related events as the
consequences of climate change begin to take efect. In other words, all three factors contributing
to disaster risk—hazard probability, exposure, and vulnerability—look set to rise unless action is
taken.
15
This action is even more urgent in view of limited development resources and thus the
need to ensure that individual investment needs are met just once and not time and again as
development gains are undone by disaster.
C.?ADB Practice and Experience
ADB has provided considerable assistance for DRM. Between August 1987 and December
2013, ADB approved $19.5 billion—equivalent to 10.3% of total sovereign loans, grants and
technical assistance approvals—for a total of 631 DRM and DRM-related projects. Of this,
33.0% ($6.4 billion) was for early recovery and reconstruction, 8.5% ($1.7 billion) for stand-
alone DRR, 58.5% ($11.4 billion) for projects with embedded DRR elements, and 0.1% ($9.8
million) for ex ante disaster risk ?nancing (DRF) (Figure 1).
Since the introduction of the DEAP in 2004, ADB support for post-disaster early recovery and
reconstruction has continued to account for around a third of ADB’s DRM-related assistance
as the region has witnessed a series of major disaster events. Almost $0.8 billion in loans, grants
and technical assistance was approved in response to the 2004 Indian Ocean tsunami, with a
further $1.9 billion in loans and grants provided in response to the 2005 earthquake in Pakistan,
the 2008 earthquake in the People’s Republic of China, and the 2010 ?oods in Pakistan. ADB’s
$0.9 billion response to Typhoon Yolanda in the Philippines in 2013 established a new record in
ADB’s level of response to a single event. These ?ve events accounted for 78% of ADB’s post-
disaster assistance between 2004 and 2013.
ADB has also continued to support DRR interventions, broadening the scope of assistance as
understanding of disaster risk has deepened. ADB’s original engagement in this area focused
on a series of stand-alone ?ood control interventions dating back to some of ADB’s earliest
projects. More recent investments have stretched from large-scale urban integrated water
resource management and river basin projects incorporating ?ood control components, such
as the Citarum river basin project in Indonesia, through to support for community-based DRM
projects and disaster risk modeling. They have included DRR interventions as part of climate
change adaptation projects. ADB has also increasingly taken disaster risk into account in the
design of other investments, helping to ensure that resulting development gains are sustainable.
14
United Nations International Strategy for Disaster Reduction (UNISDR). 2013. The Hyogo Framework for
Action in Asia and the Paci?c 2011–2013. Geneva.
15
Disaster risk d can be characterized as a function of the probability of occurrence of a hazard of varying
severity in a particular location p(h); the people and physical assets situated in that location and therefore
exposed to the hazard e; and the level of vulnerability of those people and physical assets to that hazard v.
This relationship can be expressed mathematically as d = f (p(h), e, v).
Between August
1987 and December
2013, ADB approved
$19.5 billion for a
total of 631 DRM
and DRM-related
projects
4 Operational Plan for Integrated Disaster Risk Management 2014–2020
For instance, ADB road investments in Bangladesh and Cambodia take account of ?ood risk.
There has been a notable increase in technical assistance for stand-alone DRR initiatives in
the last few years, with 48% (in real terms) of total such assistance provided over the period
1987–2012 approved in 2011, 2012, and 2013. This rise could be an early indication of greater
ADB investment in DRR in the future.
Most recently, ADB has begun venturing into the relatively new area of DRF. Six new technical
assistance and grant projects were approved over the period 2008–2013 focusing either
speci?cally on DRF or on insurance, including disaster insurance, more generally. A further three
DRF projects are currently being processed. Other recent notable developments have included
the introduction of a pilot Disaster Response Facility in the Asian Development Fund (ADF) XI
period, 2013–2016, and the establishment of an Integrated Disaster Risk Management Fund in
partnership with the Government of Canada in 2013.
ADB’s DRM project portfolio has performed well. Of the 27 early recovery and reconstruction
loans and grants completed between 2009 and 2012, 89% were rated successful or highly
successful, compared to 69% of all ADB sovereign loans and grants completed over the same
period, and 83% were rated likely sustainable, compared to 59% for all ADB sovereign loans
and grants. Over the same period, ADB completed ?ve stand-alone DRM loans and grants, of
which three were rated. All three were assessed as successful or highly successful and one as likely
sustainable.
Figure 1:?ADB Disaster Risk Management Assistance, 1987–2013
Source: Asian Development Bank.
Embedded disaster
risk reduction
58.5%
Disaster risk ?nancing
0.1%
Early recovery and
reconstruction
33.0%
Stand-alone disaster
risk reduction
8.5%
I. Rationale 5
The operational
plan builds on
ADB’s signi?cant
experience in DRM
and related lessons
learned both by
ADB and others
This new operational plan builds on ADB’s signi?cant experience in DRM and related lessons
learned both by ADB and others. It seeks to encourage governments and development partners
across the public and private sector to act together to reverse the tide of rising losses and to ensure
that development gains are disaster resilient. In particular, and in line with recommendations in
the 2012 Special Evaluation Study on ADB’s Response to Natural Disasters and Disaster Risks,
it takes account of an evolution in the context and understanding of disasters since the 2004
DEAP and 2008 DEAP Action Plan were formulated. Re?ecting this, it introduces an approach
to DRM aimed at long-term resilience, replacing ADB’s previous orientation around an ever-
repeating cycle of risk reduction, response, and reconstruction activities and an underlying
assumption that disasters are inevitable.
16
The IDRM Operational Plan also focuses ADB engagement in DRM on activities where it can
make a signi?cant contribution, taking into account the nature of DMC requests for support
in the ?eld of DRM; the current priorities of governments and other development partners in
this ?eld; and ADB’s core areas of operation, role, and expertise as a multilateral development
bank. Previous challenges experienced in implementing the DEAP Action Plan are addressed,
in particular pertaining to institutional arrangements for DRM.
16
The DRM cycle identi?ed three strategic phases, each following on from the last in continual rotation:
(i) prevention, mitigation, and preparedness, in which ADB planning and programming enhances DMC
capacity to identify and reduce vulnerability; (ii) transitional assistance and priority rehabilitation, in
which ADB provides post-disaster support to restore high-priority physical and social infrastructure; and
(iii) recovery, wherein ADB assistance is provided for longer-term reconstruction.
6
The IDRM
Operational Plan’s
desired outcome
is to strengthen
disaster resilience
in DMCs
II. Directions
A. Outcome and Objectives
The IDRM Operational Plan’s desired outcome is to strengthen disaster resilience in DMCs.
This outcome will make a signi?cant contribution to the achievement of Strategy 2020’s three
strategic agendas: inclusive economic growth, environmentally sustainable development, and
regional integration.
Disaster resilience is de?ned as the ability of countries, communities, businesses, and individual
households to resist, absorb, recover from, and reorganize in response to natural hazard
events, without jeopardizing their sustained socioeconomic advancement and development.
17
It recognizes the highly dynamic, continually shifting nature of the state of resilience as
populations grow and move; capital investments expand; and the frequency and intensity of
meteorological, hydrological, and climatological events change as a consequence of climate
change. Disaster resilience at all levels of society is a critical component of eforts to achieve
sustainable socioeconomic development and poverty reduction.
The IDRM Operational Plan has three overarching objectives toward its intended outcome:
(i) to promote an integrated DRM approach in ADB’s operations, supporting related products
and business processes to strengthen disaster resilience and enhance residual risk management
and encouraging a more coordinated, systematic approach to DRM; (ii) to further strengthen
DMC IDRM capabilities, knowledge, and resources to reduce disaster risk and to respond to
disaster events in a timely, cost-efcient manner; and (iii) to mobilize additional public and
private partnerships and resources for IDRM.
The IDRM Operational Plan remains in alignment with the DEAP, maintaining the DEAP’s focus
on strengthened support for DRR in DMCs, the provision of rehabilitation and reconstruction
assistance following a disaster, and the leverage of ADB’s IDRM activities by developing
partnerships. Its scope and objectives also build on and update the 2008 DEAP Action Plan,
continuing to support operational work in strengthening DMC resilience to disaster risk and
capacity to manage residual risk and recover from disasters.
The IDRM Operational Plan focuses speci?cally on natural hazards and related disaster risks as
determined by human processes and activities. ADB support for countries in fragile and con?ict-
afected situations, health emergencies, and food crises are also covered under the DEAP but
plans to operationalize these aspects of the DEAP are covered in separate operational plans.
18,19
The IDRM Operational Plan is aligned with these and other operational plans.
17
Note 8.
18
The 2004 DEAP de?nes a disaster as a sudden, calamitous event that seriously disrupts the functioning
of a community or society, causing widespread human, material, economic, or environmental losses that
exceed the community’s or society’s ability to cope using its own resources.
19
ADB. 2013. Operational Plan for Enhancing ADB’s Efectiveness in Fragile and Con?ict-Afected Situations.
Manila; ADB. 2009. An Operational Plan for Improving Health Access and Outcomes under Strategy 2020.
Manila; ADB. 2014. Operational Plan for the Agriculture and Natural Resources Sector: Promoting Food Security
in Asia and the Paci?c in 2014–2020. Manila.
II. Directions 7
B. The Integrated Disaster Risk Management Approach
The IDRM Operational Plan introduces an integrated approach. The IDRM approach is
based on a vision of disaster resilience combined with three basic DRM principles: (i) many
development actions carry potential disaster risk but also provide opportunities to strengthen
resilience; (ii) DRM investments may underperform and ultimately even exacerbate disaster
risk if climate change is ignored; and (iii) levels of expenditure on risk reduction and residual
risk management should increase to re?ect long-term risk pro?les, balancing expected social
and economic returns from DRM and other investments. These principles in turn imply three
key DRM requirements: to integrate DRR into development, to address the intersection
between DRM and climate change adaptation, and to ensure that there are adequate ?nancing
arrangements in place to reduce risk and to manage and transfer residual risk.
The IDRM approach will address these three requirements through a series of common,
crosscutting actions to institutionalize IDRM, develop capacity and knowledge solutions, invest
in disaster resilience, and engage stakeholders. These actions will reduce disaster risk in both
the immediate and long term and enhance residual risk management for efective disaster
response, collectively strengthening disaster resilience (Figure 2). The IDRM approach will be
re?ected in individual projects in hazard-prone areas, in country partnership strategies (CPSs)
and their regional equivalents in countries and regions facing signi?cant disaster risk, and in
the development of revised and new sector and thematic operational plans. This approach will
satisfy the IDRM Operational Plan’s three overarching objectives.
Figure 2: The Integrated Disaster Risk Management Approach
Source: Asian Development Bank.
P
r
i
n
c
i
p
l
e
s
O
u
t
c
o
m
e
Reduced disaster risk in the immediate and long term
Enhanced residual risk management for efective
disaster response
Strengthened disaster resilience
Cross-
cutting
actions
Integrate disaster
risk reduction into
development
Address the disaster risk
management/climate
change adaptation
intersection
Develop disaster
risk ?nancing
capabilities
Levels of expenditure
on disaster risk
reduction and residual
risk management should
increase to re?ect long-
term risk pro?les
Disaster risk management
investments may
underperform and
ultimately even exacerbate
disaster risk if climate
change is ignored
Many development
actions carry potential
disaster risk but also
provide opportunities to
strengthen resilience
R
e
q
u
i
r
e
m
e
n
t
s
P
r
i
n
c
i
p
l
e
s
O
u
t
c
o
m
e
Reduced disaster risk in the immediate and long term
Enhanced residual risk management for efective
disaster response
Strengthened disaster resilience
Cross-
cutting
actions
Integrate disaster
risk reduction into
development
Address the disaster risk
management/climate
change adaptation
intersection
Develop disaster
risk ?nancing
capabilities
Levels of expenditure
on disaster risk
reduction and residual
risk management should
increase to re?ect long-
term risk pro?les
Disaster risk management
investments may
underperform and
ultimately even exacerbate
disaster risk if climate
change is ignored
Many development
actions carry potential
disaster risk but also
provide opportunities to
strengthen resilience
R
e
q
u
i
r
e
m
e
n
t
s
8 Operational Plan for Integrated Disaster Risk Management 2014–2020
The ?rst principle lies at the heart of the approach, requiring a wide range of policy, investment,
and capacity development interventions to reduce risk. These interventions can tackle the hazard
directly (e.g., by reducing probabilities of landslides and ?ooding through forest conservation
on steep slopes); they can tackle exposure to those hazards (e.g., by supporting the integration
of disaster risk considerations into land use planning); and they can tackle vulnerability (e.g.,
by supporting livelihood diversi?cation into more resilient occupations, rainwater harvesting,
and community early warning systems). As such, DRR actions can take the form of both
structural and nonstructural measures. They also cover stand-alone initiatives, such as seismic
retro?tting of school buildings; the incorporation of DRR components into wider projects, such
as ?ood control elements of urban development projects; and the integration of DRR measures
into other development actions, such as adjustments in road engineering design and location
to strengthen resilience against extreme rainfall or landslides. The latter two can be referred
to as embedded actions. ADB is already engaged in actions through all three routes, variously
addressing hazards, exposure, and vulnerability.
The second principle focuses on the intersection between DRM and climate change adaptation.
Adaptation focuses on the process of adjustment to actual or expected climate and its efects
in order to moderate harm or exploit bene?cial opportunities.
20
The intersection between DRM
and climate change adaptation focuses more speci?cally on planning for changes in the intensity
and frequency of extreme climate events and taking action to reduce risk today, tomorrow, and
many years into the future. It implies consideration of these potential future changes in extreme
climate events in the design of both stand-alone and embedded DRM actions, exploring, for
instance, the implications of possible changes in the return periods of speci?c ?ood events for
future levels of protection ofered by ?ood defenses. ADB is already supporting this principle
through, for example, technical assistance for disaster and climate risk assessment in the Paci?c
and the integration of the results into urban development and infrastructure planning. Both the
?rst and second principles also highlight the need to consider extreme climate events in the design
and implementation of climate change knowledge products, programs, and actions and to align
DRM and climate change adaptation eforts more generally. The Environment Operational
Directions, 2013–2020 similarly stresses the importance in aligning DRM and climate change
adaptation eforts.
21
The ?nal principle focuses on the development and application of ?nancing instruments to
reduce risk and to manage and transfer residual risk. It covers the ?nancial management of
disaster risk by households and businesses as well as governments. ADB advocates a risk-
layered approach to the development of DRF strategies, breaking disaster risk down according
to the frequency or probability of occurrence of hazard events and associated levels of loss.
Risk reduction is often the most cost-efective way to address high-probability, low-impact
hazard events and can also yield signi?cant returns by reducing risks associated with lower-
probability, higher-impact events.
22
Risk reduction is also essential in ensuring that buildings
and other engineering structures are built to life safety standards. A range of other ?nancing
20
Intergovernmental Panel on Climate Change (IPCC). 2012. Managing the Risks of Extreme Events and
Disasters to Advance Climate Change Adaptation: A Special Report of Working Groups I and II of the
Intergovernmental Panel on Climate Change. Geneva.
21
ADB. 2013. Environment Operational Directions, 2013–2020: Promoting Transitions to Green Growth in Asia
and the Paci?c. Manila.
22
For instance, cost–bene?t analyses of a statistical sample of 5,500 United States Federal Emergency
Management Agency (FEMA) mitigation grants between 1993 and 2003 for earthquake, ?ood, and wind
hazards, including projects focusing on retro?tting, structural mitigation, public awareness and education,
and building codes, yielded an overall bene?t-to-cost ratio of 4.0. The ratio varied from 1.5 for earthquake
mitigation to 5.1 for ?ood mitigation. (See A. Rose et al. 2007. Bene?t–Cost Analysis of FEMA Hazard
Mitigation Grants. Natural Hazards Review 8(4): 97–111.)
The operational plan
addresses three key
requirements:
to integrate disaster
risk reduction
into development,
to address the
intersection
between disaster
risk management
and climate change
adaptation, and to
ensure that there is
adequate ?nancing to
reduce, manage, and
transfer risk
II.?Directions 9
instruments can then be applied to the remaining layers of risk, selecting the most appropriate
option on the basis of a range of factors including the scale of funding required for each layer
of loss, the speed with which disbursement is required, and the relative cost-efectiveness
of alternative instruments for speci?c layers of risk. The instruments include indemnity and
parametric insurance tools, including property, crop, business interruption, and sovereign
cover; contingency reserves; contingent loans; catastrophe bonds; and other alternative risk
transfer instruments. ADB has provided ?nancial support both for risk reduction and for post-
disaster recovery and reconstruction support, including through emergency assistance loans
with abbreviated processing requirements. However, ADB’s support for the development of
comprehensive DRF strategies and for ex ante instruments for post-disaster response—that
is, instruments that are put in place before a disaster occurs—is far more recent. To date,
much of the latter has focused on technical assistance in support of product scoping and the
development and implementation of pilot projects.
Disaster response—encompassing support for post-disaster relief, early recovery, and
reconstruction—will remain a central aspect of ADB’s IDRM engagement. It will be addressed
through the three principles enshrined in the IDRM approach. Disaster response actions will
be designed to strengthen resilience to future hazard events, taking into account both current
and possible future forms and levels of disaster risk. ADB will also support enhanced access to
cost-efective, timely, and sufcient resources for disaster, assisting DMCs to limit the indirect
social and economic consequences of disaster events.
C.? Implementing ADB’s Integrated Disaster Risk Management
Approach
Actions and measures driving progress under each of the three requirements of the IDRM
approach fall under four crosscutting areas: institutionalizing IDRM, capacity development and
knowledge solutions, investing in resilience, and stakeholder engagement. They include steps to
strengthen IDRM both within ADB’s own areas of work and to promote disaster resilience more
widely by building partnerships, leveraging additional ?nancial resources, sharing knowledge,
and strengthening the enabling environment for IDRM (Table 1).
1.?Institutionalizing Integrated Disaster Risk Management
Tools and guidance materials will be developed to strengthen the integration of IDRM into
ADB’s core business processes. ADB already addresses disaster risk in a number of CPSs
and embeds DRM considerations in a wide range of development projects. However, further
institutionalization of IDRM is required, providing a strong underpinning for a sustained
strategic, systematic approach to the issue. To achieve this, guidance will be prepared on
the incorporation of disaster and climate risk concerns into the sector and thematic work
undertaken during CPS preparation. ADB will also enhance existing disaster and climate change
risk project screening tools to ensure they include adequate coverage of disaster risk and will
apply these tools more consistently. The application of these enhanced guidance note and
screening instruments will also create opportunities for dialogue on IDRM with governments,
potentially leading to increased demand for IDRM projects and indirectly encouraging and
supporting the institutionalization of IDRM in DMCs’ own business processes.
Country partnership strategy disaster and climate risk sensitization. Guidance on the
consideration and treatment of disaster risk will be built into the existing guidance materials on
sector and thematic assessments in use by each regional department during the preparation
Tools and guidance
materials will
be developed to
strengthen the
integration of IDRM
into ADB’s core
business processes
10 Operational Plan for Integrated Disaster Risk Management 2014–2020
of CPSs and regional strategic equivalents for the Paci?c. The CPS preparation process ofers
the opportunity to address disaster risk in a strategic and coordinated manner, ?ne-tuned to
individual country disaster risk pro?les, government priorities, the speci?c areas of focus and
goals of the CPS, ADB’s comparative strengths in IDRM, and other planned and ongoing DRM
initiatives. A background guidance note on securing and utilizing disaster risk data will also
be developed and periodically updated, drawing on open-source online materials that can be
readily accessed. CPSs for countries that have received post-disaster support from ADB in the
past 10 years will automatically be expected to consider disaster risk in the preparation of CPSs.
Systematic consideration of disaster risk as part of the CPS preparation process may in?uence
decisions regarding priority areas of focus. However, just as importantly, disaster risk sensitization
is intended to help ensure that all ADB investments are disaster resilient, whether or not IDRM
is selected as a priority area of focus.
Table 1:?Implementing the Integrated Disaster Risk Management Approach
through Crosscutting Actions
Outcome: Strengthened resilience
Reduced disaster risk
in the immediate and long
term
Enhanced residual risk
management for efective
disaster response
Institutionalizing IDRM
CPS disaster and climate risk
sensitization
x x
Disaster and climate risk project
screening tool
x
Capacity development and knowledge solutions
DMC IDRM mainstreaming capabilities x x
IDRM-related public goods and
services
x x
Informal ADB IDRM network x x
IDRM CoP representation x x
Training and workshops x x
Knowledge products x x
Investments in disaster resilience
Disaster risk reduction x
Post-disaster assistance x x
DRF instruments x x
Stakeholder engagement
Partnerships x x
Private sector engagement in IDRM x x
Financial resource leverage x x
ADB = Asian Development Bank, CoP = community of practice, CPS = country partnership strategy, DMC = developing
member country, DRF = disaster risk ?nancing, IDRM = integrated disaster risk management.
Source: Asian Development Bank.
II.?Directions 11
Capacity
development and
knowledge solutions
are required to
support the sustained
integration of
IDRM into DMC
development policy
and practice and
ADB operations
Disaster and climate risk project screening tools. In parallel, ADB will develop disaster and
climate risk screening tools for use in project design. These tools are intended to help ensure
that individual ADB investments are adequately protected against natural hazards and that
they do not create new forms of disaster risk or exacerbate existing ones. They are intended to
promote a systematic approach to the analysis of disaster and climate risk at the project level
and to strengthen ADB’s accountability to DMCs for its actions.
An abbreviated version of the existing disaster and climate risk screening tool for project
processing, which is already in use in some countries, will be used for ?rst-level screening.
A checklist for initial climate risk screening based on this screening tool is already under
development, for use in conjunction with the environmental categorization process. The
checklist will be expanded to include disaster risk. A second-level screening tool will then be
developed for projects for which signi?cant disaster and climate risk is indicated according
to the preliminary screening. Existing climate risk screening tools will be adapted for this
purpose. Resources will also be developed to understand the implications of the results of the
project screening analysis and to support the identi?cation of appropriate actions to deal with
unacceptable levels of disaster and climate risk. A pilot project quality-at-entry indicator on
climate change could also be extended to include disaster risk.
2.?Capacity Development and Knowledge Solutions
Signi?cant progress in the area of capacity development and knowledge solutions is required
to support the sustained integration of IDRM into DMC development policy and practice and
ADB operations. As Strategy 2020 observes, knowledge is a powerful catalyst for propelling
development forward and enhancing its efects. ADB will focus on six actions to promote
capacity development and knowledge solutions: strengthened DMC capacity for the integration
of IDRM into development plans, regulatory and legislative frameworks, and budgetary
processes; the development of IDRM-related public goods and services; the establishment of
an informal network of ADB staf working on IDRM actions and initiatives; strengthened IDRM
representation across communities of practice (CoPs); continued provision of IDRM training
for ADB staf; and the development of knowledge products. In line with Strategy 2020’s wider
vision for knowledge solutions, these actions will help put the potential of IDRM knowledge
solutions to work in Asia and the Paci?c.
Integrated disaster risk management mainstreaming capabilities of developing member
countries. DMC capabilities for mainstreaming IDRM considerations into national, subnational,
and local development plans, regulatory and legislative frameworks, and budgetary processes and
for establishing related incentives will continue to be strengthened through ADB’s operational
work and the development of knowledge products. Actions will include measures to strengthen
DRF understanding and know-how, supporting eforts to integrate disaster risk into public
?nancial management. ADB is already strengthening IDRM capabilities in a number of DMCs
through, for instance, the multi-donor Pilot Program for Climate Resilience and recent support
for the development of a series of DRM practitioner handbooks. Activities to strengthen
mainstreaming capacity will complement eforts under the Environment Operational Directions,
2013–2020 to integrate environment and climate change considerations into regional, national,
and local development plans and actions. Related eforts under both operational plans will be
closely coordinated to maximize synergies and pursue joint goals.
The goals and objectives laid out in a national development plan drive the focus of public
interventions over the life of that plan. The inclusion of disaster risk concerns in these goals
12 Operational Plan for Integrated Disaster Risk Management 2014–2020
and objectives is therefore critical in strengthening resilience. Regulatory and legislative
frameworks play a vital role in stimulating investment in disaster resilience. Budgetary processes
are essential in ensuring sufcient ?nancing for efective DRM and an appropriate balance of
resource allocations for risk reduction and post-disaster response. Both regulatory frameworks
and ?scal instruments can also be applied to incentivize investments in disaster resilience.
Integrated disaster risk management-related public goods and services. ADB will
continue to support the development of regional and national public goods and services in
support of enhanced IDRM, including through the application of state-of-the-art technology
and know-how. Particular emphasis will remain on disaster risk assessment, supporting
initiatives to examine levels of risk, to map and quantify risk, to develop related climate change
scenarios, and to make this information widely available. Robust information of this nature is
critical in developing sound IDRM solutions, such as risk-sensitive land-use planning, trans-
boundary water resource management, and risk transfer products. ADB will also promote the
application of state-of-the-art space-based and information and communication technology
such as remote sensing and geographical information systems both for disaster risk assessment
and early warning systems. This technology ofers enormous potential to enhance the quality of
IDRM interventions. ADB staf expertise will be developed to support the procurement of these
types of technology and their absorption into ADB projects to support strengthened resilience.
ADB has already engaged in relevant activities such as the Paci?c Catastrophe Risk Assessment
and Financing Initiative, under which it has supported catastrophe risk modeling. It is also
working closely with agencies such as the Japan Aerospace Exploration Agency to draw on
technology and will continue to develop partnerships with space, climate, and other scienti?c
and technological agencies to support its IDRM work.
Informal ADB integrated disaster risk management network. An informal IDRM network
will be established to exchange knowledge and experience around IDRM, to identify and
promulgate good practice, to build on innovation, and to extend ADB’s body of advocates for
the integration of DRM into ADB’s core areas of business. This network will enable ADB to
utilize, channel, and institutionalize its IDRM knowledge and experience more systematically.
ADB staf currently working on IDRM projects and related initiatives, including post-disaster
response, will be encouraged to join the network. Through the activities of the network,
members’ interest in and understanding of IDRM will be strengthened. This is intended to
lead to their sustained commitment to IDRM, beyond the life of their existing IDRM activities,
and to their enhanced capabilities to identify IDRM opportunities and to implement related
activities with a high degree of success.
The network is being established in part in recognition of the fact that eforts over a number
of years to create disaster focal points in resident missions for high disaster risk DMCs and in
regional departments, as laid out in the 2004 DEAP and 2008 DEAP Action Plan, have achieved
limited success. Existing focal points will be maintained and technically supported by the
Regional and Sustainable Development Department. Eforts to encourage the establishment
of additional focal points will also be continued. However, the network provides a pragmatic
parallel approach, providing a mechanism for strengthening IDRM capacity within ADB and
creating a greater appetite for more formal arrangements.
Integrated disaster risk management communities of practice representation. IDRM
representation will be strengthened as a crosscutting issue across all CoPs. The parameters of
this engagement will be determined in consultation with the CoPs. Strengthened representation
Robust disaster
risk assessments
are critical in
developing
sound IDRM
solutions
II.?Directions 13
will provide an additional mechanism for strengthening ADB staf IDRM knowledge and
capabilities.
IDRM is relevant to all CoPs as they each cover areas that are potentially vulnerable to natural
hazards and/or through which IDRM can be mainstreamed. However, it is impractical for
ADB’s limited DRM staf to be members of all CoPs. An alternative solution will therefore be
determined and implemented, possibly drawing representatives of each CoP into a crosscutting
group focusing on resilience from a range of diferent perspectives. Disaster resilience would
form one aspect of resilience in this forum. A focal point from each CoP could also become a
member of the informal IDRM network.
The existing DRF Working Group under the Financial Sector Development CoP will also become
more proactive. This working group was created in 2012, drawing together ADB staf with
expertise in ?nance across a range of departments. It focuses speci?cally on the development
of DRF instruments and support for DMCs in establishing comprehensive DRF strategies, a new
and innovative aspect of ADB’s engagement in IDRM warranting particular internal focus and
collaboration. The working group will expand its membership, in particular to include additional
regional department membership; meet on a regular quarterly basis to share project updates
and review progress and lessons learned; and strengthen its information-sharing functions,
including through the creation of a repository of information on ADB DRF initiatives.
Training and workshops. ADB will run periodic staf capacity development workshops on
IDRM. These workshops will be participatory, encouraging the exchange of knowledge and
experience among participants, as well as the more formal delivery of materials and information.
The workshops will play a key role in the establishment and strengthening of the informal IDRM
network and in strengthening and maintaining the DRM skill sets of ADB staf included in the
new disaster response team database.
ADB will also continue to arrange periodic training on post-disaster needs assessment (PDNA)
methodologies for operational staf. Some of this training may be conducted jointly with
subregional, regional, or international partners, echoing the typically collaborative, multi-agency
approach to PDNAs and providing an opportunity for ADB staf to engage with counterparts in
other agencies that they may encounter again in an emergency context.
In addition, ADB will continue to embed IDRM components in other relevant sector and
thematic ADB staf training courses. This approach has been applied since 2009 and has
included, for example, the insertion of DRM components in climate change workshops. By its
very nature, this approach emphasizes the crosscutting nature of IDRM. It also allows ADB to
sensitize a larger number of its staf to the opportunities for strengthening disaster resilience
and to the perils in ignoring disaster risk. ADB will continue to hold periodic seminars and brown
bag sessions on issues around IDRM as well.
Knowledge products. ADB will prepare knowledge products to capture its own considerable
practical experience in many aspects of IDRM, including both DRR and post-disaster response,
and to document innovative solutions and lessons learned. The knowledge products will
also draw upon experience from elsewhere, both within and beyond Asia and the Paci?c and
including civil society organization and community-based experience. These products will be
shared both internally and with governments and other DRM stakeholders to support learning
and good practice and to disseminate ADB’s considerable expertise in this area. Knowledge
products will include guidance on addressing the integration of climate change considerations
into IDRM projects and vice versa.
ADB will focus on
three speci?c areas
of investment:
disaster risk
reduction, post-
disaster assistance,
and disaster risk
?nancing
14 Operational Plan for Integrated Disaster Risk Management 2014–2020
3.?Investments in Disaster and Climate Resilience
Progress against each of the three requirements of the IDRM approach will be supported
through continued investment in disaster and climate resilience projects. ADB will focus
on three speci?c areas of investment: DRR, post-disaster assistance, and DRF. The IDRM
Operational Plan does not set an annual target for investment in DRM because requests for
post-disaster assistance ?uctuate signi?cantly between years, depending on the timing and
severity of individual disaster events.
Disaster risk reduction. ADB will continue to invest in local, national, subregional, and regional
disaster and climate risk reduction initiatives, building on its strengthened IDRM capacity and
greater institutionalization of IDRM in ADB business processes. It will support both structural
and nonstructural, and both stand-alone and embedded, actions. These will include the
incorporation of cost-efective measures to strengthen resilience in engineering design and
actions to strengthen disaster resilience as part of ADB’s post-disaster assistance. In doing
so, and in line with the Environment Operational Directions, 2013–2020, ADB will explore
the underlying causes of vulnerability, seeking to address the causal roots where these can be
accommodated within the scope of a project. This emphasis complements that highlighted
in the Water Operational Plan 2011–2020, which encourages a more comprehensive DRM
approach, addressing hazards, community needs (social, economic, environmental), and
vulnerabilities.
23
ADB will place particular emphasis on innovation in IDRM, including through the implementation
of pilot projects. It will encourage “no regrets” strategies and approaches, pursuing IDRM
measures that are justi?ed on the basis of current economic, social, and environmental costs,
bene?ts, and levels and forms of disaster risk but that also support future disaster resilience,
without requiring any certainty of knowledge about the frequency or intensity of future hazard
events. In addition, ADB will seek to avoid the creation of new risk in its other development
investments.
ADB will encourage DMCs to utilize the opportunities presented by disaster events to
strengthen resilience, in part through example by “building back better.” Via its engagement
in the International Recovery Platform,
24
it will also support the development of pre-disaster
recovery planning methodologies and applications. These tools will allow governments to
develop strategies to improve recovery outcomes and exploit opportunities to upgrade
infrastructure and technologies in the event of disasters, propelling them toward higher growth.
Post-disaster assistance. ADB will continue to explore measures to enhance the quality and
scope of its post-disaster assistance, supporting a more timely and cost-efective government-
led response, reducing the need for reprogramming of resources, and including speci?c
measures to address the immediate and long-term needs of women and girls. Post-disaster
assistance is expected to remain an important area of operation for ADB over the medium term
re?ecting the trend of rising disaster losses. However, actual levels of assistance provided in any
single year will depend on the timing, intensity, and location of individual natural hazard events.
23
ADB. 2011. Water Operational Plan 2011–2020. Manila.
24
The International Recovery Platform (IRP) is a thematic platform of the United Nations
International Strategy for Disaster Reduction system which seeks to identify gaps and
constraints in disaster recovery and to serve as a catalyst for the development of tools, resources
and capacity for resilient recovery. ADB has been working with the IRP since 2008 and has
been a member of the IRP Steering Committee since 2012.
II.?Directions 15
The Staf Instructions on Emergency Assistance Loans will help support the more timely
provision of emergency assistance loans (EALs) by providing greater clarity on related
procedures. The recent response to Typhoon Yolanda in the Philippines has demonstrated how
the One ADB approach can achieve impressive results, resulting in the approval of an EAL in
just 4 weeks. This approach will also be applied in processing future EALs. ADB will continue
to participate in government-led post-disaster damage and loss assessments, strengthening
opportunities to ensure that the nature and levels of ADB assistance are carefully aligned with
wider response programs and address priority reconstruction needs. A disaster response team
database detailing ADB staf with experience in the preparation of post-disaster assistance,
including EALs, and in damage and loss assessments will be established from which One ADB
post-disaster response teams can quickly be built in the event of a disaster. Related skills
assessments will be undertaken to ensure that there is comprehensive coverage of potential
sector specialist requirements. Training will be provided to maintain disaster response skills,
including PDNA capabilities.
To enhance access to ADB resources for disaster response, ADB will continue to pilot the Asian
Development Fund Disaster Response Facility (ADF-DRF) at least until 2016. The ADF-DRF
was introduced under ADF XI (2013–2016) to support increased access to ADB ?nancing
in the event of a disaster and to reduce the need for reprogramming.
25
Possible options for
replenishment of the Asia Paci?c Disaster Response Fund (APDRF) will be explored following
a review of performance under the ?rst $40 million tranche of funding.
26
The APDRF provides
near-immediate liquidity in the aftermath of a disaster to help governments meet urgent life-
saving emergency response needs. It has been highly valued by recipient governments.
Disaster risk ?nancing instruments. ADB will continue to support the development of DRF
instruments and wider DRF strategies for households, businesses, and governments, enhancing
the public and private ?nancial management of residual disaster risk. Many DMCs require
support to strengthen their DRF capabilities, overcoming both demand and supply constraints
to higher penetration. ADB has comparative strengths in the ?nance sector, making DRF a
logical area of engagement for ADB and a particular niche area for it within the wider ?eld of
DRM. DRF also presents opportunities for considerable leverage of resources.
This support will be designed to (i) help facilitate timely recovery and reconstruction eforts,
complementing ADB’s post-disaster assistance instruments by providing additional injections
of liquidity in the aftermath of a disaster; (ii) encourage the development of optimal bundles
of DRF instruments, re?ecting the opportunity costs associated with various options as well as
considerations relating to the scale of funding required and timeliness of fund disbursement;
(iii) help spread the public and private costs of recovery and reconstruction over time;
(iv) incentivize investments in DRR through risk-based premium pricing and similar mechanisms;
and (v) encourage income-enhancing, rather than risk-averting, livelihood decisions. Evidence
from elsewhere, most notably from Mexico, demonstrates how governments can establish
comprehensive DRF mechanisms for the rapid post-disaster rehabilitation of federal and
state infrastructure, supporting efective post-disaster intervention and stimulating greater
investment in DRR.
25
The ADF-DRF contains 3% of the performance-based allocation from the ADF pool. In the event of a
disaster caused by a natural hazard, an ADF-only country can get up to 100% of its annual performance-
based allocation (PBA) from the Disaster Response Facility to respond to the disaster, without afecting its
allocation for other operations from the remaining PBA. A blend country afected by a disaster can receive
up to 3% of its annual PBA from the Disaster Response Facility.
26
The APDRF was established with an initial contribution of $40 million transferred from uncommitted resources
of the Asian Tsunami Fund. Total uncommitted resources stood at $4.5 million as of 31 December 2013.
16 Operational Plan for Integrated Disaster Risk Management 2014–2020
Successful
IDRM requires
coordination and
collaboration across
a wide range of
public and private
stakeholders,
sectors and
disciplines,
countries facing
common disaster
risk, and countries
linked through
international trade
and supply chains
ADB has begun to lay the foundations for its work on DRF through the development of
knowledge products and the implementation of several technical assistance projects. These
include the development of a public–private earthquake insurance entity in the Philippines
covering middle class and medium-sized enterprise property owners; the development of city-
level DRF options and related ?nancial literacy in Indonesia, the Philippines, and Viet Nam; and
the development of public and private DRF capacity in Bangladesh. ADB is also supporting
several pilot index-based crop insurance schemes in Bangladesh, Cambodia, and Viet Nam.
ADB will continue to support the development of innovative DRF solutions, working in close
cooperation with the private sector to develop commercially viable, scaled-up products.
However, it will rationalize its essentially piecemeal approach to date through the development
of an approach paper placing support for individual solutions in the context of a broad road
map. This road map will include clearly identi?ed goals and objectives and will present a broad
path to their achievement, linking individual initiatives together with additional actions to aid
scaling up and the broader development of stable, solvent risk transfer markets and efcient
access to global risk markets. These additional actions will include measures to strengthen the
institutional structures and legal and regulatory frameworks for DRF in DMCs. Attention will be
paid to middle- as well as lower-income DMCs, re?ecting the likely greater capability to aford
market-based solutions in these countries. ADB will also support the development of tool
kits for the analysis of DRF alternatives, supporting wider rationalization of the selection and
layering of DRF alternatives and the establishment of optimal bundles of instruments ofsetting
household, business, and government disaster risk.
ADB will document and draw on experience and lessons learned, including by development
partners, in its DRF work, furthering the strategic development of ADB’s program of work in this
relatively new area of business.
4.?Stakeholder Engagement
Successful IDRM requires coordination and collaboration across a wide range of public and
private stakeholders; across a wide range of sectors and disciplines; across countries facing
common disaster risk, such as shared earthquake fault lines or river systems; and across
countries linked through international trade and supply chains. ADB will support strengthened
coordination and collaboration through the development of partnerships and the promotion of
private sector involvement in IDRM. It will also seek to mobilize public and private resources for
IDRM through these channels.
Partnerships. Strategy 2020 places particular weight on the role of partnerships in the area of
DRM. ADB will continue to develop relationships with key regional and international agencies,
subregional, and regional associations and institutions, national and subnational government
agencies, civil society organizations, and bilateral donors working on IDRM. In particular,
ADB will focus on (i) regional and subregional organizations through which ADB can leverage
greater government understanding and commitment to IDRM, including those subregional
organizations for which ADB provides secretariat support; (ii) national partnerships, for
instance through government and multi-donor consortiums along the lines of the Nepal Risk
Reduction Consortium;
27
and (iii) agencies and institutions with speci?c technical interests
27
The Nepal Risk Reduction Consortium brings together humanitarian and development partners in
partnership with the Government of Nepal to reduce Nepal’s vulnerability to disasters. ADB is one of the
founding members of the consortium and is coleading one of ?ve ?agship projects, focusing on hospital and
school safety.
II.?Directions 17
that complement and leverage ADB’s own areas of expertise, such as space, climate, and other
scienti?c and technological agencies, as already noted. ADB will also continue to be actively
involved in a variety of global and regional disaster-related platforms, including the International
Recovery Platform, the International Strategy for Disaster Reduction Asia Partnership, and the
Asia-Paci?c Water Forum.
ADB will also strengthen its bilateral national and subnational partnerships with DMC
governments through its engagement with government agencies in the design and
implementation of individual IDRM projects. Through these partnerships, ADB will seek
to foster a long-term commitment to IDRM, helping to ensure that the bene?ts of ADB’s
IDRM investments are sustainable and to leverage these investments through subsequent
government-supported replication and scaling up and more general enhanced government
interest in IDRM.
To support the development of its portfolio of work on DRF, ADB will seek collaboration with
other development partners working on this emerging topic. Related activities could include
joint capacity development initiatives, such as the joint development and implementation of
standardized methodologies and tools for ?nancial disaster risk assessment and management.
Private sector engagement in integrated disaster risk management. ADB will promote
greater private sector engagement in innovative IDRM solutions and encourage and support
strengthened disaster resilience of the private sector. Greater private sector engagement in
IDRM is essential to help meet the funding gap for DRM, to share and spread post-disaster
relief, recovery, and reconstruction costs, and to ensure that all infrastructure constructed by
the private sector is disaster resilient. The private sector will play a signi?cant role in meeting
the region’s huge and increasing infrastructure investment and ?nancial institution needs over
the next few decades and a vision of disaster resilience is unrealistic without private sector
engagement.
Activities will align with the Public–Private Partnership Operational Plan 2012–2020.
28
ADB will support the strengthening of the overall enabling environment for public–private
partnerships (PPPs) in IDRM, for example supporting regulatory change. It will provide
guarantees and ?nancing, for instance to ?nancial institutions in support of post-disaster
housing reconstruction and capital for afected businesses. It will encourage the development
of DRF products, continuing some preliminary work already under way. For example, ADB is
already supporting the identi?cation and design of city-level DRF solutions through technical
assistance support and a next logical step could be to develop products supporting the uptake
of DRF solutions by high disaster risk cities. There are also potential opportunities for greater
private sector engagement in other aspects of DRM, such as in technological innovation to
enhance the disaster resilience of infrastructure and in income-generating investments that
could indirectly reduce disaster risk. In an agricultural context, for example, market drip irrigation
and hydroponic cultivation systems could be marketed in drought-prone areas. In the Paci?c,
where the majority of infrastructure services are provided by state-owned enterprises, greater
engagement by such enterprises in strengthening resilience will also be sought.
Financial resource leverage. ADB will seek to mobilize additional public and private resources
for IDRM through the use of commercial co?nancing products, including guarantees, loan
syndications, and risk transfer arrangements (e.g., insurance, reinsurance, unfunded risk
participations), and through an expansion of existing IDRM ?nancing partnership facilities.
28
ADB. 2012. Public–Private Partnership Operational Plan 2012–2020. Manila.
18 Operational Plan for Integrated Disaster Risk Management 2014–2020
Financing partnership facilities provide operational mechanisms for strategic, long-term, multi-
partner cooperation, linking various forms of assistance in a coordinated manner for a well-
de?ned purpose. In accordance with its Finance++ approach, ADB will combine the ?nancial
resources raised through partnerships together with ADB’s own ?nance and with knowledge
solutions to leverage the impact of its operations.
An existing IDRM ?nancing partnership is being supported by the Government of Canada
through the Integrated Disaster Risk Management Fund.
29
This fund came into efect in 2013,
providing Can$10 million ($9.5 million) over the period 2013–2017 for DRR and DRF projects in
seven Southeast Asian DMCs. The fund supports the development of synergies across actions
to satisfy the three requirements of the IDRM approach and places particular emphasis on
regional solutions, supporting cross-fertilization of ideas across countries and the development
of initiatives to address shared IDRM challenges. ADB will seek to attract additional IDRM trust
funds, taking advantage of increasing donor interest in DRM. ADB will also continue to support
IDRM through other trust fund arrangements, including the Water Financing Partnership
Facility and the Urban Climate Change Resilience Trust Fund.
30
D.?Crossovers with Other Development Challenges
The IDRM Operational Plan recognizes signi?cant synergies between actions to support disaster
resilience and poverty reduction. Poverty and vulnerability to natural hazards are closely linked
and mutually reinforcing. Disasters are a source of hardship and distress, potentially forcing
the near-poor temporarily below the poverty line and contributing to more persistent, chronic
poverty. The poor, in turn, are among the most vulnerable to natural hazards. For instance, they
are more likely to live in substandard structures in hazard-prone areas; face uncertain land
ownership rights, reducing incentives to manage risk; and depend on vulnerable livelihoods, for
example in agriculture and informal urban labor markets. Poverty can be further reinforced by
deliberate risk-averting livelihood choices such as a preference for traditional, lower-yielding
crop varieties because they are more hazard tolerant.
However, if carefully designed, eforts to reduce poverty and strengthen resilience are also
complementary. ADB will therefore pay particular regard to the needs of the poor and near-
poor in its IDRM interventions, in line with intended actions under the Social Protection
Operational Plan 2014?2020
31
to strengthen social protection’s role in DRM and climate
change adaptation and to encourage the development of disaster insurance products for the
poor. At a more strategic level, the disaster and climate risk CPS screening framework will allow
country teams to explore the potential impacts of disaster risk on the poor and support the
integration of disaster resilience actions into CPSs.
There are also more speci?c crossovers between actions to strengthen disaster resilience and
to strengthen gender equality, food and water security, and urban resilience, and to address the
particular needs of fragile and con?ict-afected situations. In implementing its IDRM approach,
ADB will seek to capture these synergies:
• ADB will give close attention to the integration of gender-sensitive considerations in
29
ADB. 2013. The Integrated Disaster Risk Management Fund. Manila.
30
The Water Financing Partnership Facility is supported by Australia, Austria, the Netherlands, Norway,
Spain, and Switzerland. The Urban Climate Change Resilience Trust Fund is supported by the United
Kingdom and the Rockefeller Foundation.
31
ADB. 2013. Social Protection Operational Plan 2014?2020. Manila.
If carefully
designed, eforts
to reduce poverty
and strengthen
disaster
resilience are
complementary
II.?Directions 19
disaster response, in line with Gender Equality and Women’s Empowerment Operational
Plan, 2013–2020: Moving the Agenda Forward in Asia and the Paci?c.
32
Gender-based
diferences in vulnerability and women’s priorities will also be taken into account in the
design of DRR interventions and in IDRM knowledge products and capacity development
initiatives. In all of these activities, women will be recognized as change agents in
strengthening disaster resilience, rather than as passive victims.
• ADB will support initiatives to tackle the impacts of natural hazards on food security,
in keeping with the Operational Plan for the Agriculture and Natural Resources Sector:
Promoting Food Security in Asia and the Paci?c in 2014–2020.
• ADB will continue to support water-related DRM actions as a key component of its
integrated water resource management investments to strengthen water security, in line
with the Water Operational Plan, 2011–2020.
• ADB will continue to support actions to strengthen disaster risk as part of its wider eforts
to strengthen urban resilience, in keeping with the Urban Operational Plan 2012–2020
33
and in recognition of the fact that a considerable share of urban expansion is occurring in
hazard-prone areas.
• ADB will pay careful attention to the diferentiated, often exacerbated, IDRM needs of
countries in fragile and con?ict-afected situations, contributing to their wider recovery as
supported through the Operational Plan for Enhancing ADB’s Efectiveness in Fragile and
Con?ict-Afected Situations.
32
ADB. 2013. Gender Equality and Women’s Empowerment Operational Plan, 2013–2020: Moving the Agenda
Forward in Asia and the Paci?c. Manila.
33
ADB. 2012. Urban Operational Plan 2012–2020. Manila.
20
III. Implementation Plan
Assignment of key responsibilities. The IDRM Operational Plan extends from 2014 to 2020.
The responsibility for implementation rests primarily with operational departments and the
Regional and Sustainable Development Department (RSDD). Other support departments
will also share some responsibility, where relevant. Operational departments will take primary
responsibility for operational aspects, including the integration of IDRM into CPSs in high-
risk countries and into the design, implementation, and monitoring of disaster risk–sensitive
loan, grant, and technical assistance operations in high-risk areas. RSDD will continue to play
its existing role as central IDRM coordinator. It will ensure policy coherence, oversight, and
reporting; monitor ADB-wide implementation of the IDRM Operational Plan; provide technical
guidance and support to operations, including in post-disaster reconstruction; undertake
innovative IDRM pilot projects; and lead the development of screening tools and guidance
materials, broader IDRM capacity development, a review of the Disaster and Emergency
Assistance section of the Operations Manual, the establishment and functioning of the IDRM
network, the development of partnerships with other institutions, the mobilization of public and
private resources for IDRM, the promotion of IDRM PPPs, and the development of knowledge
products and services.
Skills mix and resource implications. The IDRM Operational Plan can be implemented
within the existing IDRM skills mix and stafng capacity of RSDD. However, the depth and
breadth of achievements under the plan would be signi?cantly enhanced should additional
DRM staf positions be created. ADB will explore opportunities to engage additional DRM
experts, including through externally funded staf positions.
It is assumed that no DRM specialist positions will be created in the regional departments.
However, the IDRM skill sets and capacity of existing operational department staf will be
strengthened over the duration of the IDRM Operational Plan, allowing them to engage in
DRM through their sector and thematic specialisms. Strong IDRM knowledge and capabilities
on the part of mission leaders will play a particularly key role in ensuring the plan’s successful
execution. Budgetary resources will be required for staf training and capacity development
purposes, including for IDRM staf capacity development workshops, PDNA training, and the
incorporation of DRM components into other ADB training. The informal IDRM network, which
will also strengthen skill sets and capacity, will be run utilizing existing staf capacity in RSDD.
The IDRM Operational Plan has been designed to have relatively limited budgetary
implications, re?ecting the realities of resource availability. It places considerable emphasis
on the integration of disaster risk concerns into other ADB investments, a measure that often
incurs relatively limited incremental cost and can generate high net bene?ts should a hazard
event subsequently occur. Both embedded and stand-alone IDRM actions will continue to
be ?nanced through ADB core funding, including project preparatory technical assistance,
loans, and grants. Resources will also be leveraged through public and private partnerships.
Opportunities to use other thematic funds available in ADB—for example, attached to water
security, climate change adaptation, urban development, governance, poverty reduction, and
regional economic integration—to strengthen disaster resilience will be proactively explored.
III.?Implementation Plan 21
Operational resources will be mobilized from technical assistance sources to develop the
disaster and climate risk project screening tool and CPS disaster and climate risk screening
materials. Additional resources will be required to incorporate the project screening tools into
ADB business processes from 2015. Capacity development will be ?nanced through existing
ADB knowledge-sharing resources. An allocation has already been secured from the Sector
and Thematic Skills Development budget administered by the Knowledge Sharing and Services
Center for the ?rst staf capacity development workshop, which was held in November 2013.
Dependent on the outcome of a review of the ?rst tranche of funding under the APDRF,
resources may also be required to replenish that fund.
22
IV. Monitoring and Reporting
The IDRM Operational Plan introduces ADB’s ?rst results framework for DRM. Performance
indicators, including baselines and targets, are presented in this framework (Appendix 1). These
indicators draw in part on indicators in ADB’s corporate results framework where appropriate,
adapted to provide a speci?c IDRM focus. RSDD will lead the annual collation of data to
measure progress against the IDRM results framework. It will continue to maintain its DRM
operations database to support it in this role. Operational departments will also provide data,
as requested by RSDD.
Once the CPS disaster and risk screening guidance materials are in place, additional indicators
will be added to the results framework relating to the proportion of CPSs for high disaster risk
countries that incorporate disaster risk diagnostics in their preparation; the proportion of CPSs
for high-risk countries that include analysis of the risk posed by disasters to CPS strategic
priorities; and the proportion of projects in high-risk countries that embed disaster resilience
measures or directly address disaster risk.
Annual accomplishment reports will be prepared detailing progress in implementation of the
IDRM Operational Plan. These reports will draw on the results framework and also include
additional information as relevant, including on gender-related results. The reports will provide
an assessment of implementation progress, key accomplishments to date, and an outlook,
including emerging opportunities. They will include recommendations on corrective actions
and on adjustments to desired outcomes, outputs, and results indicator targets, as appropriate.
The accomplishment reports will be prepared by RSDD. The reports will be endorsed by
the Director General, RSDD, approved by the Vice-President, Knowledge Management and
Sustainable Development, and submitted to Management, with copy to relevant departments
and ofces, in accordance with the staf instructions. The ?rst accomplishment report will be
prepared in the ?rst quarter of 2015. Subsequent annual reports will be due every 12 months
thereafter.
23
Appendix 1
IDRM Operational Plan Results Framework
Integrated Disaster Risk Management, 2014–2020
Indicators Baseline 2020 Target
1
I. DRM Progress in Asia and the Paci?c
Number of lives lost as a consequence of
2
• Climate-related hazards
• Geophysical hazards
19,300
16,000
Monitor
Monitor
Disaster losses as a proportion of total government expenditure
3
1.4% Monitor
II. ADB’s Contribution to DRM Results
Quality of completed sector operations
4
Completed stand-alone DRR loans and grants
5
• Rated successful or highly successful
• Rated likely sustainable
100%
67%
At least 80%
80%
Completed stand-alone DRF loans and grants
6
• Rated successful or highly successful
• Rated likely sustainable
-
-
At least 80%
80%
Completed embedded DRR loans and grants
• Rated successful or highly successful
• Rated likely sustainable
85%
73%
At least 80%
80%
Completed early recovery and reconstruction loans and grants
• Rated successful or highly successful
• Rated likely sustainable
• Showing intended gender equality results
89%
83%
88%
At least 80%
At least 80%
At least 70%
Completed stand-alone DRM TA projects
• Rated successful or highly successful 82% At least 80%
Outcomes
7
Disaster early recovery and reconstruction operation bene?ciaries
• % women and girls
To be determined
To be determined
Monitor
Monitor
Outputs
8
Roads built or upgraded that embed DRR 17% Increase
Land improved through irrigation, drainage, and/or ?ood management 43,215 hectares Monitor
continued on next page
24 Appendix 1
Table continued
continued on next page
Indicators Baseline 2020 Target
1
III. Operational Management of ADB’s DRM Program
Quality at entry
9
and during implementation
10
DMCs receiving post-disaster assistance in the previous 10 years that
have integrated disaster risk into the CPS
11
89% 100%
Quality-at-entry of stand-alone DRR loans and grants rated
satisfactory
100% At least 90%
Quality-at-entry of stand-alone early recovery and reconstruction
loans and grants rated satisfactory
100% At least 90%
Average length of time to process emergency assistance loans 186 days
12
12 weeks
13
Stand-alone DRR loans and grants rated satisfactory during
implementation
100% At least 85%
Embedded DRR loans and grants rated satisfactory during
implementation
96% At least 85%
Early recovery and reconstruction loans and grants rated satisfactory
during implementation
93% At least 85%
Strategic focus
Proportion of proposed/pipelined ADB operations aligned with operational plan directions
14
Early recovery and reconstruction operations building back safer
15
69% 80%
Climate change adaptation loans and grants that address risk from
climate extremes as a share of total climate change adaptation loans
and grants
16
73% Monitor
Climate change adaptation TA that addresses risk from climate
extremes as a share of total climate change adaptation TA
16
67% Monitor
Approaches and modalities
Stand-alone and embedded TA focusing on IDRM as a share of total
number of TA projects approved
17
12% Monitor
Number of DRF loans, grants, and TA approved
18
2 Increase
IV. Organizational Management of ADB’s DRM Program
Human Resources
• Informal network of ADB staf with interest in IDRM established by 2014
• Capacity and role of the DRF Working Group under Financial Sector Development Community
of Practice further strengthened by 2014
• Staf training and capacity development on IDRM implemented on a continuing basis over
the life of the Operational Plan for Integrated Disaster Risk Management, 2014–2020 (IDRM
Operational Plan)
Budgetary Resources
• $525,000 for staf training and capacity development ($75,000 x 7 years)
19
• $105,000 for undertaking disaster and climate risk project screening as part of the business
process from 2015 ($500 x 35 projects x 6 years)
20
25 IDRM Operational Plan Results Framework
Indicators Baseline 2020 Target
1
• Business Processes and Practices
• Disaster and climate risk project screening tools in operational use by 2015
• CPS guidance materials in operational use by 2015
• IDRM Operational Plan launched and disseminated through ADB seminars and workshops by
2015
• Funds to develop the project disaster and climate risk screening tool and develop the CPS
disaster and climate risk guidance materials (approximately $500,000) mobilized from TA
sources by 2015
• Revisions to Disaster and Emergency Assistance Operations Manual completed by 2015
ADB = Asian Development Bank, CPS = country partnership strategy, DMC = developing member country, DRF = disaster
risk ?nancing, DRM = disaster risk management, DRR = disaster risk reduction, IDRM = integrated disaster risk management,
TA = technical assistance.
Notes:
1 Some baselines are based on projects that have achieved particularly high levels of performance. In such cases, a lower
minimum target has been set in accordance with broader ADB targets.
2 This is a 40-year average for Asia and the Paci?c over the period 1973–2012, rounded to the nearest 100.
3 This is a 10-year average for DMCs in 2003–2012, based on central government expenditure.
4 Baseline ?gures re?ect projects completed in 2009–2012.
5 Only ?ve stand-alone DRR loans and grants were completed between 2009 and 2012, of which three were rated.
6 There are no completed DRF loans or grants to date, but related indicators are included in the results framework because
DRF is intended to become an increasingly important area of business for ADB over the life of the IDRM Operational Plan.
7 Information on the number of bene?ciaries is not currently collected on a consistent basis. These data will be collected
in project completion reports for ongoing projects and in project papers for new loans, grants, and TA, including gender-
disaggregated ?gures. The baseline will be set for 2014 once the relevant ?gures are available.
8 Baseline ?gures re?ect projects completed in 2012.
9 Baseline project ?gures for quality-at-entry re?ect relevant projects out of a sample of 60 projects approved in 2010–2011
and used in the quality-at-entry assessment of ADB CPSs and projects. This sample includes only one stand-alone DRR
project and two early recovery and reconstruction projects.
10 Baseline project ?gures re?ect active projects as of 31 December 2012.
11 Criteria for assessing integration are under development. The baseline will be revised in accordance with these criteria
once they are available.
12 The baseline ?gure re?ects emergency assistance loans approved in 2009–2012 in response to natural hazards only.
13 A maximum processing time of 12 weeks is indicated in Operations Manual D7 Disaster and Emergency Assistance.
14 Targets for indicators relating to the percentage of projects that take disaster risk into account in their design have been set
as “monitor” because the scope for doing so will depend on the precise nature of individual loans, grants, and TA.
15 Baseline ?gures re?ect projects approved in 2009–2012.
16 Baseline ?gures re?ect projects approved in 2011 and 2012.
17 Baseline ?gures re?ect projects approved in 2012.
18 Baseline ?gures are based on a 3-year rolling average for 2010–2012. The target will also be measured on a 3-year rolling
basis.
19 The indicative budget requirement of $525,000 for staf training and capacity development will be met within the current
level of budgetary resources allocated for sector and thematic training being administered by the Knowledge Sharing and
Services Center, Regional and Sustainable Development Department.
20 Resources will not be required until the disaster and climate risk project screening tool is in place. The cost of applying the
disaster and climate risk project screening tool will be absorbed by operational departments.
Sources: Data are drawn from reports and recommendations of the President; project completion reports; gender database;
listing of loan, technical assistance, grant, and equity approvals database; Operations Services and Financial Management
Department; Strategy and Policy Department; and EM-DAT: The OFDA/CRED International Disaster Database, Université
Catholique de Louvain, Brussels.
OPERATIONAL PLAN FOR
INTEGRATED DISASTER
RISK MANAGEMENT
2014 - 2020
ASIAN DEVELOPMENT BANK
Operational Plan for Integrated Disaster Risk Management 2014–2020
The Operational Plan for Integrated Disaster Risk Management, 2014–2020 seeks to strengthen disaster
resilience in the developing member countries of the Asian Development Bank (ADB). The operational
plan has three key objectives toward this intended outcome: (i) to promote an integrated disaster risk
management approach in ADB’s operations, (ii) to strengthen ADB’s developing member country integrated
disaster risk management capabilities, knowledge, and resources, and (iii) to mobilize additional public and
private partnerships and resources for integrated disaster risk management.
The operational plan recognizes the importance of reducing disaster risk in both the immediate and long
term, taking the possible efects of climate change into account. It also highlights the urgent need to enhance
the management of residual disaster risk, including through the establishment of adequate disaster risk
?nancing arrangements. It outlines a series of crosscutting actions to address these needs, focusing on
institutionalizing integrated disaster risk management, strengthening capacity and knowledge, investing in
disaster resilience, and engaging stakeholders.
About the Asian Development Bank
ADB’s vision is an Asia and Paci?c region free of poverty. Its mission is to help its developing member
countries reduce poverty and improve the quality of life of their people. Despite the region’s many successes,
it remains home to approximately two-thirds of the world’s poor: 1.6 billion people who live on less than $2
a day, with 733 million struggling on less than $1.25 a day. ADB is committed to reducing poverty through
inclusive economic growth, environmentally sustainable growth, and regional integration.
Based in Manila, ADB is owned by 67 members, including 48 from the region. Its main instruments for
helping its developing member countries are policy dialogue, loans, equity investments, guarantees, grants,
and technical assistance.
ASIAN DEVELOPMENT BANK
6 ADB Avenue, Mandaluyong City
1550 Metro Manila. Philippines
www.adb.org
doc_225991575.pdf
The IDRM Operational Plan introduces an integrated approach. The IDRM approach is based on a vision of disaster resilience combined with three basic DRM principles: (i) many development actions carry potential disaster risk but also provide opportunities to strengthen resilience; (ii) DRM investments may underperform and ultimately even exacerbate disaster risk if climate change is ignored.
OPERATIONAL PLAN FOR
INTEGRATED DISASTER
RISK MANAGEMENT
2014–2020
ASIAN DEVELOPMENT BANK
Operational Plan for Integrated Disaster Risk Management 2014 - 2020
The Operational Plan for Integrated Disaster Risk Management, 2014–2020 seeks to strengthen disaster
resilience in the developing member countries of the Asian Development Bank (ADB). The operational
plan has three key objectives toward this intended outcome: (i) to promote an integrated disaster risk
management approach in ADB’s operations, (ii) to strengthen ADB’s developing member country integrated
disaster risk management capabilities, knowledge, and resources, and (iii) to mobilize additional public and
private partnerships and resources for integrated disaster risk management.
The operational plan recognizes the importance of reducing disaster risk in both the immediate and long
term, taking the possible efects of climate change into account. It also highlights the urgent need to enhance
the management of residual disaster risk, including through the establishment of adequate disaster risk
?nancing arrangements. It outlines a series of crosscutting actions to address these needs, focusing on
institutionalizing integrated disaster risk management, strengthening capacity and knowledge, investing in
disaster resilience, and engaging stakeholders.
About the Asian Development Bank
ADB’s vision is an Asia and Paci?c region free of poverty. Its mission is to help its developing member
countries reduce poverty and improve the quality of life of their people. Despite the region’s many successes,
it remains home to approximately two-thirds of the world’s poor: 1.6 billion people who live on less than $2
a day, with 733 million struggling on less than $1.25 a day. ADB is committed to reducing poverty through
inclusive economic growth, environmentally sustainable growth, and regional integration.
Based in Manila, ADB is owned by 67 members, including 48 from the region. Its main instruments for
helping its developing member countries are policy dialogue, loans, equity investments, guarantees, grants,
and technical assistance.
ASIAN DEVELOPMENT BANK
6 ADB Avenue, Mandaluyong City
1550 Metro Manila. Philippines
www.adb.org
ASIAN DEVELOPMENT BANK
OPERATIONAL PLAN FOR
INTEGRATED DISASTER
RISK MANAGEMENT
2014–2020
APRIL 2014
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Asian Development Bank.
Operational plan for integrated disaster risk management 2014–2020
Mandaluyong City, Philippines: Asian Development Bank, 2014.
1. Integrated disaster risk management. 2. Disaster risk ?nancing. 3. Resilience. 4. Asia and Paci?c
I. Asian Development Bank.
The views expressed in this publication are those of the authors and do not necessarily re?ect the views and policies of the
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ADB does not guarantee the accuracy of the data included in this publication and accepts no responsibility for any consequence of
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iii
Contents
Abbreviations iv
Executive Summary v
I. Rationale 1
A. Introduction 1
B. Challenges and Issues 2
C. ADB Practice and Experience 3
II. Directions 6
A. Outcome and Objectives 6
B. The Integrated Disaster Risk Management Approach 7
C. Implementing ADB’s Integrated Disaster Risk Management Approach 9
1. Institutionalizing Integrated Disaster Risk Management 9
2. Capacity Development and Knowledge Solutions 11
3. Investments in Disaster and Climate Resilience 14
4. Stakeholder Engagement 16
D. Crossovers with Other Development Challenges 18
III. Implementation Plan 20
IV. Monitoring and Reporting 22
Appendix 1: IDRM Operational Plan Results Framework 23
iv
Abbreviations
ADF
ADF-DRF
APDRF
CPS
DEAP
DMC
DRF
DRM
DRR
EAL
IDRM
PDNA
PPP
RSDD
–
–
–
–
–
–
–
–
–
–
–
–
–
–
Asian Development Fund
Asian Development Fund Disaster Response Facility
Asia Paci?c Disaster Response Fund
country partnership strategy
Disaster and Emergency Assistance Policy
developing member country
disaster risk ?nancing
disaster risk management
disaster risk reduction
emergency assistance loan
integrated disaster risk management
post-disaster needs assessment
public–private partnership
Regional and Sustainable Development Department
v
Disaster risk
presents one of
the most serious
threats to inclusive
sustainable
socioeconomic
development in
Asia and the Paci?c
Executive Summary
Strategy 2020 identi?es disaster and emergency assistance as one of the Asian Development
Bank’s (ADB) areas of operations, re?ecting the considerable challenges that natural hazards
pose to development in Asia and the Paci?c. The region is subject to all major types of natural
hazard and dominates disaster impact rankings, including with regard to loss of life. Direct
physical losses are increasing more rapidly than regional gross domestic product as both
exposure and vulnerability to natural hazards continue to grow. The intensity and, in some areas,
frequency of climatic extreme events is expected to increase with climate change, potentially
exacerbating this trend in future years. Disaster risk now presents one of the most serious
threats to inclusive sustainable socioeconomic development in Asia and the Paci?c and has a
particularly detrimental impact on the poorest members of society. Poverty and vulnerability to
natural hazards are closely linked and mutually reinforcing. Disasters are a source of hardship and
distress, potentially forcing the near-poor temporarily below the poverty line and contributing
to more persistent, chronic poverty. The poor, in turn, are among the most vulnerable to
natural hazards.
Between August 1987 and December 2013, ADB approved $19.5 billion for a total of 631 disaster
risk management (DRM) and DRM-related loans, grants, and technical assistance projects.
Just over a third of this assistance was provided for post-disaster response. ADB’s engagement
in this area has been guided by a succession of policies. The current policy, the 2004 Disaster
and Emergency Assistance Policy (DEAP), established three key objectives: (i) to strengthen
support for disaster risk reduction in developing member countries (DMCs), (ii) to provide
rehabilitation and reconstruction assistance following a disaster, and (iii) to leverage ADB’s
DRM activities by developing partnerships. A companion DEAP Action Plan was launched in
2008 to enhance the implementation of the DEAP. More recently, ADB has also ventured into
the relatively new area of disaster risk ?nancing.
The Operational Plan for Integrated Disaster Risk Management, 2014–2020 (hereafter IDRM
Operational Plan) builds on ADB’s signi?cant support for DRM and good performance in this
area, while remaining in alignment with the 2004 DEAP. It seeks to (i) promote an integrated
disaster risk management (IDRM) approach in ADB’s operations, supporting related products
and business processes to strengthen disaster resilience and enhance residual risk management
and encouraging a more coordinated, systematic approach to DRM; (ii) further strengthen
DMC IDRM capabilities, knowledge, and resources to reduce disaster risk and to respond
to disaster events in a timely, cost-efcient manner; and (iii) mobilize additional public and
private partnerships and resources for IDRM. This operational plan succeeds the 2008 DEAP
Action Plan.
The IDRM approach is based on a vision of disaster resilience combined with three basic DRM
principles: (i) many development actions carry potential disaster risk but also provide opportunities
to strengthen resilience; (ii) DRM investments may underperform and ultimately even exacerbate
disaster risk if climate change is ignored; and (iii) levels of expenditure on risk reduction and
residual risk management should increase to re?ect long-term risk pro?les. These principles in
turn imply three key DRM requirements: to integrate disaster risk reduction into development,
to address the intersection between DRM and climate change adaptation, and to ensure that
vi Operational Plan for Integrated Disaster Risk Management 2014–2020
there are adequate ?nancing arrangements in place to reduce risk and to manage and transfer
residual risk.
The IDRM approach will address these three requirements through a series of common,
crosscutting actions to institutionalize IDRM, strengthen capacity and knowledge, invest in
disaster resilience, and engage stakeholders. These actions will reduce disaster risk in both
the immediate and long term and enhance residual risk management for efective disaster
response, collectively strengthening disaster resilience. This IDRM approach will be re?ected
in individual projects in hazard-prone areas, in country partnership strategies (CPSs), and in the
development of revised and new sector and thematic operational plans.
Tools and guidance materials will be developed to strengthen the mainstreaming of IDRM
into ADB’s core business processes. ADB already addresses disaster risk in a number of CPSs
and embeds DRM considerations in a wide range of development projects. However, further
institutionalization is essential, providing a strong underpinning for a more strategic approach.
Guidance will be prepared on the incorporation of disaster and climate risk concerns into the
sector and thematic work undertaken during CPS preparation. ADB will also enhance existing
disaster and climate change risk project screening tools to ensure they include adequate
coverage of disaster risk.
ADB will support IDRM capacity development both within ADB and in DMCs, and will provide
related knowledge products to support DRM mainstreaming into DMC development policy
and practice and ADB operations. In particular, it will strengthen capacity for the integration
of IDRM into DMC development plans, regulatory and legislative frameworks, and budgetary
processes; develop IDRM-related public goods and services; establish an informal network of
ADB staf working on IDRM actions and initiatives; strengthen IDRM representation across
all communities of practice; continue to provide IDRM training for ADB staf; and prepare
knowledge products to capture ADB’s considerable practical experience in many aspects of
DRM and to provide sector-based guidance on DRM interventions.
Progress against each of the three requirements under the IDRM approach will be supported
through continued investment in disaster and climate resilience projects. ADB will focus on
three speci?c areas of investment: disaster risk reduction, post-disaster response, and disaster
risk ?nancing.
Finally, ADB will support strengthened stakeholder engagement and coordination through the
further development of a wide range of DRM partnerships, the promotion of private sector
involvement in IDRM, and eforts to mobilize additional public and private resources for IDRM.
The IDRM Operational Plan recognizes signi?cant synergies between actions to support disaster
resilience and to support poverty reduction, urban resilience, gender equality, food and water
security, and the particular needs of fragile and con?ict-afected situations. In implementing
the Operational Plan, particular consideration will be paid to these synergies.
Responsibility for implementing the IDRM Operational Plan rests primarily with operational
departments and the Regional and Sustainable Development Department. Other support
departments will also share responsibility, where relevant. The IDRM Operational Plan
introduces ADB’s ?rst results framework for DRM. Annual accomplishment reports will be
prepared detailing progress in the implementation of the IDRM Operational Plan as well as
updates to the results framework.
The IDRM
approach
is based
on a vision
of disaster
resilience
1
Disaster and
emergency
assistance is
directly relevant
to progress
and envisaged
achievements under
Strategy 2020’s
three strategic
agendas: inclusive
economic growth,
environmentally
sustainable
development, and
regional integration
I. Rationale
A.?Introduction
Strategy 2020 identi?es disaster and emergency assistance as one of three other areas of
operations of the Asian Development Bank (ADB). The area is directly relevant to progress
and envisaged achievements under Strategy 2020’s three strategic agendas: inclusive
economic growth, environmentally sustainable development, and regional integration.
Disasters can undermine social and economic gain, with a particularly detrimental impact
on the poorest members of society. By virtue of their difering social, cultural, economic,
and political environments, the poor and near-poor are more likely to sufer loss of lives,
homes, productive assets, livelihoods, and schooling as a consequence of disasters. More
marginalized groups within poorer segments of society, such as women, children, the elderly,
and the disabled, are often particularly vulnerable. By implication, disaster and emergency
assistance supports inclusive economic growth. Strengthened resilience also supports
environmentally sustainable development as natural hazards are themselves environmental
phenomena, against which protection is required. Finally, as witnessed in the aftermath of
the 2011 earthquake and tsunami in Japan and ?oods in Thailand, closer regional economic
integration can spread the impact of a disaster well beyond immediately afected areas, in
turn implying a need for disaster and emergency assistance to strengthen resilience and
support timely post-disaster recovery and reconstruction eforts. Strategy 2020 indicates
that ADB will continue to mainstream disaster risk management (DRM) and provide
early and medium-term disaster response and assistance in partnership with specialized
aid agencies.
ADB’s engagement in DRM has also been guided by a succession of related policies. Its
?rst disaster policy was approved in 1987, focusing on small developing member countries
(DMCs).
1
A second policy was introduced in 1989, focusing on all DMCs.
2
These policies were
superseded in 2004 by the Disaster and Emergency Assistance Policy (DEAP),
3
a far more
wide-ranging policy than its predecessors. The DEAP established a series of objectives to
(i) strengthen support for disaster risk reduction (DRR) in DMCs; (ii) provide rehabilitation
and reconstruction assistance following a disaster; and (iii) leverage ADB’s DRM activities by
developing partnerships. A companion DEAP Action Plan
4
was launched in 2008. The action
plan was set out in three parts, comprising (i) minimum actions required to implement the
mandatory aspects of the DEAP, (ii) actions required to address lessons learned since the
DEAP was approved, and (iii) additional considerations that could deepen ADB’s incorporation
of DRM into operations. The action plan was intended to be implemented over a period of 3–5
years. A 2012 Special Evaluation Study on ADB’s Response to Natural Disasters and Disaster
Risks found that the DEAP and DEAP Action Plan had provided sound guidance on DRM.
5
1
ADB. 1987. Rehabilitation Assistance to Small DMCs Afected by Natural Disasters. Manila.
2
ADB. 1989. Rehabilitation Assistance after Disasters. Manila.
3
ADB. 2004. Disaster and Emergency Assistance Policy. Manila.
4
ADB. 2008. Action Plan for Implementing ADB’s Disaster and Emergency Assistance Policy. Manila.
5
ADB. 2012. Special Evaluation Study on ADB’s Response to Natural Disasters and Disaster Risks. Manila.
2 Operational Plan for Integrated Disaster Risk Management 2014–2020
This Operational Plan for Integrated Disaster Risk Management 2014–2020 (hereafter IDRM
Operational Plan) provides new operational guidance on the implementation of the 2004 DEAP.
It succeeds the 2008 DEAP Action Plan.
6
It also introduces ADB’s ?rst results framework for
DRM, creating a mechanism for monitoring performance and regularly and publicly reporting
on progress to Management.
B.?Challenges and Issues
Asia and the Paci?c is subject to all major types of natural hazards and dominates disaster
impact categories across all regions of the world. Between 1970 and 2012, 1.8 million natural
hazard-related deaths were recorded in the region, 51% of the global total. Reported direct
physical losses totaled almost $1.5 trillion (in real 2012 terms) over the same period, equivalent
to an average $95 million loss per day.
7
Physical losses accounted for 43% of the total global
losses, far higher than the region’s share in global gross domestic product.
Despite considerable advances in DRM understanding and know-how over the past few
decades, there is no evidence of a long-term decline in loss of human life in the region.
8
Meanwhile, direct physical losses are increasing more rapidly than regional gross domestic
product as both exposure and vulnerability to natural hazards continue to grow. The intensity
and, in some areas, frequency of climatic extreme events is expected to rise with climate change,
potentially exacerbating this trend. Nine Asian cities topped the results of recent analysis of risk
from changing weather systems and temperatures in 50 cities of current and future importance
to global business.
9,
10
Over the past 5 years alone, an estimated 834 million people have been
afected by natural hazard events in ADB’s DMCs. In 2012, 22.2 million people in 22 Asian
countries were temporarily or permanently displaced by disasters and the region accounted
for 81% of new displacement globally as a consequence of disasters between 2008 and 2012.
11
The November 2013 typhoon in the Philippines, Typhoon Yolanda (internationally known as
Haiyan), has alone afected 12.2 million people and left 4.4 million people homeless.
12
Continuing losses re?ect disappointing progress toward strengthened resilience. According
to the latest results from national self-assessments of progress against the Hyogo Framework
for Action: Building the Resilience of Nations and Communities to Disasters, DMCs typically
report that they have made some commitment to DRR and developed some capacity but
that their progress has not been substantial.
13
Some of the key issues and trends raised in
these progress reviews include the weak translation of DRM policies and legislation into
action; inadequate risk and vulnerability information; insufcient budget allocations for DRR;
insufcient implementation capacities; weak progress in addressing gender and women’s issues;
6
The term operational plan, rather than action plan, is adopted in accordance with the Staf Instructions on
Processing and Monitoring Sector and Thematic Operational Plans.
7
The statistics on disaster losses are based on data extracted from EM-DAT: The OFDA/CRED International
Disaster Database (www.emdat.be). Université Catholique de Louvain, Brussels.
8
ADB. 2012. Investing in Resilience: Ensuring a Disaster-Resistant Future. Manila.
9
In order of ranking: Dhaka, Manila, Bangkok, Yangon, Jakarta, Ho Chi Minh City, Kolkata, Mumbai, and
Chennai.
10
Maplecroft. 2013. Climate Change and Environmental Risk Atlas 2013: Country-by-Country Risk Analysis and
Mapping. Bath.
11
Internal Displacement Monitoring Center. 2013. Global Estimates 2012: People Displaced by Disasters.
Geneva.
12
National Economic Development Agency. 2013. Reconstruction Assistance on Yolanda. Manila.
13
The Hyogo Framework for Action is a 10-year plan adopted by 168 governments at the World Conference
on Disaster Reduction in January 2005. The latest assessment reports cover the period 2011–2013.
I.?Rationale 3
Without concerted
region-wide action
on the part of all
stakeholders to
address disaster
risk, losses look set
to continue to rise
and inadequate results in achieving social equity.
14
Governments have also struggled to deal
with the consequences of disasters due to insufcient liquidity, considerably exacerbating their
adverse economic and social impacts.
In consequence, disaster risk now presents one of the most serious threats to inclusive
sustainable socioeconomic development in Asia and the Paci?c. DRM needs in the region
are enormous and, without concerted region-wide action on the part of all stakeholders to
address risk, losses look set to continue to rise. This increase will re?ect insufcient eforts to
tackle existing vulnerability in Asia and the Paci?c; the continuing expansion of populations
and capital assets in some of the most hazard-prone areas in the region, increasing exposure;
and anticipated increases in the frequency and intensity of weather-related events as the
consequences of climate change begin to take efect. In other words, all three factors contributing
to disaster risk—hazard probability, exposure, and vulnerability—look set to rise unless action is
taken.
15
This action is even more urgent in view of limited development resources and thus the
need to ensure that individual investment needs are met just once and not time and again as
development gains are undone by disaster.
C.?ADB Practice and Experience
ADB has provided considerable assistance for DRM. Between August 1987 and December
2013, ADB approved $19.5 billion—equivalent to 10.3% of total sovereign loans, grants and
technical assistance approvals—for a total of 631 DRM and DRM-related projects. Of this,
33.0% ($6.4 billion) was for early recovery and reconstruction, 8.5% ($1.7 billion) for stand-
alone DRR, 58.5% ($11.4 billion) for projects with embedded DRR elements, and 0.1% ($9.8
million) for ex ante disaster risk ?nancing (DRF) (Figure 1).
Since the introduction of the DEAP in 2004, ADB support for post-disaster early recovery and
reconstruction has continued to account for around a third of ADB’s DRM-related assistance
as the region has witnessed a series of major disaster events. Almost $0.8 billion in loans, grants
and technical assistance was approved in response to the 2004 Indian Ocean tsunami, with a
further $1.9 billion in loans and grants provided in response to the 2005 earthquake in Pakistan,
the 2008 earthquake in the People’s Republic of China, and the 2010 ?oods in Pakistan. ADB’s
$0.9 billion response to Typhoon Yolanda in the Philippines in 2013 established a new record in
ADB’s level of response to a single event. These ?ve events accounted for 78% of ADB’s post-
disaster assistance between 2004 and 2013.
ADB has also continued to support DRR interventions, broadening the scope of assistance as
understanding of disaster risk has deepened. ADB’s original engagement in this area focused
on a series of stand-alone ?ood control interventions dating back to some of ADB’s earliest
projects. More recent investments have stretched from large-scale urban integrated water
resource management and river basin projects incorporating ?ood control components, such
as the Citarum river basin project in Indonesia, through to support for community-based DRM
projects and disaster risk modeling. They have included DRR interventions as part of climate
change adaptation projects. ADB has also increasingly taken disaster risk into account in the
design of other investments, helping to ensure that resulting development gains are sustainable.
14
United Nations International Strategy for Disaster Reduction (UNISDR). 2013. The Hyogo Framework for
Action in Asia and the Paci?c 2011–2013. Geneva.
15
Disaster risk d can be characterized as a function of the probability of occurrence of a hazard of varying
severity in a particular location p(h); the people and physical assets situated in that location and therefore
exposed to the hazard e; and the level of vulnerability of those people and physical assets to that hazard v.
This relationship can be expressed mathematically as d = f (p(h), e, v).
Between August
1987 and December
2013, ADB approved
$19.5 billion for a
total of 631 DRM
and DRM-related
projects
4 Operational Plan for Integrated Disaster Risk Management 2014–2020
For instance, ADB road investments in Bangladesh and Cambodia take account of ?ood risk.
There has been a notable increase in technical assistance for stand-alone DRR initiatives in
the last few years, with 48% (in real terms) of total such assistance provided over the period
1987–2012 approved in 2011, 2012, and 2013. This rise could be an early indication of greater
ADB investment in DRR in the future.
Most recently, ADB has begun venturing into the relatively new area of DRF. Six new technical
assistance and grant projects were approved over the period 2008–2013 focusing either
speci?cally on DRF or on insurance, including disaster insurance, more generally. A further three
DRF projects are currently being processed. Other recent notable developments have included
the introduction of a pilot Disaster Response Facility in the Asian Development Fund (ADF) XI
period, 2013–2016, and the establishment of an Integrated Disaster Risk Management Fund in
partnership with the Government of Canada in 2013.
ADB’s DRM project portfolio has performed well. Of the 27 early recovery and reconstruction
loans and grants completed between 2009 and 2012, 89% were rated successful or highly
successful, compared to 69% of all ADB sovereign loans and grants completed over the same
period, and 83% were rated likely sustainable, compared to 59% for all ADB sovereign loans
and grants. Over the same period, ADB completed ?ve stand-alone DRM loans and grants, of
which three were rated. All three were assessed as successful or highly successful and one as likely
sustainable.
Figure 1:?ADB Disaster Risk Management Assistance, 1987–2013
Source: Asian Development Bank.
Embedded disaster
risk reduction
58.5%
Disaster risk ?nancing
0.1%
Early recovery and
reconstruction
33.0%
Stand-alone disaster
risk reduction
8.5%
I. Rationale 5
The operational
plan builds on
ADB’s signi?cant
experience in DRM
and related lessons
learned both by
ADB and others
This new operational plan builds on ADB’s signi?cant experience in DRM and related lessons
learned both by ADB and others. It seeks to encourage governments and development partners
across the public and private sector to act together to reverse the tide of rising losses and to ensure
that development gains are disaster resilient. In particular, and in line with recommendations in
the 2012 Special Evaluation Study on ADB’s Response to Natural Disasters and Disaster Risks,
it takes account of an evolution in the context and understanding of disasters since the 2004
DEAP and 2008 DEAP Action Plan were formulated. Re?ecting this, it introduces an approach
to DRM aimed at long-term resilience, replacing ADB’s previous orientation around an ever-
repeating cycle of risk reduction, response, and reconstruction activities and an underlying
assumption that disasters are inevitable.
16
The IDRM Operational Plan also focuses ADB engagement in DRM on activities where it can
make a signi?cant contribution, taking into account the nature of DMC requests for support
in the ?eld of DRM; the current priorities of governments and other development partners in
this ?eld; and ADB’s core areas of operation, role, and expertise as a multilateral development
bank. Previous challenges experienced in implementing the DEAP Action Plan are addressed,
in particular pertaining to institutional arrangements for DRM.
16
The DRM cycle identi?ed three strategic phases, each following on from the last in continual rotation:
(i) prevention, mitigation, and preparedness, in which ADB planning and programming enhances DMC
capacity to identify and reduce vulnerability; (ii) transitional assistance and priority rehabilitation, in
which ADB provides post-disaster support to restore high-priority physical and social infrastructure; and
(iii) recovery, wherein ADB assistance is provided for longer-term reconstruction.
6
The IDRM
Operational Plan’s
desired outcome
is to strengthen
disaster resilience
in DMCs
II. Directions
A. Outcome and Objectives
The IDRM Operational Plan’s desired outcome is to strengthen disaster resilience in DMCs.
This outcome will make a signi?cant contribution to the achievement of Strategy 2020’s three
strategic agendas: inclusive economic growth, environmentally sustainable development, and
regional integration.
Disaster resilience is de?ned as the ability of countries, communities, businesses, and individual
households to resist, absorb, recover from, and reorganize in response to natural hazard
events, without jeopardizing their sustained socioeconomic advancement and development.
17
It recognizes the highly dynamic, continually shifting nature of the state of resilience as
populations grow and move; capital investments expand; and the frequency and intensity of
meteorological, hydrological, and climatological events change as a consequence of climate
change. Disaster resilience at all levels of society is a critical component of eforts to achieve
sustainable socioeconomic development and poverty reduction.
The IDRM Operational Plan has three overarching objectives toward its intended outcome:
(i) to promote an integrated DRM approach in ADB’s operations, supporting related products
and business processes to strengthen disaster resilience and enhance residual risk management
and encouraging a more coordinated, systematic approach to DRM; (ii) to further strengthen
DMC IDRM capabilities, knowledge, and resources to reduce disaster risk and to respond to
disaster events in a timely, cost-efcient manner; and (iii) to mobilize additional public and
private partnerships and resources for IDRM.
The IDRM Operational Plan remains in alignment with the DEAP, maintaining the DEAP’s focus
on strengthened support for DRR in DMCs, the provision of rehabilitation and reconstruction
assistance following a disaster, and the leverage of ADB’s IDRM activities by developing
partnerships. Its scope and objectives also build on and update the 2008 DEAP Action Plan,
continuing to support operational work in strengthening DMC resilience to disaster risk and
capacity to manage residual risk and recover from disasters.
The IDRM Operational Plan focuses speci?cally on natural hazards and related disaster risks as
determined by human processes and activities. ADB support for countries in fragile and con?ict-
afected situations, health emergencies, and food crises are also covered under the DEAP but
plans to operationalize these aspects of the DEAP are covered in separate operational plans.
18,19
The IDRM Operational Plan is aligned with these and other operational plans.
17
Note 8.
18
The 2004 DEAP de?nes a disaster as a sudden, calamitous event that seriously disrupts the functioning
of a community or society, causing widespread human, material, economic, or environmental losses that
exceed the community’s or society’s ability to cope using its own resources.
19
ADB. 2013. Operational Plan for Enhancing ADB’s Efectiveness in Fragile and Con?ict-Afected Situations.
Manila; ADB. 2009. An Operational Plan for Improving Health Access and Outcomes under Strategy 2020.
Manila; ADB. 2014. Operational Plan for the Agriculture and Natural Resources Sector: Promoting Food Security
in Asia and the Paci?c in 2014–2020. Manila.
II. Directions 7
B. The Integrated Disaster Risk Management Approach
The IDRM Operational Plan introduces an integrated approach. The IDRM approach is
based on a vision of disaster resilience combined with three basic DRM principles: (i) many
development actions carry potential disaster risk but also provide opportunities to strengthen
resilience; (ii) DRM investments may underperform and ultimately even exacerbate disaster
risk if climate change is ignored; and (iii) levels of expenditure on risk reduction and residual
risk management should increase to re?ect long-term risk pro?les, balancing expected social
and economic returns from DRM and other investments. These principles in turn imply three
key DRM requirements: to integrate DRR into development, to address the intersection
between DRM and climate change adaptation, and to ensure that there are adequate ?nancing
arrangements in place to reduce risk and to manage and transfer residual risk.
The IDRM approach will address these three requirements through a series of common,
crosscutting actions to institutionalize IDRM, develop capacity and knowledge solutions, invest
in disaster resilience, and engage stakeholders. These actions will reduce disaster risk in both
the immediate and long term and enhance residual risk management for efective disaster
response, collectively strengthening disaster resilience (Figure 2). The IDRM approach will be
re?ected in individual projects in hazard-prone areas, in country partnership strategies (CPSs)
and their regional equivalents in countries and regions facing signi?cant disaster risk, and in
the development of revised and new sector and thematic operational plans. This approach will
satisfy the IDRM Operational Plan’s three overarching objectives.
Figure 2: The Integrated Disaster Risk Management Approach
Source: Asian Development Bank.
P
r
i
n
c
i
p
l
e
s
O
u
t
c
o
m
e
Reduced disaster risk in the immediate and long term
Enhanced residual risk management for efective
disaster response
Strengthened disaster resilience
Cross-
cutting
actions
Integrate disaster
risk reduction into
development
Address the disaster risk
management/climate
change adaptation
intersection
Develop disaster
risk ?nancing
capabilities
Levels of expenditure
on disaster risk
reduction and residual
risk management should
increase to re?ect long-
term risk pro?les
Disaster risk management
investments may
underperform and
ultimately even exacerbate
disaster risk if climate
change is ignored
Many development
actions carry potential
disaster risk but also
provide opportunities to
strengthen resilience
R
e
q
u
i
r
e
m
e
n
t
s
P
r
i
n
c
i
p
l
e
s
O
u
t
c
o
m
e
Reduced disaster risk in the immediate and long term
Enhanced residual risk management for efective
disaster response
Strengthened disaster resilience
Cross-
cutting
actions
Integrate disaster
risk reduction into
development
Address the disaster risk
management/climate
change adaptation
intersection
Develop disaster
risk ?nancing
capabilities
Levels of expenditure
on disaster risk
reduction and residual
risk management should
increase to re?ect long-
term risk pro?les
Disaster risk management
investments may
underperform and
ultimately even exacerbate
disaster risk if climate
change is ignored
Many development
actions carry potential
disaster risk but also
provide opportunities to
strengthen resilience
R
e
q
u
i
r
e
m
e
n
t
s
8 Operational Plan for Integrated Disaster Risk Management 2014–2020
The ?rst principle lies at the heart of the approach, requiring a wide range of policy, investment,
and capacity development interventions to reduce risk. These interventions can tackle the hazard
directly (e.g., by reducing probabilities of landslides and ?ooding through forest conservation
on steep slopes); they can tackle exposure to those hazards (e.g., by supporting the integration
of disaster risk considerations into land use planning); and they can tackle vulnerability (e.g.,
by supporting livelihood diversi?cation into more resilient occupations, rainwater harvesting,
and community early warning systems). As such, DRR actions can take the form of both
structural and nonstructural measures. They also cover stand-alone initiatives, such as seismic
retro?tting of school buildings; the incorporation of DRR components into wider projects, such
as ?ood control elements of urban development projects; and the integration of DRR measures
into other development actions, such as adjustments in road engineering design and location
to strengthen resilience against extreme rainfall or landslides. The latter two can be referred
to as embedded actions. ADB is already engaged in actions through all three routes, variously
addressing hazards, exposure, and vulnerability.
The second principle focuses on the intersection between DRM and climate change adaptation.
Adaptation focuses on the process of adjustment to actual or expected climate and its efects
in order to moderate harm or exploit bene?cial opportunities.
20
The intersection between DRM
and climate change adaptation focuses more speci?cally on planning for changes in the intensity
and frequency of extreme climate events and taking action to reduce risk today, tomorrow, and
many years into the future. It implies consideration of these potential future changes in extreme
climate events in the design of both stand-alone and embedded DRM actions, exploring, for
instance, the implications of possible changes in the return periods of speci?c ?ood events for
future levels of protection ofered by ?ood defenses. ADB is already supporting this principle
through, for example, technical assistance for disaster and climate risk assessment in the Paci?c
and the integration of the results into urban development and infrastructure planning. Both the
?rst and second principles also highlight the need to consider extreme climate events in the design
and implementation of climate change knowledge products, programs, and actions and to align
DRM and climate change adaptation eforts more generally. The Environment Operational
Directions, 2013–2020 similarly stresses the importance in aligning DRM and climate change
adaptation eforts.
21
The ?nal principle focuses on the development and application of ?nancing instruments to
reduce risk and to manage and transfer residual risk. It covers the ?nancial management of
disaster risk by households and businesses as well as governments. ADB advocates a risk-
layered approach to the development of DRF strategies, breaking disaster risk down according
to the frequency or probability of occurrence of hazard events and associated levels of loss.
Risk reduction is often the most cost-efective way to address high-probability, low-impact
hazard events and can also yield signi?cant returns by reducing risks associated with lower-
probability, higher-impact events.
22
Risk reduction is also essential in ensuring that buildings
and other engineering structures are built to life safety standards. A range of other ?nancing
20
Intergovernmental Panel on Climate Change (IPCC). 2012. Managing the Risks of Extreme Events and
Disasters to Advance Climate Change Adaptation: A Special Report of Working Groups I and II of the
Intergovernmental Panel on Climate Change. Geneva.
21
ADB. 2013. Environment Operational Directions, 2013–2020: Promoting Transitions to Green Growth in Asia
and the Paci?c. Manila.
22
For instance, cost–bene?t analyses of a statistical sample of 5,500 United States Federal Emergency
Management Agency (FEMA) mitigation grants between 1993 and 2003 for earthquake, ?ood, and wind
hazards, including projects focusing on retro?tting, structural mitigation, public awareness and education,
and building codes, yielded an overall bene?t-to-cost ratio of 4.0. The ratio varied from 1.5 for earthquake
mitigation to 5.1 for ?ood mitigation. (See A. Rose et al. 2007. Bene?t–Cost Analysis of FEMA Hazard
Mitigation Grants. Natural Hazards Review 8(4): 97–111.)
The operational plan
addresses three key
requirements:
to integrate disaster
risk reduction
into development,
to address the
intersection
between disaster
risk management
and climate change
adaptation, and to
ensure that there is
adequate ?nancing to
reduce, manage, and
transfer risk
II.?Directions 9
instruments can then be applied to the remaining layers of risk, selecting the most appropriate
option on the basis of a range of factors including the scale of funding required for each layer
of loss, the speed with which disbursement is required, and the relative cost-efectiveness
of alternative instruments for speci?c layers of risk. The instruments include indemnity and
parametric insurance tools, including property, crop, business interruption, and sovereign
cover; contingency reserves; contingent loans; catastrophe bonds; and other alternative risk
transfer instruments. ADB has provided ?nancial support both for risk reduction and for post-
disaster recovery and reconstruction support, including through emergency assistance loans
with abbreviated processing requirements. However, ADB’s support for the development of
comprehensive DRF strategies and for ex ante instruments for post-disaster response—that
is, instruments that are put in place before a disaster occurs—is far more recent. To date,
much of the latter has focused on technical assistance in support of product scoping and the
development and implementation of pilot projects.
Disaster response—encompassing support for post-disaster relief, early recovery, and
reconstruction—will remain a central aspect of ADB’s IDRM engagement. It will be addressed
through the three principles enshrined in the IDRM approach. Disaster response actions will
be designed to strengthen resilience to future hazard events, taking into account both current
and possible future forms and levels of disaster risk. ADB will also support enhanced access to
cost-efective, timely, and sufcient resources for disaster, assisting DMCs to limit the indirect
social and economic consequences of disaster events.
C.? Implementing ADB’s Integrated Disaster Risk Management
Approach
Actions and measures driving progress under each of the three requirements of the IDRM
approach fall under four crosscutting areas: institutionalizing IDRM, capacity development and
knowledge solutions, investing in resilience, and stakeholder engagement. They include steps to
strengthen IDRM both within ADB’s own areas of work and to promote disaster resilience more
widely by building partnerships, leveraging additional ?nancial resources, sharing knowledge,
and strengthening the enabling environment for IDRM (Table 1).
1.?Institutionalizing Integrated Disaster Risk Management
Tools and guidance materials will be developed to strengthen the integration of IDRM into
ADB’s core business processes. ADB already addresses disaster risk in a number of CPSs
and embeds DRM considerations in a wide range of development projects. However, further
institutionalization of IDRM is required, providing a strong underpinning for a sustained
strategic, systematic approach to the issue. To achieve this, guidance will be prepared on
the incorporation of disaster and climate risk concerns into the sector and thematic work
undertaken during CPS preparation. ADB will also enhance existing disaster and climate change
risk project screening tools to ensure they include adequate coverage of disaster risk and will
apply these tools more consistently. The application of these enhanced guidance note and
screening instruments will also create opportunities for dialogue on IDRM with governments,
potentially leading to increased demand for IDRM projects and indirectly encouraging and
supporting the institutionalization of IDRM in DMCs’ own business processes.
Country partnership strategy disaster and climate risk sensitization. Guidance on the
consideration and treatment of disaster risk will be built into the existing guidance materials on
sector and thematic assessments in use by each regional department during the preparation
Tools and guidance
materials will
be developed to
strengthen the
integration of IDRM
into ADB’s core
business processes
10 Operational Plan for Integrated Disaster Risk Management 2014–2020
of CPSs and regional strategic equivalents for the Paci?c. The CPS preparation process ofers
the opportunity to address disaster risk in a strategic and coordinated manner, ?ne-tuned to
individual country disaster risk pro?les, government priorities, the speci?c areas of focus and
goals of the CPS, ADB’s comparative strengths in IDRM, and other planned and ongoing DRM
initiatives. A background guidance note on securing and utilizing disaster risk data will also
be developed and periodically updated, drawing on open-source online materials that can be
readily accessed. CPSs for countries that have received post-disaster support from ADB in the
past 10 years will automatically be expected to consider disaster risk in the preparation of CPSs.
Systematic consideration of disaster risk as part of the CPS preparation process may in?uence
decisions regarding priority areas of focus. However, just as importantly, disaster risk sensitization
is intended to help ensure that all ADB investments are disaster resilient, whether or not IDRM
is selected as a priority area of focus.
Table 1:?Implementing the Integrated Disaster Risk Management Approach
through Crosscutting Actions
Outcome: Strengthened resilience
Reduced disaster risk
in the immediate and long
term
Enhanced residual risk
management for efective
disaster response
Institutionalizing IDRM
CPS disaster and climate risk
sensitization
x x
Disaster and climate risk project
screening tool
x
Capacity development and knowledge solutions
DMC IDRM mainstreaming capabilities x x
IDRM-related public goods and
services
x x
Informal ADB IDRM network x x
IDRM CoP representation x x
Training and workshops x x
Knowledge products x x
Investments in disaster resilience
Disaster risk reduction x
Post-disaster assistance x x
DRF instruments x x
Stakeholder engagement
Partnerships x x
Private sector engagement in IDRM x x
Financial resource leverage x x
ADB = Asian Development Bank, CoP = community of practice, CPS = country partnership strategy, DMC = developing
member country, DRF = disaster risk ?nancing, IDRM = integrated disaster risk management.
Source: Asian Development Bank.
II.?Directions 11
Capacity
development and
knowledge solutions
are required to
support the sustained
integration of
IDRM into DMC
development policy
and practice and
ADB operations
Disaster and climate risk project screening tools. In parallel, ADB will develop disaster and
climate risk screening tools for use in project design. These tools are intended to help ensure
that individual ADB investments are adequately protected against natural hazards and that
they do not create new forms of disaster risk or exacerbate existing ones. They are intended to
promote a systematic approach to the analysis of disaster and climate risk at the project level
and to strengthen ADB’s accountability to DMCs for its actions.
An abbreviated version of the existing disaster and climate risk screening tool for project
processing, which is already in use in some countries, will be used for ?rst-level screening.
A checklist for initial climate risk screening based on this screening tool is already under
development, for use in conjunction with the environmental categorization process. The
checklist will be expanded to include disaster risk. A second-level screening tool will then be
developed for projects for which signi?cant disaster and climate risk is indicated according
to the preliminary screening. Existing climate risk screening tools will be adapted for this
purpose. Resources will also be developed to understand the implications of the results of the
project screening analysis and to support the identi?cation of appropriate actions to deal with
unacceptable levels of disaster and climate risk. A pilot project quality-at-entry indicator on
climate change could also be extended to include disaster risk.
2.?Capacity Development and Knowledge Solutions
Signi?cant progress in the area of capacity development and knowledge solutions is required
to support the sustained integration of IDRM into DMC development policy and practice and
ADB operations. As Strategy 2020 observes, knowledge is a powerful catalyst for propelling
development forward and enhancing its efects. ADB will focus on six actions to promote
capacity development and knowledge solutions: strengthened DMC capacity for the integration
of IDRM into development plans, regulatory and legislative frameworks, and budgetary
processes; the development of IDRM-related public goods and services; the establishment of
an informal network of ADB staf working on IDRM actions and initiatives; strengthened IDRM
representation across communities of practice (CoPs); continued provision of IDRM training
for ADB staf; and the development of knowledge products. In line with Strategy 2020’s wider
vision for knowledge solutions, these actions will help put the potential of IDRM knowledge
solutions to work in Asia and the Paci?c.
Integrated disaster risk management mainstreaming capabilities of developing member
countries. DMC capabilities for mainstreaming IDRM considerations into national, subnational,
and local development plans, regulatory and legislative frameworks, and budgetary processes and
for establishing related incentives will continue to be strengthened through ADB’s operational
work and the development of knowledge products. Actions will include measures to strengthen
DRF understanding and know-how, supporting eforts to integrate disaster risk into public
?nancial management. ADB is already strengthening IDRM capabilities in a number of DMCs
through, for instance, the multi-donor Pilot Program for Climate Resilience and recent support
for the development of a series of DRM practitioner handbooks. Activities to strengthen
mainstreaming capacity will complement eforts under the Environment Operational Directions,
2013–2020 to integrate environment and climate change considerations into regional, national,
and local development plans and actions. Related eforts under both operational plans will be
closely coordinated to maximize synergies and pursue joint goals.
The goals and objectives laid out in a national development plan drive the focus of public
interventions over the life of that plan. The inclusion of disaster risk concerns in these goals
12 Operational Plan for Integrated Disaster Risk Management 2014–2020
and objectives is therefore critical in strengthening resilience. Regulatory and legislative
frameworks play a vital role in stimulating investment in disaster resilience. Budgetary processes
are essential in ensuring sufcient ?nancing for efective DRM and an appropriate balance of
resource allocations for risk reduction and post-disaster response. Both regulatory frameworks
and ?scal instruments can also be applied to incentivize investments in disaster resilience.
Integrated disaster risk management-related public goods and services. ADB will
continue to support the development of regional and national public goods and services in
support of enhanced IDRM, including through the application of state-of-the-art technology
and know-how. Particular emphasis will remain on disaster risk assessment, supporting
initiatives to examine levels of risk, to map and quantify risk, to develop related climate change
scenarios, and to make this information widely available. Robust information of this nature is
critical in developing sound IDRM solutions, such as risk-sensitive land-use planning, trans-
boundary water resource management, and risk transfer products. ADB will also promote the
application of state-of-the-art space-based and information and communication technology
such as remote sensing and geographical information systems both for disaster risk assessment
and early warning systems. This technology ofers enormous potential to enhance the quality of
IDRM interventions. ADB staf expertise will be developed to support the procurement of these
types of technology and their absorption into ADB projects to support strengthened resilience.
ADB has already engaged in relevant activities such as the Paci?c Catastrophe Risk Assessment
and Financing Initiative, under which it has supported catastrophe risk modeling. It is also
working closely with agencies such as the Japan Aerospace Exploration Agency to draw on
technology and will continue to develop partnerships with space, climate, and other scienti?c
and technological agencies to support its IDRM work.
Informal ADB integrated disaster risk management network. An informal IDRM network
will be established to exchange knowledge and experience around IDRM, to identify and
promulgate good practice, to build on innovation, and to extend ADB’s body of advocates for
the integration of DRM into ADB’s core areas of business. This network will enable ADB to
utilize, channel, and institutionalize its IDRM knowledge and experience more systematically.
ADB staf currently working on IDRM projects and related initiatives, including post-disaster
response, will be encouraged to join the network. Through the activities of the network,
members’ interest in and understanding of IDRM will be strengthened. This is intended to
lead to their sustained commitment to IDRM, beyond the life of their existing IDRM activities,
and to their enhanced capabilities to identify IDRM opportunities and to implement related
activities with a high degree of success.
The network is being established in part in recognition of the fact that eforts over a number
of years to create disaster focal points in resident missions for high disaster risk DMCs and in
regional departments, as laid out in the 2004 DEAP and 2008 DEAP Action Plan, have achieved
limited success. Existing focal points will be maintained and technically supported by the
Regional and Sustainable Development Department. Eforts to encourage the establishment
of additional focal points will also be continued. However, the network provides a pragmatic
parallel approach, providing a mechanism for strengthening IDRM capacity within ADB and
creating a greater appetite for more formal arrangements.
Integrated disaster risk management communities of practice representation. IDRM
representation will be strengthened as a crosscutting issue across all CoPs. The parameters of
this engagement will be determined in consultation with the CoPs. Strengthened representation
Robust disaster
risk assessments
are critical in
developing
sound IDRM
solutions
II.?Directions 13
will provide an additional mechanism for strengthening ADB staf IDRM knowledge and
capabilities.
IDRM is relevant to all CoPs as they each cover areas that are potentially vulnerable to natural
hazards and/or through which IDRM can be mainstreamed. However, it is impractical for
ADB’s limited DRM staf to be members of all CoPs. An alternative solution will therefore be
determined and implemented, possibly drawing representatives of each CoP into a crosscutting
group focusing on resilience from a range of diferent perspectives. Disaster resilience would
form one aspect of resilience in this forum. A focal point from each CoP could also become a
member of the informal IDRM network.
The existing DRF Working Group under the Financial Sector Development CoP will also become
more proactive. This working group was created in 2012, drawing together ADB staf with
expertise in ?nance across a range of departments. It focuses speci?cally on the development
of DRF instruments and support for DMCs in establishing comprehensive DRF strategies, a new
and innovative aspect of ADB’s engagement in IDRM warranting particular internal focus and
collaboration. The working group will expand its membership, in particular to include additional
regional department membership; meet on a regular quarterly basis to share project updates
and review progress and lessons learned; and strengthen its information-sharing functions,
including through the creation of a repository of information on ADB DRF initiatives.
Training and workshops. ADB will run periodic staf capacity development workshops on
IDRM. These workshops will be participatory, encouraging the exchange of knowledge and
experience among participants, as well as the more formal delivery of materials and information.
The workshops will play a key role in the establishment and strengthening of the informal IDRM
network and in strengthening and maintaining the DRM skill sets of ADB staf included in the
new disaster response team database.
ADB will also continue to arrange periodic training on post-disaster needs assessment (PDNA)
methodologies for operational staf. Some of this training may be conducted jointly with
subregional, regional, or international partners, echoing the typically collaborative, multi-agency
approach to PDNAs and providing an opportunity for ADB staf to engage with counterparts in
other agencies that they may encounter again in an emergency context.
In addition, ADB will continue to embed IDRM components in other relevant sector and
thematic ADB staf training courses. This approach has been applied since 2009 and has
included, for example, the insertion of DRM components in climate change workshops. By its
very nature, this approach emphasizes the crosscutting nature of IDRM. It also allows ADB to
sensitize a larger number of its staf to the opportunities for strengthening disaster resilience
and to the perils in ignoring disaster risk. ADB will continue to hold periodic seminars and brown
bag sessions on issues around IDRM as well.
Knowledge products. ADB will prepare knowledge products to capture its own considerable
practical experience in many aspects of IDRM, including both DRR and post-disaster response,
and to document innovative solutions and lessons learned. The knowledge products will
also draw upon experience from elsewhere, both within and beyond Asia and the Paci?c and
including civil society organization and community-based experience. These products will be
shared both internally and with governments and other DRM stakeholders to support learning
and good practice and to disseminate ADB’s considerable expertise in this area. Knowledge
products will include guidance on addressing the integration of climate change considerations
into IDRM projects and vice versa.
ADB will focus on
three speci?c areas
of investment:
disaster risk
reduction, post-
disaster assistance,
and disaster risk
?nancing
14 Operational Plan for Integrated Disaster Risk Management 2014–2020
3.?Investments in Disaster and Climate Resilience
Progress against each of the three requirements of the IDRM approach will be supported
through continued investment in disaster and climate resilience projects. ADB will focus
on three speci?c areas of investment: DRR, post-disaster assistance, and DRF. The IDRM
Operational Plan does not set an annual target for investment in DRM because requests for
post-disaster assistance ?uctuate signi?cantly between years, depending on the timing and
severity of individual disaster events.
Disaster risk reduction. ADB will continue to invest in local, national, subregional, and regional
disaster and climate risk reduction initiatives, building on its strengthened IDRM capacity and
greater institutionalization of IDRM in ADB business processes. It will support both structural
and nonstructural, and both stand-alone and embedded, actions. These will include the
incorporation of cost-efective measures to strengthen resilience in engineering design and
actions to strengthen disaster resilience as part of ADB’s post-disaster assistance. In doing
so, and in line with the Environment Operational Directions, 2013–2020, ADB will explore
the underlying causes of vulnerability, seeking to address the causal roots where these can be
accommodated within the scope of a project. This emphasis complements that highlighted
in the Water Operational Plan 2011–2020, which encourages a more comprehensive DRM
approach, addressing hazards, community needs (social, economic, environmental), and
vulnerabilities.
23
ADB will place particular emphasis on innovation in IDRM, including through the implementation
of pilot projects. It will encourage “no regrets” strategies and approaches, pursuing IDRM
measures that are justi?ed on the basis of current economic, social, and environmental costs,
bene?ts, and levels and forms of disaster risk but that also support future disaster resilience,
without requiring any certainty of knowledge about the frequency or intensity of future hazard
events. In addition, ADB will seek to avoid the creation of new risk in its other development
investments.
ADB will encourage DMCs to utilize the opportunities presented by disaster events to
strengthen resilience, in part through example by “building back better.” Via its engagement
in the International Recovery Platform,
24
it will also support the development of pre-disaster
recovery planning methodologies and applications. These tools will allow governments to
develop strategies to improve recovery outcomes and exploit opportunities to upgrade
infrastructure and technologies in the event of disasters, propelling them toward higher growth.
Post-disaster assistance. ADB will continue to explore measures to enhance the quality and
scope of its post-disaster assistance, supporting a more timely and cost-efective government-
led response, reducing the need for reprogramming of resources, and including speci?c
measures to address the immediate and long-term needs of women and girls. Post-disaster
assistance is expected to remain an important area of operation for ADB over the medium term
re?ecting the trend of rising disaster losses. However, actual levels of assistance provided in any
single year will depend on the timing, intensity, and location of individual natural hazard events.
23
ADB. 2011. Water Operational Plan 2011–2020. Manila.
24
The International Recovery Platform (IRP) is a thematic platform of the United Nations
International Strategy for Disaster Reduction system which seeks to identify gaps and
constraints in disaster recovery and to serve as a catalyst for the development of tools, resources
and capacity for resilient recovery. ADB has been working with the IRP since 2008 and has
been a member of the IRP Steering Committee since 2012.
II.?Directions 15
The Staf Instructions on Emergency Assistance Loans will help support the more timely
provision of emergency assistance loans (EALs) by providing greater clarity on related
procedures. The recent response to Typhoon Yolanda in the Philippines has demonstrated how
the One ADB approach can achieve impressive results, resulting in the approval of an EAL in
just 4 weeks. This approach will also be applied in processing future EALs. ADB will continue
to participate in government-led post-disaster damage and loss assessments, strengthening
opportunities to ensure that the nature and levels of ADB assistance are carefully aligned with
wider response programs and address priority reconstruction needs. A disaster response team
database detailing ADB staf with experience in the preparation of post-disaster assistance,
including EALs, and in damage and loss assessments will be established from which One ADB
post-disaster response teams can quickly be built in the event of a disaster. Related skills
assessments will be undertaken to ensure that there is comprehensive coverage of potential
sector specialist requirements. Training will be provided to maintain disaster response skills,
including PDNA capabilities.
To enhance access to ADB resources for disaster response, ADB will continue to pilot the Asian
Development Fund Disaster Response Facility (ADF-DRF) at least until 2016. The ADF-DRF
was introduced under ADF XI (2013–2016) to support increased access to ADB ?nancing
in the event of a disaster and to reduce the need for reprogramming.
25
Possible options for
replenishment of the Asia Paci?c Disaster Response Fund (APDRF) will be explored following
a review of performance under the ?rst $40 million tranche of funding.
26
The APDRF provides
near-immediate liquidity in the aftermath of a disaster to help governments meet urgent life-
saving emergency response needs. It has been highly valued by recipient governments.
Disaster risk ?nancing instruments. ADB will continue to support the development of DRF
instruments and wider DRF strategies for households, businesses, and governments, enhancing
the public and private ?nancial management of residual disaster risk. Many DMCs require
support to strengthen their DRF capabilities, overcoming both demand and supply constraints
to higher penetration. ADB has comparative strengths in the ?nance sector, making DRF a
logical area of engagement for ADB and a particular niche area for it within the wider ?eld of
DRM. DRF also presents opportunities for considerable leverage of resources.
This support will be designed to (i) help facilitate timely recovery and reconstruction eforts,
complementing ADB’s post-disaster assistance instruments by providing additional injections
of liquidity in the aftermath of a disaster; (ii) encourage the development of optimal bundles
of DRF instruments, re?ecting the opportunity costs associated with various options as well as
considerations relating to the scale of funding required and timeliness of fund disbursement;
(iii) help spread the public and private costs of recovery and reconstruction over time;
(iv) incentivize investments in DRR through risk-based premium pricing and similar mechanisms;
and (v) encourage income-enhancing, rather than risk-averting, livelihood decisions. Evidence
from elsewhere, most notably from Mexico, demonstrates how governments can establish
comprehensive DRF mechanisms for the rapid post-disaster rehabilitation of federal and
state infrastructure, supporting efective post-disaster intervention and stimulating greater
investment in DRR.
25
The ADF-DRF contains 3% of the performance-based allocation from the ADF pool. In the event of a
disaster caused by a natural hazard, an ADF-only country can get up to 100% of its annual performance-
based allocation (PBA) from the Disaster Response Facility to respond to the disaster, without afecting its
allocation for other operations from the remaining PBA. A blend country afected by a disaster can receive
up to 3% of its annual PBA from the Disaster Response Facility.
26
The APDRF was established with an initial contribution of $40 million transferred from uncommitted resources
of the Asian Tsunami Fund. Total uncommitted resources stood at $4.5 million as of 31 December 2013.
16 Operational Plan for Integrated Disaster Risk Management 2014–2020
Successful
IDRM requires
coordination and
collaboration across
a wide range of
public and private
stakeholders,
sectors and
disciplines,
countries facing
common disaster
risk, and countries
linked through
international trade
and supply chains
ADB has begun to lay the foundations for its work on DRF through the development of
knowledge products and the implementation of several technical assistance projects. These
include the development of a public–private earthquake insurance entity in the Philippines
covering middle class and medium-sized enterprise property owners; the development of city-
level DRF options and related ?nancial literacy in Indonesia, the Philippines, and Viet Nam; and
the development of public and private DRF capacity in Bangladesh. ADB is also supporting
several pilot index-based crop insurance schemes in Bangladesh, Cambodia, and Viet Nam.
ADB will continue to support the development of innovative DRF solutions, working in close
cooperation with the private sector to develop commercially viable, scaled-up products.
However, it will rationalize its essentially piecemeal approach to date through the development
of an approach paper placing support for individual solutions in the context of a broad road
map. This road map will include clearly identi?ed goals and objectives and will present a broad
path to their achievement, linking individual initiatives together with additional actions to aid
scaling up and the broader development of stable, solvent risk transfer markets and efcient
access to global risk markets. These additional actions will include measures to strengthen the
institutional structures and legal and regulatory frameworks for DRF in DMCs. Attention will be
paid to middle- as well as lower-income DMCs, re?ecting the likely greater capability to aford
market-based solutions in these countries. ADB will also support the development of tool
kits for the analysis of DRF alternatives, supporting wider rationalization of the selection and
layering of DRF alternatives and the establishment of optimal bundles of instruments ofsetting
household, business, and government disaster risk.
ADB will document and draw on experience and lessons learned, including by development
partners, in its DRF work, furthering the strategic development of ADB’s program of work in this
relatively new area of business.
4.?Stakeholder Engagement
Successful IDRM requires coordination and collaboration across a wide range of public and
private stakeholders; across a wide range of sectors and disciplines; across countries facing
common disaster risk, such as shared earthquake fault lines or river systems; and across
countries linked through international trade and supply chains. ADB will support strengthened
coordination and collaboration through the development of partnerships and the promotion of
private sector involvement in IDRM. It will also seek to mobilize public and private resources for
IDRM through these channels.
Partnerships. Strategy 2020 places particular weight on the role of partnerships in the area of
DRM. ADB will continue to develop relationships with key regional and international agencies,
subregional, and regional associations and institutions, national and subnational government
agencies, civil society organizations, and bilateral donors working on IDRM. In particular,
ADB will focus on (i) regional and subregional organizations through which ADB can leverage
greater government understanding and commitment to IDRM, including those subregional
organizations for which ADB provides secretariat support; (ii) national partnerships, for
instance through government and multi-donor consortiums along the lines of the Nepal Risk
Reduction Consortium;
27
and (iii) agencies and institutions with speci?c technical interests
27
The Nepal Risk Reduction Consortium brings together humanitarian and development partners in
partnership with the Government of Nepal to reduce Nepal’s vulnerability to disasters. ADB is one of the
founding members of the consortium and is coleading one of ?ve ?agship projects, focusing on hospital and
school safety.
II.?Directions 17
that complement and leverage ADB’s own areas of expertise, such as space, climate, and other
scienti?c and technological agencies, as already noted. ADB will also continue to be actively
involved in a variety of global and regional disaster-related platforms, including the International
Recovery Platform, the International Strategy for Disaster Reduction Asia Partnership, and the
Asia-Paci?c Water Forum.
ADB will also strengthen its bilateral national and subnational partnerships with DMC
governments through its engagement with government agencies in the design and
implementation of individual IDRM projects. Through these partnerships, ADB will seek
to foster a long-term commitment to IDRM, helping to ensure that the bene?ts of ADB’s
IDRM investments are sustainable and to leverage these investments through subsequent
government-supported replication and scaling up and more general enhanced government
interest in IDRM.
To support the development of its portfolio of work on DRF, ADB will seek collaboration with
other development partners working on this emerging topic. Related activities could include
joint capacity development initiatives, such as the joint development and implementation of
standardized methodologies and tools for ?nancial disaster risk assessment and management.
Private sector engagement in integrated disaster risk management. ADB will promote
greater private sector engagement in innovative IDRM solutions and encourage and support
strengthened disaster resilience of the private sector. Greater private sector engagement in
IDRM is essential to help meet the funding gap for DRM, to share and spread post-disaster
relief, recovery, and reconstruction costs, and to ensure that all infrastructure constructed by
the private sector is disaster resilient. The private sector will play a signi?cant role in meeting
the region’s huge and increasing infrastructure investment and ?nancial institution needs over
the next few decades and a vision of disaster resilience is unrealistic without private sector
engagement.
Activities will align with the Public–Private Partnership Operational Plan 2012–2020.
28
ADB will support the strengthening of the overall enabling environment for public–private
partnerships (PPPs) in IDRM, for example supporting regulatory change. It will provide
guarantees and ?nancing, for instance to ?nancial institutions in support of post-disaster
housing reconstruction and capital for afected businesses. It will encourage the development
of DRF products, continuing some preliminary work already under way. For example, ADB is
already supporting the identi?cation and design of city-level DRF solutions through technical
assistance support and a next logical step could be to develop products supporting the uptake
of DRF solutions by high disaster risk cities. There are also potential opportunities for greater
private sector engagement in other aspects of DRM, such as in technological innovation to
enhance the disaster resilience of infrastructure and in income-generating investments that
could indirectly reduce disaster risk. In an agricultural context, for example, market drip irrigation
and hydroponic cultivation systems could be marketed in drought-prone areas. In the Paci?c,
where the majority of infrastructure services are provided by state-owned enterprises, greater
engagement by such enterprises in strengthening resilience will also be sought.
Financial resource leverage. ADB will seek to mobilize additional public and private resources
for IDRM through the use of commercial co?nancing products, including guarantees, loan
syndications, and risk transfer arrangements (e.g., insurance, reinsurance, unfunded risk
participations), and through an expansion of existing IDRM ?nancing partnership facilities.
28
ADB. 2012. Public–Private Partnership Operational Plan 2012–2020. Manila.
18 Operational Plan for Integrated Disaster Risk Management 2014–2020
Financing partnership facilities provide operational mechanisms for strategic, long-term, multi-
partner cooperation, linking various forms of assistance in a coordinated manner for a well-
de?ned purpose. In accordance with its Finance++ approach, ADB will combine the ?nancial
resources raised through partnerships together with ADB’s own ?nance and with knowledge
solutions to leverage the impact of its operations.
An existing IDRM ?nancing partnership is being supported by the Government of Canada
through the Integrated Disaster Risk Management Fund.
29
This fund came into efect in 2013,
providing Can$10 million ($9.5 million) over the period 2013–2017 for DRR and DRF projects in
seven Southeast Asian DMCs. The fund supports the development of synergies across actions
to satisfy the three requirements of the IDRM approach and places particular emphasis on
regional solutions, supporting cross-fertilization of ideas across countries and the development
of initiatives to address shared IDRM challenges. ADB will seek to attract additional IDRM trust
funds, taking advantage of increasing donor interest in DRM. ADB will also continue to support
IDRM through other trust fund arrangements, including the Water Financing Partnership
Facility and the Urban Climate Change Resilience Trust Fund.
30
D.?Crossovers with Other Development Challenges
The IDRM Operational Plan recognizes signi?cant synergies between actions to support disaster
resilience and poverty reduction. Poverty and vulnerability to natural hazards are closely linked
and mutually reinforcing. Disasters are a source of hardship and distress, potentially forcing
the near-poor temporarily below the poverty line and contributing to more persistent, chronic
poverty. The poor, in turn, are among the most vulnerable to natural hazards. For instance, they
are more likely to live in substandard structures in hazard-prone areas; face uncertain land
ownership rights, reducing incentives to manage risk; and depend on vulnerable livelihoods, for
example in agriculture and informal urban labor markets. Poverty can be further reinforced by
deliberate risk-averting livelihood choices such as a preference for traditional, lower-yielding
crop varieties because they are more hazard tolerant.
However, if carefully designed, eforts to reduce poverty and strengthen resilience are also
complementary. ADB will therefore pay particular regard to the needs of the poor and near-
poor in its IDRM interventions, in line with intended actions under the Social Protection
Operational Plan 2014?2020
31
to strengthen social protection’s role in DRM and climate
change adaptation and to encourage the development of disaster insurance products for the
poor. At a more strategic level, the disaster and climate risk CPS screening framework will allow
country teams to explore the potential impacts of disaster risk on the poor and support the
integration of disaster resilience actions into CPSs.
There are also more speci?c crossovers between actions to strengthen disaster resilience and
to strengthen gender equality, food and water security, and urban resilience, and to address the
particular needs of fragile and con?ict-afected situations. In implementing its IDRM approach,
ADB will seek to capture these synergies:
• ADB will give close attention to the integration of gender-sensitive considerations in
29
ADB. 2013. The Integrated Disaster Risk Management Fund. Manila.
30
The Water Financing Partnership Facility is supported by Australia, Austria, the Netherlands, Norway,
Spain, and Switzerland. The Urban Climate Change Resilience Trust Fund is supported by the United
Kingdom and the Rockefeller Foundation.
31
ADB. 2013. Social Protection Operational Plan 2014?2020. Manila.
If carefully
designed, eforts
to reduce poverty
and strengthen
disaster
resilience are
complementary
II.?Directions 19
disaster response, in line with Gender Equality and Women’s Empowerment Operational
Plan, 2013–2020: Moving the Agenda Forward in Asia and the Paci?c.
32
Gender-based
diferences in vulnerability and women’s priorities will also be taken into account in the
design of DRR interventions and in IDRM knowledge products and capacity development
initiatives. In all of these activities, women will be recognized as change agents in
strengthening disaster resilience, rather than as passive victims.
• ADB will support initiatives to tackle the impacts of natural hazards on food security,
in keeping with the Operational Plan for the Agriculture and Natural Resources Sector:
Promoting Food Security in Asia and the Paci?c in 2014–2020.
• ADB will continue to support water-related DRM actions as a key component of its
integrated water resource management investments to strengthen water security, in line
with the Water Operational Plan, 2011–2020.
• ADB will continue to support actions to strengthen disaster risk as part of its wider eforts
to strengthen urban resilience, in keeping with the Urban Operational Plan 2012–2020
33
and in recognition of the fact that a considerable share of urban expansion is occurring in
hazard-prone areas.
• ADB will pay careful attention to the diferentiated, often exacerbated, IDRM needs of
countries in fragile and con?ict-afected situations, contributing to their wider recovery as
supported through the Operational Plan for Enhancing ADB’s Efectiveness in Fragile and
Con?ict-Afected Situations.
32
ADB. 2013. Gender Equality and Women’s Empowerment Operational Plan, 2013–2020: Moving the Agenda
Forward in Asia and the Paci?c. Manila.
33
ADB. 2012. Urban Operational Plan 2012–2020. Manila.
20
III. Implementation Plan
Assignment of key responsibilities. The IDRM Operational Plan extends from 2014 to 2020.
The responsibility for implementation rests primarily with operational departments and the
Regional and Sustainable Development Department (RSDD). Other support departments
will also share some responsibility, where relevant. Operational departments will take primary
responsibility for operational aspects, including the integration of IDRM into CPSs in high-
risk countries and into the design, implementation, and monitoring of disaster risk–sensitive
loan, grant, and technical assistance operations in high-risk areas. RSDD will continue to play
its existing role as central IDRM coordinator. It will ensure policy coherence, oversight, and
reporting; monitor ADB-wide implementation of the IDRM Operational Plan; provide technical
guidance and support to operations, including in post-disaster reconstruction; undertake
innovative IDRM pilot projects; and lead the development of screening tools and guidance
materials, broader IDRM capacity development, a review of the Disaster and Emergency
Assistance section of the Operations Manual, the establishment and functioning of the IDRM
network, the development of partnerships with other institutions, the mobilization of public and
private resources for IDRM, the promotion of IDRM PPPs, and the development of knowledge
products and services.
Skills mix and resource implications. The IDRM Operational Plan can be implemented
within the existing IDRM skills mix and stafng capacity of RSDD. However, the depth and
breadth of achievements under the plan would be signi?cantly enhanced should additional
DRM staf positions be created. ADB will explore opportunities to engage additional DRM
experts, including through externally funded staf positions.
It is assumed that no DRM specialist positions will be created in the regional departments.
However, the IDRM skill sets and capacity of existing operational department staf will be
strengthened over the duration of the IDRM Operational Plan, allowing them to engage in
DRM through their sector and thematic specialisms. Strong IDRM knowledge and capabilities
on the part of mission leaders will play a particularly key role in ensuring the plan’s successful
execution. Budgetary resources will be required for staf training and capacity development
purposes, including for IDRM staf capacity development workshops, PDNA training, and the
incorporation of DRM components into other ADB training. The informal IDRM network, which
will also strengthen skill sets and capacity, will be run utilizing existing staf capacity in RSDD.
The IDRM Operational Plan has been designed to have relatively limited budgetary
implications, re?ecting the realities of resource availability. It places considerable emphasis
on the integration of disaster risk concerns into other ADB investments, a measure that often
incurs relatively limited incremental cost and can generate high net bene?ts should a hazard
event subsequently occur. Both embedded and stand-alone IDRM actions will continue to
be ?nanced through ADB core funding, including project preparatory technical assistance,
loans, and grants. Resources will also be leveraged through public and private partnerships.
Opportunities to use other thematic funds available in ADB—for example, attached to water
security, climate change adaptation, urban development, governance, poverty reduction, and
regional economic integration—to strengthen disaster resilience will be proactively explored.
III.?Implementation Plan 21
Operational resources will be mobilized from technical assistance sources to develop the
disaster and climate risk project screening tool and CPS disaster and climate risk screening
materials. Additional resources will be required to incorporate the project screening tools into
ADB business processes from 2015. Capacity development will be ?nanced through existing
ADB knowledge-sharing resources. An allocation has already been secured from the Sector
and Thematic Skills Development budget administered by the Knowledge Sharing and Services
Center for the ?rst staf capacity development workshop, which was held in November 2013.
Dependent on the outcome of a review of the ?rst tranche of funding under the APDRF,
resources may also be required to replenish that fund.
22
IV. Monitoring and Reporting
The IDRM Operational Plan introduces ADB’s ?rst results framework for DRM. Performance
indicators, including baselines and targets, are presented in this framework (Appendix 1). These
indicators draw in part on indicators in ADB’s corporate results framework where appropriate,
adapted to provide a speci?c IDRM focus. RSDD will lead the annual collation of data to
measure progress against the IDRM results framework. It will continue to maintain its DRM
operations database to support it in this role. Operational departments will also provide data,
as requested by RSDD.
Once the CPS disaster and risk screening guidance materials are in place, additional indicators
will be added to the results framework relating to the proportion of CPSs for high disaster risk
countries that incorporate disaster risk diagnostics in their preparation; the proportion of CPSs
for high-risk countries that include analysis of the risk posed by disasters to CPS strategic
priorities; and the proportion of projects in high-risk countries that embed disaster resilience
measures or directly address disaster risk.
Annual accomplishment reports will be prepared detailing progress in implementation of the
IDRM Operational Plan. These reports will draw on the results framework and also include
additional information as relevant, including on gender-related results. The reports will provide
an assessment of implementation progress, key accomplishments to date, and an outlook,
including emerging opportunities. They will include recommendations on corrective actions
and on adjustments to desired outcomes, outputs, and results indicator targets, as appropriate.
The accomplishment reports will be prepared by RSDD. The reports will be endorsed by
the Director General, RSDD, approved by the Vice-President, Knowledge Management and
Sustainable Development, and submitted to Management, with copy to relevant departments
and ofces, in accordance with the staf instructions. The ?rst accomplishment report will be
prepared in the ?rst quarter of 2015. Subsequent annual reports will be due every 12 months
thereafter.
23
Appendix 1
IDRM Operational Plan Results Framework
Integrated Disaster Risk Management, 2014–2020
Indicators Baseline 2020 Target
1
I. DRM Progress in Asia and the Paci?c
Number of lives lost as a consequence of
2
• Climate-related hazards
• Geophysical hazards
19,300
16,000
Monitor
Monitor
Disaster losses as a proportion of total government expenditure
3
1.4% Monitor
II. ADB’s Contribution to DRM Results
Quality of completed sector operations
4
Completed stand-alone DRR loans and grants
5
• Rated successful or highly successful
• Rated likely sustainable
100%
67%
At least 80%
80%
Completed stand-alone DRF loans and grants
6
• Rated successful or highly successful
• Rated likely sustainable
-
-
At least 80%
80%
Completed embedded DRR loans and grants
• Rated successful or highly successful
• Rated likely sustainable
85%
73%
At least 80%
80%
Completed early recovery and reconstruction loans and grants
• Rated successful or highly successful
• Rated likely sustainable
• Showing intended gender equality results
89%
83%
88%
At least 80%
At least 80%
At least 70%
Completed stand-alone DRM TA projects
• Rated successful or highly successful 82% At least 80%
Outcomes
7
Disaster early recovery and reconstruction operation bene?ciaries
• % women and girls
To be determined
To be determined
Monitor
Monitor
Outputs
8
Roads built or upgraded that embed DRR 17% Increase
Land improved through irrigation, drainage, and/or ?ood management 43,215 hectares Monitor
continued on next page
24 Appendix 1
Table continued
continued on next page
Indicators Baseline 2020 Target
1
III. Operational Management of ADB’s DRM Program
Quality at entry
9
and during implementation
10
DMCs receiving post-disaster assistance in the previous 10 years that
have integrated disaster risk into the CPS
11
89% 100%
Quality-at-entry of stand-alone DRR loans and grants rated
satisfactory
100% At least 90%
Quality-at-entry of stand-alone early recovery and reconstruction
loans and grants rated satisfactory
100% At least 90%
Average length of time to process emergency assistance loans 186 days
12
12 weeks
13
Stand-alone DRR loans and grants rated satisfactory during
implementation
100% At least 85%
Embedded DRR loans and grants rated satisfactory during
implementation
96% At least 85%
Early recovery and reconstruction loans and grants rated satisfactory
during implementation
93% At least 85%
Strategic focus
Proportion of proposed/pipelined ADB operations aligned with operational plan directions
14
Early recovery and reconstruction operations building back safer
15
69% 80%
Climate change adaptation loans and grants that address risk from
climate extremes as a share of total climate change adaptation loans
and grants
16
73% Monitor
Climate change adaptation TA that addresses risk from climate
extremes as a share of total climate change adaptation TA
16
67% Monitor
Approaches and modalities
Stand-alone and embedded TA focusing on IDRM as a share of total
number of TA projects approved
17
12% Monitor
Number of DRF loans, grants, and TA approved
18
2 Increase
IV. Organizational Management of ADB’s DRM Program
Human Resources
• Informal network of ADB staf with interest in IDRM established by 2014
• Capacity and role of the DRF Working Group under Financial Sector Development Community
of Practice further strengthened by 2014
• Staf training and capacity development on IDRM implemented on a continuing basis over
the life of the Operational Plan for Integrated Disaster Risk Management, 2014–2020 (IDRM
Operational Plan)
Budgetary Resources
• $525,000 for staf training and capacity development ($75,000 x 7 years)
19
• $105,000 for undertaking disaster and climate risk project screening as part of the business
process from 2015 ($500 x 35 projects x 6 years)
20
25 IDRM Operational Plan Results Framework
Indicators Baseline 2020 Target
1
• Business Processes and Practices
• Disaster and climate risk project screening tools in operational use by 2015
• CPS guidance materials in operational use by 2015
• IDRM Operational Plan launched and disseminated through ADB seminars and workshops by
2015
• Funds to develop the project disaster and climate risk screening tool and develop the CPS
disaster and climate risk guidance materials (approximately $500,000) mobilized from TA
sources by 2015
• Revisions to Disaster and Emergency Assistance Operations Manual completed by 2015
ADB = Asian Development Bank, CPS = country partnership strategy, DMC = developing member country, DRF = disaster
risk ?nancing, DRM = disaster risk management, DRR = disaster risk reduction, IDRM = integrated disaster risk management,
TA = technical assistance.
Notes:
1 Some baselines are based on projects that have achieved particularly high levels of performance. In such cases, a lower
minimum target has been set in accordance with broader ADB targets.
2 This is a 40-year average for Asia and the Paci?c over the period 1973–2012, rounded to the nearest 100.
3 This is a 10-year average for DMCs in 2003–2012, based on central government expenditure.
4 Baseline ?gures re?ect projects completed in 2009–2012.
5 Only ?ve stand-alone DRR loans and grants were completed between 2009 and 2012, of which three were rated.
6 There are no completed DRF loans or grants to date, but related indicators are included in the results framework because
DRF is intended to become an increasingly important area of business for ADB over the life of the IDRM Operational Plan.
7 Information on the number of bene?ciaries is not currently collected on a consistent basis. These data will be collected
in project completion reports for ongoing projects and in project papers for new loans, grants, and TA, including gender-
disaggregated ?gures. The baseline will be set for 2014 once the relevant ?gures are available.
8 Baseline ?gures re?ect projects completed in 2012.
9 Baseline project ?gures for quality-at-entry re?ect relevant projects out of a sample of 60 projects approved in 2010–2011
and used in the quality-at-entry assessment of ADB CPSs and projects. This sample includes only one stand-alone DRR
project and two early recovery and reconstruction projects.
10 Baseline project ?gures re?ect active projects as of 31 December 2012.
11 Criteria for assessing integration are under development. The baseline will be revised in accordance with these criteria
once they are available.
12 The baseline ?gure re?ects emergency assistance loans approved in 2009–2012 in response to natural hazards only.
13 A maximum processing time of 12 weeks is indicated in Operations Manual D7 Disaster and Emergency Assistance.
14 Targets for indicators relating to the percentage of projects that take disaster risk into account in their design have been set
as “monitor” because the scope for doing so will depend on the precise nature of individual loans, grants, and TA.
15 Baseline ?gures re?ect projects approved in 2009–2012.
16 Baseline ?gures re?ect projects approved in 2011 and 2012.
17 Baseline ?gures re?ect projects approved in 2012.
18 Baseline ?gures are based on a 3-year rolling average for 2010–2012. The target will also be measured on a 3-year rolling
basis.
19 The indicative budget requirement of $525,000 for staf training and capacity development will be met within the current
level of budgetary resources allocated for sector and thematic training being administered by the Knowledge Sharing and
Services Center, Regional and Sustainable Development Department.
20 Resources will not be required until the disaster and climate risk project screening tool is in place. The cost of applying the
disaster and climate risk project screening tool will be absorbed by operational departments.
Sources: Data are drawn from reports and recommendations of the President; project completion reports; gender database;
listing of loan, technical assistance, grant, and equity approvals database; Operations Services and Financial Management
Department; Strategy and Policy Department; and EM-DAT: The OFDA/CRED International Disaster Database, Université
Catholique de Louvain, Brussels.
OPERATIONAL PLAN FOR
INTEGRATED DISASTER
RISK MANAGEMENT
2014 - 2020
ASIAN DEVELOPMENT BANK
Operational Plan for Integrated Disaster Risk Management 2014–2020
The Operational Plan for Integrated Disaster Risk Management, 2014–2020 seeks to strengthen disaster
resilience in the developing member countries of the Asian Development Bank (ADB). The operational
plan has three key objectives toward this intended outcome: (i) to promote an integrated disaster risk
management approach in ADB’s operations, (ii) to strengthen ADB’s developing member country integrated
disaster risk management capabilities, knowledge, and resources, and (iii) to mobilize additional public and
private partnerships and resources for integrated disaster risk management.
The operational plan recognizes the importance of reducing disaster risk in both the immediate and long
term, taking the possible efects of climate change into account. It also highlights the urgent need to enhance
the management of residual disaster risk, including through the establishment of adequate disaster risk
?nancing arrangements. It outlines a series of crosscutting actions to address these needs, focusing on
institutionalizing integrated disaster risk management, strengthening capacity and knowledge, investing in
disaster resilience, and engaging stakeholders.
About the Asian Development Bank
ADB’s vision is an Asia and Paci?c region free of poverty. Its mission is to help its developing member
countries reduce poverty and improve the quality of life of their people. Despite the region’s many successes,
it remains home to approximately two-thirds of the world’s poor: 1.6 billion people who live on less than $2
a day, with 733 million struggling on less than $1.25 a day. ADB is committed to reducing poverty through
inclusive economic growth, environmentally sustainable growth, and regional integration.
Based in Manila, ADB is owned by 67 members, including 48 from the region. Its main instruments for
helping its developing member countries are policy dialogue, loans, equity investments, guarantees, grants,
and technical assistance.
ASIAN DEVELOPMENT BANK
6 ADB Avenue, Mandaluyong City
1550 Metro Manila. Philippines
www.adb.org
doc_225991575.pdf