2011 LITERATURE REVIEW On Disaster Risk Reduction Ballara Tomo

DESK Literature Review on
Disaster Risk Reduction

And Emergency Preparedness (DRR&EP) and Climate Change
Marcela Ballara, International Consultant

Pedro Tomo, National Consultant
1
DESK LITERATURE REVIEW ON DISASTER RISK REDUCTION AND EMERGENCY PREPAREDNESS AND CLIMATE CHANGE 2
I. Introduction
II. The International Framework 10
International Arena
Agenda 21 (United Nations Conference on Environment and
Development, 1992)
Johannesburg Plan of Implementation (World Summit on Sustainable
Development 2002 (WSSD)
Beijing Platform for Action (4th World Conference on Women, 1995)
+ 15 years
The Rio Conventions
The UN Convention to Combat Desertification (UNCCD)
The Hyogo Framework for Action 2005-2015 Building the Resilience of
Nations and Communities to Disasters (World Conference on Disaster Reduction,
HFA)
Mozambique compliance of International Agreements
III. Gender mainstreaming and Mozambique DRR&EP Institutional framework 19
Disaster Management Coordinating Council (CCGC) and Disaster Management

Technical Council (CTGC)
The National Institute for Disaster Management (INGC)
The Ministry for the Coordination of Environmental Affairs (MICOA)
Ministry of Women and Social Action (MMAS)
IV. International events supporting gender mainstreaming in DRR&EP 25
Third Global Congress of Women in Politics and Governance, .Gender in Climate

Change Adaptation and Disaster Risk Reduction
The Beijing Agenda for Global Action on Gender-Sensitive Disaster Risk Reduction
Beijing, China
V. Good practices and lessons learned by local governments in DRR&EP and CCH 27
Role of Local Governments in DRR&EP and CCH

Good Practices, Lessons Learned, Challenges and Potential Replications
Honduras grassroots women and communities in disaster risk reduction
and environmental and natural resources management activities;
India a model of effective government-community partnership and
facilitates policy support needed to foster a culture of risk reduction;
Indonesia Using Political Momentum to Engender Legislation in the
Reconstruction Context;
South Africa: Addressing social vulnerability of women and girls in an
effective, integrative, cost effective, participatory, non-technical and easily replicable

manner;
Mali: Alternatives to desertification, drought and in support of rural women
empowerment
Tamil Nadu, India Focus on Single Womans girl children in disaster areas
El Salvador The Reducing Vulnerabilities in Ahuachapn and Sonsonate Programme
(PRVAS)
Nagapattinam, India, Disaster through a Gender lens: gender issues in disaster
response and recovery a case of meeting strategic interests of women through relief
distribution
Approaches to address DRR&EP and CCH projects and programs

Community-Based Disaster Management (CBDM) a programming approach of Asian
Disaster Preparedness Centre (ADPC)
An approach to Participatory Vulnerability analysis with gender lens
VI. Overview of gender issues in Disaster Risk Reduction and Emergency Preparedness
(DRR&EP) and Climate Change 36
Relevance for considering gender issues in Disaster Risk Reduction and Emergency
Preparedness (DRR&EP) and Climate Change
Climate change affects men and women differently
Relations between Gender mainstreaming and climate change mitigation and

adaptation
Factors that influence women in DRR&EP and CCH mitigation and adaptation
Some gender-specific vulnerabilities and challenges to disaster, emergency and

climate change
Priority areas for action
VII. Some Findings 43
Annexes 49
1. General characterization of the climate change adaptation and disaster
risk reduction communities
2. Beijing Agenda for Global Action on Gender-Sensitive; and Disaster Risk Reduction
Manila Declaration for Global Action on Gender in Climate Change and Disaster Risk
Reduction
3. Terminology
4. Summary of Reports, Manuals and Toolkits on Disaster Risk Reduction and Climate
Change
Reference Material
List of acronyms
CDS Sustainable Development Centre (Centro de Desenvolvimento Sustentvel)
CEDAW Convention on the Elimination of All Forms of Discrimination Against Women
CIDA Canadian International Development Agency
CONDES National Council for Sustainable Development (Conselho Nacional para o
Desenvolvimento Sustentvel)
CCGC Disaster Management Coordinating Council (Conselho Coordenador de Gesto
de Calamidades)
CTGC Disaster Management Technical Council (Conselho Tcnico de Gesto de
Calamidades)
DRR&EP Disaster Risk Reduction and Emergency Preparedness
DPCOA Provincial Directorate for the Coordination of Environmental Action
DPTUR Provincial Directorate of Tourism (Direco Provincial do Turismo)
EADS Environment Strategy for Sustainable Development (Estratgia Ambiental para o
Desenvolvimento Sustentvel)
GoM Government of Mozambique
MDGs Millennium Development Goals
MICOA Ministry for the Coordination of Environmental Action
MINAG Ministry of Agriculture
MPD Ministry of Planning and Development
NGO Non-governmental organization
PDPMCN National Master Plan for Disaster Risk Reduction ()
PAPs (GBS) Programme Aid Partners
PARPA Poverty Reduction Action Plan (Plano de Aco para a Reduo da Pobreza
Absoluta)
PEDD District Strategic Development Plan (Plano Estratgico de Desenvolvimento
Distrital)
PESOD District Social Economic and Budget Plan (Planos Econmico Social e Oramento
Distrital)
PES Econmico and Social Plan (Plano Econmico e Social)
NAPA National Adaptation Programme of Action
UNDP United Nations Development Programme
UNEP United Nations Environment Programme
UNISDR United Nations International Strategy for Disaster reduction
WFP World Food Program
I
Introduction
In the past three decades numerous international instruments have been

generated to ensure gender equality and non-discrimination against women
and to adopt measures related to sustainable development. This includes
declarations, conventions, platforms, action plans, resolutions and
agreements. They reflect the evolution of ideas and trends that guide the
thinking and action of States, international organizations, academia and civil
society (Aguilar et al., 2008).1
Over the past few decades, a rise in the number of disaster events has resulted in an increase in
human and material losses, rising peoples vulnerability. This has led to increased emphasis on
integration of poverty reduction programs with other sectoral issues such as environmental
management, gender and public health, a shift from looking at disasters as extreme events created
by natural forces, to viewing them as manifestations of unresolved development problems.
Approaches analyzing natural disasters and their impact on the human population have
experimented evolution, from relief and response programmes and projects to vulnerability
analysis to disaster risk reduction and risk management programmes and projects. This has
resulted in implementation of Disaster Risk Reduction & Emergency Preparedness and Climate
Change (DRR&EP CCH) programs and projects in several countries affected by natural disasters and
have established linkages between peoples poverty and vulnerability. Disasters are no longer seen
as extreme events created entirely by natural forces but as manifestations of unresolved
development problems. In DRR&EP situations a paradigm shift in practice evolved largely from
a top-down relief and response approach to a more inter-sectoral approach addressing the issues
of risk reduction for the poor and taking into account the social and economic implications and
causes of these events. This also resulted in a gradual change to an emphasis on preparedness
measures, such as stockpiling of relief goods, preparedness plans and a growing role for relief
agencies.
The aim of this literature review is to provide information on policies plans, guidelines and
programming at international and national levels in order to identify lessons learned and best
practices. The review is conducted at global level, taking into consideration experiences of other
countries and regions. The final aim is that the findings should be related to the gender approach
in place in DRR&EP and Climate Change in Mozambique and the specific context of the country.
The negative impacts of climate change and disaster on women and men have already been
recognized. Most important is the fact that women and men experience the negative impacts of
climate change differently. Gender inequalities have negative effects on womens coping capacity
1 Aguilar, L., Araujo, A., Kring, E., Quesada, A. and Zuiga, P. (2008). Gua: Recursos de gnero para el cambio climtico. Mexico: UNDP.
but they are important actors of change as among others, they are holders of significant knowledge
and skills related to mitigation, adaptation, and reduction of risks in the face of climate change.
Several international events have referred to the impact of climate change and disaster. Recently,
the Intergovernmental Panel on Climate Change referred to its impacts in the poorest regions,
highlighting that the poorest people, especially women, will have to struggle with the impacts of
increasing droughts, floods or storms. This requires that men and women understand the process
of climate change, disaster risk reduction and emergency preparedness and share information on
counteracting their negative impacts.
Disaster Risk Reduction & EP and Climate Change; a common approach

Over the past few decades, the challenge of reducing socio-economic vulnerability to climate and
weather-related hazards has been taken on by four distinct research and policy communities
operated independently from each other, namely: (i) disaster risk reduction; (ii) climate change
adaptation; (iii) environmental management; and (iv) poverty reduction. Many people and
institutions involved in DRR & EP and CCH programmes and projects fail to distinguish
between Climate change adaptation and Disaster risk reduction. Based on literature, the key
communalities and differences between the concepts of Climate change adaptation and
Disaster risk reduction (detailed in annex 1) are as follows:
Climate change:
The Climate Change Agenda is based on the growing concern of the climates system changes and
their impacts on human activities. This has led to the establishment of the Intergovernmental Panel
on Climate Change (IPCC) in 1988 that since then has been assessing scientific, technical and socio-
economic information and has been producing assessments based mainly on reviewed and
published scientific/technical literature on climate change, its potential negative impacts and
options for adaptation and mitigation. The United Nations Framework Convention on Climate
Change (UNFCCC), that receives the IPCC reports, entered into force in 1994 and now includes 189
countries, known as Parties to the Convention. The UNFCCC is an international treaty to reduce
the greenhouse gas emissions that cause climate change. The Convention established an
association of all the States that are Parties to the Convention, referred to as the Conference of
the Parties (COP) that has been meeting every year, discussing among other issues, means to
strengthen emission limitation targets and associated timetables. In this context, the Kyoto
Protocol was agreed and went into effect in February 2005. Parties recognized the specific needs
of the 48 Least Developed Countries and invited them to prepare National Adaptation Programmes
of Action, designed to convey urgent and immediate adaptation needs those for which further
delays could increase vulnerability or lead to increased costs at a later stage2
Disaster Risk Reduction:

The disaster Risk Reduction Agenda addresses humanitarian actions to respond to disasters as well
as how to better anticipate, reduce and manage disaster risk by integrating risk reduction
measures into sustainable development planning and policies. Disaster risk reduction employs
measures at all levels to curb disaster losses, through reducing exposure to different hazards, and
2
Based on Thomalla, F, Downin T.g, Spanger-SiegfriedE. , Han G. and Rockstrm J., Reducing hazard vulnerability: towards a
common approach between disaster risk reduction and climate adaptation in Disasters, 2006, 30(1): 3948. Overseas Development
Institute, 2006 Published by Blackwell Publishing, 9600 Garsington Road, Oxford, OX4 2DQ, UK and 350 Main Street, Malden, MA
02148, USA
enhancing coping and adaptive capacities of vulnerable populations. Effective disaster risk
reduction practices take a systemic approach to reduce the human, social, economic and
environmental vulnerability to natural hazards. Prevention, mitigation, preparedness, response,
rehabilitation and recovery are crucial entry points for risk reduction, with the aim of building
resilience to future hazards 3.
Many of the differences between the climate change and disaster management communities are
related to differences in the perception of the nature and timescale of the threat. The climate
change community has a strong environmentalist approach. It focuses on longer-term changes in
climate and the potential consequences of climate change. Climate change adaptation has largely
focused on how individual actors and sectors may be able to adapt to shifting environmental
conditions (for example, change of crops).Disasters caused by extreme environmental conditions
tend to be present a situation where the immediate impacts tend to overwhelm the capabilities of
the affected population and rapid responses are required.
Climate change affects a wide range of ecological systems and creates complex interactions of
social, economic and environmental factors. It also raises vulnerability as it affects the ability of
individuals and communities to prepare for, cope with, and recover from, disasters.
Most impacts of climate change are much more difficult to perceive and measure, since the
changes in average climatic conditions and climatic variability occur over a long period and because
a wide range of simultaneous environmental and socio-economic processes ameliorates
vulnerabilities.
The DRR &EP focuses on a vast assortment of natural and man-made hazards, of which climate-
related hazards only represent one particular area. The concept of vulnerability is central to
disaster risk reduction. Responses are always through structural measures, such as community
shelters and building protection structures in disaster areas to control natural processes and
protect human lives, property and critical infrastructure. DRR&EP emphasizes on developing
capabilities for hazard forecasting and providing immediate humanitarian relief once a disaster has
struck.
So far, many efforts by DRR &EP and CCH projects and programmes have concentrated on reducing
the vulnerability of specific sectors to a particular hazard at local scale. The most vulnerable to
natural hazards tend to be women, the elderly, children, ethnic and religious minorities, single-
headed households, socially excluded and those with inadequate access to economic and to social
networks. They are particularly vulnerable to changes in environmental conditions and factors that
limit their access to natural resources determined as well by their poor access to social and
financial resources, information and technology, as well as by the effectiveness of government and
private institutions.
At the international level, gender issues and sustainable development have been referred to in
numerous summits and conferences. The importance of mainstreaming gender equality for the
realization of human rights, sustainable development and/or poverty eradication and disaster
reduction has been recognized in a series of international instruments and a number of global
sustainable development agreements have commitments on gender and women. These include:
o The Agenda 21 (United Nations Conference on Environment and Development, 1992);

3
Op.cit
o The Beijing Platform for Action (4th World Conference on Women, 1995);
o The 1997 Convention on the Elimination of All Forms of Discrimination Against Women
(CEDAW);
o The Millennium Declaration (2000);
o The Johannesburg Plan of Implementation (World Summit on Sustainable Development
(WSSD);
o The Convention on Biological Diversity (CBD); the UN Convention to Combat
Desertification(UNCCD); and
o The Hyogo Framework for Action (World Conference on Disaster Reduction, 2005).
Also the UN has developed a call for the mainstreaming of gender: resolutions from the Economic
and Social Council (ECOSOC), the Commission on the Status of Women (CSW), Human rights
instruments and environmental laws and policies of regional organizations such as the
Organization of American States, the European Council, the United African Organization and
national laws in individual states may also serve as means to call upon governments to fulfil
their obligations in terms of gender equity (Garcia, 1999). On Disaster Risk Reduction and
Emergency Preparedness the World Conference on Disaster Reduction in Kobe, Japan (2005) and
the Hyogo Framework for Action (HFA), include the main mandate in relation to gender equality
and the empowerment of women in the context of disaster risk reduction.
II
The International Framework
The International arena

Agenda 21 (United Nations Conference on Environment and Development, 1992)
The agenda 21 was adopted at the United Nations Conference on Environment and Development,
in Ro de Janeiro in 1992. In its chapter 24 entitled Global Action for Women towards Sustainable
Development, the document calls upon governments to make the necessary constitutional, legal,
administrative, cultural, social and economic changes in order to eliminate all obstacles to
womens full involvement in sustainable development and in public life. It also calls for the
adoption of clear strategies to be achieved through government policies, national guidelines and
plans to ensure equity in all aspects of society including women`s involvement in decision making
and environmental management.
Johannesburg Plan of Implementation (World Summit on Sustainable Development 2002

(WSSD)
On the basis of equality with men, this plan promotes womens equal access to and full
participation in decision making at all levels. Through the gender mainstreaming approach, the
plan calls to include gender in all policies and strategies, eliminate all forms of discrimination
against women, improve their status, health and economic welfare through full and equal women
and girls access to economic opportunities, land, credit, education and health-care services.
Beijing Platform for Action (4th World Conference on Women, 1995) + 15 years
Two documents emanated from the IV World Conference on Women, namely (i) the Beijing
Declaration and (ii) the Platform for Action, which established a strategy and responsibilities for
State Parties. The Strategic Objective K of the Beijing Platform for Action commits to securing
the active involvement of women in environmental decision making by integrating gender
concerns and perspectives in policies and programs for sustainable development; and
strengthening or establishing mechanisms at the national, regional and international levels to
assess the impact of development and environmental policies on women. On sustainable
development, the Beijing +10, (2005)made a specific reference to Member States, addressed to
developing countries to provide the necessary importance on land tenure and property ownership
for resource mobilization and environmental management, a recommendation that was again
stressed in Beijing+15 (2010). A Fifteen-Year Review of the Implementation of the Beijing Platform
for Action in Africa (BPfA) +15 From 1995-2009 took place in Banjul, Gambia in November 2009
to undertake a specific examination of continent-wide progress within the time frame of 2005-
2009. The regional review focused on the 12 thematic areas of concern and the 11th area of concern
took the issue of Women and the Environment putting the accent on African womens
vulnerability to climate change as they lack adequate rights and access to resources and
information vital to overcoming the challenges posed by climate change. Moreover they are
frequently excluded from processes and decisions relating to the use and management of natural
resources, including those impacting on climate change (BPfA 2009) and stressed that limited
attention has been given to the gender differences that affect the gender aspects of vulnerability
and adaptation to climate change. The lack of trained staff members in most relevant ministries
that should address gender issues was also taken as part of their concerns. Therefore the
recommendation, among others refer to the need of measures to integrate a gender perspective
in the design and implementation of sustainable resource management, establish strategies and
mechanisms to involve women in design, development and implementation of policies and
programs for natural resource management and environmental protection and conservation. The
African Region Beijing +15 Declaration(2009) committed to focus their actions on several strategic
areas among them on climate change and food security by developing gender-responsive policies
on climate change which focus on agriculture, water resource management, energy, forest use and
management, as well as transportation and technology transfer for improved food security,
including the development of agricultural policies and programs that address the differentiated
impacts of climate change. Also suggestions were made to collect statistics disaggregated by sex-
and gender- data analysis in scientific research on climate change and knowledge-sharing at all
levels.
The Millennium Declaration4 and the Millennium Declaration Goals (2000)

The Millennium Declaration commits governments to respect the equal rights of all without
distinction as to race, sex, language or religion. The Millennium Development Goals (MDGs) are an
agreed set of goals that promote poverty reduction, education, maternal health, gender equality,
and aim to combat child mortality, AIDS and other diseases, with 2015 as target date.
The Rio Conventions5

As a result of the Rio Earth Summit (1992 in Rio de Janeiro, Brazil), three international treaties
were implemented: the United Nations Framework Convention on Climate Change (UNFCCC), the
Convention of the Biological Diversity (CBD) and the United Nations Convention to Combat
desertification (UNCCD), known as the Rio Conventions and all three interrelated. Therefore a
Joint Liaison Group (JLG) was established in 2001 with the aim to coordinate and work in
partnership
The Convention on Biological Diversity (CBD)

This Convention is an international framework for the conservation and sustainable use of
biodiversity and equitable sharing of the benefits arising out of the utilization of genetic resources.
In its Preamble the CBD recognises womens role in the conservation and sustainable use of
biological diversity and calls for their participation at all levels of policy-making. CBD is the only
environmental agreement mentioned in the Beijing Platform of Action6 highlighting the need for
4
Declaration is a series of norms and principles drafted by states and which they pledge to abide by. However, there is no forceful
component to a declaration; those States that do not observe those norms and principles are subject to moral sanctions before the
international community (i.e., Millennium Declaration). Source: http://www.unfpa.org/
5 Convention involves a series of agreements amongst States, which include norms and principles that States are obliged to comply with
(i.e., the American Convention on Human Rights). Given the obligations they impose on states, the conventions enter into force only
after the States government has ratified them. Signing these instruments is not enough for them to become legally binding. Source:
http://www.unfpa.org/
6 Encourage, subject to national legislation and consistent with the Convention on Biological Diversity, the effective protection and use
of the knowledge, innovations and practices of women of indigenous and local communities, including practices relating to traditional
medicines, biodiversity and indigenous technologies, and endeavor to ensure that these are respected, maintained, promoted and
preserved in an ecologically sustainable manner, and promote their wider application with the approval and involvement of the holders
of such knowledge; in addition, safeguard the existing intellectual property rights of these women as protected under national and
international law; work actively, where necessary, to find additional ways and means for the effective protection and use of such
knowledge, innovations and practices, subject to national legislation and consistent with the Convention on Biological Diversity and
national legislation in providing protection, knowledge, best practices and innovation in traditional
medicines, biodiversity and indigenous technologies taking into consideration the environment,
intellectual property rights and fair and equitable sharing of benefits arising from the utilization of
such knowledge. Since 2007, the CBD has adopted the gender mainstreaming approach in their
regular activities and developed a Gender Plan of Action7.
The UN Convention to Combat Desertification (UNCCD)

This convention is one of the few international instruments that establishes a link between the
environmental situation, gender equality and social participation, and establishes that womens
and mens participation is essential to combat desertification and to implement dryland
development activities. These activities require special support for awareness rising, in training
and capacity building and education. UNCCD links to local development and the eradication of
poverty has an important commitment to equality among men and women and at an early stage
they were adopted in many of the related activities carried out by the UNCCD in the local, national,
regional and global sphere. Financial and technical support for programs directed specifically at
women was provided and UNCCD efforts were characterized by its support to strengthen the role
of women in all areas of its implementation.
Equality between men and women was also adopted by UNCCD governance, but still there are
inequalities and some delegates to each Conference of the Parties (COP) continue requesting for
their rectification, especially in the processes of preparing the National Action Programs. Very
unfortunately during the COPs held to date, discussions, proposals and suggestions about the role
of women and gender mainstreaming have played an insignificant part in the plenary discussions
or Commission on Science and Technology and issues concerning gender and womens roles are
scarcely mentioned. This has been agreed by all participants of the CDO, specially the women
groups as well as some participants countries.
The Hyogo Framework for Action. HFA, 2005-2015: Building the Resilience of Nations and
Communities to Disasters (World Conference on Disaster Risk Reduction, Kobe, Japan 2005).
The evolution of disaster management thinking and practice since the 1970s has seen a
progressively wider and deeper understanding, accompanied by more integrated and holistic
approaches to reducing their impacts on society. Disaster management disaster risk reduction is
a relatively new concept in formal terms, and is now being widely embraced by international
agencies, governments, disaster planners and civil society organizations.
DRR is generally perceived as the implementation of policy initiatives , strategies and practices to
minimize vulnerability and disaster risks within the society. In recent years a more comprehensive
approach called Risk Management has emerged. The term Disaster Risk Management (DRM) is
often used in the same context to mean a systematic approach to identify, assess and reduce risks of
all kinds associated with hazards and human activities. It is more properly applied to the
operational aspects of DRR: the practical implementation of DRR initiatives.(UNISDR 2004).
relevant international law, and encourage fair and equitable sharing of benefits arising from the utilization of such knowledge,
innovation and practices. Beijing Platform of Action point K.
7 A CBD Gender Plan of Action was develop in 2008 and define the organization role in stimulating and facilitating efforts, with partners
at the national, regional and global levels, to overcome constraints and take advantage of opportunities to promote gender equality
and womens empowerment as a important prerequisites for biodiversity conservation and sustainable development.
The 2005 UNs World Conference on Disaster Reduction (WCDR) in Kobe Japan, began the process
of putting in the agenda of international agencies and national governments clear targets and
commitments for DRR. The first step in this process was the formal approval at the WCDR, of the
Hyogo Framework for Action (2005-2015). This is the first internationally accepted framework for
DRR. It sets out an ordered sequence of objectives (outcome strategic goals priorities), with
five priorities for action attempting to capture the main areas of DRR intervention.
The Hyogo Framework for Action 2005-2015 has been adopted by 168 states, and lays out a
detailed set of priorities to be achieved by 2015 on reduction of disaster losses(of lives and social,
economic and environmental assets of communities and countries).
The HFA identifies the following 5 key priorities for action as a guide for states, international and
regional organizations, and other stakeholders:
o Ensure that disaster risk reduction is a national and a local priority with a strong
institutional basis for implementation.
o Identify, assess and monitor disaster risks and enhance early warning.
o Use knowledge, innovation and education to build a culture of safety and resilience at
all levels.
o Reduce the underlying risk factors.
o Strengthen disaster preparedness for effective response at all levels
The Framework agreed to include a mandate in relation to gender equality and empowerment of
women in the context of disaster risk reduction. The Framework states that a gender perspective
should be integrated into all DRR policies, plans and decision-making processes, including those
related to risk assessment, early warning, information management, and education and training.
Moreover, the Platform on Gender Equality and Disaster Risk Reduction agreed by all nations
represented at the World Conference, approved to implement using a gender mainstreaming
approach, the five priorities of the Hyogo Framework (disaster management initiatives; capacity
building in womens groups and community-based organizations; in communications, training and
education; providing opportunities to women in science and technology; and gender
mainstreaming in program implementation, monitoring and evaluation).
To implement this approach a multi-stakeholder and inclusive United Nations International

Strategy for Disaster Reduction (UNISDR) system is being strengthened and 131 countries have
designated HFA focal points including the establishment of multi-stakeholder national platforms
in 50 countries. Nevertheless, gender perspectives need to have a much stronger presence as
agreed by the CSOs Civil Society Organizations, especially women organizations.
The HFA has legally a non-binding character, leaving to governments the decision to set technical
and organizational requirements to reduce disaster risks, including implementing details according
to their needs and capacities. However it emphasizes that disaster risk reduction is a central issue
for development policies, as well as issues related to the humanitarian and environmental ground.
Among the 2005-2015 priorities for action, the HFA underlines the development of a timely and
understandable people centred early warning system that provides guidance and takes into
consideration the demographic, gender, cultural and livelihood characteristics of the target
population. A holistic approach to education and training in disaster risk reduction must include
socio-cultural and gender issues. Words into Action (2007), the guideline to implement the HFA,
supports that gender perspective must be included in all phases of disaster cycles. In this guideline
gender is a central issue and therefore differences between women and men, on risks from
disasters must be acknowledged. Gender influences individuals capacities and resources to
minimize harm, adapt to hazards and respond to disasters.8Low-income women and those who
are marginalized due to marital status, physical inability, age, social stigma or caste are especially
disadvantaged. At the grassroots level, on the other hand, women are often well positioned to
manage risk due to their roles as both users and managers of environmental resources, as
economic providers, and as caregivers and community workers. For these reasons it is necessary
to identify and use gender-differentiated information, to ensure that risk reduction strategies are
correctly targeted at the most vulnerable groups and are effectively implemented through the
roles of both women and men.9
Mozambiques compliance of International Agreements

Internationally, Mozambique acknowledges and adheres to international efforts aimed at ensuring
environmental sustainability. Some of them include:
o The Vienna Convention on the protection of the ozone layer;

o The UNFCCC - ratified in August 25th 1995;
o The Kyoto Protocol (As a non-Annex I Party),
o The Montreal Protocol on the substances that destroy the ozone layer and the respective
London and Copenhagen amendments;
o The Convention on Biological Diversity (CBD);
o The UNCCD;
o The Nairobi Convention for the protection, management and development of the East
African marine and coastal areas;
o The Basel Convention on the control of trans-border movements of dangerous residuals
and their elimination;
o The Bamako Convention on the prohibition of importation of dangerous waste and the
control of trans-border movements of such waste in Africa;
o The Hyogo Framework for Action 2005-2015;
o The Convention on the elimination of all forms of discrimination against women
(CEDAW) - ratified in 21st of April 1997 and
o The Beijing Platform for Action (BPFA).
Within the framework of the UNFCCC, Mozambique has prepared its First National Communication
in 2003 the National Plan for Capacity Building in the context of the Clean Development
Mechanism under the Kyoto Protocol and the National Adaptation Programme of Action (NAPA)
in 2007. Other cross-cutting measures include: Strategy and Plan of Action for Biodiversity,
Strategy and Plan of Action to prevent and control fires, Strategy and Plan of Action to prevent and
control erosion, National Action Plan to Combat Drought and Desertification. Furthermore,
according to MICOA (2003), under the Global Environment Facility (GEF), Mozambique is
commencing its second National Communication to the UNFCCC secretariat. Regarding this
subject, it is important to assess climate vulnerability and adaptation options for those sectors not
included in the first National Communication, e.g., health, education and fisheries, but that are
important for the implementation of the NAPA.
8 To support national governments in achieving the goals for risk reduction, (ISDR) Secretariat convenes global platforms (June 2007,
June 2009) to monitor progress and discuss emerging disaster threats, such as climate change
9
United Nations International Strategy for Disaster Reduction Secretariat UNISDR (2007) Gender perspective: working together for
disaster risk reduction
The examples below show how four countries (Malawi, Mauritania, Sierra Leone and Niger), have
integrated gender concerns in their NAPAs in support to women empowerment. While Malawi,
Mauritania and Niger are mainstreaming womens concerns and needs in their projects and
programmes, Sierra Leone, with a different approach, is working on climate change sensitization
campaigns addressing adaptation mechanisms.
Examples of Good Practices in Engendering NAPAs
In Malawi, womens NGOs were consulted during the preparation of the NAPA, and gender is one of eight
criteria for selecting projects. Proposed interventions include the empowerment of women through access
to microfinance, ensuring easier access to water and energy sources, and a rural electrification programme.
Three priority activities (out of five) will disaggregate beneficiaries by age and sex and six interventions will
pave the way to empower women:
The most vulnerable groups are rural communities, especially women, children, female-headed
households and the elderly. The proposed interventions include: (i) improved early warning systems (ii)
recommended improved crop varieties, (iii) recommended improved livestock breeds, and (iv) improved
crop and livestock management practices. Malawi NAPA, p. ix
Mauritania acknowledges that women are guardians of vital local and traditional knowledge and that they
need to be recognized as key stakeholders in the consultation and decision-making processes (even though
they have not been represented in great numbers). Mauritanias first approved project for implementation
states that:
The programmes objective is to improve the incomes and living conditions of the target group, women
and young people, in a sustainable manner by developing seven agricultural value chains.15
In Nigers NAPA, women are beneficiaries of three livestock/crop farming projects, one of which includes
womens land use and ownership as one of the activities. Women were one of the four concentric circles of
stakeholders/actors that were involved in national consultations.
Sierra Leone prepared its NAPA with one of the activities being sensitization campaigns on the impacts of
climate change on women as well as their training on adaptation mechanisms. The document also considers
the inclusion of women and children as a pre-condition for project sustainability.
Source: WEDO UNFPA (2009) Resource Kit Climate Change Connections: Gender, Population and Climate Change.
In 2004, Mozambique adopted a new Constitution in which the Government of Mozambique

(GoM) is committed to ensure sustainable development by adopting policies and promoting
initiatives that guarantee the ecological balance, conservation and preservation of the
environment, aimed at improving the quality of life of its citizens.
The constitution also follows the principles of universality and gender equality (Constituio da
Repblica de Moambique, Article 117). To pursue these objectives, the GoM has made efforts
towards integrating climate concern in national development planning as demonstrated in PARPA
II, the current 5-Year Plan and Agenda 2025 (GoM, 2003, 2005, 2006a). These are assisted by a
good collection of legal instruments including:
o The National Environment Policy (1995), the National Environment Programme (1996)
and the Environment Frame Law (Law n 20/97 of 01 of October) that were created to
systematically integrate environmental aspects in development;
o The Energy Policy adopted in 1995, which aims, on one hand, to increase the feasibility
and access to low cost supply of several forms of energy and on the other hand, foresees
the development of conservation technologies and environmental beneficial use of
energy. The policy also stipulates the reduction in the consumption of wood-based fuels;
o The National Land Policy and its implementation strategies approved in 1996 and the
Land Law (Law n 19/97, of 1 of October), which ensure that the population have access
to the land resources and participate in the management of such resources, for their
sustainability and socially equitable use;
o The National Policy on Forest and Wildlife, adopted in 1997, which aims to manage forest
and wildlife resources, underlining the need for their sustainable use;
o The Policy on Disaster Management adopted in 1999 that aims at the elimination of
poverty and establishment of a contingency plan in view of the recurring occurrence of
natural disasters that affect the countrys social and economic development;
o The National Agricultural Policy, Transports and Communication Law, commerce
liberalization, access to health services and to potable water.
In recent years, Mozambique has made encouraging strides in reducing its poverty levels and is
making gradual progress towards benchmarks set by the National Action Plan for the Reduction of
Absolute Poverty (PARPA) and the Millennium Development Goals (MDGs).10
The PARPA II defines its strategy around three pillars of Governance, Human Capital and Economy
and Development. The strategy includes eight crosscutting issues, namely (i) demining, (ii)
environment, (iii) HIV/AIDS, (iv) gender, (v) food and nutritional security, (vi) science and
technology, (vii) rural development and (viii) disaster risk management. The inclusion of disaster
risk management highlights the need, as a development priority, for long-term planning to reduce
the vulnerability of communities and infrastructure exposed to negative natural phenomena.
In line with the HFA and the PARPA II, the Council of Ministers approved the National Master Plan
for Disaster Risk Reduction (PDPMCN) in October 2006, a ten-year strategy aimed at strengthening
capacity to mitigate the impact of frequent natural disasters in Mozambique.
Its main focus of PDPMCN is reforms and improvements in the dryland development programmes
(water resource management, agricultural intensification and diversification and alternative
livelihoods), and emergency preparedness management, (including the creation of national early
warning, preparedness and response frameworks and systems).
10
Based on the information of United Nations Country Team in Mozambique delivering as One Strengthening Disaster risk Reduction
and Emergency Preparedness (2007)
According to a recent (2010) UN Country Teams report11 the underlying causes of Mozambiques
chronic vulnerability to disasters can be summarized as:
(i) Weak infrastructure for basic services: Progress towards achieving the MDGs and IADGs in
Mozambique has not followed a consistent trend. In fact, despite very positive growth rates
observed over the last decade, poverty, especially in rural areas, remains stubbornly widespread
at 54 %, as does income inequality with a Gini coefficient at 47.1. The majority of the population
(70%) lives in the rural areas, and four-fifths of Mozambicans (about 81%) depend on agriculture,
and out of these, about 90% rely on subsistence agriculture) for their livelihood. This, combined
with the lack of access to basic services, means that poverty in rural areas remains chronic.
(ii) The rapidly escalating HIV/AIDS pandemic that is weakening national capacities and
considerably slowing down the rate of development: A key constraint to achieving the MDGs
and IADGs is the HIV and AIDS pandemic which disproportionally affects more women and girls
than men and boys. Reducing the spread of this disease, and establishing proper treatment for
those already infected by accelerating access to diagnosis and care, will be a major contributor to
Mozambique remaining on track..12
As a result, the impact of frequent natural disasters can have an exponential effect, including the
disruption of livelihoods and services, the over-stretching of limited coping mechanisms and the
exacerbation of population vulnerabilities. As much as 25% of Mozambiques population faces a
high mortality risk from natural hazards, and it ranks as the second most geographically exposed
country in Africa.
According to the PDPMCNs document, Mozambique and its population are highly vulnerable to
the following natural disasters:
o Floods - Flooding is a regular seasonal phenomenon along the seven major rivers that
cross Mozambique (Zambezi, Limpopo, Incomati, Licungo, Save, Buzi and Pungue). INGC
estimated that 54 districts across the country are vulnerable to seasonal flooding, and
this has the potential to impact over 340,000 people. In fact, in the rainy season
2000/2001, Mozambique experienced its worst floods in 50 years, which resulted in the
death of 650 people and the displacement of 540,000 others.
o Cyclones - With its extensive coastline Mozambique is often affected by cyclones and
tropical storms that enter the Mozambican Channel from the Indian Ocean. INGC
reported that since 1970, the country has been affected by 32 significant cyclones or
tropical depressions
o Earthquakes - Mozambique falls on the southern edge of the East African Rift Valley,
although seismic activity is not frequent in this area. In this way, INGC has identified
earthquake preparedness as a priority for contingency planning.
11
Deliver as One position Paper ( Draft) 29/08/2010
www.undp.org.mz/.../DaO%20Position%20Paper%20August%202010.docx
12
Mozambique has made noteworthy developments in some areas while in others, such as HIV and AIDS and poverty reduction,
much more needs to be done. There are still many challenges that could hamper improving the living conditions of the most
vulnerable people particularly. Deliver at One position Paper ( Draft) 29/08/2010
www.undp.org.mz/.../DaO%20Position%20Paper%20August%202010.docx
o Drought - Is the most frequent natural disaster that occurs every three to four years.
Drought conditions are relatively chronic in the southern and central regions of
Mozambique, and account for a large part of the vulnerability in the country due to their
impact on food security and livelihoods. The main problem is that affected populations
do not have sufficient time to recover from the economic and social impacts provoked
by droughts between one cycle and the next.
III
Gender mainstreaming and Mozambique
DRR&EP Institutional framework
There is a strong and growing political will to improve management of disaster risk reduction in
Mozambique. Efforts undertaken in recent years indicate a shift from disaster response and
recovery to disaster preparedness, risk management and long-term vulnerability reduction
strategies and the institutions created for that purpose have been making efforts to support the
population through DRR&EP and CCH mitigation and adaptation programs and policies.
The Mozambican coordination mechanisms for DRR&EP comprise the following institutions13
Disaster Management Coordinating Council (CCGC) and Disaster

Management Technical Council (CTGC)
The CCGC is an organ of the Prime Ministers Cabinet and is the highest coordinating body for
disaster risk management in the country. It is composed of ten ministers and is chaired by the
prime minister. Its primary objective is to ensure multi-sectoral coordination for disaster
prevention, assistance to victims and rehabilitation of damaged infrastructures. The CCGC is a
political decision-making organ, advised by the Technical Council for Disaster Management (CTGC),
which is comprised of National directors from the ministries represented in the CCGC. The CTGC is
responsible for implementing the decisions taken by the CCGC, being chaired by the general
director of INGC. Besides government officials, the CTGC includes representatives from the
Mozambique Red Cross (CVM), from the UN agencies, from other international organizations and
from NGOs that operate within the disaster management and humanitarian frameworks.
The National Institute for Disaster Management (INGC)

INGC is the government body with primary responsibility for coordinating natural disaster plans,
policies and interventions. 14The institute is under the Minister who oversees the area of State
Administration (currently MAE, the Ministry of State Administration) and its core strategies, plans
and activities address vulnerability reduction and emergency planning and response.
As regards to structures that intervenes directly to vulnerability reduction, INGC is organized at

central level as follows:
Prevention and Mitigation National Directorate (DPM), responsible for early warning and
preparedness against all kinds of disasters in all vulnerable parts of the country;
13
Mozambique Humanitarian Country Team Inter-Agency HCT Contingency Plan 2009/2010 Final
14
INGC IS NOT PART OF MAE. THE GENERAL DIRECTOR IS APPOINTED BY THE COUNCIL OF MINISTERS, WHILE THE DIRECTORS AT
MAE ARE APPOINTED BY THE MINISTER. THE DIRECTOR OF INGC REPORTS TO THE MINISTER, NOT TO THE MINISTRY.
Development of Arid and Semi-Arid Zones National Directorate (DARIDAS), responsible for
long-term development actions against drought in the 30 districts classified as semi-arid
or arid.
National Civil Protection Unit (UNAPROC), that is in charge for search and rescue
operations during disasters, in order to save human lives.
Office for the coordination of reconstruction (GACOR), in charge for coordinating post-
disasters operations towards developing safe resettlement areas for people displaced as a
result of natural disasters.

To complement this structure, in selected dry land districts, INGC is establishing the District
Multiple Use Resource Centers (CERUM), which has the task of training the communities towards
living positively with drought (ensuring their livelihoods while at the same time preserving their
environment).
To ensure effectiveness of its national prevention and response efforts have, INGC has established
a central National Emergency Operations Centre (CENOE) in Maputo and 3 regional CENOEs in Caia
(Central region), Vilankulos (Southern region) and Nacala (Northern region). To complement the
coordination efforts of the various CENOEs, province and district level operational bases
(Emergency Operations Centres - COE) are being established.
Regarding the role of INGC, with the end of the war, the government decided that, under PARPA
II, medium to long-term prevention activities against natural disasters should be developed. This
led to the approval of the National Disaster Management Policy in 1999, with a proactive approach
focused on a more holistic process that addresses a variety of disaster risks, rather than on
individual disaster events. Under this context, an effective contingency planning process, with a
dedicated budget for contingency activities under the coordination of INGC was put in place. Later,
a Master Plan for the Prevention and Mitigation of Natural Disasters (PDPMCN) was developed to
cover the period 2006 2016. Under the command of this plan, the country is pushing towards
being in permanent disaster preparedness, with the ability of resisting and responding to the
effects of natural disasters.
Despite the existence of a comprehensive National Disaster Management Policy and of the Master
Plan for the Prevention and Mitigation of Natural Disasters, a national disasters management law
has not yet been ratified and as a result, in some cases, the roles and responsibilities of the
different government departments in disaster management are not yet clearly defined.
INGC is the leading government agency in DRR in Mozambique; however disaster preparedness
and prevention actions are also undertaken through the Ministry for the Coordination of
Environmental Action (MICOA), the Ministry of Health (MISAU) and the Ministry of Agriculture
(MINAG). MISAU and MINAG do develop emergency response plans for specific disasters (disease
outbreaks; drought or floods) are engaged in disaster prevention and mitigation activities and
make efforts to coordinate among each other. Nevertheless, as the coordination is not able to yield
enough results regarding disaster preparedness and prevention these institutions must work
together with other emergency and disaster risk reduction stakeholders to achieve a more
effective coordinated approach using existing inter-ministerial processes and developing
cooperation forums.
The Ministry for the Coordination of Environmental Action (MICOA)15

The environmental policy defined by the Mozambican government contains strategic objectives
which take (i) environmental management as a factor for the eradication of poverty; (ii)
participatory and community management of the environment; and (iii) a regional and global
perspective on environmental problems.
MICOA is the government agency with responsibility for overall coordination of government
activities in the environment domain. It was created in 1994 (by Presidential Decree 2/94) and has
as main functions (established by Presidential Decree 6/95): (i) the promotion of conservation and
sustainable use of the countrys natural resource base, and (ii) the promotion of environmental
policies and strategies to be integrated into sectoral development plans.
MICOA is the institution responsible for promoting inter-sectoral coordination and to indulge an
appropriate planning and utilization of natural resources in Mozambique. MICOA is structured
around six areas of intervention: (i) inter-sectoral coordination, (ii) research, planning and
environmental management, (iii) territorial planning, (iv) environmental impact assessment, (v)
environmental education and dissemination, and (vi) inspection and control
MICOA is a coordination - not an implementation agency and does not have the mandate to
implement directly activities. Its mandate is to coordinate environmental actions carried out by
other sectoral ministries. As such, MICOA works closely with the Ministry of Agriculture (MINAG)
through the Technical Secretariat for Food Security and Nutrition (SETSAN the body responsible
for coordinating the implementation of the National Food Security and Nutrition Strategy, SAN),
the Ministry of State Administration, through INGC, the Mozambique Red Cross (CVM) that
provides immediate assistance to vulnerable people during and immediately after natural
disasters, and with other relevant institutions such as Eduardo Mondlane University as a research
institution. These institutions integrate several inter-institutional groups led by MICOA whose main
task is to impel the implementation of existing legislation and actions. MICOA has the responsibility
of monitoring compliance with obligations under the UNFCCC and other Rio conventions.
This seems to be the only government institution that up to June 2010 had developed a Strategy
and Plan of Action for Gender, Environment and Climate Change addressing the issue in a broad
but concrete manner. The document defines priorities that are related to other national plans and
programs dealing with environment issues. The gender strategy focuses on environment and
climate change impacts on social, economic, political and cultural changes that will gradually
contribute to modify womens and mens behaviors towards more equitable relations. This
document centres its attention on the sustainable use of natural resources and its linkage with
poverty eradication and mens and womens access and control over natural resources, as well as
of climate change adaptation and mitigation technologies. On the other hand it must be mentioned
that the Gender Strategy and Action Plan for the Agriculture Sector also includes among its
strategic areas access to and control over natural and productive resources[1] but its overall
goal is mainly oriented to achieve food security.
The PDPMCN is the only DRR strategy document that addresses agricultural development activities
15
Ldia Cabral and Dulcdio Francisco (2008) Environmental Institutions, Public Expenditure and the Role for Development Partners;
Mozambique case study, ODI
under disaster risk conditions, but limited to aiming drought vulnerability reduction at local level
in the Arid and semi-arid areas. Even though it is technically well prepared, the PDPMCN lacks
gender mainstreaming, in such a way to allow implementation of agricultural activities in drought
prone areas with close application of social equity mechanisms. Therefore, it is advised that
coordination between Gender Environment and Climate Change Strategy and Plan of Action,
Gender Strategy and Action Plan for the Agriculture Sector and Master Plan for Disaster Prevention
and Mitigation strategic documents should be strongly considered when planning and
implementing agricultural based activities.
The Plan Of Action highlights the linkage between environment, climate change, gender equality
and poverty eradication guided by several principles such as equity, non discriminatory, citizens
participation in natural resources benefits and management, sustainable development, and
mitigation/adaptation as a learning process.
Ministry of Women and Social Action (MMAS)

MMAS was created in 2000 with the main objective of accompanying the implementation of
gender policies and programmes approved by the Government. In the same year the National
Directorate of Women (DNM) was created. In 2004, the Council of Ministers created the National
Council for the Advancement of Women (CNAM) as a consultative body of MMAS.
The CNAM has two organs: the Executive Secretariat and the Technical Council with gender focal
points assigned to each ministry that have gender units16. Within the context of the
decentralization process and the strengthening of the local authorities17, the Provincial
Directorates of Women and Social Action have an Executive Secretariat and a Technical Council. At
district level, MMAS is represented by the District Services of Health, Women and Social Action
(SDSMAS) whose objective is to implement health services and womens and social activities as
well as promoting actions that contribute to gender equality. In 2004, the GoM approved the
Family Law, an instrument which brings about the need to uplift women and promote gender
equality. The guidelines of gender actions in Mozambique are contained in the Gender Politics and
its Implementation Strategy (Poltica de Gnero e Estratgia de Implementao - PGEI) approved
in 2007. They can also be found in the Action Plan for the Reduction of Absolute Poverty 2006-
2009 (PARPA II) and in the National Plan for the Advancement of Women (PNAM - 2007-2009). The
GoMs National Gender Policy aims at equality in participation and access for both women and
men, recognizing their role pertaining to national sustainable development objectives. Its
principles are based on the promotion and strengthening of both women and men at all levels and
at womens empowerment. This policy clearly states the need to guarantee use, access and tenure
over natural resources by women, to promote the legal mechanisms for control tenure and
heritage systems and to enhance the capacity of women on environmental management and
conservation. The implementation strategy defines its activities in the following areas: socio-
cultural (activities oriented towards preventive reproductive health) political (enhance womens
participation in the political arena) economic (implementation of poverty eradication policies and
promotion of womens employment), juridical (develop gender units in the government structures
and promote womens participation in the judiciary system) and security. MMAS as a coordinating
16 The Gender Units (GUs) are mechanisms created in the different ministries with the objective to influence planning and budgeting
processes, which are gender sensitive, and they are catalysers so that gender aspects are placed on the agendas of sectoral programmes.
17 See the Law on the Local Organs of the State (Lei of the Orgos Locais do Estado - LOLE).
institution is responsible for providing the guidelines to line Ministries to apply gender
mainstreaming in their activities.
The Gender Strategy for the Agricultural Sector, designed in 2005, aims at assuring access to and
control over resources, benefits, rights and equal opportunities between women and men,
enhancing the capacity of vulnerable farmers to improve food security and family income. The
gender mainstreaming approach is implemented in poverty alleviation and sustainable
development activities and follows the five-rear Governments plan (20052009), the PARPA, the
national gender policy, and the four ProAgri-II pillars (1-access to markets, 2-financial services, 3-
technology and 4-natural resources). The main goals of the Gender Strategy for the Agricultural
Sector are mainly oriented to achieve food security through its strategic areas (i. access to and
control over natural and productive resources; ii. the development and dissemination of
productive technologies with womens active participation; iii. promotion of food security and
nutrition by improving food management conservation and preparation; iv. the strengthening of
access to credit by vulnerable segments, including women and the youth, and v. markets) 18
According to several research results and analysis done in Mozambique the gender discourse has
been driven by the countrys political and historical context and until today there has not been
profound changes in the social and gender relations (Osorio, 2007). It is acknowledge that the
recent approval of the PGEI was a step towards gender justice. However some donors from the
international cooperation in Mozambique have made critical evaluations on the gender policys
implementation19. They concluded that the concrete implications of these policies at ground have
been minimal because neither national government nor donors have managed to make the
transition from policy statements and legal frameworks to significant progress towards gender
equality and women empowerment. Moreover, despite advances in the country, in social sectors
such as education and health, evaluations concluded that women are still lagging far behind men
in practically all areas. They continue to have less political influence and to be poorer than men.
The evaluations also pointed out that on some issues, such as HIV-AIDS the rate is more
deteriorating on women compared to men. Finally, it is noteworthy that in the Mozambican
context in order to mainstream gender in any field it is important to consider the socio-cultural
model that drives societys identity and attributes roles and rights based on sex and age.
18Gallina A. and Chidiamassamba C.Gender Aware Approaches in Agricultural Programmes Mozambique Country Report A special
study of the National Agricultural Development Programme (ProAgri II) UTV Working Paper 2010:6 Commissioned by Sida,
Secretariat for Evaluation, May 2010
http://sidapublications.citat.se/interface/stream/mabstream.asp?filetype=1&orderlistmainid=2947&printfileid=2947&filex=3952829
810503
19
Mikkelsen, Britha (2002). Mainstreaming Gender Equality: SIDA's Support for the Promotion of Garrett, Ashley Gender Equality in
Partner Countries. Stockholm: Swedish Agency for International Development., (2003). Gender Analysis of the Plan of Action for the
Reduction of Absolute Poverty 2001-2005, and Recommendations for Engendering the PARPA. Washington D.C.: Gender Action., UNFPA
(2006). Igualdade de Gnero e Empoderamento da Mulher em Moambique. Maputo: United Nations Population Fund (UNFPA), Frum-
Mulher (2007). Shadow Report: Stage of Implementation of the CEDAW in Mozambique. Maputo: Forum da Mulher, Jensen, Rikke
Ingrid et al. (2006). Evaluation of DFID's Policy and Practice in Support of Gender Equality and Women's Empowerment. Volume 1:
Synthesis Report. Copenhagen: COWI Consult.
IV
International events supporting gender
mainstreaming in DRR&EP 20
Several global-level events, such as the International Disaster Reduction Conference in Davos,
Switzerland (2006), the Stockholm Forum for Disaster Reduction and Recovery and the High-Level
Conference on Risk Reduction, Mitigation and Recovery from Natural Disasters in the Greater
Caribbean (2007) The Third Global Congress of Women in Politics and Governance, on Gender in
Climate Change Adaptation and Disaster Risk Reduction, and its Manila Declaration for Global
Action on Gender in Climate Change and Disaster Risk Reduction (Philippines 2008) and lately The
International Conference on Gender and Disaster Risk Reduction in Beijing, China (2009) have
contributed to the increased understanding of DRR and gender as cross-cutting matters into all
development sectors.
Third Global Congress of Women in Politics and Governance, on Gender in

Climate Change Adaptation and Disaster Risk Reduction
The outcome of this event, the Manila Declaration, highlights the gender negative impacts due to
climate change and requests that DRR and CCH measures be gender responsive, sensitive to
indigenous knowledge systems and respect human rights. This declaration also recommend to
document and replicate best practices, to ensure that affirmative actions are coordinated to
effectively respond to the global issues of gender in climate change, disaster risk reduction and
food security.
The Beijing Agenda for Global Action on Gender-Sensitive Disaster Risk

Reduction Beijing, China (Beijing, China, 22 April 2009)
The Beijing Agenda highlighted the link between gender, poverty reduction, climate change
adaptation, disaster risk reduction and post disaster recovery and reconstruction and
recommended nine achievable actions before 2015, namely (i) increased political commitment to
gender analysis and gender mainstreaming, (ii) development of national policies relevant laws,
strategies, plans, and budgets, (iii) linkage between disaster risk reduction and climate change
adaptation from a gender perspective, (iv) gathering gender-specific data and statistics on the
impact of disasters, and development of gender sensitive-indicators (v) increased public and media
awareness on gender-sensitive disaster vulnerabilities and capacities (vi) support to research on
costs, benefits and efficiency of gender-sensitive policies and programmes (vii) application of
disaster risk assessments (viii) improved and mainstreamed gender perspective and equal
participation between men and women through capacity building and training and (ix) building and
20
Based on info provided by Natasha Ribeiro and Aniceto Chaque (2009) Gender and Climate change: Mozambique Case Study,
Henrich Boll Stiftung S. Africa.
enhancement of the capacities of professional organizations, communities and national and local
institutions to enable gender mainstreaming in all development sectors.
On the United Nations side all agencies have incorporated gender policies and strategies for
mainstreaming gender into their respective development and humanitarian mandates. UNDP
focuses more on capacity building and integration of DRR into development planning and
programming and UNISDR has the mandate for coordinating the implementation of the
International Strategy for Disaster Reduction (ISDR) and the HFA within the UN agencies and the
governments (details in Annex 2).
V
Good practices and lessons learned by
local governments in DRR&EP and CCH
The Good practices presented below can trigger new ideas in Mozambiques DRR&EP activities on
how to mainstream gender activities that will gradually lead, in future, to change in gender
relations.
Good practices, lessons learned, challenges and potential replication21
The examples below are based on a literature review of several experiences22, being most of them,
case studies on the roles played by local and regional authorities in addressing disaster risks with
a gender perspective. During the Literature Review, several successful experiences were found and
some of them, with potential to inspire Mozambique to develop DRR&EP activities were selected,
taking into consideration the five major roles of local governments in implementing DRR&EP,
namely i) initiatives using participatory planning and implementation of disaster risk reduction
approaches, ii) partnerships and support to local initiatives to build up social capital, iii) household
and community action to reduce disaster risks with government support, iv) use of innovative
approaches and tools applied creatively in local governments and in communities, and v) working
with the youth and children in DRR &EP. Such experiences cover the following countries and areas:
o Honduras: Grassroots women and communities in disaster risk reduction and

environmental and natural resources management activities;
o India: A model of effective government-community partnership facilitates policy support
needed to foster a culture of risk reduction;
o Indonesia: Using political momentum to engender legislation in the reconstruction
context;
o Mali: Alternatives to desertification, drought and in support to rural women
empowerment
o El Salvador: The Reducing Vulnerabilities in Ahuachapn and Sonsonate Programme
(PRVAS)
o India: Disaster through a gender lens: gender issues in disaster response and recovery -
a case of meeting strategic interests of women through relief distribution
o India: Focusing on youth and girl children in DRR&EP and post-emergency livelihood
restoration project.
In detail, the following are the relevant characteristics of the experiences:

HONDURAS23
21 International Strategy for Disaster Reduction Gender Perspective: Working Together for Disaster Risk Reduction Geneva 2007
http://www.unisdr.org/eng/about_isdr/isdr-publications/09-gender-good-practices/gender-good-practices.pd
22
United Nations secretariat of the International Strategy for Disaster Reduction (UNISDR) Local Governments and Disaster Risk
Reduction Good Practices and Lessons Learned A contribution to the Making Cities Resilient Campaign Geneva, Switzerland, March
2010 http://www.preventionweb.net/files/13627_LocalGovernmentsandDisasterRiskRedu.pdf
23 Indigenous Women's DRR Efforts Trigger Sustainable Development Process Reducing Vulnerabilities in Marginalized Afro-
Indigenous Garifuna Communities Garifuna Emergency Committee of Honduras

Background
This project involves grassroots women and communities in disaster risk reduction and
environmental and natural resources management activities that reduce both poverty and
disaster risk, increasing the resilience of the poor and most vulnerable.
The main characteristics of this project were:

o Integrated a holistic approach developing strategies to increase food security, to
reinforce cultural values and practices, work to improve soil conservation, develop
actions to promote environmental protection and biodiversity, to increase women's
participation and leadership, and to improve income generation activities.
o Integrated innovation in cropping practices (Reforestation of coastal lands with native
fruit plants such as sea grapes, almonds, etc. helped reduce erosion, made the area less
vulnerable to water and sand damage in the event of storm, provided environmental
education to school children, improved nutrition and provided a source of income.
o Local knowledge was valued in terms of disaster reduction with women insisting they
could not live on donations and instead needed assistance to make the land productive
again and improve agricultural production.
o Use of women's traditional knowledge allowed direction and information of efforts and
created the environment for the emergence of most innovative strategies when local
cultural knowledge, particularly women's traditional knowledge is used. For example,
women's knowledge about traditional medicinal plants has been the cornerstone of
many efforts.
o Recognition of the community and grassroots women as experts, enabling replication
of successes by sharing lessons learned between communities and even with other
countries.
o Grassroots women could assess their own needs and generate their own innovative
solutions. This was a key factor leading to the success of the project.
This project, developed in response to a crisis triggered by hurricane Mitch is still under way,
in part because strengthening communities to withstand disasters is an ongoing process and
also because hurricanes and tropical storms have, since then, continued to batter the
north coast of Honduras. Though this project was linked to the local socio-economic context,
it can be replicated in other regions/countries where resources are scarce, provided that
some adjustments to distinct cultural settings are made.
INDIA24
Background
With a focus on women's activities, the initiative was implemented engaging women as
information agents in the Repair and Strengthening programme during the rehabilitation
period.

Women were trained in construction of disaster-safe houses
24Enabling Women to Play a Lead Role in Disaster-Affected Marginal Communities Gender Mainstreaming in Tsunami-Affected Areas
Caritas India Tamil Nadu, Andra Pradesh, Kerala States & Andaman and Nicobar Islands, India
Women led the community management and monitoring of the construction

process, established grievance redress systems, and liaised with local, taluka25and
district-level government mechanisms.
The organization of women's self-help groups with the task to collect and
disseminate information on entitlements and create access to them;
The creation of spaces for the advancement of their priorities;
Training to prepare women to participate in decision making in local government
structures.
The establishment of Mahila Mahiti Kendra's (MMKs - Women's Information
Centers) where women were provided with training in information collection in
leadership and in organizational skills.
Through support and commitment received by the government , the activities developed created
and sustained effective mechanisms for ensuring successful recovery and resilience building, and
it created and demonstrated mechanisms for transferring knowledge and skills to other disaster-
affected and at-risk communities - through peer exchange and community resource teams.
INDONESIA26
Background
This was a project developed under UNIFEMs initiative. It emphasized the protection of
women's legal rights in relation to risks of losing access to resources (mainly land and
property ownership) and protection against future disasters. The project is a policy advocacy
for gender equality and strengthening women's legal rights for a better future for Acehnese
women and their communities. Following the signing of the Peace Memorandum of
Understanding (MoU) between the Government of Indonesia and the Free Aceh Movement
(Gerakan Aceh Merdeka, GAM) on 15 August 2005 women seized and utilized the political
momentum to engender the legal procedure as well as created political awareness on the
need for gender equality measures that resulted in advocacy for the development of a
Gender Policy and Joint Land Titling Policy by BRR (Badan Rehabilitasi dan Rekonstruksi Aceh
dan Nias - Rehabilitation and Reconstruction Agency for Aceh and Nias). More importantly,
the Joint Land Titling Policy has enabled women to register their names in the title deed as
exclusive or joint owner of land distributed by the authorities.

The use of a particular momentum to ensure gender responsive democratic governance
that would indirectly contribute to future gendering of DRR policy and guidelines.
Women's groups seizing the opportunity created by the Peace Memorandum of
Understanding and advocating on gender equality
The new opportunities provided by a disaster situation , to build a better future that
protect women and men equally, by country laws and regulations
The support received by the media and public opinion to understand the need for
affirmative actions to ensure gender equality in the society at local level.
25Taluka in India is a subdivision of a district; a group of several villages organized for revenue purposes.
26Using Political Momentum to Engender Legislation in the Reconstruction Context
Engendering and Strengthening Women's Legal Rights in Aceh United Nations Development Fund for Women (UNIFEM) Mitra Sejati
Perempuan Indonesia (MiSPI) & Jaringan Perempuan untuk Kebijakan12 (JPuK), Aceh, Indonesia
MALI 27
Background
The Sinsibere project worked to reduce desertification by developing sustainable sources of
income for rural women as an alternative to their commerce in wood. These alternative livelihoods
included vegetable gardens and making Shea butter products like soap. Besides environmental,
literacy and financial education, training in soap making and in making energy-efficient stoves was
organized for the rural women. These different trainings provided the women with skills that have
made them more confident about themselves, better able to explore alternative livelihood
options, and more eager to participate in village decision-making.
The project is based on the Local Environmental Plan that the municipal councils and the local
people developed collaboratively, and so, has been a cooperative effort between the project
workers and the local communities from the beginning. Literacy and mathematical courses have
been organized for the women so that they could be able to manage the micro loans and small
commerce, encouraging entrepreneurship.

Rural women develop sustainable alternatives to wood trade that act as alternatives to
desertification and drought, becoming activities that support their economic autonomy.
The importance of giving people the time to change their agricultural practices towards
more environmentally friendly sources of income.
Cutting and selling wood is a convenient source of income since it can be practiced at
any time of the year, while gardening depends on seasonal and climatic factors. People
have also had a positive attitude towards the alternative livelihood options, since
gardening is less arduous and less dangerous than woodcutting.
The empowerment of women and development of womens entrepreneurship and its
impact to educate future generations to combat climate change and desertification risks.
Individual ownership can contribute to project success, as the project promoted
individual people or families to plant trees on their own land, because most of the trees
planted in common land were not successfully maintained.
Success increased when seedlings were sold, even if at a very low price, than when they
were given for free.
Focusing on youth and girl children in DRR&EP: the case of India
TAMIL NADU, INDIA28
Background
27
Mali Reducing desertification by empowering rural women Mali-Folkecenter Nyetaa, Mali (In partnership with Dodo Finland and
the Ministry of Foreign Affairs of Finland ) in ISDR Gender Perspectives: Integrating Disaster Risk Reduction into Climate Change Adaptation:
lessons learned ,2008
28Chaman Pincha Gender Sensitive Disaster Management : A Toolkit for Practitioners. Oxfam America & NANBAN Trust 2008
This activity focused on girl children from single women in disaster areas EKTA29, where they were
provided with educational support to reduce their economic burden in disaster risk areas. EKTA
brought into a safety zone the girls and keep them at school and simultaneously challenged the
convention of preferential treatment for boys. The process asserted the right to childhood for girls
and the strategy included the provision of educational accessories conditional on regular health
checkups and follow-ups by a woman doctor. Besides providing girls with education on disaster
prevention, activities linked to the project did more than keeping the most vulnerable girl children
at school. It challenged the stereotypes of male preference, underpinned the dignity of single
women and girl children and asserted the right to childhood for girl children.
Many single women admitted that this gender-focused intervention allowed them to send their
girls to school otherwise they could not have afforded the school expenses. It was quite common
for girls to drop out of school because of poverty and/or increased work burden of household
chores.

A field oriented support: EKTA recruited women staff directly from the dalit30and
fishing communities of the target areas and trained them on gender, reproductive
health, legal rights, etc. Their brief was to maintain continuous communication with
mothers and motivate them to encourage their children to go to school regularly.
Promotion of activities to resist to male pressures from the community: It was
made clear to the community, especially the all male traditional village councils
(panchayats) that it would be an either/or strategy: Either the aid would go to the
girls of single women or it would be withheld completely.
Sesitizations meeting addressing women and men on the importance of providing
with education to their girls in the disaster risk areas as a opportunity to
strategically advance in the rights of young girls.

EL SALVADOR31
Background
The Reducing Vulnerabilities activities developed through Ahuachapn and Sonsonate
Programme (PRVAS) aimed to improve collaboration between NGOs, local government
authorities and local communities. The programme has been setting up and strengthening
existing Civil Protection Committees and working on a range of community-based disaster
risk reduction projects.
The impact has been seen through the effective communication and collaboration that
occurred during a number of localized emergencies. During the 2007 and 2008 floodings,
actions were coordinated between NGOs, the Municipal Committee for Civil Protection and
the Mayors office.
The strategies used were : (i) Investment in the creation and training of teams of community
field workers for early warning and information (ii) Empowerment of citizens and space
creation for participation and dialogue by educating, organizing and mobilizing communities
29 EKTA, is a resource center for women based in Madurai, The organizations focus is on protection and promotion of womens
human rights. It works with women, children, adolescents, youth and men.
30 Dalit is a self-designation for a group of people traditionally regarded as of lower class and unsuitable for making personal
relationships. Dalits are a mixed population of numerous caste groups all over South Asia, and speak various languages.
31
ISDR. ITC ILO, UNDP (2010) Local Governments and Disaster Risk Reduction Good Practices and Lessons Learned A contribution to
the Making Cities Resilient Campaign 2010.
using a rights-based approach so they could be prepared to be their own advocates to

negotiate with local government, (iii) Strengthening municipal and regional level
coordination, by creating municipal forums for leaders from the different communities to
build alliances and work together.
Collaboration between international and national NGOs that pulled donor resources
more effectively.
Collaboration between NGOs helped in acquiring better exchange of ideas, experiences
and methods.
Training of field staff and community leaders adapted to their situation.
Dialogue and collaboration between local government directly and communities to
create sustainability beyond the end of the programme.
DISASTER THROUGH A GENDER LENS gender issues in disaster response and recovery: A case of
meeting strategic interests of women through relief distribution32
Background
The approach used by SNEHA, 33 an NGO in Nagapattinam, India, to channel its relief activities, was
linking to the Womens Federation and supporting self help groups (SHGs) when negotiating
with the all male traditional village councils (Panchayats). This approach became a strategic
opportunity for institutionalizing womens groups in disaster preparedness. The Womens
Federation had conducted a survey and prepared a gender disaggregated data base. This proved
to be an invaluable tool in the verification of the list prepared by traditional Panchayats. The
gender-disaggregated survey made it possible to procure age- and gender- appropriate clothing
and other sanitary items for each household in the community.
Tools for unfolding and analyzing gender issues in DRR&EP including CCH were needed, so field
practitioners and policy makers could understand the gender situation in the area of
implementation. The daily active clock, focus groups, seasonal calendar, yearly activity clock, venn
diagram, use and control tool, disaggregated data info and others were used by SENHA and
women groups to unfold gender needs and answer questions related to the division of power.
SNEHAs strategy also included rebuilding in situ houses with communitys participation and this
had a positive impact on both women and men. The approach used was to transfer cash on the
name of women on instalment basis accompanied by close monitoring to ensure that the money
was strictly spent on building the house. This was the first time that women had their own bank
accounts. Focal Group Discussions with women and men brought to the attention positive facts
such as men reducing their drinking to channelling money into building their homes.
32Example taken from Pincha Ch. Gender Sensitive Disaster Management : A Toolkit for Practitioners, Oxfam America & NANBAN
Trust
2008.
33SNEHA is a Social Needs Education and Human Awareness, is engaged since 1985, in Nagai district ( India) for the empowerment of
the unorganized and marginalized fishing community and allied fish workers, especially women, children, Dalit, minorities, and other
marginalized sections.
In view of the time women normally return home from work SNEHA in coordination with other
CSO extended the Balwadi (childcare centre) timing from 12 a.m. to 6 p.m. as a support to girls
education especially those from widowed women.
Activities channelled by womens organized groups

Training women on gender analysis tools and performing this with CSO
Non traditional roles for Women and Men
Promoting Non traditional roles for Women and Men by supporting Housing Rights for
Women and challenging the male-only ownership of the houses, thus addressing the
gender strategic needs of women.
Alternative livelihood options for women, in non-traditional skills such as masonry, mobile
phone servicing, and hand-pump repairing, were enabled by other CSO and in the course
of training to be masons, women became functionally literate and learnt the basic
calculations necessary for masonry.
The following conclusions from data gathered in the literature review could be taken:
The fact that DRR&EP activities in Mozambique are coordinated by the MAE (which coordinates
district/local governments) is in line with best practices. In fact, local governments are better
positioned than central governments to develop and test various experiences as well as applying
them to unique settings and policy priorities. Being implemented in smaller scale they are flexible,
can be more innovative and adapted to a particular situation. In general and throughout these
examples, major roles of local governments in implementing disaster risk reduction relevant in the
Mozambican context were highlighted, such as:
1) Local governments must play a central role in coordinating and sustaining a multi-level,
multi-stakeholder platform to promote disaster risk reduction in the region or for a
specific hazard: The active commitment and leadership of a local government is important
for the implementation of any local disaster risk reduction measures to deal with different
stakeholders and multiple layers of government. Activities to be developed must consider
that they will take a long time before having tangible results and local governments have
to ensure support among external stakeholders throughout the process including
significant political and technical support and publicity.
2) Engage local communities and citizens with disaster risk reduction activities and link their
concerns with government priorities: raise citizens awareness on disaster risks and
consider their concerns. Even the most sophisticated national disaster risk reduction
measures (such as early warning systems) may fail, if communities are not properly
informed and engaged. Local governments should play a central role in community
education and training.
3) Strengthen institutional capacities and implement practical disaster risk reduction

actions: While government bodies are responsible for the long-term development and
viability of their area, on the other hand, local governments are required to consider and
institutionalize disaster risk reduction in their day-to-day operations including
development planning, land use control and the provision of public facilities and services.
4) Devise and implement innovative tools and techniques for disaster risk reduction, which
can be replicated elsewhere or scaled up nationwide: a local government is better
positioned than a national government to develop and test various new tools and
techniques, applying them to unique settings and policy priorities, because of its smaller
scale and better flexibility. Consider simple and practical tools that can integrate
community women and men performing e.g. gender and vulnerability analysis,
information on community needs and concerns, collect data disaggregated by sex.
5) Provide training to women, men and stakeholders that address women practical and
strategic needs: Non traditional training activities such as how to build houses, dig wells
and ditches, build shelters that enable women to take an active role in what is considered
male tasks. Taking into consideration the community culture and tradition, field staff and
community leaders must also be trained in gender issues using very practical exercises and
tools.
6) Capacity building and training to women and men in literacy, mathematics and micro-
credit in communities stricken by disasters: This provides skills that will lead to their
economic autonomy, a situation of key importance to recover from family losses. Non-
formal education addressed to children, youth and adults, including literacy classes
provides an effective platform for life skills especially within vulnerable communities
whose livelihoods are climate sensitive and access to knowledge, information and basic
education is lacking. The flexible curriculum promoted by the Education authorities is an
opportunity to include local needs and concerns as part of its regular contents. The fact
that literacy classes are attended by a large number of women provides an opportunity to
discuss issues related to early warning, prevention, climate change and others, including
how to develop activities that address their practical and strategic needs.
7) Disasters can become opportunities to transform women's roles and status in the
community: Women are agents of change and even if gender priorities under disaster
contexts are not always recognized, current traditional perceptions of women's role as
housewives can change if women are trained to participate in decision making in local
government structures as well as if they are provided with leadership and organizational
skills. Providing this type of training to the Local Committees for Disaster Management can
motivate that more women participate in the decision making community structures.
When local governments start implementing disaster risk reduction activities it might happen that
there is an initial lack of interest and of capacities for disaster risk reduction activities and
difficulties in understanding local risks and vulnerabilities due to lack of sufficient knowledge about
disaster risks and vulnerabilities of their communities as well as appropriate disaster risk reduction
measures. Maintaining and upgrading critical infrastructure and managing long-term processes
can also create constraints to implement these activities. Therefore it is very important that
different stakeholders (central governments, NGOs and UN agencies) and partners provide strong
and long standing support to help local governments to better plan and manage local disaster risks.
VI
Overview of gender issues in Disaster Risk
Reduction and Emergency Preparedness
(DRR&EP)and Climate Change
Disasters dont discriminate, but people do. Existing socio-economic

conditions mean that disasters can lead to different outcomes even for
demographically similar communities - but inevitably the most vulnerable
groups suffer more than others. Research reveals that disasters reinforce,
perpetuate and increase gender inequality, making bad situations worse for
women. Meanwhile, the potential contributions that women can offer to the
disaster risk reduction imperative around the world are often overlooked and
female leadership in building community resilience to disasters is frequently
disregarded. (Margareta Wahlstrm Assistant Secretary-General for
Disaster Risk Reduction United Nations, Julia Marton-Lefvre Director General
IUCN, Jordan Ryan Assistant Administrator and Director BCPR, UNDP, 2009)34
Available information shows that efforts to promote gender equality in DRR& EP and CCH have
mainly focused on advocacy and lobbying by the international organizations, NGO`s and a few
countries sensitive to the differences on impact and coping mechanisms between affected male
and female populations.
The term gender refers to socially ascribed roles, responsibilities and opportunities of women
and men, the power structures in their relationships. Gender is ...in essence, a term used to
emphasize that sex inequality is not caused by the biological and physiological differences that
characterize men and women, but rather by the unequal and inequitable treatment socially
accorded to them. In this sense, gender refers to the cultural, social, economic and political
conditions that are the basis of certain standards, values and behavioral patterns related to
genders and their relationship (Riquer, 1993).
Disasters can lead to different outcomes even for demographically similar communities. Several
studies have shown that negative impacts affect mainly vulnerable groups, and increase gender
inequality, worsening women and girls situation. In many cases this also includes elderly women
and men. The potential contributions that women can offer to the disaster risk reduction are often
overlooked and women are seldom recognized as agents of change in their role, among others, as
leaders in building community resilience to disasters.
UNISDR, UNDP and IUCN (2009)35 developed several definitions on Disaster, Disaster Risk
Reduction, Vulnerability and others related concepts that are found in Annex 3:
Today most of the institutions and organizations dealing with gender differences in DDR&EP and
Climate Change36 are implementing their activities through the gender mainstreaming approach,
"a process of assessing the implications for women and men of any planned action, including
35 UNISDR, UNDP and IUCN. Making Disaster Risk Reduction Gender-Sensitive Policy and Practical Guidelines, Geneva, Switzerland,
June 2009.
36 According to the UNFCCC climate change refers to a change of climate that is attributed directly or indirectly to human activity that
alters the composition of the global atmosphere and that is in addition to natural climate variability observed over comparable time
periods. Recently the Intergovernmental Panel for Climate Change (IPCC) defines climate change as any change in climate over time,
whether due to natural variability or as a result of human activity (Fourth Assessment Report - AR4, 2007).
legislation, policies or programmes, in all areas and at all levels. It is a strategy for making women's
as well as men's concerns and experiences an integral dimension of the design, implementation,
monitoring and evaluation of policies and programmes in all political, economic and societal
spheres so that women and men benefit equally and inequality is not perpetuated. The ultimate
goal is to achieve gender equality (ECOSOC 1997).37 Mainstreaming is a process bringing an
issue that could be considered marginal, into the main decision-making process of an organization
or institution. A gender-mainstreaming approach is an inclusive approach that assesses the
situation of women and men as beneficiaries, and does not look at women in isolation.
Nevertheless, this process entitles social justice and human rights that ensure equitable and
sustainable human development by the most effective and efficient means. Many efforts to
mainstream gender into disaster risk reduction have found a gap in policy and practical guidance
mainly because there is a lack of guidance and understanding of these concepts among
government and institutions.
The United Nations International Strategy for Disaster Reduction acknowledge in their DRR
programs and guidelines, the shift from a women-focused approach to a gender- focused
approach, where men and womens roles and relationships should be analyzed within the overall
gendered socioeconomic and cultural context. In the pursuit of sustainable development, there
has been a shift in the focus of DRR recently: from a reactive disaster management response
towards a long-term proactive disaster risk management and vulnerability reduction, where
gender and DRR are considered a main issue.
Relevance for considering gender issues in Disaster Risk Reduction and

Emergency Preparedness (DRR&EP) and Climate Change
Identification of gender roles are of key importance among vulnerable people specially when
dealing with development initiatives which aspire sustainable results. In most societies there are
significant differences between the rights and opportunities of women and men especially in
relation to land and resource rights, access to work, fair salaries and participation in decision-
making processes. Norm and values, tradition and culture are in many cases at the base of
inequality between men and women. Where gender inequalities are enshrined in cultural practices
and/or national or customary laws, resistance to change may be strongly exacerbated by fears that
gains of power, prestige and benefits by women may signify their loss by men.
Disasters, emergencies and the negative impacts of climate change affect women and girls
differently from men and boys and often in situations of natural disasters they lose the capacity to
sustain their own and their familys livelihood. This results from the combined factors of natural
hazards and peoples vulnerabilities that can take several expressions such as physical exposure,
socioeconomic vulnerability, and limited capacity to reduce vulnerability and disaster risk.
Women are often more vulnerable in disaster, emergencies and under the negative impacts of
climate change due to their subordinate social and economic status (they are poorer and more
vulnerable than men, lack participation in decision-making processes and are viewed as passive,
vulnerable and helpless). As a result, they increase gender-specific physical insecurity and suffer
additional abuse, especially in remote rural areas. Nevertheless, there are studies that reveal that
in several cases even when uprooted, women take responsibility for themselves and for other
37
Extract from REPORT OF THE ECONOMIC AND SOCIAL COUNCIL FOR 1997 (A/52/3, 18 September 1997).
members of their households. Addressing gender inequalities and promoting the adoption of a
gender equality perspective is crucial to avoid insecurity.
In DRR activities and programmes, including emergencies and preparedness, usually women
assume new roles and responsibilities to ensure the survival of their families during a crisis. If their
husbands, sons or male representatives are absent, women frequently become the sole nurturers,
providers and community spokespeople. They bear the burden of coping even if they have
difficulty in obtaining the equal humanitarian assistance entitlements that men do have.
In these contexts, gender analysis and vulnerability assessment can help to clarify the specific and
often different needs, vulnerabilities and coping strategies of women and men, so that they can
be more adequately addressed in response to the DRR & EP situation as well as CCH mitigation and
adaptation. Lessons learned reveal that interventions to save lives and secure livelihoods in
emergencies are more efficient and effective when gender differences are properly understood.
Climate change affects men and women differently

As it has already been explained, there are differences between men and women in social
expectations, roles, status, and economic power and also they are affected differently by climate
change. Women are responsible for 70-80 percent of household food production in sub-Saharan
Africa and CCHs impact on food security is predicted to reduce crop yields and food production in
some regions, affecting specially women and households headed by women, a situation
exacerbated by the unequal access to land, information, and inputs such as improved seeds and
fertilizers. Traditional food sources may become scarcer as the climate changes. Womens specific
knowledge of maintaining biodiversity, through the conservation and domestication of wild edible
plant seeds and food crop breeding, may also be put at risk due to lack of time to attend training
sessions coupled with high illiteracy levels, which prevent them from taking advantage of training
aids that might be available.
Climate change may well have negative impacts on existing shortages of water. Women are the
primary responsible for water collection in their communities. Changes in climatic conditions affect
water quantity and accessibility. This will oblige women to walk longer distances for water
collection, consuming more of their already limited time.
Climate change may affect human health in a variety of ways such as increased spread of vector-
and water-borne diseases, reduced drinking water availability, food insecurity due to reduced
agricultural production in some regions and increased cases of heat stress and respiratory
illnesses.(CIDA 2008)38Women, as primary caregivers in many families, may see their responsibilities
increase as family members suffer increased illness.
38 GENDER EQUALITY AND CLIMATE CHANGE Why consider gender equality when taking action on climate change? CIDA Canada2008
Relations between gender mainstreaming and DRR&EP, CCH mitigation39

and adaptation40 efforts
The Report on the 52nd Session of the UN Commission on the Status of Women make reference
to the need to Integrate a gender perspective into the design, implementation, monitoring,
evaluation and reporting of national environmental policies, strengthen mechanisms and provide
adequate resources to ensure womens full and equal participation in decision-making at all levels
on environmental issues, in particular on strategies related to the impact of climate change on the
lives of women and girls(CSW2008). This proposal clearly establishes a linkage between two global
challenges: gender inequality and adaptation to climate change. The report recommends that a
gender perspective be integrated at all levels of planning for and decision-making on climate issues
and that resource be made available to ensure the full participation of women.
In disaster areas women and men experience different vulnerabilities and cope with natural
disasters differently. Therefore, an increase in the magnitude and frequency of natural disasters
will have different implications for men and women. In this way, gender mainstreaming is essential
to be considered in mitigation and adaptation policies, strategies and programs as stated by the
CSW. For example, as womens asset determine how they respond to climate change impacts it is
necessary to provide them with education, resources and technology, promote their participation
in decision making and others as fundamental issues that will enhance their livelihoods in
mitigation and adaptation. A good example of this is the case of Honduras. After hurricane Mitch
(1998), La Masica ( a town in Honduras) , reported no deaths. A disaster agency had provided
gender-sensitive community education on early warning systems and hazard management six
months earlier. Women were able to assume responsibility for continuously monitoring the early
warning systems, and the municipality was able to evacuate the area promptly when hurricane
Mitch struck.
Factors that influence women in DRR&EP and CCH mitigation and

adaptation
Some of the key issues affecting women living in places vulnerable to disaster risks and that
should be considered when developing Projects, programmes and activities are described
below :
o The lack of access to information, communication, education, illiteracy, play a critical

role on the effectiveness of early warning systems and make women less likely to
39 IPCC (2007) defines Mitigation as the technological change and substitution that reduce resource inputs and emissions per unit of
output. Mitigation is reducing emissions of greenhouse gases or sequestering emissions is critical to slowing climate
change Although several social, economic and technological policies would produce an emission reduction, with respect to climate
change, mitigation means implementing policies to reduce G H G emissions and enhance sinks. The current international legal
mechanism for countries to reduce their emissions is the United Nations Framework Convention on Climate Change (UNFCCC).
40 Adaptation, or coping with climate change impacts, means adjustments in ecological. social or economic systems in
response to actual or expected climate stimuli and their effects or impacts. This term refers to changes in processes,
practice and structure to moderate potential damages or to benefit from opportunities associated with climate change
(source IPCC 2001) Adaptation is critical for vulnerable population specially those dependent on small-scale resources.
To this group but especially for women, climate change could severely change their ability to manage natural resources, as women have
different roles and responsibilities which give rise to differences to cope with change.
respond to DRR&EP as well as climate change adaptation and mitigation. Customs and
beliefs play also an important role.
o Limited economic access and differences in access to resources, can limit their capacity
to respond to disasters or to different options and safety nets for coping with change
o The gender-based division of labour which can increase womens work load
o Difference between womens and mens participation at decision making level when
dealing with DRR&EP activities and policies including climate change mitigation and
adaptation
o Weak political support at national and regional level.
The effects of natural disasters, emergencies and climate change are multifaceted: social, political,
and economic as well as environmental. While women are generally more vulnerable but not
helpless, they exhibit surprising resilience and are key agents of environmental transformation.
Therefore, there is a need to elaborate responses not imposed from above, but modelled on needs,
aspirations, knowledge and capabilities of women and men that are then actively involved as
crucial partners in CCH mitigation and adaptation efforts. Gender considerations should be
introduced in the key critical issues on the climate change agenda, namely: mitigation, the Clean
Development Mechanism, adaptation and capacity building. Efforts should be directed towards a
wider application of a gendered approach even in other strategic sectors, including, for instance,
technology transfer and vulnerability studies (Lambrou Y. Piana G. 2005) 41
Gender as a cross-cutting issue in DRR&EP and CCH mitigation and adaptation activities needs to
be addressed through a holistic and multi-stakeholder approach. Joint action and coordination
through political, technical, social, developmental and humanitarian processes is needed.
Implementing a mainstreaming gender approach offers an opportunity for re-examining gender
relations in society from different angles and enhancing gender equality in socioeconomic
development. It also makes it possible for nations and communities to achieve disaster resilience.
But the implementation of special activities addressed to women must also be considered if there
are cultural prevailing patterns in a community that indicate that activities must be undertaken
with men an women separately. This is also true if the result of a gender analysis results in needs
to support women who are in a more vulnerable situation than men.
Some gender-specific vulnerabilities and challenges to disaster, emergency

and climate change42
The unequal gender relationships that exist within most groups of men and women may pressure
progress towards the advancement of womens rights and empowerment. Gender specific
vulnerabilities can also offer opportunities to reframe challenges through a new lens that examines
inequalities between men and women.
o Male and young women rural-urban migration may happen due to resource shortages,
generating increased workload for women left behind;
41Lambrou Y. Piana G. (2005) Gender: The Missing Component in the Response to Climate Change. FAO-Rome.
42 CIDA ( 2008) GENDER EQUALITY AND CLIMATE CHANGE Why consider gender equality when taking action on climate change?
Canada.
o Water and sanitation: Increased difficulty in accessing natural resources, in particular,

fuel wood and water, hence, creating an increased workload for women. In most parts
of the world, in rural and urban areas, women and girls are responsible for collecting
water for cooking, cleaning, health and hygiene. Limited water supplies, poor service
delivery, and pollution will jeopardize womens survival and that of their families.
o Biodiversity and ecosystems: Women and men play different roles in community
conservation efforts, with women often taking leadership in seed selection and
preservation. Traditionally they have used indigenous resources for food, medicines and
energy and also traditionally they have inherited flora and fauna knowledge and
conservation methods of their environment. Loss of species due to climate change will
specially impact poor rural women. In this same context, energy sources will affect more
women than men especially because they will have to take more time in household
activities.
o Agriculture and food security: Crop and livestock production changes could affect the
gendered division of labour resulting in negative effects on both mens and womens
incomes. Poor rural women, small landowners, subsistence farmers, and fishermen, are
especially vulnerable to climate change. Rural women from developing countries are the
principal basic food producers, a sector that is very much exposed to risks of drought and
potential rain pattern changes, as women have specific conditions that place them in a
disadvantage situation. Therefore special consideration should be taken when looking at
climate change adaptation, in issues such as land use, land tenure and legal aspects.
o Womens informal rights to resources could decrease or disappear as accesses to land
natural resources dwindle due to climate change. Coastal zones: The livelihoods of
people living in low-lying coastal zones may be threatened due to sea level rise. Impacts
on flooding levels increase, accelerated erosion, threatened wetlands and mangroves,
and seawater intrusion into freshwater resources can also occur due to heavy rain and
other climatic phenomenon. These can result can impact negatively women and men
work.
o Drought shortfalls in seasonal rains have resulted in drought and economic distress that
lead to a 50% increase in the likelihood of civil war. Climate change accelerates the loss
of vegetation and thus desertification. Preserving food, water and traditional medicines,
including natural resources management is one of womens traditional roles in
developing countries. Dry lands throughout the world, is particularly affecting women
decreasing their traditional crop and livestock productivity.
o During natural disaster situations men are assigned a protection role although they
could also face situations of risk-taking during and after the natural disaster and they
can be caught between gendered demands that define the notions of manhood in
patriarchal societies. In some regions, like the case in Latin America, the strong cultural
expectation of men being protectors and indulging in risk-taking behaviour can result
in higher mortality, as was the case, for example, during Hurricane Mitch in Central
America (1998). Men also may experience strong feelings of frustration and alienation
after disasters. This can be expressed physically, in increased domestic and sexual
violence.43
43
InfoResources Focus No 2/09 Disaster Risk Reduction a Gender and livelihood perspective. Intercooperation (IC-HO), Info Service
CDE and InfoAgrar / SHL, in partnership with IC India / Bangladesh / Mali / Andes, CETRAD (Kenya) and SIMAS (Nicaragua). 2009
Gender equality in DRR&EP, CCH mitigation and adaptation does not mean merely addressing
womens issues. It means addressing concerns of men and women, the relations between them
and the root causes of imbalances. Therefore, mainstreaming gender raises several challenges, due
to poor understanding of gender issues and DRR linkages at the policy and practitioner levels.
Furthermore:
o Gender issues are often institutionally marginalized within organizations specially when
applying Gender Focal Points or Gender Desks mechanism. Usually people occupying
these positions lack enough financial support to carry out gender equity activities
o Institutions tend to treat gender as women issues. Gender expertise is applied in
isolation from the mainstream of the development processes like DRR.
o Seldom gender is identified as an integral component of DRR&EP and CCH mitigation
and adaptation and in many cases it is not given the real dimension when it is not
understood to be a cross-cutting issue.
o Scarce financial support for global advocacy and action and commitment largely remain
on the NGO`s side that face constraints when lobbying government for concrete
policies, finances, substantive programmes or accountability measures. Gender
mainstreaming in DRR&EP and CCH mitigation and adaptation remains a free choice.
o Difficulties in institutionalizing capacity and tools to mainstream gender due to lack of
knowledge and training among managers, professionals and decision making
government professionals.
VIII
Some Findings
The findings from international best practices and innovative activities in relation to gender-
responsive DRR&EP and CCH, are developed below. These findings include activities and
programming approaches relevant to Mozambique
DRR&EP and CCH approaches
The evolution of approaches from relief and response to DRR&EP has begun to influence the way
disaster risk reduction and management programs are being planned and financed. There are
initiatives aimed at reducing social and economic vulnerability and investing in long-term
mitigation activities, in consonance with the paradigm shift in the mainstream development
practice, which is now characterized by emphasis on good governance, accountability and greater
focus on bottom-up approaches. Linking climate change to human development remains an
important challenge because it addresses better the gender dimensions of climate change and
clarifies the linkages between gender and climate change mitigation and adaptation and to
Disaster Risk Reduction and Emergency Preparedness. The Climate Change Agenda is based on the
growing concern of the climate system changes and its impact on human activities. It has a strong
environmental approach. Disaster risk reduction agenda addresses humanitarian actions to
respond to disasters as well as how to better anticipate, reduce and manage disaster risk by
integrating risk reduction measures into sustainable development planning and policies. Using a
systemic approach DRR&EP work to reduce exposure to different hazards, and enhance coping and
adaptive capacities of vulnerable populations. In this manner, it can decrease the human, social,
economic and environmental vulnerability to natural hazards. The concept of vulnerability is
central to DRR. It acknowledges women, the elderly, children, ethnic and, socially excluded tend
to be most vulnerable to natural hazards.
Mozambique and the International Agreements
Mozambique has compliance with several International Agreements and is a signatory of several
international agreements focusing on environment dealing with DRR&EP, CCH. One example is the
Hyogo Framework for Action (HFA) 2005-2015the global disaster risk reduction agenda that
identifies several priorities for action as a guide for states, international and regional organizations,
and other stakeholders. The HFA includes a mandate in relation to gender equality and
empowerment of women in the context of disaster risk reduction, referring the need for
mainstreaming gender into all DRR policies, plans and decision-making processes, including those
related to risk assessment, early warning, information management, and education and training.
Moreover the Platform on Gender Equality and Disaster Risk Reduction agreed by all nations
represented at its World Conference, established that gender, should be mainstreaming in the five
Hyogo Framework priorities. Gender approach should be included in disaster management
initiatives; in capacity building that addresses womens groups and community-based
organizations; in communication and information dissemination, in training and education with
holistic approach that include socio-cultural issues; in providing opportunities to women in science
and technology; and in program implementation, monitoring and evaluation.
Mozambique has made encouraging strides in reducing its poverty levels and is making gradual
progress towards benchmarks set by the national Action Plan for the Reduction of Absolute
Poverty (PARPA) and the Millennium Development Goals (MDGs). Gender and disaster risk
management are among the eight cross cutting issues of PARPA II. In line with HFA a ten-year
strategy aimed at strengthening the capacity to mitigate the impact of frequent natural disasters
in Mozambique (National Master Plan for Disaster Risk Reduction (PDPMCN). Provincial and district
level authorities, including INGC representatives, need to be supported to take on their leadership
role in preparedness and response. As it has been highlighted in several worldwide experiences
(see case studies and lessons learned), local governments are key actors when implementing
DRR&EP and CCH activities and tools in the region/area. Therefore effective DRR in Mozambique
requires coordination and that capacity building efforts at central level be replicated and
strengthened at provincial, district and community levels where the disaster risks are evident.
Effective coordination on gender issues in DRR &EP and CCH is one of the key issues. No single
intervention, individual actor or organization can effectively address the diverse needs of women
and men alone, particularly if entities in the field are not sensitive to these gender differences. An
effective coordination requires assessment of the situation and needs of men and women,
development of common strategies; coordination meetings with all stakeholders and setting aside
adequate funds for coordination mechanisms.
Support at this level is also needed to address early recovery once an emergency is over and the
external humanitarian partners have left, in order to ensure a smooth transition to the
reconstruction/development phase. In this phase it is important that institutions are prepared and
have already a plan of action to provide and implement several activities according to womens
and mens needs (e.g: skills training; income generation training activities).These should
definitively include gender analysis as a cross-cutting matter especially at the decentralized level,
a situation that through the official documentation of Mozambique that were studied, was not
clearly found.
Gender equality in DRR&EP, CCH mitigation and adaptation does not mean merely addressing
womens issues. It means addressing concerns of men and women, the relations between them
and the root causes of imbalances. It is important to consider that gender inequalities have
negative effects on womens coping capacity but they are important actors of change as they are
holders of significant knowledge and skills related to mitigation, adaptation, and reduction of risks
in the face of DRR and CCH. The importance of mainstreaming gender equality for the recognition
of human rights, sustainable development and/or poverty eradication and disaster reduction has
been acknowledged in a series of international instruments. In Mozambique even if the efforts to
comply with gender mainstreaming are recognized, they still remain at a macro level with
constrains on how to implement at field level the guidelines provided in the several government
instruments and mechanisms.
Gender-specific vulnerabilities and challenges in DRR&EP: good practices

and lessons learned what does the literature shows as key issues to
mainstreaming gender
From the literature review, there are common agreements in that, to address communities
at risk, local governments play an important role in:
o Coordinating and sustaining a multi-level, multi-stakeholder platform to promote

disaster risk reduction in the region or for a specific hazard;
o Engaging local communities and citizens with disaster risk reduction activities and link
their concerns with government priorities;
o Strengthening institutional capacities to implement practical disaster risk reduction
actions;
o Implementing innovative tools and techniques for disaster risk reduction.
All of these are key issues to be considered by the international community, donors and
the GoM when supporting DRR&EP activities at local level.
In many cases, at local and field level it has been acknowledged that there are difficulties
in understanding local risks and vulnerabilities due to the lack of sufficient knowledge
about disaster risks and vulnerabilities of their communities and appropriate disaster risk
reduction measures. Therefore it is important that different stakeholders (national
governments, NGOs and UN agencies) and partners provide strong support to help local
governments to better plan and manage local disaster risks. In this context training to local
staff is essential to implement accurate, efficient and effective programs that address the
most vulnerable.
Some considerations for successful experiences on gender mainstreaming in DRR&EP and CCH are
presented below :
o The use of an integrated holistic approach, that is innovative creating and adapting
several tools to highlight and integrate gender considerations in projects and
programmes. Gender must be a cross-cutting issue in DRR&EP and CCH mitigation and
adaptation activities, addressed through a multi-stakeholder approach where political,
technical, social, developmental and humanitarian activities are coordinated. Holistic
approach mainstreamed by gender offers an opportunity for re-examining gender
relations in the community and help to achieve disaster resilience. Implementing
activities addressing women a will be needed when there are cultural prevailing patterns
in the community that indicate that activities must undertaken with men and women
separately.
o Using the women local and traditional knowledge in DRR&EP and CHH activities, can
stimulate innovative strategies adapted to the environment allowing the development
of actions that reflects their practical needs and interests.
o Natural disasters exacerbate existing gender inequalities. Programmes and projects on
DRR &EP may create further discrimination and injustices if gender is not taken into
account, and the policies to respond are built on the same unequal power relations that
created the problem. Women are agent of change. Use disaster recovery activities as an
opportunity for womens access to and control over resources at all levels through
income generation projects, revolving funds, and other schemes that can provide their
economic autonomy.
o Addressing womens strategic needs in projects and programs are needed, that can lead
to changes in traditional women roles that will challenge the male culture. Developing
and implementing non-traditional training and skills such as masonry, mobile phone
servicing, and hand-pump repairing are options that could lead women to acquire
economic autonomy, and enabling them to negotiate a change in gender traditional
roles.
o In Mali the use of a participatory approach in project development to allow grassroots
women to assess their own needs and generate their own innovative solutions, was a
key factor that lead to the success of a project where women developed sustainable
alternatives to wood trade, changing their agriculture practices to a more environmental
friendly source of income.
o In Indonesia the use of DRR&EP and CCH activities as an opportunity to change womens
traditional role and status in the community, helped to open new opportunities to
engender Acehnese womens legal rights for a better future in the law and regulations
that protect both women and men equality.
o Collection of qualitative data on the vulnerabilities of women and men contributes to
build their capacity profile in the community. This will help to identify sources of
resilience, coping strategies and alternative livelihood opportunities that exist within
communities. This information will contribute to develop activities in view of needed
changes on the gendered division of labour and gender roles. Collecting, developing and
implementing data disaggregated by sex on DRR&EP, was a good example implemented
by SNHA NGO in Nagapattinam India, that showed how it is possible to respond to an
emergency in a manner that is equitable and gender-sensitive. The relief, rehabilitation
and disaster mitigation policies call for this information to be periodically collected,
updated and analyzed from a gender perspective.
o Development of tools is essential to analyze gender issues in DRR&EP and CCH so that
field practitioners and policy makers can understand gender-based vulnerabilities when
they develop projects.
o Gender analysis and participatory vulnerability assessments in communities subjected
to natural disasters is of vital importance. Developing a participatory in-depth
examination of women and men vulnerability empowers and motivates women and men
to take appropriate actions. Linking disaster preparedness and response to long-term
development helps to understand vulnerability, its root causes and to identify the most
vulnerable groups.
o Gender issues in DRR &EP and CCH are not gender neutral. Rehabilitation, and
reconstruction, processes need to include a gender perspective in view of the pre-
existing socio-cultural and economic vulnerabilities rooted in the unequal gender
relationships that exists within most groups of men and women. One of the challenges
is to involve men in reproductive activities that lead to changes in their roles. This is a
long process that has to take into consideration cultural and traditional norms, to avoid
future negative reactions that can jeopardize changes.
o Training of national and local authorities and staff working in DDRR&EP and CCH using
a holistic approach that includes socio-cultural analysis, is indispensable. This also
includes how to use and adapt existing different tools to implement a gender analysis
and a vulnerability assessment.
o Ensure that all girls and boys benefit equally from education in emergency situations. It
is important to understand the social and gender dynamics that might affect boys and
girls, on the supply and the demand of education.
o Women and men have different perception of hazards. Often women are at risk of
violence and may be unable to have access to aid and make their needs known.
Commonly men are assigned a protection role however they can also face situations of
risk-taking during and subsequent to a natural disaster. They can be caught between
gendered demands that define the notions of manhood in patriarchal societies.
Priority areas for action
It emerges from the data collected in the literature review, that under the context of Mozambique,
the following recommendations apply:
o Implementation of gender analysis and vulnerability assessments before starting a

project proposal , in coordination with all mechanisms and institutions responsible for
disaster risk reduction, climate change, and poverty reduction activities;
o Mainstreaming of gender into strategies and plans and implementation of a gender
approach in planning and programming;
o Insurance of equal access to early warning systems on natural hazard for women and
men;
o Development and production of statistics desegregated by sex on the impact of
disasters, carrying out of gender-sensitive vulnerability, risk and vulnerability
assessments and developing gender-sensitive indicators to monitor and measure
progress;
o Public and media awareness increase on gender sensitive vulnerabilities and capacities
in disasters and gender specific needs and concerns in disaster risk reduction and
management and CCH;
o Organization and development of research on cost-benefit and efficiency of gender-
sensitive policies and programmes in disaster risk reduction, climate change adaptation
and poverty reduction;
o Linkage of DDRR&EP and CCH mitigation and adaptation from a gender perspective;
o Mainstreaming of gender in disaster preparedness, response and contingency planning
making them respond to concerns and needs specific and men and women;
o Increase of womens participation in disaster relief coordination and insurance of equal
access to disaster relief assistance between men and women;
o Building and enhancement of the capacities pertinent to national institutions to enable
gender mainstreaming into all development sectors.
In the aftermath of natural disasters, affected communities will need help to restart agricultural
activities as soon as possible, in order to meet household food security needs adequately and
restore resilience. Food security is multidimensional and multi sector and involves many different
stages from production to storage. Women, girls, boys and men have a special role in each of food
security dimension and in each of them there are gender implications specially when referring to
secure family wellbeing. Women are the main responsible for the processing, preparation and
provision of food for the household in the family. In a post-disaster situation, the roles of women
and men may change and therefore it is recommended to assess division of labor in food security
and nutrition wellbeing for the household. This is also true in the distribution process because in
some societies, women and/or children can be victims of food discrimination. Gender issues should
be mainstreamed in availability, access, utilization of food. Gender aspects are relevant to most of
these issues since women and men are generally affected differently by natural disasters,
emergency and displacement and have different access to and control over resources.
Literature and experience, all steer towards the conclusion that working towards gender equality
(i.e. women and men) is central to develop successful initiatives. The value of incorporating
gendered stakeholder analysis into projects is not to consider poor women as victims who need to
be saved but mainly to call attention that they are also agents of change. Gender analysis in
projects and programmes highlight the different roles, and impacts on women and men in the
proposed activities and how to support them in pro gender equality. In view of the different forms
of vulnerability, inequalities and other social characteristics of men and women and of their
options/potential and consequences in different areas, a vulnerability assessment is an essential
element both in terms of program-efficiency and in terms of empowerment. Lessons learned in
the example of this literature review, reveal that interventions to save lives and secure livelihoods
in emergencies are more efficient and effective when gender differences are properly understood.
Taking a new, cutting edge approach to the issues around gender and DRR&EP and CCH requires a
reframing of the problem in a way that takes account of core power differentials, particularly the
relationships between women and men. A forward-looking approach requires more than a simple
integration of gender into existing policies, but somewhat an emphasis on transformation and
change that need analysis of the causes and impacts of natural disasters and climate change in
order to find key opportunities to bring together men and women at the centre of all responses,
as participants and beneficiaries in the immediate and longer-term programs and projects .
ANNEX 1
General characterization of the climate change

adaptation and disaster risk reduction
communities44
CLIMATE CHANGE ADAPTATION DISASTER RISK REDUCTION

Approach
risk management risk management
strong scientific basis engineering and natural science basis
environmental science perspective traditional focus on event and exposure
highly interdisciplinary and on technological solutions
vulnerability perspective shift from response and recovery to
long-term perspective awareness and preparedness
global scale short term but increasingly longer term
top-down local scale
community-based
Organizations and institutions
United Nations Framework Convention on United Nations (UN)
Climate Change(UNFCCC) Pro Vention Consortium (World Bank)
Intergovernmental Panel on Climate International Federation of Red Cross and
Change (IPCC) Red Crescent Societies (IFRC)
Academic research International, national and local civil
National environment and energy society organizations
authorities National civil defence authorities
International conferences
Conference of the Parties (COP) World Conference on Disaster Reduction
Assessment
IPCC Assessment Reports IFRC Vulnerability and Capacity Assessment
(VCA)
IFRC World Disasters Report
International disasters databases:
EM-DAT
NatCat SERVICE (Munich Re)
Sigma (Swiss Re)
44Thomalla, F, Downin T.g, Spanger-SiegfriedE. , Han G. and Rockstrm J., Reducing hazard vulnerability: towards a common
approach between disaster risk reduction and climate adaptation in Disasters, 2006, 30(1): 3948. Overseas Development Institute,
2006 Published by Blackwell Publishing, 9600 Garsington Road, Oxford, OX4 2DQ, UK and 350 Main Street, Malden, MA 02148, USA
Strategies
National communications to the UNFCCC UN International Decade for Natural
National Adaptation Plans of Action (NAPA) Disaster Reduction (IDNDR)
for Least Developed Countries Yokohama Strategy and Plan of Action for a
Safer World
UN International Strategy for Disaster
Reduction (ISDR)
Hyogo Framework for Action 200515
Funding
Special Climate Change Fund National civil defence/emergency response
Least Developed Countries Fund International humanitarian funding (for
Kyoto Protocol Adaptation Fund instance, UN Office for the Coordination of
Humanitarian Affairs (OCHA)
Multilateral banks
Bilateral aid
ANNEX 2
Beijing Agenda for Global Action on
Gender-Sensitive Disaster Risk
Reduction45
Beijing, China, 22 April 2009

We, the participants of the International Conference on Gender and Disaster Risk Reduction7 from 43
countries, bringing expertise and knowledge from all regions of the world, have met in Beijing, China, from
20-22 April 2009. This conference has built on the gains of a series of regional and international events
promoting gender equality in disaster risk reduction, including all gender-sensitive policies, risk assessment,
early warning, and success indicators for building resilience of nations and communities to disasters.
We acknowledge key regional and international processes and declarations such as the Hyogo Framework
for Action, Ministerial Conferences on Disaster Risk Reduction in Asia and Africa, the Call for Action on
Gender and Climate Change by the International Colloquium in Liberia, the Nairobi Plan of Action for African
Parliamentarians on Disaster Risk Reduction and Climate Change Adaptation, the Beijing Platform for Action,
and the Manila Declaration for Global Action on Gender in Climate Change and Disaster Risk Reduction.
These processes and declarations present a consensus among the worlds political leaders on the critical
importance of gender mainstreaming to achieve the Millennium Development Goals.
We, the participants from 43 countries, UN agencies and civil society organizations around the world, have
carefully reviewed progress and have identified and agreed upon challenges from gender perspective under
the five themes of the Conference: (1) Promoting policy changes for gender-sensitive disaster risk reduction;
(2) Linking disaster risk reduction with poverty reduction from a gender perspective; (3) Making disaster risk
reduction a tool for climate change adaptation; (4) Ensuring equal participation of men and women in
building community resilience to disasters and (5) Women and post-disaster relief and reconstruction: One
year after the Wenchuan Earthquake in China.
We fully recognize that disasters triggered by natural hazards such as flood, drought, tropical storms and
earthquakes are on the rise. Today, the most frequent disasters are climate-related. The rising trend of
disasters poses serious challenges for the world to achieve the Millennium Development Goals, especially
food security, poverty reduction, and environment sustainability. International data available shows that
disasters hit poor people the most, although the rich are not necessarily excluded from the impacts.
We are fully aware that women comprise 70% of the worlds poor and that women are more vulnerable to
the impact of disaster due to existing socio-economic, political and cultural disadvantages. Prevailing policies
and frameworks do not adequately recognize and support the crucial role that women play in sustaining
household and community economies and social networks. Climate change will make the daily lives of
millions of women in developing countries even more difficult, primarily due to environmental degradation.
We raise concern that gender remains a marginalized issue in the current national and international
negotiations around disaster risk reduction and climate change adaptation. Gender considerations have
barely been applied as a fundamental principle in policy and framework development.
45The International Conference was organized by All China Womens Federation and UNISDR. Co-hosted by the Ministry of
Civil Affairs of China and the UN System in China
We are fully convinced that the issues of gender, poverty reduction, climate change adaptation, disaster risk
reduction and post disaster recovery and reconstruction that we discussed at this conference are all
components of the development process. Gender equality is a fundamental development issue that needs
to be integrated and addressed throughout the development process. Disaster risks and the risks arising
from climate change and rapid urbanization are ever increasing challenges that the development process
faces.
We need political will and commitment, scientifically sound approaches, policies, programmes and action
plans to address these complex issues. It is important to adopt an innovative and comprehensive approach.
We need integrated development policies, planning and implementation processes that take into account
disaster risk reduction and climate change adaptation with gender as a cross-cutting issue.
We fully promote multi-stakeholder, multi-sector, multi-disciplinary and multi-level cooperation and

collaboration as a win-win option to achieve and sustain gender equality. Only in this way will sustainable
development be achievable.
We are all convinced of the importance and need for integrating a gender perspective in policies and
programmes in our own capacities as politicians, senior government officials, and development and
humanitarian actors, and we are committed to advocating for this.
We, therefore, recommend nine achievable actions before 2015. We request national Governments to make
strong commitments in line with international mechanisms:
1. Increase political commitment to gender analysis and gender mainstreaming through

enhanced cooperation and collaboration between Ministries responsible for disaster risk
reduction, climate change, poverty reduction and gender issues, with the participation
of civil society;
2. Develop and review national policies, relevant laws, strategies, plans, and budgets and
take immediate action to mainstream gender into national development policies,
planning and programmes;
3. Foster the linkage between disaster risk reduction and climate change adaptation from
a gender perspective through policy and administrative measures;
4. Collect gender-specific data and statistics on the impact of disasters, carry out gender-
sensitive vulnerability, risk and capacity assessments and develop gender sensitive-
indicators to monitor and measure progress;
5. Increase public and media awareness of gender-sensitive disaster vulnerabilities and
capacities, and of gender-specific needs and concerns in disaster risk reduction and
management;
6. Support research institutions to study the costs, benefits and efficiency of gender-
sensitive policies and programmes in disaster risk reduction, climate change adaptation
and poverty reduction;
7. Secure the actual application of disaster risk assessments as part of development policy-
making and programme formulation to prevent disasters from making the poor even
poorer;
8. Improve and mainstream a gender perspective and equal participation between men
and women in the coordination of disaster preparedness, humanitarian response, and
recovery through capacity building and training;
9. Build and enhance the capacities of professional organizations, communities and
pertinent national and local institutions to enable gender mainstreaming in all
We, the participants, endorse the nine points listed above and reaffirm our commitment to gender equality
as a fundamental development issue needing to be integrated and addressed throughout the development
process.
We, the participants, require accountability from all development stakeholders, in particular requiring that:
Governments, especially national committees or platforms, development cooperation

partners for disaster risk reduction, review and report their progress in the
implementation of the above actions, as part of the reports to UNISDR for the mid-term
review of Hyogo Framework of Action in 2011;
Parliamentarians and counsellors take action to ensure gender mainstreaming in
national legislation through policy and budget allocations at national and local levels;
UNISDR and UNIFEM facilitate the process in mainstreaming a gender perspective into
disaster risk reduction and provide technical support to the governments and all
stakeholders;
UNISDR in collaboration with other relevant UN agencies continue to develop tools and
methodologies to build awareness and support national processes to ensure that gender
equality considerations are fully integrated in all disaster management processes and
practices;
UNDP in collaboration with other UN agencies provides concrete guidelines and support
for making disaster risk assessment and reduction an integral part of poverty reduction
strategies and programmes at country and local level;
The World Bank and the Global Facility for Disaster Reduction and Recovery (GFDRR)
take action to ensure disaster risk reduction measures are an integral part of country and
sector development assistance;
UNFCCC secretariat and UNISDR work closely together to provide concrete guidelines for
making gender-sensitive disaster risk reduction part of the Copenhagen strategy for
climate change adaptation at COP-15.
We therefore recommend that the global initiative on gender and disaster risk reduction should be linked to
the implementation of the Hyogo Framework for Action and use the biennial Global Platform for Disaster
Risk Reduction as a mechanism to monitor and assess the progress made at national level.
Manila Declaration for Global Action on Gender in Climate Change and Disaster Risk Reduction
Manila, Philippines, 22 October 2008
We, the participants of the Third Global Congress of Women in Politics and Governance, on Gender in
Climate Change Adaptation and Disaster Risk Reduction, have gathered in Manila, Philippines, 19-22
October, 2008,
UNDERSCORING that women are vital agents of change, holders of valuable knowledge and skills, and can
be powerful leaders from community to global level in climate change mitigation, adaptation and in disaster
risk reduction;
RECOGNIZING that effects of climate change are one of the most urgent human security, ecological and
development challenges of our time exacerbating poverty, forced migration and conflict;
HIGHLIGHTING the close link between climate change adaptation and disaster risk reduction for which the
Hyogo Framework of Action 2005- 2015 provides a guide to better protect our societies and economies from
current and future hazards;
UNDERLINING the findings of the Intergovernmental Panel on Climate Change (IPCC) that climate change
impacts will vary among regions, generations, ages, classes, income groups, occupations and gender, and
that the most marginalized will be disproportionately affected;
ACKNOWLEDGING that industrialized countries have a historical responsibility for climate change;
NOTING the lack of awareness in many countries on the issue of climate change and disaster risk reduction;
EMPHASIZING that women make up the vast majority of the worlds most impoverished people and face
unequal access to and control over resources, technology, services, land rights, credit and insurance systems,
and decision-making power;
RECALLING the 2007 Human Development Report, which states that climate change is likely to magnify
existing patterns of gender inequalities; and
DENOUNCING the absence of a gender perspective in the global agreements on climate change, despite
national, regional and international commitments, and legally binding instruments on gender equality;
HEREIN DECLARE THAT

a) Climate change and its negative impacts must be understood as a development issue with
gender implications that cuts across all sectors (social, cultural, economic, and political) from
the community to the global level; and concerted efforts are required by all stakeholders to
ensure that climate change and disaster risk reduction measures are gender responsive,
sensitive to indigenous knowledge systems and respect human rights;
b) Women and men must equally participate in climate change, disaster risk reduction decision-
making processes at community, national, regional and international levels;
c) The Parties to the United Nations Framework Convention on Climate Change (UNFCCC) urge its
Secretariat to adhere to human rights frameworks and standards, and international and
national commitments to gender equality, such as the Convention on the Elimination of All
Forms of Discrimination against Women (CEDAW), Agenda 21, the Beijing Platform for Action,
Security Council Resolutions 1325 and 1820, ECOSOC 2005/31, the Millennium Development
Goals, the Hyogo Framework for Action and the UN Convention on the Rights of Indigenous
Peoples;
d) Parties to the UNFCCC:
1) Shall request its Executive Secretary to develop and implement a strategy to ensure
gender considerations are fully integrated in the Secretariats work plan, programs,
assistance to the Parties, and cooperation with financing mechanisms;
2) Shall ensure participation of women and gender experts during the preparation and
presentation of national communications, as well as gender parity at national and
international meetings, in particular at the Conference of Parties, and recognize women
as a Constituency;
3) Should request the Secretariat to cooperate with international organizations and donors,
in the development of gender sensitive policies and program guidelines to aid
Governments in ensuring gender equality while reducing climate-related risks and
adapting to climate change at national and community level;
e) Financial institutions and funding mechanisms supporting climate change measures and
disaster risk reduction should:
1) Integrate gender-sensitive criteria into planning, design, implementation, monitoring
and evaluation of programs, projects and initiatives;
2) Allocate adequate resources to address the needs of women in climate change
mitigation, adaptation and disaster risk reduction, for example through funding
appropriate and environmentally sound technologies and supporting womens
grassroots initiatives in sustainable use of natural resources;
3) Refrain from funding of extractive industries, such as mining, logging and oil and natural
gas extractions that exacerbate climate change, poverty and gender inequality.
f) Market-based mechanisms, such as the Clean Development Mechanism (CDM), carbon trading
funds and credits, must be made accessible to both women and men and must ensure equitable
benefits. Thus, CDM should fund projects that enhance energy efficiency and make renewable
energy technologies available and affordable to women for household needs, enhancing
economic activities and socio-economic mobility,
g) Building on the Bali Plan of Action, UNFCCC (Article 6), and the Hyogo Framework for Action
(Priority 3) Governments should:
1) Promote, facilitate, develop and implement public awareness campaigns, education and
training programs on climate change and disaster risk reduction, targeting women and
men, and boys and girls alike;
2) Facilitate access to information on climate change and disaster risk reduction policies
and results of actions, which are needed by women and men to understand, address and
respond to climate change and disaster risk, taking into account local and national
circumstances such as quality of internet access, literacy and language issues;
3) Systematically document and make accessible best practices on gender responsive
climate change and disaster risk reduction initiatives, facilitating replication of such
practices;
4) All development partners shall ensure that affirmative action is promoted, and climate
change and disaster risk reduction measures are rapidly adopted in high risk areas, such
as Africa and small island states;
h) Governments, their respective statistical offices or bureaus, international organizations and

financial institutions should collect sex-disaggregated data in every sector and make these
readily available;
i) Governments and international organizations must pursue gender responsive budgeting to
ensure adequate allocation of resources to enhance the capacity of women, especially the
poorest and most disadvantaged, to foster their resilience to climate change and disasters;
j) Governments, regional and international organizations should monitor, prepare for, and
respond to climate-induced human displacement, migration and conflict, paying special
attention to the needs of women and children;
k) South-South and South-North cooperation must be promoted and coordinated to effectively
respond to the global issues of gender in climate change, disaster risk reduction and food
security;
l) Women organizations and specialized agencies, civil society, parliamentarians, government
ministries and departments responsible for gender equality and womens affairs must have a
stronger voice and role in the discussions and decisions that are being made on climate change
and disaster risk reduction.
WE DECLARE OUR FULL COMMITMENT to contribute to these goals and to cooperate with each
other and all relevant stakeholders including governments, parliamentarians, the private sector,
civil society, indigenous peoples, academia, religious institutions and individuals with the intent
to carry this declaration forward to all meetings through which decisions on climate change,
disaster risk reduction are made, including UNFCCC COP-14 (Poznan), COP-15 (Copenhagen), the
Second Session of the Global Platform for Disaster Risk Reduction and beyond.
October 22, 2008

Dusit Thani Hotel
Manila. Philippines
ANNEX 3
Terminology 46
Disaster means A serious disruption of normal life that includes major loss of lives or property,
too severe for a society or community to cope with and recover from on its own. Disasters can
result from natural, biological or technological hazards, like, among others, hurricanes,
earthquakes, drought and floods.
Disaster risk reduction (DRR):47 is a cross-cutting development process with the goal of reducing
losses from natural hazards. DRR can be expressed as an overarching philosophy or framework
embedded in sustainable development. It aims to reduce disaster vulnerability and increase
resilience by encompassing disciplines like disaster management, disaster mitigation and disaster
preparedness, and pursuing action across the social, political, scientific, and humanitarian and
Natural hazards by themselves do not cause disasters. It is the combination of an exposed,

vulnerable and ill-prepared population with a hazard event that results in a disaster. Climate
change increases disaster risks in two ways: increasing the frequency and/or severity of weather
and climate hazards, and increasing communities vulnerability to natural hazards due to the
combined effects of ecosystem degradation, reduced availability of water for ecosystems and
agriculture, and changes in peoples livelihoods.
Awareness of risk is a necessary condition for disaster risk management and reduction and Risk
assessment is a required step for the adoption of adequate and successful disaster reduction
policies and measures., a methodology that determines the nature and the extent of risk and
analyzes potential hazards, evaluates vulnerabilities by applying quantitative and qualitative
analysis of risk and its consequences.
The disaster risk reduction approach understands risk comprehensively: Disaster risk reduction
is a conceptual framework of elements considered with the possibilities to minimize vulnerabilities
and disaster risks throughout a society, to avoid (prevention) or to limit (mitigation and
preparedness) the adverse impacts of hazards, within the broad context of sustainable
development (Source: ISDR).
The probability of harmful consequences, or expected loss of lives, people injured, property,
livelihoods, economic activity disrupted (or environment damaged) resulting from interactions
between natural or human induced hazards and vulnerable conditions. (Source: ISDR). Function of
probability and magnitude of different impacts (Source: IPCC).
How do practitioner asses DRR and CCH?

The conceptual emphasis of this term unites practitioners seeking to address vulnerabilities across
different contexts. They have common factors such as the people, wildlife, buildings, etc. that can
46 UNISDR, UNDP and IUCN. Making Disaster Risk Reduction Gender-Sensitive Policy and Practical Guidelines, Geneva, Switzerland,
June 2009
47 http://ocha.unog.ch/drptoolkit/PDisasterPreparednessPlanning.html
experience the outcome; the identification of endogenous and exogenous factors that influence
and can be influenced and estimated time over which the outcome is expected to emerge.
Disaster/risk analysis involves understanding (i) the types of hazards that might affect people and
also (ii) the different levels of vulnerability of different groups of people. Disaster risk reduction
practitioners are concerned with increasing exposure to hazards and seek to address it by
influencing a society's intrinsic capacity to cope with, and adapt to, changing environments and
shocks. Disaster risk reduction practitioners are likely to assess the intrinsic characteristics of the
affected population and how these elements at risk might influence/ contribute to the probable
outcome. This difference perhaps also bears significance on the estimated time over which the
outcome is expected to emerge.
Disaster Preparedness: definition pre-disaster activities that are undertaken within the context
of disaster risk management and are based on sound risk analysis. This includes the
development/enhancement of an overall preparedness strategy, policy, institutional structure,
warning and forecasting capabilities, and plans that define measures geared to helping at-risk
communities safeguard their lives and assets by being alert to hazards and taking appropriate
action in the face of an imminent threat or an actual disaster.
Disaster Preparedness and the HFA: Priority 5 of the Hyogo Framework for Action specifically
focuses on the need to strengthen disaster preparedness for effective response at all levels.
Implementing Priority 5 requires a common understanding of what constitutes and effective
disaster preparedness system - including an understanding of disaster risk factors. The HFA
specifically underlines a few key activities that should be undertaken in view of strengthening
disaster preparedness at all levels. These are:
Strengthen policy, technical and institutional capacities in regional, national and local
disaster management, including those related to technology, training, and human and
material resources.
Promote and support dialogue, exchange of information and coordination among early
warning, disaster risk reduction, disaster response, development and other relevant
agencies and institutions at all levels, with the aim of fostering a holistic approach
towards disaster risk reduction.
Strengthen and when necessary develop coordinated regional approaches, and create or
upgrade regional policies, operational mechanisms, plans and communication systems to
prepare for and ensure rapid and effective disaster response in situations that exceed
national coping capacities.
Prepare or review and periodically update disaster preparedness and contingency plans
and policies at all levels, with a particular focus on the most vulnerable areas and groups.
Promote regular disaster preparedness exercises, including evacuation drills, with a view
to ensuring rapid and effective disaster response and access to essential food and non-
food relief supplies, as appropriate, to local needs.
Promote the establishment of emergency funds, where and as appropriate, to support
response, recovery and preparedness measures.
Develop specific mechanisms to engage the active participation and ownership of
relevant stakeholders, including communities, in disaster risk reduction, in particular
building on the spirit of volunteerism
Vulnerability: refers to Conditions determined by physical, social, economic, and environmental

factors that increase the susceptibility of a community to the impact of hazards. The more
vulnerable a community is to a natural hazard, the greater its disaster risk. Disastrous losses can
result from natural hazards; but whether or not a disaster occurs, and how bad the disaster is,
depends on the strength of the natural hazard, and on how vulnerable the people are. Disaster risk
can be reduced by reducing human vulnerabilities.
The concept of vulnerability is central to disaster risk reduction and there are some few Key
Definitions:48
a) The degree to which a system is susceptible to, and unable to cope with, adverse effects
of climate change, including climate variability and extremes. Vulnerability is a function
of the character, magnitude, and rate of climate change and variation to which a system
is exposed, its sensitivity and its adaptive capacity (Source: IPCC).
b) ISDR defines Vulnerability as the conditions determined by physical, social, economic and
environmental factors or processes, which increase the susceptibility of a community to
the impact of hazards. For positive factors, which increase the ability of people to cope
with hazards
All individuals and communities are to varying degrees vulnerable to hazards. Among disaster risk
reduction practitioners, there are different dimensions of vulnerabilities according to the elements
at risk physical, social, economic, and environmental. Vulnerability refers to susceptibilities of
the built environment and may be described as exposure.
Factors of vulnerability include levels of literacy and education, health infrastructure, the existence
of peace and security, access to basic human rights, systems of good governance, social equity,
traditional values, customs and ideological beliefs and overall collective organizational systems.
The poor and predominantly female and elderly populations are characterized by higher economic
vulnerability as they suffer proportionally larger losses in disasters and have limited capacity to
recover. Similarly, an economy lacking a diverse productive base is generally more vulnerable to
disasters in the sense that it is less likely to sustain recovery from disaster impacts and will perhaps
also lead to forced migrations. Diminished biodiversity, soil degradation and water scarcity
threaten food security and health.
Often, when disaster risk reduction practitioners assess vulnerability, they wish to ascertain the
intrinsic 'condition' of peoplethe physical, social, economic and environmental factors that
determine people's capacity to reduce the potential impacts of a hazard event and cope with its
occurrence. They are often interested to determine if a particular climate hazard will impact a
particular locale, including the population living in that locale. In other words, for many managers
working on climate change, if a climate impact, such as sea-level rise will affect a particular
coastline, including its population and ecosystems, the area is considered vulnerable. Climate
change experts are more likely to consider the long term impacts, in decades and centuries, of
climate variability and change as well as related environmental change (e.g., degradation of
coastline and sea level rise).
48 summarized from On Better Terms: A Glance at Key Climate Change and Disaster Risk Reduction Concepts International Strategy
for Disaster Reduction ISDR, United Nations Development Programme Bureau for Crisis UNDP, Institute of development Studies,
IDS, 2007. http://unisdr.org/eng/risk-reduction/climate-change/docs/On-better-terms.pdf
Global trends indicate that at present it is growing vulnerability that is driving the increase in
disaster risk:49
Participatory vulnerability analysis (PVA) PVA is a systematic process that involves communities
and other stakeholders in an in-depth examination of their vulnerability, and at the same time
empowers or motivates them to take appropriate actions. The overall aim of PVA is to link disaster
preparedness and response to long-term development. PVA is a qualitative way of analyzing
vulnerability, which involves participation of vulnerable people themselves. The analysis helps to
understand vulnerability, its root causes and most vulnerable groups, and agree on actions by, with
and to people to reduce their vulnerability. 50 It is a one-step forward in development
methodologies to identify the root causes of different types of vulnerabilities and action to reduce
those vulnerabilities. Thus, the main purpose of PVA documentation is to understand time line,
time trend and mobility pattern; assess how seasonality affects the vulnerability; identify the
correlation between vulnerability and existing Institutional set-up, and document the types of
risks, hazards and vulnerabilities and identify how these vulnerabilities affects the people's life and
livelihoods.51
Gender: The social attributes and opportunities associated with being male and female and the
relationships between women and me and girls and boys, as well as the relations between women
and those between men. These attributes, opportunities and relationships are socially constructed
and are learned through socialization processes. They are context/time-specific and changeable.
Gender determines what is expected, allowed and valued in a woman or a man in a given context.
In most societies there are differences and inequalities between women and men in
responsibilities assigned, activities undertaken, access to and control over resources, as well as
decision making opportunities. Gender is part of the broader socio-cultural context.
(OSAGI/UNDESA)
Gender mainstreaming: Mainstreaming a gender perspective is the process of assessing the

implications for women and men of any planned action, including legislation, policies or
programmes, in all areas and at all levels. It is a strategy for making womens as well as mens
concerns and experiences an integral dimension of the design, implementation, monitoring and
evaluation of policies and programmes in all political, economic and societal spheres so that
women and men benefit equally and inequality is not perpetuated. The ultimate goal is to achieve
gender equality. (Report of the ECOSOC (A/52/3, 18 September 1997)
Gender analysis: Refer to the study of the different roles of women and men in order to
understand what they do, what resources they have, and what their needs and priorities are.
Gender roles are not static and are shaped over time by other differences such as age, class and
caste.
Natural hazard: A natural process or phenomenon such as a hurricane, earthquake or drought -

that can potentially result in a loss of life, property damage, livelihoods and services, social and
economic disruption, or environmental damage.
49 Op.cit 4
50
ActionAid, Participatory Vulnerability Analysis step by step guide for field staff. London.
51 ActionAid, March 2007 Participatory Vulnerability Analysis (PVA) Process Outputs .Nepal Kathmandu
Risk: The probability of harmful consequences, or expected losses (deaths, injuries, property,
livelihoods, economic activity disrupted or environmental damaged) resulting from interactions
between natural or human-induced hazards and vulnerable conditions.
Risk Assessment and Climate Change impact Assessment :52

Risk Assessment: a methodology to determine the nature and extent of risk by analyzing potential
hazards and evaluating existing conditions of vulnerability that could pose a potential threat or
harm to people, property, livelihoods and the environment on which they depend. These
assessments include detailed quantitative and qualitative understandings of risk: its physical,
social, economic, and environmental factors, and consequences The process of conducting a risk
assessment is based on a review of both the technical features of hazards such as their location,
Intensity, frequency and probability; and also the analysis of the physical, social, economic and
environmental dimensions of vulnerability and exposure, while taking particular account of the
coping capabilities pertinent to the risk scenarios. (Source: ISDR).
Climate Impact Assessment: the practice of identifying and evaluating the detrimental and
beneficial consequences of climate change on natural and human systems (Source: IPCC WG II).
Risk assessment forms the core of the disaster risk management process and results in the
identification of potential risk reduction measures. As might be expected, assessing vulnerability
and capacity is as important as identifying and assessing the potential impact of hazards.
A gender-sensitive risk assessment can be achieved if gender issues are considered when planning
and carrying out the main steps of risk assessment: (i) Identify the nature of the risk; (ii) Determine
the human vulnerability to the risk;(iii) Identify the capacities and available resources for managing
and reducing vulnerability; (iv) Determine acceptable levels of risk.
Mitigation is reducing emissions of greenhouse gases or sequestering emissions is critical to

slowing climate change Although several social, economic and technological policies would
produce an emission reduction, with respect to climate change, mitigation means implementing
policies to reduce G H G emissions and enhance sinks. The current international legal mechanism
for countries to reduce their emissions is the United Nations Framework Convention on Climate
Change (UNFCCC). IPCC (2007) defines Mitigation as the technological change and substitution that
reduce resource inputs and emissions per unit of output.
Mitigation is a human measure to reduce the sources or enhance the sinks of greenhouse gases
(Source: IPCC). Climate change mitigation measures recognize that the amount of greenhouse
gases in the atmosphere will influence the rate and magnitude of climate change. Therefore it is
within the capacity of humans to influence their exposure to change. It include energy conservation
measures, implementing land use plans, strengthening institutional and legislative mechanisms,
energy efficiency measures, waste management, substituting fossil fuels with renewable energy
sources and measures in the transport and agricultural sectors, as well as sequestering carbon
biologically through reforestation or geo-physically (inside the earth's core). These activities
contribute to reducing disaster risk by reducing expected climate change impact.
Disaster mitigation activities relate to environmental management, land use and urban planning
and the engineering protection of critical facilities. Specific examples include reforestation to avoid
52 Op.cit.
landslides and the re-establishment of corals to limit the damage of tsunamis.. A drought reduction
strategy may be to build water reservoirs and improve agricultural practices to conserve water.
Adaptation, or coping with climate change impacts, means adjustments in ecological social or
economic systems in response to actual or expected climate stimuli and their effects or impacts.
This term refers to changes in processes, practice and structure to moderate potential damages or
to benefit from opportunities associated with climate change (source IPCC 2001) Adaptation is
critical for vulnerable population specially those dependent on small-scale resources. To this group
but especially for women, climate change could severely change their ability to manage natural
resources, as women have different roles and responsibilities which give rise to differences to cope
with change.
Adaptive Capacity: The ability of a system to adjust to climate change (including climate variability
and extremes) to moderate potential damages, to take advantage of opportunities, or to cope with
the consequences. (Source: IPCC)
Coping capacity: The means by which people or organizations use available resources and abilities
to face adverse consequences that could lead to a disaster. In general, this involves managing
resources, both in normal times as well as during crises or adverse conditions. The strengthening
of coping capacities usually builds resilience to withstand the effects of natural and human-induced
hazards. (Source: ISDR)
Hazard is a natural or manmade phenomenon that may cause physical damage, economic loss and
threaten human life and wellbeing. Such phenomena may affect different places singularly or in
combination at different times. The hazard has varying degrees of intensity and severity.
Exposure is the likelihood of individuals, household, community or nation experiencing the hazard
Climate variability and climate change53: Climate variability refers to variations in the mean state
of the climate and variations in other statistics (such as the occurrence of extremes) on all temporal
and spatial scales beyond that of individual weather events. The average range of temperature for
a location, as indicated by minimum, maximum and average temperature values, is an example of
a measure of climate variability. This differs from climate change which refers to a long-term
change in the state of the climate and which is identified by changes in the means and/or changes
in the variability, or changes in the frequencies or intensities of extreme events.
For Further REFERENCES on Terminology:

Intergovernmental Panel on Climate Change, United Nations Framework Convention on Climate
Change
United Nations International Strategy for Disaster Reduction Glossary of terms used by Working
Group II: Impacts, Adaptation, and Vulnerability in the Third Assessment Report in 2001.
Adaptation: Assessment to Action. The UNFCCC Compendium, Methods and tools to assess
impacts of, and vulnerability and adaptation, to climate change. Issued by the Climate Change
Secretariat, Bonn, Germany. 2004 Version, Volume I. Living with Risk: A global review of disaster
reduction initiatives. United Nations, New York and Geneva. Terminology of disaster risk
reduction. Available at:
http://www.unisdr.org/eng/library/lib-terminology-eng%20home.htm
53 http://www.fao.org/docrep/013/i1721e/i1721e02.pdf
ANNEX 4
Summary of Reports, Manuals, Training
Packages and Toolkits on Disaster Risk
Reduction and Climate Change
All publications are available in Prevention Web at www.preventionwe.net
Making Disaster Risk Reduction Gender-Sensitive

Source:
Publication date: 2009
Number of pages: 163
It was prepared in respond to the request of governments attending the First Session of the Global
Platform for Disaster Risk Reduction in 2007. This publication offers policy and practical guidelines
for national and local governments to further implement the HFA. This publication is the result of
extensive consultations and a response to the call for clear policy and practical guidance for
mainstreaming gender perspectives into disaster risk reduction.
Indigenous knowledge: disaster risk reduction, policy note

Source(s): European Union; Kyoto University; SEEDS; UNISDR
Number of pages: 18 p.
This policy note aims to provide a directional path for mainstreaming indigenous knowledge in
disaster risk reduction by national authorities and ministries of disaster management and
education, institutions of higher education in disaster management, and international and national
NGOs in Asian countries. It addresses thematic areas such as: climate change and food security,
rural development, urban risk reduction, gender and inclusion, mountain ecosystems, coastal
zones, river basin management, water resource management, and housing.
Progress of the worlds women 2008/2009: who answers to women? Gender and
accountability
Source(s): United Nations Development Fund for Women (UNIFEM)
This report demonstrates that the Millennium Development Goals (MDGs) and other international
commitments to women will only be met if gender-responsive accountability systems are put in
place both nationally and internationally. It provides examples of how women are demanding
accountability for action on commitments to promote gender equality and womens rights from
national governments, justice and law enforcement systems, employers and service providers, as
well as international institutions.
Stories from the Pacific: the gendered dimensions of disaster risk management and adaptation
to climate change
Source(s): AusAid, Government of Australia; UNDP
This publication targets donors and development practitioners across the Pacific region and is
intended to be used as a tool to guide the substance and direction of future programming in
disaster risk management and adaptation to climate change.
Adaptation to climate change by reducing disaster risks: country practices and lessons
Source(s): ISDR
Number of pages: 12 p
This note reports on examples of recent experience in eight countries where national and local
governments and civil society participants have worked to strengthen their disaster risk reduction
and adaptation actions. These cases, along with similar experience in other countries, provide a
number of useful insights and lessons for climate change negotiators and policymakers,
development planners, and managers and practitioners at national and local levels. The eight
countries profiled are: India, Maldives, Peru, the Philippines, Samoa, South Africa, the United
Kingdom, and Viet Nam.
Bureau for Crisis Prevention and Recovery Annual Report 2007

Source(s): BCPR
This second Annual Report of UNDP-BCPR, Outlook 2007, provides an overview of how UNDP has
continued to increase its efforts to deliver tangible results in preventing crisis and promoting
recovery. Since its inception in 2001, the Bureau has sought to promote new ways of doing
business faster, earlier and in riskier situations to restore the quality of life for those who have
been affected by disaster or violent conflict.
Community based disaster risk reduction regional consultative meeting, West Asia, Middle East
and North Africa region: summary and proceeding report
Source(s): IFRC; UNISDR
This report gives a summary of the meeting, as well as recommendations to integrate disaster
management and risk reduction as a part of the development agenda, through disaster risk
reduction training and capacity building, and comprehensive disaster risk reduction planning
processes and frameworks at national and local level.
Enabling womens empowerment in post disaster reconstruction

Source(s): DIT; RICS
This study explores womens status in post disaster situations and examines the concept of
empowerment in response to the need to include womens contribution to disaster management
and to emphasize its importance in building disaster resilient communities. It discusses the factors
that influence womens empowerment in post disaster reconstruction.
From grassroots to global: people centered disaster risk reduction

Source(s): ProVention Consortium
The aim of this forum report is to record the energy, ideas and views resulting from discussions
and presentations in the formal sessions and also in the corridors of the event, which is designed
to allow free talking and frank exchange of ideas, challenges and innovation on disaster risk
reduction.
Gender mainstreaming in emergency management: opportunities for building community

resilience in Canada
Source(s): PHAC, Government of Canada
This report builds on international efforts over the past decade to develop more gender-sensitive
approaches to disaster risk management. It addresses recent initiatives by researchers,
practitioners and policy makers to promote gender mainstreaming.
Gender perspectives: integrating disaster risk reduction into climate change adaptation
Source(s): UNISDR
This publication points out the vital nexus between womens experiences of natural resource
management, climate change adaptation and disaster risk reduction, and how they can come
together to make whole communities strong and sustainable. It also provides inspirational case
studies of grassroots womens leadership, and of ways to support and encourage womens full
participation as citizens in risk reduction, climate change adaptation, development, and disaster
preparedness. The case studies also point to practical tools for implementing gender equality and
mainstreaming gender perspectives
Gender sensitive disaster management: a toolkit for practitioners

Publisher(s): Earthworm Books
This Toolkit is the outcome of a research study undertaken to understand gender mainstreaming
strategies used by NGOs and the Government in the context of their responses to and management
of the Tsunami aftermath in Tamil Nadu.
Natural disasters and remittances: exploring the linkages between poverty, gender, and
disaster vulnerability in Caribbean SIDS
Source(s): United Nations University
This research paper explores the linkages between poverty and disaster vulnerability in the context
of remittance flows to households in the Caribbean. Jamaica is used as the case study country.
Participatory impact assessment: a guide for practitioners

Source(s): FIC
This guide aims to provide practitioners with a broad framework for carrying out project level
Participatory Impact Assessments (PIA) of livelihoods interventions in the humanitarian sector.
Poverty in a changing climate

Source(s): Institute of Development Studies
This bulletin explores adaptation using different insights and approaches exploring linkages from
chronic poverty, gender, social exclusion, livelihoods, economics, and asset-based approaches.
Rethinking disasters: why death and destruction is not natures fault but human failure
Source(s): Oxfam International
This report shows that successful disaster risk reduction policies, integrated into development
work, save lives and money, making vulnerable communities more resilient and protecting
development gains.
Women as equal partners: gender dimensions of disaster risk management programme

Source(s): Government of India; UNDP
This documents addresses sustainable reduction in disaster risk and states that one of the critical
indicators of disaster risk reduction is gender equity in disaster preparedness.
Building better futures: empowering grassroots women to build resilient communities

Source(s): GROOTS
This publication highlights roles that grassroots women are playing in building resilient
communities and insights emerging from resilience building efforts led by grassroots women in
Peru, Jamaica, Honduras, Turkey, Indonesia, Sri Lanka and India.
Evaluation and strengthening of early warning systems in countries affected by the 26

December 2004 tsunami: report
Source(s): UNISDR - PPEW
This report presents an initiative which objective was to provide an overall integrated framework
for strengthening early warning systems in the Indian Ocean region by building on the existing
systems and to facilitate coordination among various specialized and technical
institutions.
Gender matters: lessons for disaster risk reduction in South Asia

Source(s): ECHO; ICIMOD

This report draws attention to gender as an indicator of vulnerability and discusses how women
are disproportionately affected, particularly in the field of disaster preparedness and management
Gender perspective: working together for disaster risk reduction

Publisher(s): UNISDR
This publication is part of ongoing efforts facilitated by UNISDR to build a global partnership for
mainstreaming gender issues into the disaster risk reduction process.
Mainstreaming gender equality and equity in ABS governance

Source(s): IUCN
This document aims to serve as the basis for a methodological proposal to mainstream a gender
equity and equality perspective into the processes involving the access and benefit-sharing of
biodiversity resources.
People-centred climate change adaptation: Integrating gender issues

Source(s): FAO
This brief explains the links between gender issues and climate change and recommends ways to
integrate gender into climate change adaptation policies and activities.
Women pastoralists: preserving traditional knowledge, facing modern challenges

Source(s): UNCCD
This publication is devoted to women pastoralists, their knowledge of and contributions to
sustainable land management, and the coping mechanisms they have developed in their struggle
to survive.
Words into action: a guide to implementing the Hyogo Framework

Source(s): UNISDR
This Guide has been created to provide advice on useful strategies for implementing the Hyogo
Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters
(HFA).
Good Humanitarian Donor ship and Disaster Risk Reduction a Concept Paper, Ministry of
Foreign Affairs, Norway
Source(s): Ministry of Foreign Affairs, Norway

The paper addresses the need to invest in DRR, in light of a dramatically increased spending on
humanitarian action during the last 15 years. The papers starting point is the responsibility of
donors, but it gives clear guidance to how resources should be spent. The paper states that DRR is
currently lost in the gap between humanitarian assistance and development, and requests
stronger coordination between the two in order to address the problem: DRR is an important
interface between relief, recovery and development. It is imperative to address DRR as early as
possible in the development cycle in order to avoid the recreation of risks, or potential
magnification of risks. Assessment should not only cover impact, but also underlying causes,
vulnerabilities and capacities. The paper does not recommend add DRR as another mainstreaming
task, but rather add it to ongoing processes, such as gender or climate change. It also states that
actions should target the most vulnerable groups of a population, but these should not only be
considered as passive victims, but as a potential resource base. It is recommended that DRR are
included in poverty reduction strategies, and that needs assessments, risk analysis and
vulnerability assessments are integrated.
Disaster risk reduction: a call to action

Source(s): ILO; IRP; UNISDR
The document assists in facilitating and supporting efforts by governments, local authorities,
international organizations, and multilateral financial and trade institutions to invest in reducing
disaster risk and to promote sustainable development policies that will create
better opportunities for all.
Gender and desertification: expanding roles for women to restore dryland

Source(s): IFAD
This review examines the impact of desertification on women, their role in the management of
natural resources and dry lands, and the constraints they face
Gender and qualitative interpretation of data

Source(s): SDC, Government of Switzerland
The aim of these matrices is to assist users to reach a more qualitative understanding in their
reading and interpretation of quantitative data from a gender perspective.
Gender: the missing component of the response to climate change

Source(s): FAO
This report analyzes the gender dimension of climate change and the policies enacted to mitigate
and adapt to its impacts with the aim of developing gender sensitive approaches with regard to
mitigation measures, adaptation projects and national regimes.
Let our children teach us!: a review of the role of education and knowledge in disaster risk
reduction
Source(s): UNISDR
This review examines good practices to reduce disaster risk through education, knowledge and
innovation (including efforts to protect schools from extreme natural events).
Women, girls, boys and men, different needs, equal opportunities: IASC gender handbook in
humanitarian action
Source(s): IASC
This handbook sets forth standards for the integration of gender issues from the outset of a new
complex emergency or disaster, so that humanitarian services provided neither exacerbate nor
inadvertently put people at risk; reach their target audience; and have maximum positive impact.
Guidelines for Gender Sensitive Disaster Management: Practical Steps to Ensure Womens
Needs are Met And Womens Human Rights are Respected and Protect
Source(s): Asia Pacific Forum on Women, Law and Development (APWLD)
These guidelines have been formulated to assist governments, the non state sector and civil society
in dealing with women who have been affected by disaster. They are meant to be practical, easy
to follow steps that need to be taken in responding to womens concerns in post disaster situations.
They have been categorized into immediate, midterm and long term responses. The guidelines
draw from reports of countries that were affected by the December 2004 tsunami: Thailand, Aceh,
India, Sri Lanka and the earthquake in northern Pakistan in October 2005
Gender and disaster sourcebook: a sampler

Source(s): PERI
This one-stop user-friendly electronic guide is aiming to help answer the following questions: What
is the link between gender equality and disaster risk? What lessons have been learned in the field
and through scientific study? How can this knowledge be applied in practice to reduce risk and
respond equitably to disaster events? The Gender and Disaster Sourcebook is a one-stop, user-
friendly electronic guide to help answer these questions.
Living with risk: a global review of disaster reduction initiatives

Source(s): UNISDR
This book provides guidance, policy orientation and inspiration, as well as serving as a reference
for lessons on how to reduce risk and vulnerability to hazards and to meet the challenges of
tomorrow.
Gender Perspectives on the Conventions on Biodiversity, Climate Change and Desertification

(2004)
Source(s): FAO
The paper provides a gender-sensitive perspective on the three Rio Conventions on Biodiversity,
Climate Change, and Desertification. First, the Rio conventions are placed in their historical context
and their administrative and financial framework. Secondly, the main gender issues relevant to the
three conventions are exposed. A comparative overview of the level of gender mainstreaming in
each of the international instruments relating to the Rio Conventions at study here is given. The
essay concludes with a review of a few key issues in convention implementation, in relationship
with gender.
Working with Women at Risk: Practical Guidelines for Assessing Local Disaster Risk
Source(s): International Hurricane Centre Florida International
This is a workbook for training community women to conduct hazard assessments and plan
mitigation for their local neighbourhoods. The model was developed and tested in communities in
the Dominican Republic, El Salvador, St. Lucia and Dominica.
Farmers in a changing Climate: Does Gender matters ? Food Security in Andhra Pradesh, India
Source: FAO
Number of pages: 82p.
This report presents the findings of research undertaken in six villages in two drought-prone
districts of Andhra Pradesh, India, Mahbubnagar and Anantapur. The study, carried out by an
International team led by FAO, used gender, institutional, and climate analyses to document the
trends in climate variability men and women farmers are facing and their responses to ensure food
security in the context of larger socio-economic and political challenges to their livelihoods and
well-being. The findings confirm that there is a strong gender dimension to the way in which
climate variability is experienced and expressed by farmers in their coping strategies to ensure
their livelihoods and food security. Womens and mens perceptions of and responses to impacts
of dry conditions, as well as their access to resources and support, differ in important ways. These
findings demonstrate that gender analysis enhances our understanding of what farmers perceive
as risks and how they respond to climatic changes. Such findings are essential for informing policy
decisions by ensuring that the experiences of both women and men are embedded into policy
design. Recommendations are made for future research and for incorporating gender issues into
adaptation to long term climate change.
Resource Guide on Gender and Climate Change

Source: UNDP
Number of pages: 134 pp
This guide aims to inform policymakers and precisionists on linkages between gender equality and
Climate Change and their importance in relations to the achievement of the MDG. It make the
case for including womens voices, needs and expertise in climate change, policy and
programming, and demonstrate how womens contributions can strengthen the effectiveness of
climate change measures.
Network and links to publications on gender and DRR

GenaNet
Based in Germany, this network is a leader in gender and climate change work globally with a focus
on policy interventions and gender dimensions of climate change in the developed world.
http://www.genanet.de/home.html?&L=1
Prevention Web Gender

Contains articles, address lists and other useful resources.
http://www.preventionweb.net/english/themes/gender/
Emergency Events Database

Includes an extensive database on disasters, although not only linked to disasters provoked by
climate change. It also has some useful publications, most notably on data collection.
http://www.emdat.be/Publications/publications.html
Training packages
CARE Climate Vulnerability and Capacity Analysis (CVCA) handbook

Source(s): CARE
Publication date:2009
Number of pages:41
The Climate Vulnerability and Capacity Analysis (CVCA) methodology facilitates understanding of
the implications of climate change for the lives and livelihoods of the people. By combining local
knowledge with scientific data, the process builds peoples understanding about climate risks and
adaptation strategies. It provides a framework for dialogue within communities, as well as
between communities and other stakeholders. The results provide a solid foundation for the
identification of practical strategies to facilitate community-based adaptation to climate change
Gender Mainstreaming in Emergency Management: A Training Module for Emergency Planners

(Canada)
Source(s): Elaine Enarson,for the Women and Health Care Reform and the Prairie Womens
Health Centre of Excellence.
Includes background and general information and specific exercises and tools for assessing and
improving existing approaches to better incorporate gender issues and opportunities to engage
with women to reduce risk. The manual is potentially of use to emergency managers in the US as
well, including Issues Facing Women in Disaster, Frequently Asked Questions about Gender and
Disaster, Gender Matters through the Disaster Cycle, Mapping Gendered Vulnerability and similar
resources.
Training manual on gender and climate change

Source(s): Global Gender and Climate Alliance; IUCN; UNDP
This manual has been designed as a practical tool to increase the capacity of policy and decision
makers to develop gender-responsive climate change policies and strategies.
Gender Sensitive Disaster Management: A Toolkit for Practitioners

Source(s): Chaman Pincha
This Toolkit authored by Chaman Pincha is the outcome of a research study undertaken to
understand gender mainstreaming strategies used by NGOs and the Government in the context of
their responses to and management of the Tsunami aftermath in Tamil Nadu. The field outcomes
were analyzed through a gender perspective to understand the differential impact of disasters and
coping strategies on women/girls, men/boys, and other marginalized groups, including Aravanis.
International Training Materials for Gender Mainstreaming in Disaster Risk Reduction

(international)
This set of materials was designed and collated by Maureen Fordham (with help from colleagues
in UNDP, UNISDR, Oxfam, AIDMI) for a Training of Trainers for UNDP. Designed primarily for use
in developing nations, some materials are readily adapted to the US
Inter-Agency Contingency Planning Guidelines for Humanitarian Assistance

Source(s): IASC Sub-Working Group on Preparedness and Contingency Planning
Publication date:2007
The following guidelines seek to provide practical guidance for Humanitarian Country Teams,
composed of UN Agencies and other International Organizations, the International Red Cross
and Red Crescent Movement1 and NGO representatives, who are embarking on a process of
inter-agency contingency planning in order to increase their level of preparedness and enhance
their ability to respond to emergencies.
Within a broader framework of emergency preparedness, inter-agency contingency planning is

essential to ensure that humanitarian agencies/organizations are as ready as they can be to
manage future uncertainty by developing responses to natural disasters, conflicts and other
crises. Inter-agency contingency planning should also be mindful of and linked with other
initiatives on disaster prevention, risk reduction and early recovery. The first version of the Inter-
Agency Contingency Planning Guidelines for Humanitarian Assistance was developed in 2001.
These guidelines have served as the principal reference document for inter-agency contingency
planning. Since their release, the humanitarian context has continued to evolve, a wealth of
experience has been gained by agencies/organizations around the world and a process of
strengthening humanitarian response systems has been initiated. The revision of these guidelines
was undertaken in an attempt to reflect accumulated good practice and efforts to enhance
humanitarian response capacity, predictability, accountability and partnership in order to reach
more people with comprehensive, appropriate, needs-based relief and protection in a more
effective and timely manner. In particular, the cluster approach represents a raising of the
standards for sectoral coordination, leadership and accountability and thus is integral to
interagency contingency planning and preparedness processes.
Working with Women at Risk: Practical Guidelines for Assessing Local Disaster Risk.
Source: International Hurricane Centre, Florida International University,
Publication Date 2003
Number of pages : 91 p.
This is a workbook for training community women to conduct hazard assessments and plan
mitigation for their local neighbourhoods. The model was developed and tested in communities in
the Dominican Republic, El Salvador, St. Lucia and Dominica. Elaine Enarson with Lourdes
Meyreles, Marta Gonzlez, Betty Hearn Morrow, Audrey Mullings, and Judith Soares. June
Gender Note Series

E. Enarson for the global Gender and Disaster Network
Gender Note # 1 Women, Gender and the Hyogo Platform for Action
http ://www.gdnonline.org/resources/GDN_GenderNotes1.pdf
Gender Note #2 Women, Gender and Disaster: Hazards & Hazard Mitigation
http ://www.gdnonline.org/resources/GDN_GenderNote2_Mitigation.pdf
Gender Note #3 Women, Gender and Disaster: Men & Masculinities
http ://www.gdnonline.org/resources/GDN_GenderNote3_Men&Masculinities.pdf
Gender Note #4 Women, Gender and Disaster: Abilities and Disabilities
http ://www.gdnonline.org/resources/GDN_GenderNote4_Abilities.pd
Gender Note #5 Women, Gender and Disaster Risk Communication
http ://www.gdnonline.org/resources/GDN_GenderNote5_RiskCommunication.pdf
Gendering Disaster Risk Reduction A Working Glossary
http ://www.gdnonline.org/resources/GDN_Gendering_DRR_Glossary.pdf
Gender-sensitive Preparedness Guides also offer good background information and tools
Sexual Violence in Disasters: A Planning Guide for Prevention and Response

The Louisiana Foundation Against Sexual Assault (La FASA) & the National Sexual Violence
Resource Centre (NSVRC) created this guide to ensure that those planning for disaster relief and
response do not forget to consider safety from sexual victimization and the importance of creating
policies that could prevent it. It offers readers important information about sexual violence and
disasters that will help communities to understand the connection and develop better disaster
responses. It presents a range of recommendations from suggesting small changes to developing
comprehensive plans, making preparations, and coordinating far-reaching policy change. Available
in English and Spanish.
www.nsvrc.org/.../sexual-violence-disasters-planning-guide-prevention-and-response
It Could Happen to Your Agency! Tools for changeEmergency Management for Women.
During and after disasters, violence against women increases and it is more difficult for women to
obtain help. This workbook helps agencies develop an emergency response plan. Developed by the
Ending Violence Association of British Columbia.
http://www.endingviolence.org/node/382
Battered Women in Disaster: Case Study of Gendered Vulnerability
Enarson, 1998, 4 pp. Transcript and related materials from on-line emergency management
discussion, including a planning guidelines for shelters and planning guides for emergency
management agencies
http://www.emforum.org/library/980603.htm
Emergency Preparedness and Response, Publications and Materials, Centers for Disease Control
Office of Womens Health. Short, practical guides on public health emergencies with attention to
womens health conditions and concerns.
http://www.cdc.gov/women/pubs/epr.htm#2006
Critical Needs In Caring For Pregnant Women During Times Of Disaster For Non-Obstetric
Health Care Providers, 1 p. Centres for Disease Control.
http://www.bt.cdc.gov/disasters/pregnantdisasterhcp.asp
Climate Change
Gender, climate change and natural disasters (2008) by Tranter, Kellie
http://www.sciencealert.com.au/opinions/20080502-16850-2.html
The article is a summary of existing knowledge on the area, including the following:
More women than men die as the direct and indirect result of natural disaster Men in Sri Lanka
coped better in the tsunami then women because they had been taught to swim and clim. Women
trying to save their children from the tsunami in Aceh were themselves swept away while pushing
children on to buildings or trees .
The text also sums up the recommendation given by four organizations and female environmental
ministers to the countries at the Bali Conference and the Secretariat of the UNFCCC: Recognizes
that women are powerful agents of change and that their full participation is critical in adaptation
and mitigation climate policies and initiatives, and guarantee that women and gender experts
participate in all decisions related to climate change; Take action in order to ensure UNFCCC
compliance with human rights frameworks, international and national commitments on gender
equality and equity, including the Convention on the Elimination of All Forms of Discrimination
against Women (CEDAW). Develop a gender strategy, invest in gender-specific climate change
research and establish a system for the use of gender-sensitive indicators and criteria for
governments to use in national
Final Report: Gender and Climate Change Workshop Dakar, 2-3 June
2008http://www.wedo.org/files/FINALReport.%20Dakar%20Workshop.%202008.pdf
Conclusions from the workshop were: Climate change is happening now, must take action now
A holistic approach to manage climate change is needed. In many examples, entities develop
policies and guidelines without coordination. Adaptation efforts should embrace a bottom-up
approach. There is a gap between policy and implementation. There is a disconnection between
what exists on the paper and the actual situation on the ground. Important to use clear and unified
messages and avoid technical jargon. Adding the gendered dimension cannot be an excuse to
further marginalize or fragment the issue. Focus must not only be on women or womens
vulnerability. A gendered approach means a rights-based approach
Outcomes of advocacy will include awareness-raising and education in target communities;
mobilize womens groups to take leadership on the issue of climate change and comprehensive
gender-sensitive climate change policies on local and national level
Gender Equality and Adaptation by Araujo, Ariana and Andrea Quesada-Aguilar

http://www.wedo.org/files/GenderEqualAdaptation.pdf
Women and children are 14 times more likely to die than men during a disaster. In the 1991 cyclone
disasters which killed 140,000 in Bangladesh, 90% of victims were women (Aguilar, 2004). Similarly,
in industrialized countries, more women than men died during the 2003 European heat wave.
During Hurricane Katrina in the USA, African-American women who were the poorest population
in that part of the country faced the greatest obstacles to survival. During the 2006 tsunami, more
women died than men for example in Indonesia and Sri Lanka, male survivors outnumber female
survivors by 3 or 4 to 1 (Davis et al. 2005).
In Sri Lanka, swimming and tree climbing are taught mainly to boys, which helped them survive
and cope better than women when the waves of the tsunami hit. Social prejudice keeps girls and
women from learning to swim, which severely reduces their chances of survival in flooding
disasters (Oxfam, 2005). Women become less mobile because they are the primary care-givers in
times of disaster and environmental stress.
After a natural disaster, women are more likely to become victims of domestic and sexual violence
therefore women often avoid using shelters from fear (Davis et al. , 2005). The household
workload increases substantially after a disaster, which forces many girls to drop out of school to
help with chores (Davis et al. , 2005). Nutritional status determines the ability to cope with the
effect of natural disasters (Cannon, 2002). Women are more prone to nutritional deficiencies
because of their unique nutritional needs, especially when they are pregnant or breastfeeding, and
some cultures have household food hierarchies. For example, in South and Southeast Asia 4560%
of women of reproductive age are underweight and 80% of pregnant women have iron
deficiencies. In sub-Saharan Africa, women carry greater loads than men, but have a lower intake
of calories because the cultural norm is for men to receive more food (FAO, 2000).
Gender Perspectives on the Conventions on Biodiversity, Climate Change and Desertification

by Lambrou, Yianna and Regina Laub FAO, 2004
http://www.fao.org/sd/dim_pe1/docs/pe1_041002d1_en.doc
The article deals with gender and climate change in the broader sense as the impact on human
security. It then presents case studies from Senegal, Ghana and Bangladesh. A case study from
Bangladesh may illustrate the gender issue on this subject: a community-based cyclone
preparedness program in Bangladesh has found that sites where women were not involved in
village level disaster preparedness committees, responsible for maintaining cyclone shelters and
transmitting warnings, made up the highest proportion of cyclone victims. In Coxs Bazaar in east
Bangladesh, where women are now fully involved in disaster preparedness and support activities
(education, reproductive health, self-help groups, and small and medium enterprises), there has
been a huge reduction in the numbers of women killed or affected by cyclones.
Climate Wrongs and Human Rights Oxfam, September 2008

http://www.oxfam.org/files/bp117- climate-wrongs-and-human-rights-0809.pdf
Executive Summary: http://www.oxfam.org/files/bp117-climate-wrongs-human-rights-
summary-0809.pdf
The text argues that continuing emissions from rich countries is a violation of the human rights of
people in poor countries. It says that the rich world cannot use an economic argument to continue
emissions, and says it is appalling to weigh off financial costs of emissions cuts to human costs of
climate change among the worlds poor. It lists how the effects of climate change are in breach
with human rights, and also suggests a human rights-based approach to mitigation and adaptation.
A table for this is presented in the executive summary. Safeguarding womens rights must also
be at the core of adaptation strategies. Yet a focus on women is missing from the text of the
UNFCCC: gender-disaggregated data are not even required in national reporting on impacts or
adaptation. Likewise, the vast majority of National Adaptation Programmes of Action (NAPAs),
drawn up by the 50 LDCs, acknowledge the importance of addressing gender in adaptation, but fail
to propose specific activities to ensure it happens. One exception is Malawi, which plans to build
womens resilience by digging more boreholes and planting new trees to ensure easier access to
water and fuel, and by promoting micro-credit schemes so women can diversify their incomes.
Network and link to several publications on Climate Change

ReliefWeb Humanitarian Implications of Climate Change
Wide collection of articles and documents of the broader issue of climate change and humanitarian
implications. It has a section on gender, of which most articles are revised in the table above.
http://www.reliefweb.int/rw/hlp.nsf/db900ByKey/climate_change
Gender and Climate Change

A resource more relevant to development issues.
http://www.gencc.interconnection.org/resources.htm
Women Environment and Development Organization, WEDO

WEDOs mission is to empower women as decision makers to achieve economic, social and gender
justice, a healthy, peaceful planet, and human rights for all.
http://www.wedo.org/
GGCAGlobal Gender and Climate Alliance

Is a network of 13 UN agencies and 25 civil society organizations, working together to ensure that
climate change decision-making, policies and initiatives, at all levels, are gender responsive.
http://www.wedo.org/category/themes/sustainable-development-themes/climatechange/ggca
GenderCC Women for Climate Justice

Women for Climate Justice is a global network of women and gender activists and experts from all
world regions working for gender and climate justice.
http://www.gendercc.net/
Aguilar, L., Araujo, A., Kring, E., Quesada, A. and Zuiga, P. (2008). Gua: Recursos de gnero para el cambio
climtico. Mxico: UNDP
Asian Disaster Preparedness Centre (ADPC) Asian Urban Disaster Mitigation Program (AUDMP) 5th
Working Group Meeting Phnom Penh, Cambodia 23-25 February,
2000http://www.adpc.net/audmp/wgm/2000/default.html
CIDA (2008) GENDER EQUALITY AND CLIMATE CHANGE Why consider gender equality when taking action
on climate change? Canada
Dit; RICS (2008) Enabling Womens Empowerment in Post Disaster Reconstruction
Development Assistance in Mozambique: Institutional Barriers and Opportunities.

Policy Research Working Paper 4711.
Forum-Mulher (2007).Shadow Report: Stage of Implementation of the CEDAW in Mozambique. Maputo:

Frum da Mulher,
Garca, S. (1999) Algunas consideraciones sobre la proteccin internacional de los derechos econmicos,
sociales y culturales de la mujer. In: Obra colectiva Mujer y Pobreza .Centro Integral de la Mujer, el Nio y
el Joven (CIM). Argentina.
Garrett, Ashley (2003) Gender Equality in Partner Countries. Swedish Agency for International
Development. Stockholm:
Gender Analysis of the Plan of Action for the Reduction of Absolute Poverty 2001-2005, and
Recommendations for Engendering the PARPA. Washington D.C.
GenderCC (2001) Recommendations Gender and climate change research
Government of Mozambique(2006b).Joint Review of the Governments implementation of the poverty

reduction strategy (PARPA) and of the performance of PAPs. Government of Mozambique
------------ (GoM), Programme Aid Partners (PAPs). www.pap.org.mz
------------ (2003) Plano de Accao para a Reducao da Pobreza Absoluta PARPA I, Maputo
------------ (2005)Report on the Millenium Development Goals. Maputo
------------ (2006a) Plano de Accao para a Reducao da Pobreza Absoluta 2006-2009 PARPA II, Maputo
Gallina A. and Chidiamassamba C.Gender Aware Approaches in Agricultural Programmes Mozambique Country Report A special
study of the National Agricultural Development Programme (ProAgri II) UTV Working Paper 2010:6 Commissioned by Sida,
Secretariat for Evaluation, May 2010
http://sidapublications.citat.se/interface/stream/mabstream.asp?filetype=1&orderlistmainid=2947&printfileid=2947&filex=3952829
810503
HTC (2009) Mozambique Humanitarian Country Team, Inter-Agency HCT Contingency Plan 2009/2010
IASAC (2006) Gender Handbook in Humanitarian action: o Women, Girls, Boys and Men Different Needs -
Equal Opportunities
INGC Natural Calamities Management Master Plan
------------ (2010) Gender and drought baseline DRAFT
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INE (2008) Mulheres e Homens em Moambique: Indicadores seleccionados de gnero
Jensen, Rikke Ingrid et al. (2006). Evaluation of DFID's Policy and Practice in Support of Gender Equality and
Women's Empowerment. Volume 1: Synthesis Report. Copenhagen: COWI Consult.
Killick,T.; Castel-Branco,C.N. and Gerster, R. (2005). Perfect Partners? The performance of Programme Aid
Partners in Mozambique, 2004.A report to the Programme Aid Partners and Government of
Mozambique.www.pap.org.mz
MICOA, (2003)Mozambique Initial National Communication to the UNFCCC, Mozambique April
------------ (2005) Avaliao da vulnerabilidade as mudanas climticas e estratgias de adaptao.

MICOA. Maputo.
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Adaptao s Mudanas Climticas (NAPA)MICOA. Maputo.
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Mikkelsen, Britha (2002).Mainstreaming Gender Equality: SIDA's Support for the Promotion of gender
equality Stockholm
Mozambique Humanitarian Country Team Inter-Agency HCT Contingency Plan 2009/2010Final
National Directorate of Studies and Policy Analysis Ministry of Planning and Development (2010) Poverty
and wellbeing in Mozambique :THIRD NATIONAL POVERTY ASSESSMENT
Programa Quinquenal do Governo para 2010-2014
Pincha CH.(2008) Gender Sensitive Disaster management: a toolkit for practitionists. published by
Earthworm Books for Oxfam America and NANBAN Trust
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America & NANBAN Trust Mumbai
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Version Approved by the Council of Ministers on May 2, 2006Maputo May 2, 2006
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DESK Literature Review on

Disaster Risk Reduction

Marcela Ballara, International Consultant

II. The International Framework 10

III. Gender mainstreaming and Mozambique DRR&EP Institutional framework 19

Disaster Management Coordinating Council (CCGC) and Disaster Management

IV. International events supporting gender mainstreaming in DRR&EP 25

Third Global Congress of Women in Politics and Governance, .Gender in Climate

Role of Local Governments in DRR&EP and CCH

effective, integrative, cost effective, participatory, non-technical and easily replicable

Approaches to address DRR&EP and CCH projects and programs

Climate change affects men and women differently

Relations between Gender mainstreaming and climate change mitigation and

Some gender-specific vulnerabilities and challenges to disaster, emergency and

Priority areas for action

VII. Some Findings 43

In the past three decades numerous international instruments have been

Disaster Risk Reduction & EP and Climate Change; a common approach

Disaster Risk Reduction:

o The Agenda 21 (United Nations Conference on Environment and Development, 1992);

The International arena

Johannesburg Plan of Implementation (World Summit on Sustainable Development 2002

The Millennium Declaration4 and the Millennium Declaration Goals (2000)

The Rio Conventions5

The Convention on Biological Diversity (CBD)

The UN Convention to Combat Desertification (UNCCD)

To implement this approach a multi-stakeholder and inclusive United Nations International

Mozambiques compliance of International Agreements

o The Vienna Convention on the protection of the ozone layer;

Examples of Good Practices in Engendering NAPAs

In 2004, Mozambique adopted a new Constitution in which the Government of Mozambique

Disaster Management Coordinating Council (CCGC) and Disaster

The National Institute for Disaster Management (INGC)

As regards to structures that intervenes directly to vulnerability reduction, INGC is organized at

The Ministry for the Coordination of Environmental Action (MICOA)15

Ministry of Women and Social Action (MMAS)

Third Global Congress of Women in Politics and Governance, on Gender in

The Beijing Agenda for Global Action on Gender-Sensitive Disaster Risk

Good practices, lessons learned, challenges and potential replication21

o Honduras: Grassroots women and communities in disaster risk reduction and

In detail, the following are the relevant characteristics of the experiences:

Indigenous Garifuna Communities Garifuna Emergency Committee of Honduras

The main characteristics of this project were:

The main characteristics of this project were:

Women led the community management and monitoring of the construction

The main characteristics of this project were:

The main characteristics of this project were:

Focusing on youth and girl children in DRR&EP: the case of India

TAMIL NADU, INDIA28

The main characteristics of this project were:

using a rights-based approach so they could be prepared to be their own advocates to

The main characteristics of this project were:

The main characteristics of this project were:

Activities channelled by womens organized groups

3) Strengthen institutional capacities and implement practical disaster risk reduction

Disasters dont discriminate, but people do. Existing socio-economic

Relevance for considering gender issues in Disaster Risk Reduction and

Climate change affects men and women differently

Relations between gender mainstreaming and DRR&EP, CCH mitigation39

Factors that influence women in DRR&EP and CCH mitigation and

o The lack of access to information, communication, education, illiteracy, play a critical

Some gender-specific vulnerabilities and challenges to disaster, emergency

o Water and sanitation: Increased difficulty in accessing natural resources, in particular,