东盟-在东盟应对灾害的社会保护和预期行动中加强性别平等和社会包容（英）-2023.pdf

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1、Strengthening gender equality and social inclusion in disaster responsive social protection and anticipatory action in ASEANPOLICY BRIEFStrengthening gender equality and social inclusion in disaster responsive social protection and anticipatory action in ASEANPOLICY BRIEFThis policy brief 1 provides

2、 ASEAN Member States(AMS),sectoral bodies and ASEAN partners with an overview of and recommendations for strengthening gender equality and social inclusion to help them implement both the ASEAN Guidelines on Disaster Responsive Social Protection to Increase Resilience and the ASEAN Framework on Anti

3、cipatory Action in Disaster Management.It describes the current state of play and identifies enablers of and barriers to gender equality and social inclusion in disaster responsive social protection and anticipatory action in the region.Drawing on concrete examples from AMS,including policy innovati

4、ons,experiences and lessons learned,this policy brief identifies areas that require accelerated efforts and provides key recommendations.1 Policy Brief:Strengthening Gender Equality and Social Inclusion in Disaster Responsive Social Protection and Anticipatory Action in ASEAN was endorsed by the ASE

5、AN Committee on Disaster Management on 10 October 2022.FAOPolicy BriefStrengthening gender equality and social inclusion in disaster responsive social protection and anticipatory action in ASEAN2The Association of Southeast Asian Nations(ASEAN)is one of the most risk-prone regions in the world.Betwe

6、en 2021 and 2022 alone,the region recorded 865 disaster events that caused 853 deaths,displaced 1.2 million individuals,and affected 23.2 million people.2 With climate change,the increasing frequency and severity of these hazards and their impacts jeopardize the ASEANs economic growth and social dev

7、elopment.A strategic shift from responding to shocks to anticipating their impacts and acting early can break the cycle of growing dependence on aid and build resilience to future disasters.This approach is commonly known as anticipatory action and is highlighted in the ASEAN Framework on Anticipato

8、ry Action in Disaster Management.It establishes risk monitoring and early warning systems linked to flexible finance alongside standard operating procedures to protect peoples lives and livelihoods ahead of predictable shocks.Anticipatory action can be delivered through various modalities,and social

9、 protection is one promising instrument.The ASEAN Guidelines on Disaster Responsive Social Protection to Increase Resilience notes that social protection is“an important means to help poor and vulnerable households cope with disasters.”Social protection systems that address and incorporate disaster

10、risk in their design can build and strengthen the disaster resilience of households and communities.3 Evidence strongly demonstrates that vulnerabilities from natural hazards can be reduced when anticipatory measures,including those within the context of social protection,are in place and are part o

11、f a broader strategy to manage disaster risks.4 Resilience increases when social protection measures and anticipatory action are gender-responsive and inclusive.There is growing evidence that shows acting early can be cost-effective,where every USD 1 invested in anticipatory actions can yield up to

12、USD 7 in avoided losses and added benefits.To fully realize the potential of disaster responsive social protection and anticipatory action in the region,targeted approaches to gender equality and social inclusion must be mainstreamed.An inclusive approach must have a nuanced and context-specific und

13、erstanding of the ways inequality impacts vulnerability and resilience,and then be able to apply existing plans and frameworks on inclusion,including the ASEAN Regional Framework on Protection,Gender,and Inclusion in Disaster Management 20212025.A.ContextPolicy BriefStrengthening gender equality and

14、 social inclusion in disaster responsive social protection and anticipatory action in ASEAN32 AHA Centre.ASEAN Disaster Information Network(ADI-Net),accessed 27 September 2022.3 AHA Centre.ASEAN Disaster Information Network(ADI-Net),accessed 27 September 2022.4 UNESCAP.2022.The Asia-Pacific Disaster

15、 Report 2022 for ESCAP Subregion.https:/www.unescap.org/kp/2022/asia-pacific-disaster-report-2022-escap-subregions-summary-policymakersPolicy BriefStrengthening gender equality and social inclusion in disaster responsive social protection and anticipatory action in ASEAN4A review of how gender equal

16、ity and social inclusion are being addressed in the ASEAN region was performed through a rapid assessment of regional policy instruments on disaster risk management,anticipatory action and social protection.The main findings include:B.1.There has been marked progress in integrating gender into regio

17、nal policies,frameworks and guidelines relevant to disaster responsive social protection and anticipatory action,with room for further operationalization and application at the national level.Efforts to strengthen disaster management in ASEAN have marked progress towards integrating gender equality

18、and social inclusion into key regional policies,frameworks,and guidelines relevant to disaster responsive social protection(DRSP)and anticipatory action.For example,the ASEAN Agreement on Disaster Management and Emergency Response(AADMER)Work Programme 20212025 adopts gender and social inclusion as

19、guiding principles,with activities,outputs and indicators geared towards measuring gender-specific impact(e.g.Outcome 2.5.2 Strengthened social protection mechanism within the region).Similar to global trends,the impacts of disasters within ASEAN call attention to addressing gendered risks in adoles

20、cence and old age.In this regard,disseminating,socializing and scaling the adoption of regionally developed tools and guidelines,5 and strengthening the capacities of ASEAN Member States(AMS)to apply gender-responsive and socially inclusive principles to national policies,programming and planning in

21、struments can support better-engendering DRSP and anticipatory action protocols.B.2.Investment in understanding gendered risks and vulnerabilities in disasters has yielded a critical foundation for the design of inclusive disaster responsive social protection and anticipatory action.Both the ASEAN C

22、ommittee on Disaster Management(ACDM)and the ASEAN Committee on Women(ACW)have invested in understanding the gendered risks and vulnerabilities to disasters and climate change.B.State of play1)Design tweaks:Routine social protection programmes can leverage the evidence base above to take into consid

23、eration the gendered impacts of disasters.2)Horizontal expansions:Social protection programmes may include new disaster-affected beneficiaries in response to disasters.3)Vertical expansions:Social protection programmes may temporarily increase the benefit value in response to a disaster to protect i

24、ncomes and prevent the use of negative coping strategies.Box 1:Moving towards shock-responsive social protection systems5 Including but not limited to,the ASEAN Gender Mainstreaming Strategic Framework,and the Guidelines for Operationalization of the ASEAN Regional Framework on Protection,gender,and

25、 Inclusion in Disaster Management.Policy BriefStrengthening gender equality and social inclusion in disaster responsive social protection and anticipatory action in ASEAN5B.3.The ASEAN Guidelines on Disaster Responsive Social Protection to Increase Resilience and ASEAN Framework on Anticipatory Acti

26、on in Disaster Management provide opportunities to boost the mainstreaming of gender and social inclusion.There has been considerable buy-in of DRSP within the ASEAN region.The primary success factor for the uptake of DRSP was a strong institutional architecture particularly the development of the D

27、RSP guidelines which provides an important outline and path for the approach.The ASEAN Framework on Anticipatory Action in Disaster Management is the first global institutional document on the approach,providing clarity,coherence and a clear vision on anticipatory action.Both documents provide an op

28、portunity to enhance understanding as well as political commitments to take further action.The two frameworks,with their common elements,emphasize the importance of addressing gender equality and social inclusion.Over the years,gains have been made on inclusive communication of early warnings,but an

29、ticipatory action aims to take the model a step further by acting on these warnings.Anticipatory action requires risk-informed,tailored and prioritized processes to ensure that people are reached effectively.The approach must ensure access,participation and safety for all people potentially affected

30、 by crises.B.4.Gaps persist in monitoring and evaluation.While there are impact assessments of anticipatory action pilots,systematic monitoring and evaluation of anticipatory action pilots,the long-term impact of anticipatory action on gender equality and social inclusion has not yet been explored.S

31、ystematic approaches and tools are needed to build an evidence and advocacy base.FAOPolicy BriefStrengthening gender equality and social inclusion in disaster responsive social protection and anticipatory action in ASEAN6 FAOThe ASEAN guidelines for disaster responsive social protection and its fram

32、ework for anticipatory action have identified common building blocks of DRSP and anticipatory action.C.Ways forwardDrawing on the analytical framework and the available guidelines for gender and disaster risk management,6 the following are recommended for mainstreaming gender and social inclusion in

33、to the building blocks of anticipatory action in disaster management and DRSP.These recommendations are aligned with the step-by-step process applicable for both approaches:assess the context;consider the options;design and deliver;and learn and improve.6 These include FAOs Gender-responsive disaste

34、r risk reduction in the agriculture sector:Guidance for policy-makers and practitioners https:/www.fao.org/policy-support/tools-and-publications/resources-details/es/c/1234895);the World Banks Gender and Disaster Risk Management Guidance Notes (https:/documents1.worldbank.org/curated/en/723731468234

35、284901/pdf/658410REVISED00view0Final0for0email.pdf,or the United Nations Development Programmes Making Disaster Risk Reduction Gender-Sensitive:Policy and Practical Guidelines(https:/www.undp.org/publications/making-disaster-risk-reduction-gender-sensitive-policy-and-practical-guidelines)Figure 1.Co

36、mmon building blocks of Anticipatory action and disaster responsive social protectionRisk information,forecasting and early warning systems Weather forecasts Seasonal outlooks Impact analyses Situational monitoring Pre-disaster risk assessmentsPre-arranged finance Dedicated AA funds in DRM budgets a

37、nd contingency plans DRF instruments include AA and link to AA triggers/protocolsPlanning,operations and delivery Standard Operating Procedures Menu of potential AAs Sectoral AA plans AA Protocols in contingency plansBuilding blocks of anticipatory action(AA)systemsBuilding blocks of disaster respon

38、sive social protectionInstitutional CapacityInvest in the basic social protection systemDisaster Responsive Social Protection FrameworkCombined Information SystemPrinciples&Approaches Do no harm Leaving no one behind Flexible&simple Prepare&respond earlyFlexible Program DesignFlexible Delivery syste

39、msCombined Information SystemPolicy BriefStrengthening gender equality and social inclusion in disaster responsive social protection and anticipatory action in ASEAN7C.1.Accelerate the collection and use of gender,age,and disability disaggregated data(GADDD)in combined information systems for disast

40、er responsive social protection and anticipatory action.The first building block of risk information,forecasting and early warning systems involves strong impact analyses and risk assessments to fully understand the vulnerability and exposure of people in specific locations.This requires an in-depth

41、,nuanced understanding of vulnerability,including gender-specific risks and vulnerabilities across the life cycle.Key ASEAN documents highlight the importance of analysis not only of gender but also of socioeconomic status,ethnicity,migration,age and geography among other dimensions.7 The regional a

42、ggregation of datasets and official statistics has allowed for identification of who is left farthest behind.8 However,the paucity of GADDD can make this challenging in local contexts.Therefore,while accelerating efforts to standardize,collect and use quantitative data,complementary qualitative data

43、 gathered in a participatory manner or through working with local administrations and organizations is highly recommended to develop more accurate vulnerability analyses.Qualitative methods are also effective in promoting understanding among high-risk and vulnerable populations on the potential risk

44、 and warnings,and in sharing ways they can mitigate these.C.2.Mainstream gender equality and social inclusion into plans,flexible programme design,operations,and delivery mechanisms.Building on the risk information and forecasted impacts,flexible design for disaster responsive social protection is c

45、ritical to ensure effective targeting and delivery of beneficiaries to mitigate the impacts of disasters on the most vulnerable.In line with commitments to localization,actors should ensure that information about delivery mechanisms is provided in the local languages,in partnership with local organi

46、zations of women,persons with disabilities(PWDs)and other groups.With limited time frames for action,the planning and operations for anticipatory action must be done well in advance.In various pilots,anticipatory action is often planned through dedicated protocols or a standard operating procedure(S

47、OP)designed for each hazard.However,it can also be integrated into existing disaster contingency plans.In both cases,planning should be implemented by different government line ministries,across sectors.Subnational governments could build partnerships with the community and private sector,including

48、gender and social inclusion actors.Working with expert organizations,alongside intermediary organizations that represent marginalized groups,can help develop targeted anticipatory action to mitigate specific risks.For example,recognizing that designated evacuation shelters for a cyclone may not be f

49、ully accessible to elderly persons and PWDs,the government can work with organizations of PWDs to identify and pre-position mobility aids in evacuation shelters.C.3.Ensure that pre-arranged and flexible finance for anticipatory action and DRSP are gender-responsive and inclusive.ASEAN Member States

50、have stressed that pre-arranged finance is crucial for rapid decision-making to support anticipatory action and DRSP.The current funding streams can take days or weeks to reach those in need.This is either through a national contingency budget;national and regional insurance mechanisms(i.e.Southeast