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“Approved”
by participants of the Regional Ministerial Meeting
of Disaster Management Authorities
of Central Asian and South Caucasus countries
Protocol dated of January 30, 2015, Bishkek, Kyrgyz Republic
Framework of Cooperation
On strengthening regional cooperation of Disaster Management Authorities of Central Asian and
South Caucasus region in the area of Disaster Risk Reduction (DRR)
Preface
Central Asia and South Caucasus region (Azerbaijan, Armenia, Georgia, Kazakhstan, Kyrgyzstan,
Tajikistan, Turkmenistan and Uzbekistan) extends from the Black Sea in the west to China in the east,
and from southern Russia in the north to Afghanistan in the south. The region covers an area of about 4.2
million square kilometers and has a population of around 75 million.
The region is geographically diverse and includes several high mountain chains, vast deserts and treeless,
grassy steppes. It is home to large river systems such as the Amu Daria and Syr Daria, and major water
bodies such as the Caspian and Aral seas and the Balkhash and Sarez lakes. The region experiences very
large temperature fluctuations, ranging from -40ºC to +46ºC.
The countries of Central Asia and the South Caucasus (CASC) have a history of devastating disasters that
have caused economic and human losses across the region. Almost all types of natural and technological
hazards are present, including earthquakes, floods, landslides, mudslides, debris flows, avalanches,
droughts and extreme temperatures.
Earthquakes are the most dangerous hazard, causing destruction to human life, buildings and
infrastructure alike, while also triggering secondary events such as landslides, mudslides and avalanches.
This mountainous region provides compelling evidence of the destructive power of such secondary
events: landslides, mudslides and debris flows caused most casualties during the earthquakes in Armenia
(1988 Spitak), Azerbaijan (2000 Baku), Kazakhstan (1887, 1889, and 1911 Almaty), Kyrgyzstan (1992
Jalal-Abad), Tajikistan (1949 Khait, 1989 Gissar), Turkmenistan (1948 Ashgabat) and Uzbekistan (1966
Tashkent).
Climate change is expected to exacerbate disasters associated with hydro-meteorological hazards.
Almost all countries of the region are facing currently with the problems of increasing the intensity of
negative consequences of disasters, accidents and catastrophes, increasing of people’s vulnerability to
natural and man-made threats, which are being magnified due to emerging new challenges.
Disasters, accidents and catastrophes have a negative impact on investments to nation’s economy
development, as a result implementation of strategies, programmes and plans for sustainable development
are less successful.
The key factors, increasing the risks of disasters belong to: growing frequency of repeated and large-scale
disasters, accidents and catastrophes, widespread accumulation of climate variability, intensive
demographic processes, development of industry, transport and energy, physical aging of previously
constructed facilities, the presence of radioactive tailings and waste dumps, the possibility of terrorist
attacks.
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The analysis of the real situation in the sphere of disaster risk reduction indicates that, despite the ongoing
activities and progress made, exposure and vulnerability of the region continues to grow.
Disaster risks entail danger not only to the population and territory of every individual country, which
they cannot cope on their own with, but may have trans boundary effects. This fact therefore necessitates
strengthening regional cooperation for joint coordinated actions to reduce risks through implementation of
this Framework of Cooperation in the sphere of Disaster Risk Reduction (DRR) of disaster management
authorities of Central Asian and the South Caucasus countries.
Section I: Transboundary disaster risks and their effects
There is a significant risk from trans-boundary hazards such as earthquakes, floods, droughts, radioactive
waste and pollution in CAC.
Spitak earthquake, Armenia
The Spitak earthquake, on 7 December 1988, was one of the most disastrous earthquakes in the southern
Caucasus sub-region. The epicenter was located 40 kilometers north of Leninakan, Armenia, in the
mountainous area of the Lesser Caucasus. The earthquake caused serious damage throughout Armenia
and caused limited damage in parts of the Republic of Georgia, eastern Turkey and Iran. The tectonics of
the region are dominated by the northward motion of the Arabian plate relative to the Eurasian plate and
the region has been hit by destructive earthquakes for thousands of years (http://causin.org/cms/). There
have been several major earthquakes of magnitudes 6.5 to 7.0 over the last two decades, and the
consequences have been catastrophic to both the populations and economies of the sub-region.
Earthquakes include the Spitak, 1988; Racha, 1991; Barisakho, 1992; eastern Turkey, 1976, 1983, 1992;
and northern Iran, 1990, 1997. The border area of Armenia, Georgia, Iran and Turkey has high to very
high seismic hazard (GSHAP, 1998).
Ashgabat earthquake, Turkmenistan
The Ashgabat earthquake (M = 7.3), on 5 October 1948, caused extreme damage in Ashgabat
(Ashkhabad) and nearby villages, where almost all brick buildings collapsed, concrete structures were
heavily damaged and freight trains were derailed. Damage and casualties also occurred in the DarrehGaz
area of Iran. Surface rupture was observed both north-west and south-east of Ashgabat. EMDAT reports a
death toll of 110,000. However, in 2008 Turkmenistan marked the sixtieth anniversary of this earthquake
and released an even higher death toll of 176,000 people [in other words, 80 per cent of the Turkmenistan
capital’s population (ADB, 2008)]. The area bordering Turkmenistan and Iran is an area with high to very
high seismic hazard (GSHAP, 1998).
Kemin earthquake, Kyrgyzstan
The Kemin (Kebin) earthquake (M = 8.2), on 3 January 1911, in northern Tien-Shan (Kazakhstan and
Kyrgyzstan) formed a complex system of surface ruptures. Six fault segments of the Kemin-Chilik and
Aksu fault zones with different strikes, dips and kinematics had been activated. Damage occurred in the
Chong-Kemin (Bol’shoyKemin) valley as well as at Anan’yevo and Oytal, Kyrgyzstan. The city of
Almaty in Kazakhstan was almost flattened. Faulting, fractures and large landslides 83 were observed
over an area 200 kilometres in the Chong-Kemin and Chilik valleys and along the shore of Lake IssykKul. The earthquake was felt more than 1,000 kilometers away in Kazakhstan and Russia. The Kemin
earthquake was one of the strongest events of a sequence of seismic catastrophes that affected the Kungei
and
Zaili-Alatau
mountain
ranges
between
1887
and
1938
(http://www.sibran.ru/psb/show_text.phtml?eng+3349+9). According to experts, highly damaging
earthquakes in this area tend to occur every 80 to 100 years. The last period of seismic activities was
1885-1911. During that period, several damaging earthquakes occurred at Belovodskye (1885),
Verneskoye (1887) and at Keminskoye (1889). Since then, there has been no large damaging earthquake
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and there is high possibility of another series of such earthquakes within the next 10-15 years (IRIN,
2004).
2008 earthquake, Nura, Kyrgyzstan
On October 5, 2008, a powerful earthquake of magnitude 6.6 hit the southeast of Kyrgyzstan, 220
kilometers from the main city of Osh, near the borders of Tajikistan and the People’s Republic of China,
an area which is prone to earthquakes. The next day, on 6 October 2008, the US Geological Survey
recorded an earthquake of magnitude 5.9 in central Afghanistan, 70 kilometers south of Kabul. Five years
earlier, in February 2003, a magnitude 6.8 earthquake in north-west China, with an epicenter close to
Kyrgyzstan, claimed 268 lives and destroyed 20,000 houses. There is strong potential for earthquakes of
magnitude 8 to 9 in this area and about 40 per cent of the population (5.24 million) lives in the 20 per cent
of the country with a potential for magnitude 9 earthquakes; a further 7.5 per cent of the country is at risk
of magnitude 8 earthquakes (ADB, 2008).
2000 drought in Central Asia and Caucasus
A single multi-year drought event, starting in 2000 in Central and south-west Asia and the Caucasus
region, affected 60 million people and caused huge economic losses. The occurrence of this event was
related to large-scale variations in the climatic conditions across the Indian and Pacific Oceans and its
effects were aggravated by chronic political instability in many parts of the region. From a regional
perspective, the drought was the most severe in CAC for the past several decades. Significant shortfalls in
precipitation had widespread social and economic impacts, not only in Iran, Afghanistan, western
Pakistan and the Caucasus sub-region, but also in Tajikistan, Uzbekistan and Turkmenistan. Agriculture,
animal husbandry, water resources and public health throughout the region were strained.
2005 Amu Daria flood
The Amu Daria is the largest river in the region and its major catchment area is in Tajikistan. From
Tajikistan, it flows along the border between Uzbekistan and Afghanistan and crosses to Turkmenistan,
flows back into Uzbekistan and on into the Aral Sea. During June and July 2005, the Amu Daria and its
tributaries flooded, causing significant damage in Tajikistan, Afghanistan and southern Kyrgyzstan. Most
of the areas along the Amu Daria were damaged due to floods and mud flows, including the inundation of
thousands of hectares of fields in the regions of Khamadoni and Khatlon and the districts of Hamadoni
and Farkhor, in Tajikistan; the provinces of Badakhshan and Balkh, in Afghanistan; and the provinces of
Osh, Batken and Jalalabat, in southern Kyrgyzstan. Huge losses were inflicted when storms repeatedly
struck the provincial capital and eight other districts of Afghanistan. Highways and bridges were severely
affected in Afghanistan (Dartmouth, 2005).
2005 Syr Daria flood
The Syr Daria originates in the Tian-Shan mountains and is the longest river in Central Asia. The river’s
major catchment area is in Kyrgyzstan, from where it crosses to Uzbekistan and Tajikistan and flows into
the Aral Sea in Kazakhstan. During February and March 2005, heavy flooding along the Syr Daria caused
significant damage in Kazakhstan and Uzbekistan. Farmland and settlements were destroyed in the
Kyzylorda area of Kazakhstan and the districts of Konimex and Nurota, in Uzbekistan
(http://www.dartmouth.edu/~floods/images/2005024SyrDarya.jpg).
Radioactive waste and trans-boundary pollution
CAC is vulnerable to radioactive pollution. There are many uranium tailing or radioactive processing sites
across the region and there are fears, in the Caucasus, of a nuclear radiation hazard originating from the
nuclear plant at Metsamor, Armenia. This plant is considered dangerous by the IAEA because of its
location in an earthquake zone and its type (Anagnosti, 2008). In Central Asia, there are many hazardous
and poorly-maintained radioactive waste sites located in highly populated areas of the region. Most of
these plants lie in the border area, thus posing transboundary risks of soil, air and water
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contamination(http://maps.grida.no/library/). There are nuclear test sides as semei, Lira, Sai-Utes, Kapustin
Yar and Azgir. Moreover the region is vulnerable to toxic industrial waste due to metal, oil and coil
manufacturers located in the region. There are also poorly maintained city damps, warehouses of
pesticides and dangerous chemical wastes. Radioactive waste tailings are located in densely populated
area Fergana valley and there is a risk of radioactive release from the tailings located in Kyrgyzstan.
Climate change trends
Global circulation models IPCC AR4 climate trends highlights the climate projections for temperature
and precipitation changes based on the results of the 21 global models summarized in AR4 (IPCC, 2007)
for CAC countries. The ensemble suggest that the average temperature increase in Central Asia is
expected to be 3.7°C by the end of the twenty-first century. The maximum increase is expected in the
winter months of December, January and February (DJF). Precipitation estimates in most models show an
increase during DJF but a decrease in other periods. By 2100, it is expected that there will be a 3 per cent
annual decrease in precipitation. This is due to a 4 per cent increase in precipitation during DJF months
and a 13 per cent decrease in the summer months of June, July and August (JJA).
Section II: International strategic programme documents in the area of DRR
International Decade for Natural Disaster Reduction(IDNDR, 1990-1999). The international
community has declared IDNDR aimed at raising awareness about the importance of disaster risk
reduction. As a result of implementation of the Decade, significant conceptual changes were made,
namely the transition from disaster response to towards disaster risk reduction, reflecting the crucial role
of human activity.
Yokohama Strategy (1994) and Strategy 'A Safer World in the 21st Century: Disaster and Risk
Reduction (1994). Globally during the last 20 years, these strategies provided landmark guidance on
reducing disaster risk and the impacts of disasters and called the world community to adopt systematic
measures aimed at disaster risk reduction in the context of sustainable development and strengthen
national and local capacity in risk management and risk reduction.
The Millennium Development Goals (MDGs, 2000) are eight international development goals
that193UN member states have agreed to achieve by the end of 2015.The global commitments that
include eradicating extreme poverty, achieving universal primary education, promotion of gender equality
and empowerment of women, reducing child mortality, improving maternal health, combating HIV /
AIDS, malaria and other diseases, ensure environmental sustainability, and developing a global
partnership for development.
International Strategy for Disaster Reduction (ISDR, 2001). UN adopted ISDR as a global framework
for action aimed at ensuring the stability of all societies to the effects of natural hazards and related
technological and environmental disasters in order to reduce human, economic and social losses. The four
objectives of the strategy are to: enhance public awareness of measures for disaster risk reduction,
preparedness, public authorities deal with these issues, the promotion of interdisciplinary and inter
sectorial partnerships, as well as the improvement of scientific knowledge about the causes of natural
disasters and the effects of exposure to natural hazards through early warning measures.
Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to
Disasters (HFA 2005-2015). HFA identified with strategic objectives and priorities for action aimed at
achieving a significant reduction in the number of victims, as well as social, economic and environmental
losses of communities and countries in the aftermath of disasters.
United Nations Conference on Sustainable Development "Rio + 20", Rio de Janeiro, Brazil, in
2012. During the conference, world leaders, along with representatives of the private sector, NGOs and
other groups jointly adopted the final document "The Future We Want", developed the concept of how
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to reduce poverty, promote social justice and provide adequate measures to protect the environment
taking into account the progressive growth of the world population.
Sustainable Development Goals. Resolution 68 of the United Nations General Assembly (A/68/970,
August 12, 2014) describes 17 sustainable development goals for post-2015, proposed by the Open
Working Group of the General Assembly on Sustainable Development Goals. Disaster risk reduction is
related to almost all the goals of sustainable development, and the goal number 11 in particular aims to
"ensure transparency, security, resilience and sustainability of cities and towns."
Draft Post-2015 Framework for Disaster Risk Reduction include the following priority areas: i)
understanding disaster risk ii) strengthening governance and institutions to manage disaster risk iii)
investing in economic, social, cultural and environmental resilience iv) enhancing preparedness for
effective response, and building back better in recovery and reconstruction.
Section III: The main goals and objectives of strengthening regional cooperation in the area of DRR
Goal1 - prevention of disaster risk creation and the reduction of the existing disaster risk through
economic, social, cultural, and environmental measures which address exposure and vulnerability, and
thus strengthen resilience.
Objectives:



Creation and / or improvement of appropriate institutional framework conducive to the
implementation of bilateral and multilateral interstate and / or interagency agreements and
international goals of sustainable development and the creation of sustainable mechanisms for
regional cooperation to prevent, prepare for and respond to emergencies of trans boundary nature
Refining the system of interface in risk assessment, monitoring and early warning at the regional
level on trans boundary and large-scale hazards
Capacity building of staff of Disaster Management Agencies and Response Services on the issues
of risk management of large-scale and trans boundary disasters
Section IV: Priorities for strengthening regional cooperation in DRR
Creation and / or improvement of appropriate institutional framework

Creation of the Regional Forum - Meeting of heads of Disaster Management Authorities of Central
Asian countries on strengthening regional cooperation in the area of disaster risk reduction;

Establishment of the Center for Disaster Response and Risk Reduction (Almaty, Kazakhstan)
between the Republic of Kazakhstan and the Kyrgyz Republic;

Establishment of an expert working group as a permanent working body of the Regional Forum Meeting of heads of Disaster Management Authorities of Central Asian countries.

Implementation of measures aimed at harmonization of regulatory frames at the national levels for
effective execution of international commitments, bilateral and multilateral interstate and interagency
agreements of Central Asian and South Caucasus countries to align with requirements of international
law, and address gaps in the mechanisms and procedures for their implementation;

Implementation of practical measures to strengthen cooperation and interaction towards reducing
risks and post-disaster recovery of trans boundary nature;

Implementation of practical measures and/or projects aimed at disaster risk reduction of trans
boundary nature.
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This goal was described as a goal of global level under the draft post-2015 Framework for Disaster Risk Reduction
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Refining the system of interface in risk assessment, monitoring and early warning at the regional level
on trans boundary and large-scale hazards

Implementation of measures on strengthening regional cooperation aimed at creation, development,
improvement and harmonization of regional early warning systems, mutual informing on disaster
risks, monitoring and risk assessment while threat or occurrence of large-scale and trans boundary
disaster situations by utilizing capacity of existing national Crises Management Centers and early
warning systems.
Capacity building of staff of Disaster Management Agencies and Response Services on the issues of
risk management of large-scale and trans boundary disasters

Implementation of measures on strengthening regional cooperation towards improving professional
skills, qualifications of specialists of Disaster Management Authorities, response services and local
authorities.
Section V. Cooperation for the purposes of implementation the Framework of Cooperation
Implementation of the Framework of Cooperation in the area of Disaster Risk Reduction is
executed based on voluntary commitments in line with the goals and objectives of bilateral and
multilateral interstate and / or interagency agreements, Regional Forum - Meeting of Heads of state
bodies authorized in the field of Emergency management of Central Asia, the Center for Disaster
Response and Risk Reduction, joint projects on developments and of other forms of collaboration; and in
a participatory way through partnership of all stakeholders, at international, regional, national and local
levels by organizational and technical support of the international donor organizations.
Conclusion:
Introducing changes and amendments to the Framework of Cooperation shall be made based on concerted
decision of the heads of Disaster Management Authorities on the basis of consensus achieved.