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2. Módulo Gestión de Riesgos

June 24, 2019 | Author: Jhonny Jaigua S | Category: Desarrollo sostenible, Vulnerabilidad, Estado (Forma de gobierno), Riesgo, Planificación
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POLICÍA NACIONAL DEL ECUADOR DIRECCIÓN NACIONAL DE EDUCACIÓN DEPARTAMENTO DE DOCTRINA UNA ERUPCIÓN ERUPCIÓN VOLC ÁNICA, UN EVENTO DE ORIGEN NA TURAL .

Los fenómenos no son naturales, sino las fuerzas que lo producen.

CARRERA DE TÉCNICO SUPERIOR EN SEGURIDAD SEGURIDAD CIUDADANA CIUDADANA Y ORDEN PÚBLICO GESTIÓN DE RIESGOS JUNIO 2016

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1 Sr. Diego Mejía Valencia General Superior COMANDANTE GENERAL DE LA POLICÍA NACIONAL Sr. Edison Gallardo Bedón General de Distrito DIRECTOR NACIONAL DE EDUCACIÓN Sr. Diego Roberto Escobar Andrade Capitán de Policía JEFE DEL DEPARTAMENTO DE DOCTRINA Sra. Johanna Gabriela Pino Andrade Cabo Primero de Policía DEPARTAMENTO DE DOCTRINA Ing. Jaime Javier Vargas. Sargento Primero de Policía. COMPILADOR

El contenido del presente Módulo es de carácter reservado para uso exclusivo de la Policía Nacional en el área académica, se prohíbe su reproducción total o parcial y la

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2 Tabla de contenido

1. MARCO LEGAL REGIONAL, NACIONAL Y CANTONAL EN GESTIÓN DE RIESGOS ................................................ .......................................................................... .................................................... .......................................... ................4 1.1. Marco de Acción de Hyogo para 2005-2015: Aumento de la resiliencia de las naciones y las comunidades ante los desastres .................................................. ...................................................... .... 4 1.2. Constitución de la República del Ecuador .................................................. ...................................................... .... 9 1.3. Ley de Seguridad Pública y del Estado .................................................. ........................................................ ...... 10 1.3.1. Gestión de Riesgos ................................................... ............................................................................. ............................ .. 14 1.3.2. La gestión ge stión de riesgos en el sector educativo ......................................... ......................................... 14 1.4. Código Orgánico De De Organización Territorial, Autonomía y Decentralización (COOTAD) ................................................... ............................................................................. .................................................... ................................ ...... 19 2. ENFOQUE DE LA GESTIÓN DE RIESGOS ................................................... ....................................................... 20 2.1. Conceptualización y dimensión dimen sión de los siguientes enfoques......................... ......................... 20 2.1.1. Gestión correctiva .......................................................... .................................................................................. ........................ 20 2.1.2. Gestión prospectiva ......................................................................... ............................................................................... ...... 20 2.1.3. Gestión reactiva ......................................................... ................................................................................... ............................ .. 21 3. GESTIÓN DE RIESGOS .......................... .................................................... .................................................... ................................ ...... 22 3.1. Conceptualización de la Gestión de Riesgos: Amenaza, Vulnerabilidad, Capacidades, Riesgos ............................................................... ........................................................................................ ............................ ... 22 3.1.1. Amenaza ................................................. .......................................................................... ................................................. ........................ 23 3.1.2. Vulnerabilidad .................................................. ........................................................................... ........................................ ............... 24 3.1.3. Capacidades .................................................. ........................................................................... ........................................ ............... 25 3.1.4. Riesgos ................................................... ............................................................................ ................................................. ........................ 26 3.2. Enfoque tradicional desde la visión de gestión de riesgos desde el desastre: antes, durante y después.................................. después........................................................... ................................................... ............................ .. 26 3.2.1. Ciclo de la Gestión de Riesgos de Desastres .......................................... .......................................... 26 3.2.2. Antes del d el Desastre .................................................. ............................................................................ ................................ ...... 27 3.2.3. Durante ................................................... ............................................................................ ................................................. ........................ 27 3.2.4. Después del Desastre ...................................... ............................................................... ........................................ ............... 28 4. COMPONENTES DE LA GESTIÓN GES TIÓN DE RIESGOS ............................ ........................................... ...............29 4.1. Conceptualización de los componentes de la Gestión de Riesgos .............. .............. 29 4.1.1.  Análisis de riesgos ................................................. ........................................................................... ................................ ...... 29

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5.

MAPA DE RIESGOS ................................................. .......................................................................... ........................................ ...............34 5.1. Herramientas para par a la elaboración de mapas de riesgos .............................. .............................. 34 5.2. Elaboración participativa par ticipativa de los mapas de riesgos ...................................... ...................................... 37 5.2.1. Prioridad para la evacuación .................................................. ................................................................. ............... 37 6. PLAN DE REDUCCIÓN DE RIESGOS............................................... .............................................................. ...............38 6.1. Historia de los Desastres ................................................. ........................................................................... ............................ .. 38 6.1.1. Catástrofes legendarias ................................................ ........................................................................ ........................ 39 6.1.2. Catástrofes destacadas .................................... ............................................................. .................................... ........... 40 Terremotos, Tsunamis y Erupciones Volcánicas. .............................................. .............................................. 40 6.1.3. Historia de los terremotos ............................. ....................................................... ......................................... ............... 43 6.2. Fortalezas, oportunidades, debilidades y amenazas, FODA........................ ........................ 45 6.2.1. Identificación de amenazas y vulnerabilidades ...................................... ...................................... 45 6.2.2. Fortalezas ............................................... ........................................................................ ................................................. ........................ 46 6.2.3. Oportunidades .................................................. ........................................................................... ........................................ ............... 46 6.2.4. Debilidades ................................................. .......................................................................... ............................................. .................... 46 6.2.5. Amenazas ............................................... ........................................................................ ................................................. ........................ 46 6.3. Priorización de las amenazas, vulnerabilidades, vulne rabilidades, capacidades y recursos ... 47 6.4. Plan de acción que incluyen las medidas y estrategias de reducción de riesgos, recursos financieros, responsables y plazos p lazos ............................................ ............................................ 51 6.4.1. Medidas y Estrategias de Reducción de Riesgos .................................... 52 6.4.2. Recursos Financieros................................................... ............................................................................. ............................ .. 53 6.4.3. Responsables .................................................. ........................................................................... ........................................ ............... 55 6.4.4. Recursos ........................................... ..................................................................... ................................................... ............................ ... 55 GLOSARIO DE TÉRMINOS………………………………………………………. 57,63 BIBLIOGRAFÍA/NETGRAFÍA……………………………………………………..

62,63

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4

UNIDAD I 1. MARCO LEGAL REGIONAL, NACIONAL NACIONAL Y CANTONAL EN GESTIÓN DE RIESGOS

1.1. Marco de Acción de Hyogo para 2005-2015: Aumento Aumento de la resiliencia resiliencia de las naciones y las comunidades ante los desastres Su novena sesión plenaria, el 22 de enero de 2005, la Conferencia Mundial sobre la Reducción de los Desastres aprobó el Marco de Acción de Hyogo para 2005-2015:  Aumento de la resiliencia de las naciones n aciones y las comunidades ante los desastres, que dice así:

Marco de Acción de Hyogo para 2005-2015: Aumento de la resiliencia de las naciones y las comunidades ante los desastres. Preámbulo La Conferencia Mundial sobre la Reducción de los Desastres se celebró en Kobe, Hyogo (Japón), del 18 al 22 de enero de 2005 y aprobó el presente Marco de Acción para 2005-2015: Aumento de la resiliencia de las naciones y las comunidades ante los desastres (en adelante el "Marco de Acción"). La Conferencia constituyó una oportunidad excepcional para promover un enfoque estratégico y sistemático de reducción de la vulnerabilidad 1 a las amenazas/peligros 2 y los riesgos que éstos conllevan. Puso de relieve la necesidad y señaló los medios de aumentar la resiliencia de las naciones y las comunidades ante los desastres .

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5

a. El reto de los desastres. Las pérdidas que ocasionan los desastres van en aumento, acarreando graves consecuencias para la supervivencia, la dignidad y los medios de vida de los seres humanos, en particular los pobres, y para el desarrollo logrado a costa de mucho esfuerzo. El riesgo de desastres es un motivo de creciente preocupación mundial cuyo impacto y acción en una región pueden repercutir en los riesgos de otra, y viceversa. Ello, sumado a la vulnerabilidad exacerbada por la evolución de las condiciones demográficas, tecnológicas y socioeconómicas, la urbanización sin plan, el desarrollo en zonas de alto riesgo, el subdesarrollo, la degradación del medio ambiente, la variabilidad del clima, el cambio climático, las amenazas geológicas, la competencia por los recursos escasos y el impacto de epidemias como la del VIH/SIDA, presagia un futuro de amenaza creciente de los desastres para la economía mundial, la población del planeta y el desarrollo sostenible de los países en desarrollo. En las dos últimas décadas más de 200 millones de personas se han visto afectadas en promedio cada año por desastres. El riesgo de desastre surge cuando las amenazas/peligros interactúan con factores de vulnerabilidad físicos, sociales, económicos y ambientales. Los fenómenos de origen hidro-meteorológico constituyen la gran mayoría de los desastres. Pese a que se va comprendiendo y reconociendo cada vez más la importancia de la reducción del riesgo de desastre y a que han aumentado los medios de respuesta, los desastres y en particular la gestión y la reducción del riesgo siguen representando un desafío mundial. Hoy la comunidad internacional es consciente de que los esfuerzos de reducción del riesgo de desastre deben integrarse sistemáticamente en las políticas, los planes y los programas de desarrollo sostenible y reducción de la pobreza y recibir el apoyo de la cooperación y la asociación a nivel bilateral, regional e internacional. El

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6 comunidades y los países de la capacidad necesaria para controlar el riesgo y reducirlo. Este enfoque se ha de considerar unos elementos importantes para el logro de los objetivos de desarrollo internacionalmente acordados, incluidos los de la Declaración del Milenio. La importancia de promover los esfuerzos de reducción de los riesgos de desastre en los planos internacional y regional así como en los planos nacional y local ha sido señalada en varios de los marcos multilaterales y declaraciones fundamentales de los últimos años .

b. La Estrategia de Yokohama: enseñanzas extraídas y deficiencias detectadas La Estrategia de Yokohama para un mundo más seguro: directrices para la prevención de los desastres naturales, la preparación para casos de desastre y la mitigación de sus efectos y su Plan de Acción ("Estrategia de Yokohama"), aprobada en 1994, ofrece una orientación de capital importancia para reducir los riesgos de desastre y el impacto de los desastres. En el examen de los progresos realizados en la aplicación de la Estrategia de Yokohama se señalan los principales retos de los años venideros en el empeño de concertar una acción más sistemática para hacer frente a los riesgos de desastre en el contexto del desarrollo sostenible y de aumentar la resiliencia mediante el

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7 o regional o por vía de la cooperación o los mecanismos financieros internacionales, pero a la vez se mencionan las considerables posibilidades que existen de aprovechar mejor los recursos disponibles y las prácticas establecidas para aumentar la eficacia de las actividades de reducción de los riesgos. Se señala la existencia de deficiencias y retos particulares en las cinco esferas siguientes: 

Gobernanza: marcos institucionales, institucionales, jurídicos y normativos;



Identificación, evaluación y vigilancia de los riesgos riesgos y alerta temprana;



Gestión de los conocimientos y educación;



Reducción de los factores factores de riesgo subyacentes;



Preparación para una respuesta eficaz y una recuperación efectiva.

Son éstas las esferas fundamentales para la elaboración de un marco de acción pertinente para el decenio 2005-2015.

Objetivos estratégicos Para lograr el resultado previsto, la Conferencia resuelve adoptar los siguientes objetivos estratégicos: a) La integración más efectiva de la consideración de los riesgos de desastre en las

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8 programas de preparación para las situaciones de emergencia, de respuesta y de recuperación.  Al abordar la cuestión de la reducción de los riesgos de desastre, los Estados, las organizaciones regionales e internacionales y otros agentes interesados deben tomar en consideración las actividades esenciales enumeradas en relación con cada una de estas cinco prioridades e implementarlas de manera acorde con sus propias circunstancias y capacidades. 

Velar por que la la reducción de los riesgos de desastre constituya una prioridad nacional y local dotada de una sólida base institucional de aplicación



Identificar, evaluar y vigilar vigilar los riesgos de desastres y potenciar la alerta temprana



Utilizar los conocimientos, las innovaciones y la educación para crear una cultura de seguridad y de resiliencia a todo nivel.



Reducir los factores de riesgo subyacentes



Fortalecer la preparación para casos de desastre a fin de lograr una respuesta eficaz.

Los Estados Todos los Estados deben esforzarse por llevar a cabo las siguientes tareas en los planos nacional y local, asumiéndolas como propias y en colaboración con la

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9

1.2.

Constitución de la República del Ecuador

GESTIÓN DE RIESGO Art. 389.-  El Estado protegerá a las personas, las colectividades y la naturaleza frente a los efectos negativos de los desastres de origen natural o antrópico mediante la prevención ante el riesgo, la mitigación de desastres, la recuperación y mejoramiento de las condiciones sociales, económicas y ambientales, con el objetivo de minimizar la condición de vulnerabilidad. El sistema nacional descentralizado de gestión de riesgo está compuesto por las unidades de gestión de riesgo de todas las instituciones públicas y privadas en los ámbitos local, regional y nacional. El Estado ejercerá la rectoría a través del organismo técnico establecido en la ley. Tendrá como funciones principales, entre otras: 1. Identificar los riesgos existentes existentes y potenciales, internos y externos que afecten al territorio ecuatoriano. 2. Generar, democratizar el acceso y difundir información suficiente y oportuna para gestionar adecuadamente el riesgo.

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10 5. Articular las instituciones para que coordinen acciones a fin de prevenir y mitigar los riesgos, así como para enfrentarlos, recuperar y mejorar las condiciones anteriores a la ocurrencia de una emergencia o desastre. 6. Realizar y coordinar las acciones necesarias para reducir vulnerabilidades y prevenir, mitigar, atender y recuperar eventuales efectos negativos derivados de desastres o emergencias en el territorio nacional. 7.

Garantizar financiamiento financiamiento suficiente suficiente y oportuno para el funcionamiento del

Sistema, y coordinar la cooperación internacional dirigida a la gestión de riesgo.

Art. 390.-  Los riesgos se gestionarán bajo el principio de descentralización subsidiaria, que implicará la responsabilidad directa de las instituciones dentro de su ámbito geográfico. Cuando sus capacidades para la gestión del riesgo sean insuficientes, las instancias de mayor ámbito territorial y mayor capacidad técnica y financiera brindarán el apoyo necesario con respeto a

su autoridad en el territorio y sin relevarlos de su

responsabilidad.

1.3. Ley de Seguridad Pública y del Estado Titulo 1

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11 El Estado protegerá a las ecuatorianas y a los ecuatorianos que residan o estén domiciliados en el exterior, conforme lo previsto en la Constitución de la República, los Tratados Internacionales y la Ley.

Art. 2.- Ámbitos de la Ley .- Al amparo de esta Ley se establecerán e implementarán políticas, planes, estrategias y acciones oportunas para garantizar la soberanía e integridad territorial, la seguridad de las personas, comunidades, pueblos, nacionalidades y colectivos e instituciones, la conveniencia ciudadana de una manera integral multi- mensional, permanente, la complementariedad entre la seguridad se dará prioridad a la prevención basada en la protección y en medidas oportunas en casos de riesgos de cualquier tipo.

Prioridad.-  Las acciones de seguridad y la asignación de recursos serán proporcionales a las necesidades de prevención y protección, a la magnitud y trascendencia de los factores que atenten contra la seguridad de los habitantes y del Estado.

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12

El Sistema de Seguridad Pública del Estado.- Está conformado por la Presidencia de la Republica, quien dirige, las entidades públicas, las políticas, los planes, las normas, los recursos y los procedimientos, con sus interrelaciones, definidos para cumplir con el objetivo de la presente Ley; y, las organizaciones de la sociedad que coadyuven a la seguridad ciudadana y del Estado. Los organismos e instituciones responsables del sistema de seguridad pública y el Estado están sujetos al control de los organismos superiores de las funciones del Estado, Legislativo, Judicial y de Control de Transparencia Social.

La educación en situaciones de emergencia y desastre no sólo es importante como derecho fundamental de los niños, niñas y adolescentes, jóvenes y adultos, sino

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13 En este módulo se exponen los conceptos más importantes de la Gestión de Riesgos y su interpretación desde la realidad del sistema educativo. Para lograr este grupo de conceptos se parte de aquellos oficialmente aceptados en el país y que son recogidos en el Glosario de la Secretaría de Gestión de Riesgos. El objetivo es unificar criterios y homologar lenguajes, promoviendo la mejor comunicación y coordinación entre los actores.

Art. 6.- Del Consejo de Seguridad Pública y del Estado.- El Consejo de Seguridad Pública y del Estado, estará conformado por: 1. Presidente o Presidenta Constitucional de la República, Rep ública, quien lo presidirá; 2. Vicepresidente o Vicepresidenta Constitucional de la República; 3. Presidente o Presidenta de la Asamblea Nacional; 4. Presidente o Presidenta de la Corte Nacional de Justicia; 5. Ministro o Ministra de Coordinación de Seguridad; 6. Ministro o Ministra de Defensa Nacional;

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14 prioridades y designará las entidades públicas encargadas de su aplicación, de acuerdo al tipo y naturaleza de los riesgos, amenazas o medidas de protección o prevención priorizadas. Cada ministerio de estado estructurará y desarrollará un plan de acción en concordancia con el plan nacional de seguridad integral, de acuerdo a su ámbito de gestión. El Ministerio de Gobierno, Policía y Cultos asegurarán la coordinación de sus acciones con los gobiernos autónomos descentralizados en el ámbito de sus competencias, para una acción cercana a la ciudadanía y convergente con ésta.

d) De la Gestión de Riesgos.-   La prevención y las medidas para contrarrestar, reducir y mitigar los riesgos de origen natural y antrópico o para reducir la vulnerabilidad, corresponden a las entidades públicas y privadas, nacionales, regionales y locales. La rectoría la ejercerá el Estado a través de la Secretaría Nacional de Gestión de Riesgos.

1.3.1. Gestión de Riesgos

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15 mucho más allá y juega un rol determinante a la hora de dar continuidad al proceso educativo para garantizar el derecho a la Educación. b. La reapertura de instituciones educativas o de espacios de aprendizaje lo más pronto posible después de la emergencia y/o desastre, es una prioridad. En situaciones de emergencia y hasta la recuperación, una educación de calidad proporciona la protección física, psicosocial y cognitiva necesaria para mantener y salvar vidas (INEE 2010). c. Otra de las razones centrales de la gestión de riesgos es minimizar las pérdidas de insumos, material didáctico y pedagógico o infraestructura educativa entre otros que el sistema educativo sufre cuando se produce una emergencia y/o desastre, lo cual representa un alto costo económico. d. El Ministerio de Educación establece una nueva Política Pública que pretende redoblar esfuerzos y estructurar de forma adecuada todo el proceso de gestión de

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16 de educación y regulará y controlara las actividades relacionadas con la educación, así como el funcionamiento de las actividades del mismo”;

Que

el Art, 389 de la Constitución Política del Ecuador establece: “El Estado

protegerá a las personas, las colectividades y la naturaleza frente a los efectos negativos de los Desastres de origen natural o antrópico mediante la prevención ante el riesgo, la mitigación de desastres, la recuperación y mejoramiento de las condiciones sociales, económicas y ambientales, con el objetivo de minimizar la condición de vulnerabilidad”.

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17

ACUERDA Expedir la Política Pública orientada a reducir los riesgos de la comunidad educativa frente a amenazas de origen natural. Art, 1.- Objeto . Reducir los riesgos de la comunidad educativa frente a desastres naturales y asegurar el derecho a la educación en situaciones de emergencia, a través de un conjunto coherente y ordenado de estrategias, programas y proyectos, que se formula para orientar las actividades de reducción, mitigación, prevención y control de riesgo, y la respuesta y recuperación en caso de desastre.

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18  que todas las instituciones educativas del país deberán elaborar Art, 3.- Disponer  que un Plan Institucional de Gestión de Riesgos, dentro del cual se deberá incorporar los siguientes aspectos: 

Análisis de Vulnerabilidad estructural y no estructural.



Acciones de reducción de riesgos (prevención y mitigación) mitigación)



Plan de contingencia



Plan de evacuación, y



Simulacro ante una posible amenaza.

El mencionado plan deberá ser elaborado de conformidad con los lineamientos

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19 7) Coordinar la capacitación para las brigadas y grupos de trabajo como parte del Plan de Gestión de Riesgos. 8) Reportar, con una prioridad mensual los avances y el cumplimiento cumplimiento del Plan Institucional de Gestión de Riesgos, si como a través del módulo de Gestión de Riesgos en la fiche del Archivo Maestro de Instituciones Educativas (AMIE).

1.4.

Código

Orgánico

De

Decentralización (COOTAD) Ley 0rgánica.

Organización

Territorial,

Autonomía

y

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20 nacionalidades indígenas, afro-ecuatorianas y montubias y el consejo de gobierno de la provincia de Galápagos.

2. ENFOQUE DE LA GESTIÓN DE RIESGOS 2.1.

Conceptualización y dimensión de los siguientes enfoques

2.1.1. Gestión correctiva

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21 amenazas y disminuir desastres. El énfasis principal es la prevención, y este debe de estar inmersa en la planificación para el desarrollo, por ello, también requiere de un análisis exhaustivo sobre el riesgo dentro de los programas y proyectos

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22 

Tiene un efecto temporal. temporal. Pasada la amenaza se pasa a la convivencia con las vulnerabilidades y riesgos pre-existentes, los cuales en sinergia con los otros dos sub- modelos, determinan su transformación.

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23

La Gestión del riesgos en nuestro país.- Es el componente del proceso social constituido por la planificación, organización, dirección y control orientados a la identificación y reducción del riesgo, manejo de eventos adversos y recuperación

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61

LA VULNERABILIDAD.- Es la falta de capacidad de afrontar o de resistencia ante la pr esencia esencia de un Fenómeno ya sea Natural o Antrópico , es decir la poca capacidad de poder reponerse después de ocurr ido un desastr  desastr e de poca, poca, mediana o alta magnitud.

RUTA DE EVACUACIÓN.- Es el camino más rápido que permitirá a las personas ponerse a salvo al dirigirse a las zonas de seguridad (sitios de encuentro). Las rutas de evacuación deben ser adecuadas, seguras, suficientes y señaladas.

ZONA DE SEGURIDAD.- Es un lugar con menos peligros y al que se puede llegar en el menor tiempo antes o durante una emergencia.

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62

BIBLIOGRAFIA CONFERENCIA MUNDIAL SOBRE LA REDUCCIÓN DE LOS DESASTRES, 18 al 22 de enero del 2005, KOBE- HYOGO, JAPÓN. Constitución De La Republica Del Ecuador 2008. Ley de Seguridad Pública y dl Estado. PDRS- GTZ/DGPM-MEF (2009) en Chuquisengo, 20011. Ley orgánica de garantías jurisdiccionales y control constitucional, arts. 133, 134. Cardona d. (1993), evaluación de la amenaza, la vulnerabilidad y el riesgo en los riesgos no son naturales, maskrey (coord), colecciones de la red latinoamericana de desastres Secretaria_nacional_planificacion_desarrollo_senplades_plan_2009_2013 Estrategia internacional para la reducción de desastres (onu/eird)

NET- GRAFIA 

http://www.construmatica.com/construpedia/Antecedentes_Hist%C3%B3 ricos_de_los_Desastres_de_Origen_Natural



http://www.gestionderiesgos.gob.ec/



http://www.planificacion.gob.ec/plan-nacional-de-desarrollo-2007-2010/



http://www.gestionderiesgos.gob.ec/

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