Disaster Risk Reduction Data Strategy

The Disaster Risk Reduction (DRR) Data Strategy serves as a framework for a common understanding of DRR definitions and interoperability for federal DRR data. It seeks to enable a future wherein DRR data is discoverable, readily accessible, and used to support a range of risk assessments.

Table of contents

Introduction

Data is critical to Public Safety Canada's (PS) mandate to keep Canadians safe from a range of risks such as natural disasters, crime and terrorism, and its mission to build a safe and resilient Canada. The growing availability of data and analytical techniques to apply to emergency management provide an opportunity to improve information and service delivery to Canadians. There is a need to bolster the Government of Canada's Disaster Risk Reduction (DRR) data capabilities in order to inform disaster risk reduction, recovery, and resilience initiatives that are urgently needed in an age of increasingly costly disasters.

Federal departments and agencies implicated in DRR are increasingly relied upon to leverage data to improve emergency management outcomes and to help Canadians prepare for future disasters. Data is readily available for real-time tactical decision-making and situational reporting (e.g. via satellite data), but there is a need to obtain data that is interoperable and shareable, and able to inform longer-term decision making. There is an urgent need for departments implicated in emergency management to coordinate to address these gaps and leverage DRR data, in alignment with the priorities for action within the Sendai Framework for Disaster Risk Reduction 2015-2030: understanding disaster risk (e.g. by promoting use of relevant data, taking into account different needs of users); strengthening disaster risk governance; investing in disaster risk reduction for resilience; and enhancing disaster preparedness for effective response and to "Build Back Better" in recovery.

A DRR Data Strategy, focusing on physical risks arising from all hazards, is required to improve emergency management outcomes for all Canadians.

This Strategy has been developed by the DRR Data Strategy Working Group, an interdepartmental working group of officials from PS, Natural Resources Canada (NRCan), Statistics Canada (StatCan), Environment and Climate Change Canada (ECCC), Health Canada, Public Health Agency of Canada, Finance Canada, Canada Mortgage and Housing Corporation and Defence Research and Development Canada; it is co-chaired by PS, ECCC, and StatCan.

Context

The federal government understands that Canadians require accurate and authoritative DRR information in order and make risk-informed decisions to protect their communities. Some promising work is already underway, for example, PS, NRCan, and ECCC have been collaborating on flood hazard and risk data for several years now. This collaboration combines ECCC expertise on hydrologic modelling, NRCan's detailed flood hazard mapping and regional hazard modelling for higher-risk areas, and PS's Canada-wide flood hazard modelling and risk assessments.

Moving forward, the federal DRR community must continue to work together to ensure that all DRR data, including data on multiple hazards (e.g. flood, wildfire, earthquake, extreme heat), exposure, and social vulnerability (including health impacts) are interoperable and accessible for all federal partners and the wider emergency management community. Furthermore, data should be open by default, where possible. The capacity to use this data for analysis and decision-making must also be supported.

Purpose

The purpose of the DRR Data Strategy is to ensure a common understanding of DRR definitions and analytical methods, and interoperability for all DRR data. This Strategy will serve as the foundation for a future end state in which DRR data is discoverable, readily accessible and used to support a range of risk assessments. It will also enhance the Government's understanding of the impacts of climate change on disaster risk.

Specifically, to enable multi-hazard risk assessments, federal DRR partners need access to authoritative probabilistic hazard models, robust exposure and social vulnerability and resilience data, and evidence-based damage functions for all hazards, along with an understanding of uncertainty and the ability to leverage this data to support decision-making.

In terms of scope, the DRR Data Strategy will provide clear direction on the tangible actions that federal DRR stakeholders need to take to support DRR data accessibility, quality, interoperability, and to enhance the Government of Canada's risk assessment and emergency management capabilities. Providing this type of information will strengthen the consistency and rigor of federal risk assessments and ultimately support the Government of Canada in improving service delivery to emergency management partners and all Canadians.

The creation of Government owned data, without the need for private procurement, will enable the data to be presented in a coherent and transparent way and improve productivity of Government. This Strategy will guide Government in the production of its own hazard, exposure, and vulnerability data.

Vision

Understanding disaster risk is foundational for effective emergency management and for adapting to a changing climate. For example, without the capacity to identify high risk areas and use this information, new buildings, homes, and other infrastructure will continue to be built in harm's way.

Canada requires accessible and reliable risk information used to inform decision-making across all sectors and levels of society, from individuals to communities and provincial/territorial governments. Having this information would benefit Canadians in a number of ways, for example:

The DRR Data Strategy will advance ongoing efforts to ensure all departments, emergency management professionals, and Canadians can assess risks using reliable and authoritative data, maps, and models.

Departments involved in DRR must work together to foster a culture that routinely collects, manages, analyzes, and disseminates DRR data. The vision of this Strategy is for the creation of a Government of Canada data hub that will help to integrate disparate datasets and to ensure data can be used to conduct risk assessments. This hub would ensure that data is treated as a strategic asset, powering advanced analysis, analytics, and predictive modelling to improve disaster readiness and resilience. This hub would also help provide the capacity to use this data for decision-making and to manage uncertainty.

Guiding principles

This strategy presents a set of principles to ensure relevant DRR information is widely available, shared in a consistent format, and meets the needs of users, including emergency management practitioners and the general public. When DRR data is shared efficiently, users are able to carry out robust risk assessments and translate the results of these assessments to policy and investment decisions.

Principle #1: The DRR Data Strategy is aligned with the Emergency Management Strategy for Canada

The Emergency Management Strategy for Canada serves as Canada's domestic strategy for implementing DRR, fulfilling a national-level commitment in the Sendai Framework for Disaster Risk Reduction 2015-2030 (SFDRR). This strategy was approved by FPT Ministers in January 2019 and is structured around five priorities, which roughly align with the SFDRR. One of these priorities is to improve the understanding and awareness of disaster risks to enable risk-informed decision-making in all sectors of society, and another is to enhance whole-of-society collaboration and governance to strengthen resilience.

The DRR Data Strategy Working Group is committed to prioritizing and advancing accurate DRR data and risk assessments to inform decision-making.

Principle #2: DRR data should be interoperable

DRR data users should be able to easily find and use data efficiently, without the need for extensive data wrangling to convert data to the correct format. DRR data should be identified and labelled with relevant metadata so that data from various platforms or databases can be pulled together for analyses. Federal departments collecting or compiling similar data should consider using common methodologies and data standards so that their data can be effectively shared across departments and datasets for analysis.

A DRR coordination mechanism that is inclusive and multi-sectoral, with agreed-upon data management strategies, tools, and definitions would help to make existing and future datasets interoperable and therefore relevant for risk assessments.

Principle #3: DRR data should be open by default and easily accessible by all Canadians

The federal DRR community should adopt FAIR (findable, accessible, interoperable, and reusable) principles and foster an open-by-default culture in which non-sensitive data is made freely available to Canadians. This is in alignment with the federal government's ongoing commitment to enhance accountability and transparency through open data.

Where possible, the government should publish federal DRR data on a publicly accessible portal or data repository, where anyone can readily access it, keeping in mind there is potential for non-sensitive data to become sensitive information when combined, and upholding Indigenous data sovereignty through working with First Nations, Inuit, and Métis partners. In addition, an effective communication strategy and data management strategy would ensure data is actionable, interpretable, and used for the correct applications.

Principle #4: The federal DRR community should work collaboratively towards a common goal

Federal departments that use or produce DRR data should work together to avoid the duplication of efforts and ensure the data is used appropriately for decision-making. DRR practitioners should think beyond program and departmental silos and focus on the shared goal of improving Canada's disaster resilience.

A federal DRR data working group could facilitate coordination and ensure that data produced in one department is viewed as an asset for DRR data users in all federal departments and agencies. In addition, when data are not readily available and procurement is necessary, data licensing should allow for interdepartmental sharing, where possible. Furthermore, a federal DRR technical working group could provide guidance and leadership on appropriate methodologies for risk assessments, and how to interpret risk assessments to inform policy and investment decisions. The end goal of this collaboration is a federal government working cohesively to leverage available DRR data for disaster risk assessments that will help Canadians understand, and take actions to reduce, their risk.

Alignment

The DRR Data Strategy is aligned with the 2023 Data Strategy for the Federal Public Service, as well as PS's Departmental Data StrategyFootnote 1. Federal PS Ministers are tasked with many responsibilities that support Canada's capacity to respond to national security threats, promote community safety, and prepare for all-hazards events. It is of the upmost importance that the right data is available and accessible at the right time to support evidence-based decision making.

The Information Management Branch at PS is working with its partners to enhance the public availability of key data, ensure critical information is available and accessible in a timely manner, identify available data to measure progress in implementation and delivery of policy and program commitments, and manage data throughout its lifecycle to support policy and program commitments. This work will help to ensure DRR data is effectively integrated into evidence-based decision making, policy development, and program implementation through effective tools, resources and data stewardship.

While there is natural overlap between disaster risk reduction and climate change adaptation, there are important differences. Disaster risk reduction focuses on acute physical hazards and their impacts, while climate change adaptation relates to climatic hazards and slow onset events. The DRR Data Strategy is focused on providing Canadians with the information they need to reduce their exposure and vulnerability to all natural hazards, including natural hazards that are minimally impacted by climate change (e.g. earthquakes). The target audience includes federal, provincial, and territorial decision-makers, emergency management professionals, and individuals.

Disaster risk reduction and climate change adaptationFootnote 2

The list below, derived from the Organisation for Economic Co-operation and Development (OECD) publication Common Ground Between the Paris Agreement and the Sendai Framework, includes the key terms used to discuss, plan, and implement climate change adaptation and disaster risk reduction, highlighting the key similarities and differences.

Disaster risk reduction

Shared elements between disaster risk reduction and climate change adaptation

Climate change adaptation

From the perspective of emergency management and disaster risk reduction, climate change can be thought of as a risk driver, or threat multiplier. It can increase the severity of hazards while at the same time decreasing the resilience of households and communities. It is therefore important to account for a changing climate when conducting disaster risk assessments and making policy and investment decisions.

State of play

The federal DRR community is increasingly aligned and working towards a common purpose. For example, PS continues to lead work with ECCC and NRCan to ensure that PS-led Canada-wide flood hazard modelling and risk assessment expertise can be leveraged by other departments. PS is also working closely with StatCan to develop a Canadian Index of Resilience (CIR) and the Canadian Index of Social Vulnerability (CISV) that can be used to understand relative vulnerability and resilience of Canadians across the country to a range of hazards. In addition, PS and Housing, Infrastructure and Communities Canada are collaborating to improve the federal government's access to data on major and essential infrastructure.

However, there is still significant fragmentation and several initiatives within federal departments that could benefit from interdepartmental collaboration and sharing resources. A review of existing DRR data and programs revealed the following:

The federal government should adopt a consistent understanding of DRR terminology, such as events, hazards, exposure, vulnerability, and risk. Furthermore, better exposure data is required to assess high-resolution, property-level factors for flood, fire, earthquake, extreme heat, and wind risk (e.g. first-floor elevation, structure characteristics, building materials, sources of fuel near buildings, etc.).

Strategic objectives and goals

This section presents the three broad strategic objectives and underlying goals of the DRR Data Strategy. The goals and objectives are presented in order of precedence, with Strategic Objective #1 for example serving as a necessary pre-condition for achieving Strategic Objective #2. This sequencing is designed to first lay the foundation needed for a data-driven culture; second, to improve the way DRR data is accessed, stored, shared, and used for decision-making; and third, to leverage this data to conduct risk assessments to inform investment decisions and enhance resilience to natural hazards.

Strategic objective #1: Foster a data-driven culture in the federal DRR community

Normalize and facilitate using data/analytics for decision-making and performance measurement.

Goal 1.1: Improve cross-departmental collaboration and sharing of DRR data

Goal 1.2: Align with the Federal Data Strategy for the public service and departmental data strategies

Strategic objective #2: Improve the discoverability and accessibility of DRR data

Make it easy for data to be found, accessed, analyzed, shared, and used widely.

Goal 2.1: Identify data of analytic value for DRR

Goal 2.2: Assess data quality, integrity, and interoperability

Goal 2.3: Create a data hub to facilitate DRR data discovery and access

Strategic objective #3: Leverage DRR data to conduct capability and risk assessments and inform policy, investments, and planning

Make DRR data-based risk assessments easier, to support policy development, resource allocation decisions, and project planning at all levels of government.

Goal 3.1: Improve the federal government's capacity to conduct high-quality multi-hazard capability and risk assessments for federal, provincial, municipal, and private sector partners

Goal 3.2: Improve risk awareness through outreach and educational DRR resources

Goal 3.3: Ensure DRR data and models are up-to-date and that evolving risks are well explained

Conclusion

By making all DRR data interoperable and ensuring the federal DRR community has a common understanding of DRR definitions and analytical methods, this Strategy will set the foundation for a future in which sufficient DRR data are available and accessible to support a range of disaster risk assessments.

This work is essential to make sure policy, planning and investment decisions are made with disaster risk in mind, and to improve the assessment, management and reduction of risk. The DRR Data Strategy is an important step towards a future in which all departments, emergency management professionals, and Canadians can assess risks using reliable and authoritative information, and make risk-informed decisions to protect their homes and communities.

Appendix A - Federal Government Departmental Roles and Responsibilities Related to the Disaster Risk Reduction Data Strategy

Canada Mortgage and Housing Corporation

Canada Mortgage and Housing Corporation (CMHC) supports disaster risk reduction through research on the impacts of natural disasters on housing and mortgage loan insurance (MLI). It develops mitigation and adaptation strategies for mortgage insurance and housing, supports research and data development needed for evolving building codes and examining the effects of wildfire and flood exposure risk on resilient buildings and house prices, and advocates for policies addressing housing affordability. Recent studies have expanded focus on flood and wildfire risks, property values, and insurance costs, with further analysis on the impact on the housing programs CMHC delivers for the Government of Canada.

Although CMHC's MLI excludes coverage for natural disasters or force majeure events, CMHC supports borrowers facing financial hardship through several default management tools, including deferred mortgage payments for borrowers temporarily affected by natural disasters.

Defence Research and Development Canada

Defence Research and Development Canada (DRDC) provides science and technology expertise to support the development of tools, strategies, and policies for emergency management. In collaboration with Public Safety Canada, DRDC developed and tested the All-Hazards Risk Assessment (AHRA) methodology to help departments determine and execute their role in assessing risks. The AHRA laid the foundation for the development of the National Risk Profile.

Environment and Climate Change Canada

Under the Department of Environment Act, Canadian Environmental Protection Act, 1999 (CEPA 1999), the pollution prevention provisions of the Fisheries Act, International River Improvements Act, Impact Assessment Act, the Federal Sustainable Development Act, the Species at Risk Act, the Migratory Birds Convention Act, 1994, the Canada Wildlife Act, and the Wild Animal and Plant Protection and Regulation of International and Interprovincial Trade Act, Environment and Climate Change Canada's (ECCC) programs focus on minimizing threats to Canadians and their environment from pollution; equipping Canadians to make informed decisions on weather, water and climate conditions; and conserving and restoring Canada's natural environment. ECCC's core responsibilities are: taking action on clean growth and climate change; preventing and managing pollution; conserving nature; and predicting weather and environmental conditions.

ECCC monitors weather, water, air quality and climate conditions, provides forecasts ranging from short-term weather to seasonal and decadal timescales, information and warnings to the Canadian public and targeted sectors through a range of service delivery options, conducts research, develops and maintains computer-based models for predicting climate, weather and other environmental conditions. ECCC provides timely, accurate and reliable information about weather and climate-related hazards such as wildfires, poor air quality and smog episodes, pollution and smoke plumes transport, flooding, extreme temperatures, storms, and other major atmospheric events. The department also leads atmospheric and climate modelling, including the development of long-term climate projection data products, aquatic ecosystems and long-term water quality monitoring, wildlife and landscape science, and chemical risk assessment and regulatory activity. The department also works to make this information more accessible by offering user-friendly guidance and support to help users understand and apply its datasets.

Health Canada

Health Canada conducts a variety of science-based activities, including research, risk assessments, and the development of guidelines and guidance, to inform policy and decision-making at all levels of government. These efforts aim to protect the health of people living in Canada, including those who are or may be affected by disasters. The department also develops health messaging to help people living in Canada make informed decisions to protect their health during disasters. Its expertise includes understanding the health risks associated with disaster-related hazards - such as air quality (e.g., wildfire smoke), radiation, chemicals, and extreme heat - to support stakeholder response. Health Canada works closely with the Public Health Agency of Canada, Environment and Climate Change Canada, the Canadian Nuclear Safety Commission, and other federal departments, as well as with provinces, territories, and Indigenous organizations.

Natural Resources Canada

Through its legislative authorities under the Nuclear Safety Control Act, Resources and Technical Surveys Act, Forestry Act, Energy Supplies Emergencies Act, Comprehensive Nuclear-Test Ban Treaty (CTBT) Implementation Act, Explosives Act, Canadian Energy Regulator Act, Canada Oil and Gas Operations Act, Nuclear Liability and Compensation Act, Department of Natural Resources Act, and the Emergency Management Act, Natural Resources Canada (NRCan) is responsible for providing authoritative information regarding wildfires, earthquakes, tsunamis, landslides, volcanoes, space weather, nuclear and radiological incidents, explosives, energy supply disruption, minerals and metals shortages, and offshore oil and gas.

NRCan capabilities include operational monitoring and surveying; assessments and warnings; geomatics products; on-demand hazard-specific services; policy advice; and associated scientific research and technology. This work equips other federal departments, provincial and territorial governments, Indigenous organizations, and other stakeholders with the knowledge, tools, and data needed to understand and reduce risks across the spectrum of Canadian safety, security, and sovereignty considerations, and to keep natural resources supply chains and infrastructure safe and secure.

Public Health Agency of Canada

Public Health Agency of Canada (PHAC) is the federal lead for public health emergencies, working with federal, provincial, territorial, and indigenous partners to mitigate risks, enhance preparedness, respond to health threats, and build resilience in the health sector at the national level. Applying a One Health lens, PHAC maintains surveillance and early warning systems and conducts systematic assessments of identified threats as well as capability assessments to support preparedness and response efforts. In addition, PHAC maintains emergency management plans, and develops public health guidance that aims to address the needs of diverse and disproportionately affected populations. PHAC provides scientific and technical expertise, in particular through the National Microbiology Laboratory, supports emergency coordination via a trained workforce and through the 24/7 Health Portfolio Operations Centre, and manages the National Emergency Strategic Stockpile to ensure timely access to medical countermeasures and emergency supplies. It also oversees pathogen containment facilities in Canada, mitigates risks from international travel and conveyances, and engages with international partners to support coordinated responses to global health crises.

Overall, PHAC focuses on protecting against threats to public health regardless of their origin, preventing and reducing diseases and injuries, and promoting health, well-being and equity for all people in Canada.

Public Safety Canada

The Department of Public Safety and Emergency Preparedness Act of 2005 sets out the general powers, duties and functions of the Minister of Public Safety and Emergency Preparedness, which extend to and include all matters relating to public safety and emergency preparedness over which Parliament has jurisdiction, and that have not been assigned by law to another department, board or agency of the Government of Canada. The Emergency Management Act (2007) sets out the leadership role and responsibilities of the Minister, including coordinating emergency management activities among government institutions and in cooperation with the provinces and other entities.

Public Safety Canada (PS) has a mandate to keep Canadians safe from a range of risks, including natural hazards causing disasters. PS coordinates emergency management efforts with federal departments, provincial and territorial governments, Indigenous organizations, and other stakeholders to ensure an integrated approach to disaster risk reduction. Supported by risk analysis and quantification within the department, PS develops policies, plans, and programs to reduce the risks and impacts of disasters on Canadians and their communities.

Statistics Canada

Statistics Canada produces data that help Canadians better understand their country – its population, resources, economy, environment, society and culture. As Canada's central statistical office, Statistics Canada is legislated to serve this function for Canada and each of the provinces and territories. The agency must also conduct the Census of Population and the Census of Agriculture every five years, providing a detailed picture of Canadian society. Statistics Canada operates under the authority of the Statistics Act and is committed to protecting the confidentiality and privacy of the information it is entrusted with.

Statistics Canada has two main roles:

  1. To provide statistical information and analysis about Canada's economic and social structure to
    • Develop and evaluate public policies and programs
    • Improve public and private decision making for the benefit of Canadians
  2. To promote sound statistical standards and practices by
    • Using common concepts and classifications to provide better-quality data
    • Working with the provinces and territories to promote quality and coherence of Canada's statistics through collaboration
    • Reducing the burden on respondents through greater use of data sharing agreements
    • Improving statistical methods and systems through joint research studies and projects. 

Appendix B - Definitions

Federal DRR data producers and users should adopt common definitions for DRR terminology. The following definitions for cornerstone DRR concepts have been adopted from various sources, including the National Risk Profile, the Emergency Management Framework for Canada, and the Emergency Management Strategy for Canada, and are aligned with definitions used by international organizations such as the Intergovernmental Panel on Climate Change and the United Nations.

Disaster
A phenomenon that results when a hazard intersects with a community in a way that exceeds or overwhelms the community's ability to cope and may cause serious harm to the safety, health, welfare, property or environment of people; may be triggered by a naturally occurring phenomenon which has its origins within the geophysical or biological environment or by human action or error, whether malicious or unintentional, including technological failures, accidents and terrorist actsFootnote 3.
Disaster risk reduction (DRR)
The concept and practice of reducing disaster risks through systematic efforts to analyze and manage the causal factors of disasters, including through the mitigation and prevention of exposure to hazards, decreasing vulnerability of individuals and society, strategic management of land and the environment, improved preparedness for disaster risks, coordinated response and planning and forward looking recovery measuresFootnote 4.
Exposure
The presence of people; livelihoods; species or ecosystems; environmental functions, services, and resources; infrastructure; or economic, social, or cultural assets in places and settings that could be adversely affectedFootnote 4.
Hazard
A potentially damaging physical event, phenomenon or human activity that may cause the loss of life or injury, property damage, social and economic disruption or environmental degradationFootnote 3.
Infrastructure
Includes new and existing assets, as well as grey infrastructure, hybrid, and natural infrastructure. Infrastructure systems: Sets of built and nature-based infrastructure assets that together deliver key services, and which share vulnerabilities and interdependencies, within and across the built environment, natural systems such as ecosystems and watersheds, jurisdictions, and transboundary territories. Infrastructure services: Includes the provision and support for health care, utilities, water and wastewater, telecommunications, emergency services, trade and transportation routes, and power (among others)Footnote 5.
Resilience
The capacity of a system, community or society exposed to hazards to adapt to disturbances resulting from hazards by persevering, recuperating or changing to reach and maintain an acceptable level of functioning. Resilient capacity is built through a process of empowering citizens, responders, organizations, communities, governments, systems and society to share the responsibility to keep hazards from becoming disastersFootnote 3.
Risk
The combination of the likelihood and the consequence of a specified hazard being realized; refers to the vulnerability, proximity or exposure to hazards, which affects the likelihood of adverse impactFootnote 3.
Vulnerability

The conditions determined by physical, social, economic and environmental factors or processes, which increase the susceptibility of a community to the impact of hazards. It is a measure of how well prepared and equipped a community is to minimize the impact of, or cope with, hazardsFootnote 3.

Traditionally, vulnerability in the context of DRR was related to the physical resistance of engineering structures, but more recent views relate vulnerability to characteristics of social, health and environmental processes. It is directly related to the susceptibility, sensitivity, and lack of resilience or capacities to cope with and adapt to disasters.

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