{"id":1249,"date":"2018-12-07T16:34:23","date_gmt":"2018-12-07T21:34:23","guid":{"rendered":"https:\/\/idehpucp.pucp.edu.pe\/revista-memoria\/eventos-naturales-convertidos-en-desastre-cuando-la-falta-de-reduccion-de-riesgos-vulnera-los-derechos-humanos\/"},"modified":"2025-04-25T20:49:58","modified_gmt":"2025-04-26T01:49:58","slug":"eventos-naturales-convertidos-en-desastre-cuando-la-falta-de-reduccion-de-riesgos-vulnera-los-derechos-humanos","status":"publish","type":"post","link":"https:\/\/idehpucp.pucp.edu.pe\/revista-memoria\/eventos-naturales-convertidos-en-desastre-cuando-la-falta-de-reduccion-de-riesgos-vulnera-los-derechos-humanos\/","title":{"rendered":"Eventos naturales convertidos en desastre: cuando la falta de reducci\u00f3n de riesgos vulnera los derechos humanos"},"content":{"rendered":"\n

Los desastres no son naturales, las acciones o la falta de acci\u00f3n humana puede convertir a un evento natural en un desastre. Algunas amenazas son de origen natural. Una amenaza puede ser definida como eventos f\u00edsicos (geol\u00f3gico, hidrometeorol\u00f3gico y biol\u00f3gico) o actividades humanas (degradaci\u00f3n ambiental y amenazas tecnol\u00f3gicas) potencialmente perjudiciales que pueden causar p\u00e9rdida de vidas o lesiones, da\u00f1os materiales, grave perturbaci\u00f3n de la vida social y econ\u00f3mica o degradaci\u00f3n ambiental (Estrategia Internacional para la Reducci\u00f3n de Desastres \u2013 EIRD, 2005) Al ser potencial, el riesgo de desastre puede ser reducido y gestionado. Ahora, \u00bfla falta de reducci\u00f3n de riesgos de desastres podr\u00eda vulnerar derechos humanos? Con el objetivo de resolver esta pregunta, el presente art\u00edculo explicar\u00e1 qu\u00e9 es la reducci\u00f3n de riesgos de desastre; luego, analizar\u00e1 qu\u00e9 derechos humanos est\u00e1n en riesgo frente a los desastres; finalmente, a modo de conclusi\u00f3n, se identificar\u00e1 qu\u00e9 deben hacer los estados para proteger los derechos ante el riesgo de desastres.<\/p>\n\n\n\n

Reducci\u00f3n de Riesgos de Desastres<\/strong><\/p>\n\n\n\n

La Oficina de las Naciones Unidas para la Reducci\u00f3n de Riesgos de Desastres (UNISDR) define al riesgo como \u201clas posibles<\/strong> p\u00e9rdidas que ocasionar\u00eda un desastre en t\u00e9rminos de vidas, las condiciones de salud, los medios de sustento, los bienes y los servicios, y que podr\u00edan<\/strong> ocurrir en una comunidad o sociedad particular en un per\u00edodo espec\u00edfico de tiempo en el futuro\u201d (Oficina de las Naciones Unidas para la Reducci\u00f3n del Riesgo de Desastres \u2013 UNISDR, 2009: 27). Para Marcos Nelio Mollar \u201c[e]l riesgo de desastre consiste (\u2026) en la probabilidad de que se produzcan consecuencias perjudiciales o p\u00e9rdidas en materia de vidas humanas o salud, medios de subsistencia, bienes y actividad econ\u00f3mica o da\u00f1os al medio ambiente, como resultado de un desastre\u201d (2018: 203). Los riesgos son posibles da\u00f1os provocados por una amenaza. En consecuencia, con el objetivo de que una amenaza no se convierta en desastre, se debe reducir el riesgo de desastres mediante el an\u00e1lisis y la gesti\u00f3n de sus factores causales, la reducci\u00f3n del grado de exposici\u00f3n a las amenazas, la disminuci\u00f3n de la vulnerabilidad de las personas y comunidades, una planificaci\u00f3n adecuada del uso del suelo, una gesti\u00f3n ambiental apropiada, y el fortalecimiento de las capacidades (UNISDR, 2009: 23).<\/p>\n\n\n

\n

\u2036La reducci\u00f3n del riesgo de desastres requiere empoderamiento y una participaci\u00f3n inclusiva, accesible y no discriminatoria.<\/p>\n <\/blockquote>\n \n\n\n

La reducci\u00f3n del riesgo de desastres contempla las obligaciones de prevenir, mitigar y preparar (Mollar, 2018: 205).La prevenci\u00f3n de desastres es la evasi\u00f3n absoluta de los impactos adversos de las amenazas y de los desastres conexos, por medio de acciones que se toman con anticipaci\u00f3n; y, cuando no es posible evitar por completo los da\u00f1os, se recurren a las acciones de mitigaci\u00f3n (UNISDR, 2009: 25). La mitigaci\u00f3n es la disminuci\u00f3n o la limitaci\u00f3n de los impactos adversos de las amenazas y los desastres afines (UNISDR, 2009: 21).Finalmente, la preparaci\u00f3n busca desarrollar las capacidades necesarias para gestionar de forma eficaz todos los tipos de emergencia y lograr transiciones ordenadas desde la respuesta hasta una recuperaci\u00f3n sostenida (UNISDR, 2009: 25).<\/p>\n\n\n\n

\"\"
En junio del 2018, se aprob\u00f3 la Estrategia de Implementaci\u00f3n del Plan Nacional de Gesti\u00f3n del Riesgo de Desastres \u2013 PLANAGERD 2014 \u2013 2021 en el Per\u00fa. (Foto: Andina)<\/figcaption><\/figure>\n\n\n\n

Con el objetivo de establecer un marco internacional para la reducci\u00f3n de riesgos, la Asamblea General de Naciones Unidas adopt\u00f3, en la Tercera Conferencia Mundial de las Naciones Unidas celebrada el 18 de marzo de 2015, el \u201cMarco de Sendai 2015-2030\u201d, cuyo resultado busca la \u201creducci\u00f3n sustancial del riesgo de desastres y de las p\u00e9rdidas ocasionadas por los desastres, tanto en vidas, medios de subsistencia y salud como en bienes econ\u00f3micos, f\u00edsicos, sociales, culturales y ambientales de las personas, las empresas, las comunidades y los pa\u00edses\u201d (2015). Entre sus principios rectores se destacan los siguientes:<\/p>\n\n\n\n

    \n
  1. La gesti\u00f3n del riesgo orientada a la protecci\u00f3n de las personas<\/strong> y sus bienes, salud, medios de vida y bienes de producci\u00f3n, as\u00ed como los activos culturales y ambientales, la implicaci\u00f3n y colaboraci\u00f3n de toda la sociedad en la reducci\u00f3n del riesgo de desastres.<\/li>\n\n\n\n
  2. La reducci\u00f3n del riesgo de desastres requiere la implicaci\u00f3n y colaboraci\u00f3n de toda la sociedad. Requiere tambi\u00e9n empoderamiento y una participaci\u00f3n inclusiva, accesible y no discriminatoria, prestando especial atenci\u00f3n a las personas afectadas desproporcionadamente por los desastres, en particular las m\u00e1s pobres. Deber\u00edan integrarse perspectivas de g\u00e9nero, edad, discapacidad y cultura en todas las pol\u00edticas y pr\u00e1cticas, y deber\u00eda promoverse el liderazgo de las mujeres y los j\u00f3venes. Es decir, estos riesgos pueden ser reducidos y gestionados, para poder tambi\u00e9n proteger los derechos que est\u00e1n en situaci\u00f3n de vulnerabilidad.<\/li>\n<\/ol>\n\n\n\n

    \u00a0Derechos humanos en riesgo<\/strong><\/p>\n\n\n\n

    Los derechos humanos est\u00e1n en riesgo ante un desastre, entre ellos: la vida, la integridad personal, la no discriminaci\u00f3n, el trabajo, la salud, la alimentaci\u00f3n, la educaci\u00f3n, la vivienda, el derecho a un ambiente sano, al agua y a la propiedad. Es m\u00e1s, la Convenci\u00f3n Americana sobre Derechos Humanos (CADH) no autoriza, en el marco de una situaci\u00f3n excepcional (como un desastre), la suspensi\u00f3n de ciertos derechos,[1]<\/a> y tampoco, como indica en su art\u00edculo 27, autoriza la suspensi\u00f3n de garant\u00edas judiciales indispensables para la protecci\u00f3n de tales derechos. De hecho, seg\u00fan se\u00f1ala la Opini\u00f3n Consultiva de la Corte Interamericana de 1987 en el p\u00e1rrafo 37, las garant\u00edas judiciales permitir\u00edan evaluar la necesidad, razonabilidad y proporcionalidad, de las medidas espec\u00edficas adoptadas ante un desastre. Adicionalmente, la Comisi\u00f3n de Derecho Internacional en su Proyecto de art\u00edculos sobre la protecci\u00f3n de las personas en caso de desastre (2016) <\/em>recuerda que  \u201c[l]as personas afectadas por los desastres tienen derecho a que se respeten y protejan sus derechos humanos de conformidad con el derecho internacional\u201d (art. 5). En el mismo sentido, referido proyecto de art\u00edculos establece en el art\u00edculo 9.1., que \u201c[t]odo Estado deber\u00e1 reducir el riesgo de desastres adoptando las medidas apropiadas, incluso mediante legislaci\u00f3n y otras normas, con objeto de prevenir y de mitigar los desastres, y de prepararse para ellos\u201d.<\/p>\n\n\n

    \n

    \u2036[E]n relaci\u00f3n al derecho a la vida en situaciones de riesgo, la Corte IDH considera que existe una obligaci\u00f3n positiva cuando las autoridades sab\u00edan o deb\u00edan saber de la existencia de una situaci\u00f3n de riesgo real y, a pesar de ello, no tomaron las medidas necesarias.<\/p>\n <\/blockquote>\n \n\n\n

    <\/blockquote>\n\n\n\n

    La obligaci\u00f3n de \u201cgarantizar el libre y pleno ejercicio de los derechos\u201d, de acuerdo con el p\u00e1rrafo 166 de la sentencia de la Corte IDH en el caso Vel\u00e1squez Rodr\u00edguez vs. Honduras, implica el deber estatal de prevenir toda violaci\u00f3n de los derechos reconocidos por la Convenci\u00f3n Americana\u201d (1988). \u00a0En consecuencia, la protecci\u00f3n de los derechos humanos afectados en casos de desastre se extiende a la adopci\u00f3n de medidas destinadas a prevenir y mitigar sus efectos (Mollar, 2018: 207).<\/p>\n\n\n\n

    \"\"
    El Ni\u00f1o Costero ha sido uno de los peores desastres de los \u00faltimos a\u00f1os en el Per\u00fa. Caus\u00f3 162 muertes, 500 heridos y 19 desaparecidos en todo el pa\u00eds, seg\u00fan el Indeci (Foto: Andina)<\/figcaption><\/figure>\n\n\n\n

    Por ejemplo, en relaci\u00f3n al derecho a la vida en situaciones de riesgo,<\/em> la Corte IDH en el caso Comunidad Ind\u00edgena Sawhoyamaxa vs. Paraguay, en el p\u00e1rrafo 155,  considera que existe una obligaci\u00f3n positiva cuando las autoridades sab\u00edan o deb\u00edan saber de la existencia de una situaci\u00f3n de riesgo real e inmediato al derecho a la vida y, a pesar de ello, no tomaron las medidas necesarias dentro del \u00e1mbito de sus atribuciones que pod\u00edan esperarse para prevenir o evitar ese riesgo. Como parte de esta obligaci\u00f3n de prevenir, los Estados tienen la obligaci\u00f3n de reducir los riesgos que se puedan prever; tales como, tomar acciones positivas para reducir la mortalidad en desastres (Human Rights Council, 2015).<\/p>\n\n\n\n

    Por ejemplo, en el caso Budayeva y otros vs. Rusia, el Tribunal Europeo de Derechos Humanos (TEDH) se\u00f1al\u00f3 que frente al riesgo existente de un deslizamiento de tierra en la ciudad de Tyrnauz, el Estado ruso es responsable por la vulneraci\u00f3n al derecho a la vida por no implementar pol\u00edticas de planificaci\u00f3n territorial y de socorro dado que el deslizamiento provoc\u00f3 un desastre que caus\u00f3 la muerte de varias personas. Adem\u00e1s, manifest\u00f3 que el alcance de las obligaciones positivas imputables al Estado en circunstancias particulares depende del origen de la amenaza y el grado en que un riesgo u otro, sea susceptible de mitigaci\u00f3n. El TEDH  tambi\u00e9n se\u00f1al\u00f3 que los estados tienen una obligaci\u00f3n positiva de adoptar medidas apropiadas para proteger el derecho a la vida, esta obligaci\u00f3n debe comprender medidas legislativas y administrativas que se enfoquen en todos los aspectos pertinentes de la mitigaci\u00f3n del riesgo de desastre, y establecer los mecanismos y procedimientos necesarios; adem\u00e1s, los estados deben adoptar las medidas administrativas necesarias, incluida la supervisi\u00f3n de las situaciones que puedan ser peligrosas.<\/p>\n\n\n\n

    En otro caso, el Tribunal Europeo estableci\u00f3 que la falta de adopci\u00f3n de medidas ante un riesgo inminente y previsible de un desastre provocar\u00eda una violaci\u00f3n del derecho a la vida si las autoridades gubernamentales no implementaron medidas de prevenci\u00f3n o pol\u00edticas de ordenamiento territorial. Sin embargo, esta autoridad judicial aclara que los desastres que est\u00e1n m\u00e1s all\u00e1 del control humano no requieren el mismo grado de participaci\u00f3n del Estado; por ello, la obligaci\u00f3n positiva no se extiende tan lejos a los riesgos meteorol\u00f3gicos como a las actividades peligrosas de origen artificial.[2]<\/a> La jurisprudencia citada evidencia una obligaci\u00f3n internacional de reducir el riesgos de desastres para proteger lo derechos humanos. Los estados deben adoptar todas las medidas posibles, incluidas legislativas y administrativas, a fin de reducir el riesgo de un desastre.<\/p>\n\n\n

    \n

    \u2036[L]os Estados tienen la obligaci\u00f3n de prevenir da\u00f1os ambientales significativos, para lo cual deben regular, supervisar y fiscalizar las actividades bajo su jurisdicci\u00f3n que puedan producir un da\u00f1o.<\/p>\n <\/blockquote>\n \n\n\n

    Adicionalmente, en virtud del cambio clim\u00e1tico, el n\u00famero y intensidad de eventos naturales es mayor. Por ello, el Acuerdo de Par\u00eds\u00a0 incluye la obligaci\u00f3n de implementar medidas de adaptaci\u00f3n a fin de reducir\u00a0 el riesgo de p\u00e9rdidas y da\u00f1os relacionados con los efectos adversos del cambio clim\u00e1tico (Naciones Unidas, 2015). Con el prop\u00f3sito de respetar y garantizar los derechos a la vida e integridad de las personas, resulta oportuno citar la reciente opini\u00f3n consultiva de la Corte IDH sobre el derecho a un ambiente sano, que se\u00f1ala que los Estados tienen la obligaci\u00f3n de prevenir da\u00f1os ambientales significativos, para lo cual deben regular, supervisar y fiscalizar las actividades bajo su jurisdicci\u00f3n que puedan producir un da\u00f1o significativo al ambiente; incluyendo la elaboraci\u00f3n de estudios de impacto ambiental cuando exista riesgo de da\u00f1o significativo al ambiente; estableciendo un plan de contingencia, a efecto de tener medidas de seguridad y procedimientos para minimizar la posibilidad de grandes accidentes ambientales, y mitigar el da\u00f1o ambiental significativo que hubiere producido. Adem\u00e1s, los Estados deben actuar conforme al principio de precauci\u00f3n frente a posibles da\u00f1os graves o irreversibles al ambiente, a\u00fan en ausencia de certeza cient\u00edfica (2017).<\/p>\n\n\n\n

    \"\"
    La COP20, realizada en el 2014 en la ciudad de Lima, fue una antesala al acuerdo de Par\u00eds que se firm\u00f3 al a\u00f1o siguiente y busca frenar el cambio clim\u00e1tico (Foto: Andina)<\/figcaption><\/figure>\n\n\n\n

    Con todo ello, a trav\u00e9s de este art\u00edculo se puede obtener dos conclusiones preliminares. La primera, bajo un enfoque de derechos humanos, los estados tienen la obligaci\u00f3n de proteger los derechos ante los desastres mediante la reducci\u00f3n de riesgos de desastres, a la luz de las directrices y principios del Marco de Sendai. Entre otras medidas, los estados deben adoptar marcos legislativos y administrativos para implementar una estrategia nacional de reducci\u00f3n de riesgos. A nivel andino, por ejemplo, Colombia, Per\u00fa y Bolivia, cuentan con leyes de gesti\u00f3n de riesgos. Por su lado, Ecuador cuenta con una norma constitucional que obliga al estado a proteger a las personas, colectividades y la naturaleza frente a los desastres; sin embargo, a\u00fan no cuenta con una ley.<\/p>\n\n\n\n

    La segunda, que m\u00e1s all\u00e1 de una reforma legal se requiere un cambio en la cultura de las personas. Es necesario dejar de responsabilizar a la naturaleza o seres divinos por las omisiones u acciones humanas. Se debe comprender que los desastres no son naturales y que debemos reducirlos. Un enfoque limitado a la respuesta una vez ocurrido los desastres es otro paradigma que debe cambiar. (https:\/\/realdetroitweekly.com\/<\/a>) Se debe trabajar en una estrategia de reducci\u00f3n de riesgos con un verdadero enfoque en derechos humanos, donde se promueva el desarrollo y la resiliencia de las personas y las comunidades.<\/p>\n\n\n\n

    \n\n\n\n

     <\/p>\n\n\n\n

    Referencia<\/strong><\/p>\n\n\n\n

    [1]<\/a>Entre otros: a la vida, a la integridad personal, Prohibici\u00f3n de la Esclavitud y Servidumbre, Principio de Legalidad y de Retroactividad, Libertad de Conciencia y de Religi\u00f3n, Protecci\u00f3n a la Familia, y del ni\u00f1o.<\/a><\/p>\n\n\n\n

    Bibliograf\u00eda<\/strong><\/p>\n\n\n\n

    Corte IDH (1987). Opini\u00f3n Consultiva OC-9\/87. Garant\u00edas Judiciales en Estados de Emergencia (arts. 27.2, 25 y 8 Convenci\u00f3n Americana sobre Derecho Humanos). Opini\u00f3n Consultiva OC-9\/87.<\/p>\n\n\n\n

    Corte IDH (1988). Caso Vela\u0301squez Rodri\u0301guez vs. Honduras.<\/p>\n\n\n\n

    Corte IDH (2006). Comunidad Ind\u00edgena Sawhoyamaxa vs. Paraguay.<\/p>\n\n\n\n

    Corte IDH (2017). Opini\u00f3n Consultiva OC-23\/17 de 15 de noviembre de 2017. Medio ambiente y derechos humanos.<\/p>\n\n\n\n

    Estrategia internacional para la Reducci\u00f3n de Desastres \u2013 EIRD (2005). Informe de la Conferencia Mundial sobre la Reducci\u00f3n de los Desastres, Hyogo, Doc. A\/CONF.206\/6, Res. 2, nota 2. Recuperado de: http:\/\/www.eird.org\/cdmah\/contenido\/hyogo-framework-spanish.pdf<\/a><\/p>\n\n\n\n

    Human Rights Council (2015), Final research-based report of the Human Rights Council Advisory Committee on best practices and main challenges in the promotion and protection of human rights in post-disaster and post-conflict situations. A\/HRC\/28\/76.<\/p>\n\n\n\n

    Mollar, Marcos Nelio (2018), El deber de reducir el riesgo de desastres en el derecho internacional en Aspectos ambientales en el derecho internacional \/ Hortensia D.T. Guti\u00e9rrez Posse \u2026 [et al.]. \u2013 1a ed. \u2013 Ciudad Aut\u00f3noma de Buenos Aires: Consejo Argentino para las Relaciones Internacionales-CARI, p\u00e1g.203.<\/p>\n\n\n\n

    Naciones Unidas (2015). Conferencia de Partes del Convenio Marco de Naciones Unidas sobre el Cambio Clim\u00e1tico, Par\u00eds, Francia. Doc. FCCC\/CP\/2015\/10\/Add.1.<\/p>\n\n\n\n

    Naciones Unidas (2015). Marco de Sendai para la Reducci\u00f3n del Riesgo de Desastres 2015 \u2013 2030. Adoptado en la Tercera Conferencia Mundial de las Naciones Unidas celebrada en Sendai (Jap\u00f3n) el 18 de marzo de 2015. DisponibleRecuperado de en: https:\/\/www.unisdr.org\/files\/43291_spanishsendaiframeworkfordisasterri.pdf<\/a><\/p>\n\n\n\n

    Naciones Unidas Oficina de Asuntos Legales (UN OLA). Informe de la Comisi\u00f3n de Derecho Internacional: 68\u00ba per\u00edodo de sesiones. Recuperado de: http:\/\/legal.un.org\/docs\/index.asp?path=..\/ilc\/reports\/2016\/spanish\/chp4.pdf&lang=EFSRAC&referer=http:\/\/legal.un.org\/ilc\/reports\/2016\/<\/a><\/p>\n\n\n\n

    Oficina de las Naciones Unidas para la Reducci\u00f3n del Riesgo de Desastres \u2013 UNISDR (2009). Terminolog\u00eda sobre Reducci\u00f3n del Riesgo de Desastres, Ginebra Suiza. Recuperado de: http:\/\/www.unisdr.org\/files\/7817_UNISDRTerminologySpanish.pdf<\/a><\/p>\n\n\n\n

    Tribunal Europeo de Derechos Humanos TEDH(2004). Caso \u00d6neryildiz vs. Turkey. Sentencia del 30 de noviembre de 2004.<\/p>\n\n\n\n

    Tribunal Europeo de Derechos Humanos (2008). Caso Budayeva y otros vs. Rusia. Sentencia del 20 de marzo de 2008.<\/p>\n\n\n\n

    Ocultar<\/p>\n","protected":false},"excerpt":{"rendered":"

    Los desastres no son naturales, las acciones o la falta de acci\u00f3n humana puede convertir a un evento natural en un desastre. Algunas amenazas son de origen natural. 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