From Sendai to AFAD: How Global DRR Principles Interact with Türkiye's Public Planning System
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DRR Foundations · Legal Frameworks
Legal and Policy Explainer
An explainer on how global DRR principles, national implementation frameworks, and institutional strategic plans interact within Türkiye's public planning system.
By Rıdvan Bilgin · Disaster Risk Management & Project Office Manager · Updated August 2026
01 / PERSPECTIVE
Why International Practitioners Should Care
Disaster risk management (DRM) practitioners worldwide—whether in Santiago, Jakarta, or Brussels—face a common challenge: translating high-level global commitments into concrete, funded local actions. Türkiye offers a uniquely instructive case study. It has legally mandated strategic planning within its public financial management framework, established a comprehensive multi-tiered planning system for disaster risk reduction, and aligned institutional goals with the UN Sendai Framework for Disaster Risk Reduction (2015–2030).
This explainer walks through the system step by step: what a strategic plan is, how Türkiye embedded it in law, how global DRR principles interact with domestic instruments, and how the system actually works in practice through AFAD's 2024–2028 plan.
Note on Sendai's timeline: The Framework's Target E — which calls for national and local DRR strategies — originally had a target date of 2020. While that deadline has passed, monitoring and reporting continue through the Sendai Framework Monitor.
02 / FOUNDATIONS
What a Public Strategic Plan Actually Is
A strategic plan is a formal document defining an organization's medium-term direction (typically 5 years) and execution mechanisms. In public administration, it bridges high-level policy mandates and operational reality.
Vision & Mission
The core institutional mandate and target future state—answering why the body exists and what public value it builds (Moore, 1995).
Goals & Objectives
Broad strategic goals broken down into specific, quantifiable objectives assigned to operational units.
Indicators
Performance metrics used for institutional monitoring, performance reporting, audit and public accountability.
Resource Linkage
Links strategic priorities to indicative resource requirements and subsequent annual budgeting through the performance-programme and budget cycle.
A crucial distinction runs through all of this: a strategic plan sets long-term direction; a separate annual performance programme turns that direction into yearly steps, timelines, responsibilities and budget allocations. As one common formulation puts it (Bryson, 2018), the strategic plan gives an organization its purpose, and the action plan brings it to life. You need both.
03 / LEGAL FRAMEWORK
How Türkiye Turned Planning into Law
In many administrative systems, strategic planning is recommended practice. In Türkiye, it is a legally binding requirement within the public financial management framework — and this framework was significantly revised in 2020.
04 / THE CASCADE
From Global Framework to Institutional Action
Understanding how global commitments interact with domestic planning requires distinguishing between multi-institutional planning instruments and institution-specific strategic-management documents. The following table sets out the full legal and policy cascade:
| Level | Document / Instrument | Legal / Policy Nature |
|---|---|---|
| Global | Sendai Framework (2015–2030) | Non-binding UN framework. Adopted 18 March 2015 (Sendai); endorsed by UNGA Resolution 69/283 (3 June 2015). 4 priorities, 7 targets, 38 indicators. Highest thematic reference. |
| National Policy | 12th Development Plan (2024–2028) | Statutory upper-level policy document. Legally the highest reference for any Turkish agency plan under Law 5018 Art. 9. |
| National DRR Strategy | TARAP (National DRR Plan 2022–2030) | Government-approved national DRR implementation framework. Brought into force by Presidential Decision No. 5787 (Official Gazette No. 31890, 8 July 2022). Assigns actions and coordination responsibilities to participating public institutions. |
| Provincial Level | İRAP (81 Provincial DRR Plans) | Provincial multi-stakeholder DRR plans coordinated through AFAD's provincial structure. They identify territorial risks and actions across institutions. Completed across all 81 provinces in 2021. |
| Response | TAMP (National Disaster Response Plan) | National response architecture. The current TAMP entered into force by Presidential Decision published in Official Gazette No. 31954 on 15 September 2022, under the Regulation on Disaster and Emergency Response Services then in force (Official Gazette No. 31760, 24 February 2022). A new regulation of the same name was subsequently issued by Presidential Decision No. 10809 (Official Gazette No. 33124, 5th repeating issue, 31 December 2025); readers should consult the current text for its effect on the 2022 framework. |
| Recovery | TASİP (Türkiye Disaster Recovery Plan) | National recovery and reconstruction framework. Brought into force by Presidential Decision No. 9889 (Official Gazette, 26 May 2025). Defines sectoral roles, action steps, and coordination structures for post-disaster recovery, complementing the risk-reduction (TARAP) and response (TAMP) frameworks. |
| Agency Level | AFAD Strategic Plan (2024–2028) | Public institutional strategic-management and accountability document under Law 5018. Guides AFAD's institutional priorities and informs performance programming and budget preparation. It sits alongside TARAP, İRAP, TAMP and TASİP as a complementary layer, not above them. |
05 / WORKED EXAMPLE
AFAD's Coordination Role & 2024–2028 Plan
Established in 2009 (Law No. 5902) under the Prime Ministry, and placed under the Ministry of Interior in 2018 (Presidential Decree No. 4), AFAD is Türkiye's central authority for disaster management coordination. It does not replace operational line ministries (e.g., health, transportation, environment); rather, it orchestrates system-wide action. The shift from the Prime Ministry to the Ministry of Interior represents a significant governance change — moving from the centre of government to a line ministry — which international readers should note when considering Sendai Priority 2 (disaster risk governance).
AFAD's 2024–2028 Plan: 6 Goals and 23 Objectives
The following is taken directly from the plan's "Objectives and Targets" section (pp. 71–72). Each objective is further broken down into performance indicators in the "Target Cards" section (pp. 72–102).
Goal 1: Increase effectiveness of disaster risk reduction
- 1.1: Become a regional centre for earthquake studies
- 1.2: Establish a national integrated early warning system
- 1.3: Increase disaster risk identification studies
- 1.4: Increase disaster risk prevention studies
Goal 2: Best institutional and societal preparedness
- 2.1: Increase societal awareness and preparedness
- 2.2: Improve the AFAD volunteer system and its quality
- 2.3: Develop disaster management plans and policies
- 2.4: Increase public information and awareness
- 2.5: Improve the AFAD accreditation system
Goal 3: Fast, effective, coordinated response
- 3.1: Establish an incident management system
- 3.2: Conduct drills to test and improve response plans
- 3.3: Improve response capacity
Goal 4: Fast, effective, coordinated recovery
- 4.1: Develop sustainable temporary and permanent shelter systems
- 4.2: Increase the number of logistics warehouses
- 4.3: Carry out legislative work on recovery activities
Goal 5: Become a global actor through international effectiveness
- 5.1: Increase institutional presence and international cooperation
- 5.2: Provide aid to countries in need of humanitarian assistance
Goal 6: Strong, innovation-ready institution
- 6.1: Strengthen information systems in disaster management
- 6.2: Increase staff competency through in-service training
- 6.3: Develop physical and technical capacity of AFAD facilities
- 6.4: Establish a human resources system considering belonging, workload, and career planning
- 6.5: Develop strategic management and internal control mechanisms
- 6.6: Establish a research infrastructure to support all work in disaster and emergency management
Source: AFAD 2024–2028 Strategic Plan, "Objectives and Targets" (pp. 71–72) and "Target Cards" (pp. 72–102).
06 / FAQ
Frequently Asked Questions
Is strategic planning mandatory for public agencies in Türkiye?
Public administrations covered by the applicable framework are generally required to prepare strategic plans, subject to express exemptions. AFAD, as a general-budget public administration listed in Schedule I of Law No. 5018, falls within that framework. The current secondary regulation — the Regulation on the Procedures and Principles Regarding Strategic Plans and Performance Programmes and Activity Reports to Be Prepared by Public Administrations (Official Gazette No. 31462, 22 April 2021, as amended) — sets out the detailed requirements.
Does AFAD's Strategic Plan legally bind other ministries?
No. AFAD's Strategic Plan is an institutional strategic-management document that guides AFAD's own priorities, performance and budget. It sits alongside TARAP, İRAP, TAMP and TASİP as a complementary layer — not above them. Government-wide disaster obligations are assigned through TARAP (Presidential Decision No. 5787) and other legally binding instruments, while AFAD's operational coordination is exercised through structures defined in the Regulation on Disaster and Emergency Response Services and Presidential Decree No. 4.
How does the Sendai Framework interact with Turkish law?
The Sendai Framework is a non-binding global policy reference (UNGA Res. 69/283, 3 June 2015). It does not automatically become part of Turkish law. Instead, it informs national development priorities and DRR policy, which are then translated into government-approved implementation frameworks (TARAP), provincial plans (İRAP), the response plan (TAMP), the recovery plan (TASİP), and institutional strategic plans (AFAD SP).
Is TARAP legally binding on all institutions?
TARAP is a government-approved national DRR implementation framework brought into force by Presidential Decision No. 5787. It assigns actions and coordination responsibilities to participating public institutions. The precise legal effect of individual actions depends on the underlying legislation, institutional mandates and budgetary authorities. It is best understood as a government-approved implementation framework, not as a self-executing regulation that directly binds every institution in the same way.
What are some of Türkiye's principal disaster-related statutes?
Law No. 7269 (1959) remains a foundational statute for measures and assistance concerning disasters affecting public life — though AFAD's own strategic plan notes that it needs to be updated as a "service law" for modern conditions (AFAD SP, p. 90). Law No. 6306 (2012) is a major instrument for transforming areas and buildings under disaster risk. Türkiye's disaster-law framework is nevertheless dispersed across multiple statutes, presidential decrees and regulations rather than contained in a single comprehensive disaster code.
What is TASİP and how does it fit into Türkiye's disaster management system?
TASİP is the Türkiye Disaster Recovery Plan (Türkiye Afet Sonrası İyileştirme Planı), brought into force by Presidential Decision No. 9889 on 26 May 2025. It covers the recovery phase of the disaster management cycle — addressing structural, social, economic, environmental and cultural losses after an event. It sits alongside TARAP (risk reduction) and TAMP (response) as a complementary national framework, defining sectoral responsibilities, action steps, and coordination structures for post-disaster recovery and reconstruction.
07 / REFERENCES
Authoritative Sources to Go Deeper
References
- UNDRR — Monitoring the Sendai Framework undrr.org · the four priorities, seven targets, and 38 indicators
- PreventionWeb — Türkiye country profile preventionweb.net · curated DRR resources and publications
- TARAP — Disaster Risk Reduction Plan of Türkiye (2022–2030) preventionweb.net · the national DRR implementation framework, in force under Presidential Decision 5787
- Law No. 5018 — Consolidated text mevzuat.gov.tr · the current consolidated text (in Turkish) of the Public Financial Management and Control Law
- Law No. 5902 — Consolidated text mevzuat.gov.tr · the current consolidated text of the Disaster and Emergency Management Presidency Law
- Presidential Decree No. 4 mevzuat.gov.tr · the current legal basis for AFAD's organisation and duties (Arts. 30–56/A)
- Sayıştay — AFAD 2023 Regularity Audit Report sayistay.gov.tr · the Turkish Court of Accounts' 2023 regularity audit report on AFAD
08 / SOURCES
Sources & Verification
Legal references were checked against the consolidated legislation and official institutional sources available as of August 2026. Readers should consult the current official text before relying on any provision for legal purposes.
| Claim | Source |
|---|---|
| Law 5018 Art. 9 (as amended 2020) — mandatory planning, programme budget, monitoring | Law No. 5018, Art. 9 (consolidated text, mevzuat.gov.tr); amended by Law No. 7254, 16 Oct 2020 |
| AFAD in Schedule I, entry 36 of Law 5018 | Law No. 5018, Schedule I |
| Current Regulation on Strategic Plans and Performance Programmes and Activity Reports — 5-year cycle | Official Gazette No. 31462, 22 Apr 2021 (as amended) |
| Law 5902 — established AFAD under Prime Ministry, 29 May 2009 | Law No. 5902 (consolidated text); Official Gazette No. 27261, 17 Jun 2009 |
| Law 5902 organisational provisions repealed | Decree-Law No. 703, Art. 62, 2 Jul 2018 |
| Current AFAD organisation and duties | Presidential Decree No. 4, Arts. 30–56/A; amended by PD No. 103, RG 9 Jun 2022, 31861 |
| AFAD's coordination authority | Presidential Decree No. 4, Arts. 30, 33(1)(b); Regulation on Disaster and Emergency Response Services (Official Gazette No. 31760, 24 Feb 2022; new regulation issued by PD No. 10809, OG 33124, 31 Dec 2025) |
| AADYM definition | Presidential Decree No. 4, Art. 31 |
| TARAP in force | Presidential Decision No. 5787, Official Gazette No. 31890, 8 Jul 2022 |
| İRAP completed across 81 provinces | UNDRR Global Platform 2022; PreventionWeb |
| TAMP current version | Official Gazette No. 31954, 15 Sep 2022; Regulation on Disaster and Emergency Response Services (OG 31760, 24 Feb 2022; new regulation issued by PD No. 10809, OG 33124, 31 Dec 2025) |
| TASİP in force | Presidential Decision No. 9889, Official Gazette, 26 May 2025 |
| Sendai Framework | UNGA Resolution 69/283, 3 Jun 2015; UNDRR |
| AFAD 6 goals, 23 objectives, 67 indicators | AFAD 2024–2028 Strategic Plan (primary) |
| Foundational disaster statutes | Law No. 7269 (1959); Law No. 6306 (2012) |
| Strategic planning literature | Moore (1995); Bryson (2018) |
This article is an explanatory primer for an international audience. Institutional and legal details reflect 2024–2026 and may evolve. It does not constitute legal advice. Legislation checked against mevzuat.gov.tr consolidated texts and the Official Gazette on 2 August 2026.
Frequently asked questions
Is strategic planning mandatory for public agencies in Türkiye?
Public administrations covered by the applicable framework are generally required to prepare strategic plans, subject to express exemptions. AFAD, as a general-budget public administration listed in Schedule I of Law No. 5018, falls within that framework. The current secondary regulation — the Regulation on the Procedures and Principles Regarding Strategic Plans and Performance Programmes and Activity Reports to Be Prepared by Public Administrations (Official Gazette No. 31462, 22 April 2021, as amended) — sets out the detailed requirements.
Does AFAD's Strategic Plan legally bind other ministries?
No. AFAD's Strategic Plan is an institutional strategic-management document that guides AFAD's own priorities, performance and budget. It sits alongside TARAP, İRAP, TAMP and TASİP as a complementary layer — not above them. Government-wide disaster obligations are assigned through TARAP (Presidential Decision No. 5787) and other legally binding instruments, while AFAD's operational coordination is exercised through structures defined in the Regulation on Disaster and Emergency Response Services and Presidential Decree No. 4.
How does the Sendai Framework interact with Turkish law?
The Sendai Framework is a non-binding global policy reference (UNGA Res. 69/283, 3 June 2015). It does not automatically become part of Turkish law. Instead, it informs national development priorities and DRR policy, which are then translated into government-approved implementation frameworks (TARAP), provincial plans (İRAP), the response plan (TAMP), the recovery plan (TASİP), and institutional strategic plans (AFAD SP).
Is TARAP legally binding on all institutions?
TARAP is a government-approved national DRR implementation framework brought into force by Presidential Decision No. 5787. It assigns actions and coordination responsibilities to participating public institutions. The precise legal effect of individual actions depends on the underlying legislation, institutional mandates and budgetary authorities. It is best understood as a government-approved implementation framework, not as a self-executing regulation that directly binds every institution in the same way.
What are some of Türkiye's principal disaster-related statutes?
Law No. 7269 (1959) remains a foundational statute for measures and assistance concerning disasters affecting public life — though AFAD's own strategic plan notes that it needs to be updated as a 'service law' for modern conditions (AFAD SP, p. 90). Law No. 6306 (2012) is a major instrument for transforming areas and buildings under disaster risk. Türkiye's disaster-law framework is nevertheless dispersed across multiple statutes, presidential decrees and regulations rather than contained in a single comprehensive disaster code.
What is TASİP and how does it fit into Türkiye's disaster management system?
TASİP is the Türkiye Disaster Recovery Plan (Türkiye Afet Sonrası İyileştirme Planı), brought into force by Presidential Decision No. 9889 on 26 May 2025. It covers the recovery phase of the disaster management cycle — addressing structural, social, economic, environmental and cultural losses after an event. It sits alongside TARAP (risk reduction) and TAMP (response) as a complementary national framework, defining sectoral responsibilities, action steps, and coordination structures for post-disaster recovery and reconstruction.
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