Dialogue Seriesin the Framework of Rio+20
Disaster Risk Reduction: A Matter of Good Governance
Department of Sustainable Development
Background
Development in the Americas has always progressed alongside threats posed by intensive natural disasters, from earthquakes to hurricanes. However, disaster risk is on the rise due to human factors: environmental degradation, worsening socio-economic conditions and social inequity. Climate change further threatens development, by exacerbating risks from more intense and frequent hydro-meteorological events.
The 2001-2010 decade in the region was marked by devastating disasters that caused the deaths of over 260,000 people, affected 81 million and yielded US$440 billion in damages. Almost all statistics doubled compared to the previous decade. The earthquake that hit Port of Prince and its surrounding areas in Haition January 12, 2010, claiming the lives of over 220,000 people and affecting more than 3.5 million, epitomizes best the underlying causes of disasters to which the Hyogo Framework for Action[1] refers, in the priority action number four, rooted deeply in failing development processes, extreme poverty and poor governance.
Economic growth in many countries in the Americas has not only brought well-being and opportunities for many, but has also increased the exposure of assets and the vulnerability of populations. In Central America last October, Tropical Depression 12-E dropped more than five feet of water over ten days, causing massive flooding and mud slides and forcing 60,000 people into shelters. The United Nations Economic Commission for Latin America and the Caribbean (ECLAC)estimated that in El Salvador this climate event caused more than US$840 million in damages and losses, representing almost 4% of its GDP. Production and infrastructure were the two sectors most heavily struck. The agriculture sector alone faced losses of over US$105 million. With economies becoming more interdependent, the negative impacts of disasters have spilled over international borders affecting larger numbers of people and making Disaster Risk Reduction (DRR) everybody’s business.
With more disasters and higher levels of international humanitarian assistance, particularly from within the region, hemispheric coordination has become more necessary than ever. In addition, there have been an increasing number of non-traditional international humanitarian organizations within the past years, intended to fill gaps in capacity in the assisted countries. However, the absence of clear policies and clear ‘rules of engagement’ for international humanitarian assistance has posed coordination challenges and resulted in a dilution of humanitarian assistance, response and relief efforts. Consequently, complex emergencieshave become increasingly more complex.
Critical to DRR is the process of decision-making and the process by which decisions are implemented –or not– to reduce the vulnerability of communities, increase their resilience; prepare, respond and manage emergencies; and rehabilitate and reconstruct the damaged infrastructure as well as recuperate livelihoods. In the context of Disaster Risk Management, this is what is referred to asgood governance. Furthermore, this process of decision-making affects all government sectors and levels, and all segments of civil society.
Consequently, for the purposes of DRR, good governance applies to all organizations and members of a society, and not just central and local governments.Good governance must ensure that the process ‘of decision-making is inclusive and transparent; based on a social consensus, through active involvement of all members of the society, and the implementation of sound information and communication systems and tools; provides for accountability of all –not only government institutions and officials, but also all civil society organizations and community members; and follows the Rule of Law.
Towards Rio + 20
At the multilateral and regional level, the Western Hemisphere has taken a leading role in supporting good governance principles through multilateral instruments, such as the Rio Declaration (including Principle 10), the Inter-American Democratic Charter (the Charter), and the Inter-American Strategy for Public Participation in Decision-Making for Sustainable Development (ISP). The Charter commits member states of the OAS to support innovative and creative ways to advance democratic governance, in support of “good governance, sound administration, democratic values, and the strengthening of political institutions and civil society organizations” (Article 27). The Charter also recognizes the importance of transparency and the role of good governance and democracy in environmental management (Article 15).
The Organization of American States (OAS) believes that strong democratic institutions are the foundation of good governance. Active and responsible public participation results in self-awareness and sound risk assessment, while fostering transparency and accountability in the administration of emergency assistance, leading to more resilient and better prepared communities.
Disaster Risk Reduction also becomes vital to consolidate peace, strengthen democratic institutions, achieve integral development and social justice, protect human rights –particularly of those most vulnerable, disables, children and elders– and close the gender gap that widens each time a disaster strikes, as preconditions are exacerbated.
Context
The OAS through its Department of Sustainable Development (DSD) supports its member states in designing and implementing policies, strategies, programs and projects oriented around integrating environmental sustainability with poverty alleviation and economic development. This support translates sustainable development and environmental protection goals into concrete actions that have impact at the national level.
The Department also supports transparency and participation as practical ingredients of good governance, and is responsible for various tasks and initiatives in the area of environmental law and governance aimed at supporting countries in making fundamental decisions which engage all stakeholders, and encourage accountability and respect for sustainable development principles and institutions.
The Department has prepared a Roadmap to Rio+20 and is playing a key role on the High Level International Advisory Committee for the World Congress on Justice, Governance and Law for Environmental Sustainability (World Congress), which is being co-sponsored by the OAS and will be held during the ‘sandwich days’ at Rio+20 in mid-June.
In addition to its support for the World Congress, the General Secretariat of the OAS is organizing a series of hemispheric dialogues in a variety of sustainable development themes, such as Energy and Climate Change, Integrated Water Resources Management, Biodiversity and Sustainable Land Management, Disaster Risk Management and Adaptation to Climate Change, and Environmental Law, Policy and Governance. The results of these dialogues will feed into the Conference process through means of policy papers and recommendations.
This seventhdialogue in the series will focus on institutional structures, policies, and procedures to facilitate good governance within Disaster Risk Management. Expert panelistswill deliberate on ways to strengthen these institutions and will be called upon to outline recommendations on the implementation of basic governance principles and improving relationships among stakeholders.
The Dialogue
The discussions will address issues on the following two specific areas:
1. Disaster Prevention
The earthquake that followed the one in Haiti that same year on February 27 in Chile highlights the intrinsic nature of risk in development processes. In contrast with the earthquake in Haiti, the earthquake in Chile gave testimony of the pay-off in investing in prevention and disaster mitigation. Yet, it proved to be much more costly than the Haiti one, amounting to an estimated US$30 billion;and brought to the surface shortcomings in disaster preparedness and response, rooted in institutional and governance arrangements that need to be further thought and reformulated.
While much work needs to be done, governments have made decisive progress in the formulation and implementation of policy and programs for disaster risk reduction. Examples includethe Reconstruction Program with Transformation launched by the Government of Guatemala after Aghata and the eruption of Pacaya volcano in 2009; the reforms undertaken by the Government of the Dominican Republic to make Risk Reduction a core element of its land use planning and development strategies and programs; and the institutional reforms undertaken by the Government of Chile in the wake of their earthquake in February 2010.
In light of the increase number of disasters with increasing impacts in the affected states’ fiscal accounts and public investments, OAS members and partners should consider the establishment of a joint strategy that forges the identification and financing of incremental costs, in rehabilitation and reconstruction processes, so as to increase resilience of public infrastructure.
This approach requires that affected member states prepare Rehabilitation and Reconstruction Programs that identify the incremental cost required to increase the resilience of the infrastructure to be rehabilitated or reconstructed. That is, for instance, the additional or incremental costs required to bring a bridge or road to endure a 100-year flood from current 30-year flood resilience. Considering that many states in the Americas operate in a permanent state of emergency –given the frequency of events that overwhelm their response capacity– Disaster Prevention and Mitigation must be integrated into Rehabilitation and Reconstruction Programs.This approach is expected to yield several benefits:
1.Governments will have the opportunity to access loans at lower rates –compared to those offered for Disaster Mitigation and Prevention in new infrastructure and Retrofitting Programs, for Disaster Prevention and Mitigation;
2.It provides for an opportunity for those States that do not have the capacity to invest in Infrastructure Retrofitting Programs; and
3.It forges a culture of Prevention while States respond to emergencies.
2. Disaster Preparedness, Response and Emergency Management
Disaster Response and Emergency Management, to be effective, require a great deal of preparedness, which can only be obtained with sound inter-institutional coordination, able to capitalize on comparative capabilities of all government sectors and all levels of government –from national to local. It also requires the active involvement of all segments of civil society –from private enterprises, NGOs and religious groups, to advocacy groups and other organized groups of the civil society.
Capacity building and institutional strengthening, particularly of local governments and organized civil society groups, is also crucial, as these are the first to respond in a disaster and are in the best position to work with communities.
The sustainability and successful implementation of community-centered flood early warning systems, for example, will depend on the formulation and execution of sound public policy and good governance that ensures accountability across all government sectors and levels, as well as all segments of civil society, and effective coordination. The experience of the Department of Sustainable Development accrued over almost two decades of technical cooperation in community-centered flood early warning systems in the Central American Isthmus and the Dominican Republic, shows that lack of a harmonized methodology for designing and implementing these systems continues to be the biggest challenge.
Increasing attention to Climate Change and the need to advance strategies and measures for Adaptation add a layer of complexity to the integration of Disaster Risk Reduction into Development Policies and Plans. Inter-institutional coordination at all levels, but particularly at the national level, will become even more critical if existing financial resources to reduce vulnerability and mitigate disasters are to be effectively used, while advancing Climate Change Adaptation strategies and programs.
Final considerations
In the end, Disaster Risk Reduction is a matter of good governance. The information flow and the decision-making processes required to implement measures to reduce vulnerability, prevent and mitigate disasters, prepare for and respond to disasters in a timely and effective fashion will make the difference between life and death, and between the well-being of vulnerable communities or their suffering and marginilization. Involvement of community members and all civil society actors is then critical, as responsible public participation results in self-awareness and assessment of risk, and consequently, and in more resilient and prepared communities. Sound, active and responsible participation of community members also fosters transparency and accountability in the administration of emergency assistance and investments for building resilience. Capacity building and institutional strengthening at all levels, but particularly, at the local level is essential to reducing disasters, as local governments and organized civil society groups are the first to respond in a disaster and are better positioned to raise awareness and self-assessment of risk as well as prepare for and prevent natural disasters.
DISASTER RISK REDUCTION: A MATTER OF GOOD GOVERNANCE
PRELIMINARY PROGRAM
OASMAINBUILDING
17TH AND CONSTITUTION, WASHINGTON, DC
ROOM TBD
3:00 to 5:00 pm
Wednesday, April 4, 2012
3:00 – 3:15 pmWelcome remarks, Ambassador Leonidas Rosa Bautista, Permanent Representative of Honduras to the Organization of American States
3:15 – 4:30 pmDavos-Style Panel Discussion[2]: Disaster Risk Reduction: A matter of Good Governance
Moderator: Pablo Gonzalez, Chief, Risk Management and Adaptation to Climate Change, Department of Sustainable Development, OAS
Panelists:
1)Andres Calderon, LouisianaStateUniversity.
2)Juan Carlos Orrego, United Nations Development Programma (UNDP)
3)Juan Carlos Belausteguigoitia, Lead Environmental Economist, World Bank (TBC)
4:30 – 5:00 pmOpen discussion and final thoughts
5:00 pmClosing, CletusI. Springer, Director, Department of Sustainable Development, GS/OAS
[1]
[2] The ‘Davos-style’ panel discussion will emphasize discussion and interaction among the experts. After opening remarks to introduce the topic of discussion and introduction of the panelists, the Moderator will pose questions and facilitate a discussion. The Moderator will provide a brief summary of comments and thoughts at the end of the discussion.