Changing the Way We Develop: Dealing with Disasters and Climate Change, Address to the Norway/UNDP Commission for Sustainable Development
Kathleen Cravero,
Assistant Administrator and Director,
Bureau for Crisis Prevention and Recovery, UNDP
15 May 2008, New York
UNDP's experience in dealing with disasters
Many of us have been following with great concern the tragedy unfolding in Myanmar following cyclone Nargis. Estimates of the death toll range from 60,000 to 100,000. An additional 40,000 people are missing. And an estimated 1.5 million people have been affected.
You may recall how, in December 2004, we watched in horror as the waves of the Indian Ocean tsunami tore through entire villages and communities across 12 countries, leaving an estimated 230,000 people dead. What is tragic is that this devastating loss of life, like the one in Myanmar, was not inevitable. We cannot continue to watch people die from natural hazards when we know how to reduce their vulnerability. Doing so is unconscionable.
Bangladesh learned this lesson the hard way in 1991 when a cyclone resulted in more than 140,000 deaths. The government, the United Nations and its partners subsequently put in place effective early warning and preparedness measures. When a cyclone of similar force struck in 2007, 3,400 people were killed.
In advance of the 2007 cyclone, the United Nations system and its partners prepositioned relief items, such as shelter materials, high energy biscuits, medicine and other non-food items. A network of non-governmental organizations intensified the monitoring of the cyclone as it approached, and assisted with the evacuation of the at-risk population. In addition, communication networks were triggered to ensure people were on standby, ready to provide information to affected communities. Rescue, medical and relief teams were put in place with the support of the UN. Close contact was maintained with local officials. In the end, an estimated 3.2 million people were evacuated, of which 650,000 sought shelter in storm shelters.
While we will never know if Nargis would have been a substantially different cyclone in the absence of global warming, we absolutely know that Myanmar is a disaster risk hotspot for cyclones and flooding. We know that these events have happened before and that they will happen again. And we have lessons from dealing with many past disasters that give us tools for assisting countries such as Myanmar to reduce risks and losses. For this reason, disaster risk management was identified as a key means of pursuing climate change adaptation in the 2007 Bali Conference.
Like many of you, I find myself wondering whether Nargis is linked to climate change. It may be too early to tell, but according to the Center for Research on the Epidemiology of Disasters in Brussels, nine of the ten largest disasters in the last 100 years in Myanmar were associated with cyclones and flooding. What is evident is that the need to reduce exposure and vulnerability to climate-related hazards such as drought, floods and cyclones becomes even greater when climate change is taken into consideration.
Global warming is already altering the earth. And while the receding snow cover and shrinking ice caps may seem like the concerns of remote populations, the fate of the world’s snowy and icy locales is cause for concern for everyone. The realities of our changing climate are expected to have far-reaching impacts for people in the Tropics, in the Arctic, and everywhere in between. The melting of Himalayan glaciers, for example, is occurring faster than in any other part of the world. This is why it is vital that we assess future risks by taking into account regional and local climate trends.
Lessons learned in UNDP's work on disaster reduction
The link between climate change and disaster risk reduction is one we take very seriously at the United Nations Development Programme. We represent the UN's global development network, with offices in 166 countries. As of 2006, we were operating disaster reduction programs in over 50 high risk countries with an overall disaster reduction program budget in that year of approximately $80 million. Over a decade of experience with helping countries manage disaster risks through development has taught us many lessons. These are obviously too rich and varied to be other than summarized here. Some of the key ones include:
1) Disaster risk reduction and development are inextricably linked: Recurrent, large-scale disasters and frequent localized disasters caused by the impact of natural hazards erode development gains and compromise a country’s prospects for achieving the Millennium Development Goals. According to UNDP’s 2007 Human Development Report, the number of people in developing countries affected by climate-related disasters has grown steadily from less than 50 million in 1975-1979 to more than 250 million from 2000-2004. Conversely, the process of development can have a major impact in terms of both creating and reducing disaster risks. This implies that countries must identify their levels of risk as part of setting risk management priorities. In high risk settings, disaster risk management must become an integral part of development as a key and necessary enabler for sustainability.
2) Disaster risk reduction is everyone’s business: It requires political commitment, public understanding, scientific knowledge and know-how, responsible risk sensitive development planning and practice, people-centered early warning systems and disaster response mechanisms. In other words, disaster risk reduction is multi-faceted and involves a wide range of actors. International priorities for risk reduction are outlined in the Hyogo Framework for Action, which was endorsed by 160 countries at the 2005 World Conference on Disaster Reduction. UNDP is a core member of the International Strategy for Disaster Reduction system, which promotes adoption of the Hyogo Framework.
3) Disaster reduction requires sustained engagement: Over the past 10 years, UNDP has established working relationships with relevant government counterparts, and has dedicated staff to anchor disaster risk reduction and development activities. UNDP country offices provide the foundation for this effort. In Myanmar, for example, UNDP has more than 1,700 staff in 60 field locations, at least 8 of them in the affected area. This is a huge asset for assessment and early recovery programme delivery. In 13 high disaster risk countries, UNDP has placed National Disaster Reduction Advisors who provide technical advice and support to national governments. By the end of 2009, we expect that number to double. UNDP also has a cadre of senior Regional Disaster Reduction Advisors who provide coherence to UNDP’s programme portfolio in the region, promote exchange between countries, and offer technical advice.
How the lessons are being applied to better plan for long-term climate change adaptation programming in UNDP
Despite what has been learned, the Myanmar example proves that much more needs to be done in many high risk situations to protect lives, assets and livelihoods. Climate change poses additional challenges, because it makes the past less of a guide to the future. We no longer can assume that the flood will only occur once in 50 years. Areas of frequent drought may get drier, or become wetter.
To address these challenges, within UNDP we have joined efforts to address the full spectrum of risks associated with both climate variability and change. In this joint effort, the Bureau for Crisis Prevention and Recovery brings in a disaster risk management perspective. The Bureau for Development Policy brings the perspective of addressing long-term climate change.
Jointly we have developed a common framework. The goal is to reduce climate and climate change-related risks in 35 selected high risk countries. We are seeking to align UNDP’s global, regional and national climate risk management efforts, bringing together a combined staff of some 30 UNDP experts working at all three levels. In each country UNDP will assist countries to understand the risks posed by climate historically, as well as the new risks of the future. Countries can use this information for setting risk management priorities as a means of promoting their development agenda.
We do not have all the answers. Climate change along with population growth, a changing global economy, environmental degradation and a host of other trends will pose many new challenges. What is clear is that knowing and managing the risks is the key to a sustainable future. I look forward to joining you in this quest, as success will require our joint commitment.
Thank you.
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