Chapter 1.
Development at Risk
1.4 Disaster Risk and the Millennium Development Goals: A Framework for Action
A considerable incentive
for rethinking disaster risk as an integral part of the development
process comes from the aim of achieving the goals laid out in the Millennium
Declaration. The Declaration sets forth a road map for human development
supported by 191 nations. Eight Millennium Development Goals were agreed
upon in 2000, which in turn have been broken down into 18 targets with
48 indicators for progress. Most
goals are set for achievement by 2015.
The MDGs contain
cross-cutting themes in development and disaster risk policy, each
tied to specific targets and indicators for progress. They require
international collaboration to be met. All signatory countries now
claim to be working toward these goals and donors are providing sharply
focused aid packages to support their endeavours.
The risk to development
stemming from natural disaster is recognised in the Millennium Declaration
in Section IV, entitled “Protecting Our Common Future”.Within
this section is stated the objective: “to intensify our collective
efforts to reduce the number and effects of natural and man-made disasters”.(
United Nations. 2000. United
Nations Millennium Declaration, General Assembly Resolution A/RES/55/2,
18 September 2000, p. 6.)
Natural disasters
occur when societies or communities are exposed to potentially hazardous
events, such as extremes of rainfall, temperature or wind speed or
tectonic movements, and when people are unable to absorb the impact
or recover from the hazardous impact. While it is commonplace to talk
about natural disasters, both vulnerability and hazard are conditioned
by human activities. Reducing the number and effects of natural disasters
means tackling the development challenges that lead to the accumulation
of hazard and human vulnerability that prefigure disaster.
The accumulation
of disaster risk and the unequal distribution of disaster impacts prompt
a questioning of the development paths that have been taken by countries
more or less at risk from disaster. Natural disasters destroy development
gains, but development processes themselves play a role in driving
disaster risk. To follow the example quoted earlier, when a school
built without earthquake resistance collapses during a tremor, is this
an example of disaster risk undoing development, or of inappropriate
development prefiguring disaster risk?
The MDGs direct development
planning towards priority goals. Each of these goals will interact
with disaster risk. On the surface, these goals will contribute to
a reduction of human vulnerability to natural hazard. But it is the
processes undertaken in meeting each goal that will determine the extent
to which disaster risk is reduced. Building schools is not enough for
a sustainable and long-term development gain, schools exposed to natural
hazard must be disaster resistant, and people using them need to prepare
for disaster.
This implies a two-way
relationship between the kind of development planning that can lead
to the achievement of the MDGs and the development processes that are
currently associated with an accumulation of disaster risk. Unless
disaster risk considerations are factored into all development related
to the MDGs, well-meaning efforts to increase social and economic development
might inadvertently increase disaster risk. At the same time, the realisation
of existing (let alone future) levels of risk will slow down and undermine
efforts to achieve the MDGs.
The primary responsibility
for achieving MDGs lies with individual countries. To date, 29
countries have published Millennium Development Goal Reports.
BOX 1.2 TH MILLENNIUM DEVELOPMENT GOALS AND DISASTER RISK REDUCTION
The Millennium Declaration contains a statement of values and objectives for
the international agenda for the XXI century. Eight Millennium Development
Goals, based on the Millennium Declaration, have been approved by the General
Assembly as part of a road map for the implementation of the Declaration. These
are set out below and each one’s relationship with disaster risk is highlighted.
1.
Eradicating extreme poverty and hunger |
i) To halve
the proportion of people whose income is less than one dollar
a day
ii) To halve the number of people who suffer from hunger
The DRI proves
through statistical analysis a long-held theoretical position
that human vulnerability to natural hazards and income poverty
are largely co-dependent. At the national level, reducing disaster
risk is often contingent upon alleviating poverty and vice
versa. Exposure to hazards can play a critical role in places
where poverty expresses itself as a lack of entitlement to
acquire basic nutritional needs. Hunger reduces individual
capacity to cope with disaster stress and shock and disasters
can destroy assets leading to hunger. The economic and political
underpinnings of hunger, particularly within complex political
emergencies, are well documented. (Sen, Amartya. 2000. Development
as Freedom, New York, Random House.)
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2.
Achieving universal primary education |
i) To ensure
that children everywhere — boys and girls alike — complete
a full course of primary education
Educational
attainment is a fundamental determinant of human vulnerability
and marginalisation. Basic literacy and numeric skills enable
individuals to become more engaged in their society. Broadening
participation in development decision-making is a central tenet
of disaster risk reduction.
The destruction of schools is one very direct way in which disasters
can inhibit educational attainment, but perhaps more important is the
drain on household resources that slow and sudden-onset disasters inflict.
Households frequently have to make difficult decisions on expending resources
on survival and coping with
poverty, or on investments (such as education and health care) to alleviate
human vulnerability and enhance longer-term development prospects. Unfortunately,
for the poorest, there is no choice and human vulnerability deepens as
resources are targeted towards survival.
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3.
Promoting gender equality and empowering women |
i) Eliminate
gender disparities in primary and secondary education, preferably
by 2005, and in all levels by 2015.
Facilitating
the participation of women and girls in the development process,
including efforts to reduce disaster risk, is a key priority.
Women across the world play critical roles in the shaping of
risks in development. In some contexts, women may be more exposed
to and vulnerable to hazards. For example, those with responsibilities
in the household may be more exposed to risk due to unsafe
building and from local hazards stemming from inadequate basic
services or exposure to smoke from cooking fuel. At the same
time, women are often more likely than men to participate in
communal actions to reduce risk and enhance development. Orienting
disaster risk policy so that it builds on the social capital
represented by women can enable a more informed development
policy. As criticisms of participatory development indicate,
achieving such a model will not be easy, but best practice
does exist to point the way.
When women
face barriers in participating at higher levels of decision-making,
this severely limits the
skills and knowledge available for sustainable development and risk reduction.
Overcoming disparities in access to education is a fundamental component
of the disaster risk reduction agenda.
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4.
Reducing child mortality |
i) Reduce
infant and under-five mortality rates by two-thirds
Children
under five years of age are particularly vulnerable to the
impacts of environmental hazards ranging from the everyday
risks of inadequate sanitation and drinking water to death
and injury following catastrophic events and their aftermath.
The loss of care givers and household income earners and the
stress of displacement can have especially heavy tolls on the
psychological and physical health of children under five years
of age. Policies aiming to support sustainable development
paths by reducing child mortality need to build in strategies
to limit or reduce disaster risk.
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5.
Improving maternal health |
i) Reduce
maternal mortality ratios by three-quarters
As environmental
hazard stress or shock erodes the savings and capacities of
households and families, marginal people within these social
groups are most at risk. In many cases it is women and girls
or the aged who have least entitlement to household or family
assets. Maternal health is a strategic indicator of intra-
and inter-household equality. Reducing drains on household
assets through risk reduction will contribute to enhancing
maternal health. More direct measures through investment in
education and health will similarly contribute to household
resilience as maternal health indicators improve. Children
have already been identified as a high-risk group and maternal
health plays a part in shaping the care received by young children.
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6.
Combating HIV/AIDS, malaria and other diseases |
i) Halt and
begin to reverse the spread of HIV/AIDS
ii) Halt and begin to reverse the incidence of malaria and other major
diseases
The interactions
between epidemiological status and human vulnerability to subsequent
stresses and shocks are well documented. For example, rural
populations affected by HIV/AIDS are less able to cope with
the stress of drought because of a shortage of labour. Individuals
living with chronic terminal diseases are more susceptible
to the physiological stress of hunger. For diseases transmitted
through vectors, there is a risk of epidemic following floods
or drought, similarly the destruction of drinking water, sanitation
and health care infrastructure in catastrophic events can increase
the risk of disease.
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7.
Ensuring environmental sustainability |
i) Integrate
the principles of sustainable development into country policies
and programmes and reverse the loss of environmental resources
ii) Halve the proportion of people without sustainable safe drinking
water
iii) By 2020, achieve a significant improvement in the lives of at least
100 million slum dwellers
Major disasters,
or the accumulation of risk from regular and persistent but
smaller events, can wipe out any hope of sustainable urban
or rural environments. Again, the equation works both ways.
Increasing destruction due to landslides, floods and other
disasters related to environmental and land-use patterns are
a clear signal that massive challenges remain in achieving
this MDG. The target of achieving a significant improvement
in the lives of at least 100 million slum dwellers by the year
2020 will be impossible without developing policies to confront
their currently high risk from earthquake, tropical cyclones,
flooding and drought.
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8.
Developing a global partnership for development |
i) Address
the least developed countries’ special needs and the special
needs of landlocked and small island developing states
ii) Deal comprehensively with developing countries’ debt problems
iii) Develop decent and productive work for youth
iv) In cooperation with pharmaceutical companies, provide access to affordable
essential drugs in developing countries
v) In cooperation with the private sector, make available the benefits
of new technologies —especially information and communications
technologies
Efforts to
enhance sustainable development and reduce human vulnerability
to natural hazard are hampered by national debt burdens, terms
of international trade, the high price of key drugs, lack of
access to new technology and new hazards associated with global
climate change.
Difficulties
in reaching international agreement on a range of issues, for
example at the World Summit on Sustainable Development in Johannesburg
in 2002 and the World Trade Organisation meeting at Cancun
in 2003, highlight the efforts needed to build a global partnership
for development that might contribute to disaster risk reduction.
Examples
of progress at the international level include cooperation
between states at high risk from natural disaster that has
increased their negotiating power. In the case of small island
developing states, the Association of Small Island States has
been active in climate change talks. Within the machinery of
international organisations, the ISDR
Task-Force constitutes a good example of global partnership
for development and disaster risk reduction.
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