Canada and Agenda
21Canada and Agenda
21
CHAPTER 3
COMBATING POVERTY
-- Catherine O'Brien --
Catherine O'Brien is the Program Co-oridinator for the Social Justice Committee of Montreal which coordinates the Alterntive Treaty on Debt. The views expressed in this chapter are those of the author who has received input from a number of other stakeholders and do not necessarily represent this views of the Projet de société.
THE NATURE OF THE PROBLEM
Poverty is a devastating condition that affects an enormous percentage of the earth's population. Sustainability cannot be achieved without eradicating poverty. However, the causes of poverty have their roots in both the international and national domains resulting in diminished access to economic social, political options by the poor. Therefore, efforts to empower poor communitiesto regain access to these options and transform oppressive systems which sustain poverty will require a multi-sectoral, multi-dimensional approach.
While there is no single solution to eradicate poverty there are factors which sustain poverty on a global scale - the unsustainable burden of debt, terms of trade that favour industrialized countries, and production and consumption patterns that do not meet the basic needs of all people. Within countries, as well, there are similar patterns of marginalization, oppression, inequity in the distribution of resources, and limited democratic participation in national development strategies.
Attempts to alleviate poverty have proven that addressing the symptoms without addressing the causes of poverty will not work. Poverty is increasing along with environmental degradation. Poverty eradication and sustainability will be achieved through community based development strategies, transformation of national and international policies that empede successful development efforts, and mechanisms for communities and governments to share in policy formation. In addition, women, indigenous people, and youth must be fully integrated into the development of policies at the community, national and international levels.
PROGRAM AREAS AND OBJECTIVES
The long term objective of Chapter 3 is to enable all people to achieve sustainable livelihoods by providing an integrating factor that allows policies to address issues of development, sustainable resource management and poverty eradication simultaneously.
There are five objectives in this program area:
1)To provide all persons urgently with the opportunity to earn a sustainable living;
2)To implement policies and strategies that promote adequate levels of funding and focus on integrated human development policies, including income generation, increased local control of resources, local institution-strengthening and capacity-building and greater involvement of non-governmental organizations and local levels of government as delivery mechanisms;
3)To develop for all poverty-stricken areas, integrated strategies and programs of sound and sustainable management of the environment, resource mobilization, poverty eradication and alleviation, employment and income generation;
4)To create a focus in national development plans and budgets on investment in human capital, with special policies and programs directed at rural areas, the urban poor, women and children; and
5)To identify and eliminate policies and strategies (business, trade) that promote inequalities and perpetuate poverty.
CANADIAN POSITIONS AT RIO
1.Official Canadian Position
At UNCED, Canada had three main objectives regarding combating poverty:
1)To seek to obtain national and international commitment for action on providing sustainable livelihoods for the poor through national and international policies which address issues of equity and access to and control over productive resources, goods and services;
2)To seek support for an international poverty focal point within an existing institution which would be part of an UNCED follow-up arrangement to track anti-poverty commitments and would act as a clearinghouse for successful anti-poverty programs; and
3)To ensure that poverty stays front and centre of the international agenda and that pressure be put on national governments to continue to address the issue of poverty within their respective boundaries.
2.Non-Governmental Organizations
Many NGOs make a distinction between poverty eradication and poverty alleviation. They believe that poverty will not be eradicated until the systemic causes of poverty are tackled. They view most anti-poverty measures as poverty alleviation since they address the symptoms -- hunger, unemployment, sanitation. Both the symptoms and the causes need to be resolved.
NGOs were deeply concerned that poverty was not a central issue for UNCED until NGOs asked for it to be put on the agenda. They advocated for concrete commitments that would demonstrate the recognition of the root causes of poverty and a genuine effort by the international community to address these issues.
Consequently, NGOs stressed the need for a massive reduction of the debts of developing countries. They lobbied for fairer terms of trade and stressed that a global export led economy will continue to impoverish countries of the South, despite the richness of their resources.
In addition, NGOs cited the need for firm commitments to reach the minimum level of 0.7% overseas development assistance (ODA) by countries of the North. ODA being an interim option until the present unsustainable drain of resources from the South to North is terminated.
NGOs stated repeatedly that a number of factors which impact on poverty were not being addressed at UNCED. Militarization, the control of transnational corporations, and human rights are some of these factors.
3.Business and Industry
Business and Industry provided no specific position with reference to this chapter.
4.Indigenous
Indigenous Peoples defined poverty as the loss of land, culture and language. In the world's "materialistic" terms Indigenous Peoples are the poorest of the poor; whereas Indigenous Peoples living in their traditional ways consider they are living abundantly off the land.
COMMITMENTS MADE BY CANADIANS
1.Legally-Binding Documents
None.
2.Political Pronouncements
Prime Minister Mulroney committed to exchange $145 million ODA debt of Latin American countries for sustainable development projects.
During his disclosure of the National Statement of Canada on June 11, 1992 at UNCED, then Minister of the Environment, Jean Charest, stated, "In Canada, we have heard the voices from developing countries describing their most pressing needs. The relationship between poverty and degradation of the environment is evident. Addressing it needs new commitments and much greater effort. We must break the vicious downward spiral by which environmental setbacks make poor people even poorer and force them to plunder their environmental capital."
3.Alternative NGO Treaties and Kari-Oca
NGO Treaties
At the same time as UNCED, two major international events were also held at Rio: the Global Forum and the Kari-Oca Conference. At the International Non-Governmental Organization Forum (Global Forum), 3,100 NGOs discussed a number of matters related to environment and development and produced a parallel set of documents: an NGO Earth Charter and 38 Alternative NGO Treaties. Canadian NGOs played a significant role in developing the Treaties and took a lead in coordinating their dissemination.
Many of the Alternative NGO Treaties outline pledges and action plans that would impact on poverty. Aside from the Poverty Treaty, there are also treaties on Debt, Trade, Alternative Economic Models, Militarism, Transnational Corporations, Consumption and Lifestyle, Women and Sustainable Development, Sustainable Agriculture, Food Security, Energy, and Urbanization.
Internationally, NGOs point to differences between Sustainable Development and Sustainability. They see the Alternative Treaties as one mechanism for promoting sustainability, based on sustainable lifestyles and sustainable livelihoods. Many NGOs believed that Agenda 21 dealt with symptoms and did not deal with the systemic causes of environment and development problems. The Alternative Economic Models Treaty claims that the Brundtland Model of sustainable development will perpetuate impoverishment and environmental degradation.
The NGO treaties point out that current models of development are based on the exploitation of people and resources and cite the net transfer of resources from South to North as an example. The current development path will continue to marginalize more and more people and degrade the environment. Therefore, NGOS pledged to support alternative development models which are rooted in democratic participation and equity.
Kari-Oca
The second alternative forum at Rio was the International Conference on Territory, Environment and Development (the Kari-Oca Conference). The Kari-Oca Conference was held immediately prior to UNCED by and for the world's indigenous peoples. Canada's IISD co-sponsored the event to which more than 650 indigenous representatives participated in meetings and cultural events during the conference. They developed and adopted a 109-point Indigenous Peoples Earth Charter.
Indigenous peoples state that the concept of development has meant the destruction of their lands. They reject the current definition of development.
Non-indigenous peoples have exploited native lands and resources, resulting in impoverishment. "In many cases indigenous peoples are exterminated in the name of a development program". Indigenous peoples want their right to consent to projects in their territories recognized. They also protest the military use of their lands.
To encourage self-reliance, indigenous peoples encourage the cultivation of traditional crops for food rather than to use imported, exotic crops that do not benefit local communities. In addition, they state that development projects must be based on the principles of self-determination and self-management.
With respect to industrial products, traditional activities such as making pottery, are being destroyed by the importation of industrial goods, thereby impoverishing local peoples. This is simply one example of the cultural impoverishment that indigenous peoples reject.
DEFICIENCIES, GAPS AND CONSTRAINTS WITHIN CHAPTER 3
While there are many points of convergence between this chapter of Agenda 21 and the women's, NGO, youth and indigenous positions - emphasis on community-based development, focus on sustainable livelihoods and empowerment of sectors of society that are marginalized - there are a number of critical points of divergence.
The chapter is noticeably weak on the systemic factors that perpetuate poverty. In addition, terms such as "poverty-stricken areas" imply a perception of poverty as a nuatural state that is internally generated.
There are many useful recommendations for action but no concrete commitments such as cancelling the debts of the "poorest" developing countries, or other innovative mechanisms of financing poverty eradication programs, and the monitoring of arms trading from north to south which fuel wars and armed conflicts in the south.
Finally, given the magnitude of human suffering that millions of people endure it seems as if we have not done justice to them in this chapter. Partly, it is terms such as "poverty" which tend to sterilize the oppression that permits impoverishment. Partly, it is the sense that we have accepted the existence of poverty and will aim to eradicate it.
Mostly, it is the fact that the voices of the poor are absent in a chapter on combatting poverty.
COMPARISON BETWEEN CURRENT CANADIAN GOVERNMENT POLICY AND COMMITMENTS MADE
Since no concrete commitments were made in this chapter, a comparison of current Canadian government policy and commitments made must take into account other related commitments.
The Canadian government has voiced its commitment to reaching the 0.7% of GNP figure for ODA while present ODA levels are .42% or .5% of GNP, depending on whose figures are used. In 1993 the government rolled back its commitment to increasing ODA.
Canada's International Development Agency (CIDA) has spent considerable effort in policy development. It has recognized the significance of integrating human rights, the environment and women into its development policies. Critics of CIDA claim that their policies are quite good but are not carried through the process of implementation.
Canada has played a leadership role in advocating debt reduction. Prime Minister Mulroney's offer to exchange $145 million of ODA debt for sustainable development projects was certainly made with the best of intentions. However, the majority of Latin American NGOs are opposed to debt conversion measures until the debts that they believe are illegal or fraudulent have been identified. (NGO Debt Treaty).
Many Canadians are concerned about the North America Free Trade Agreement. They raise the issue that we are being locked into trade agreements that lead to the misuse of resources - human, financial and material. We now have agreements that do not place limits on subsidies for military production, while there are limits on subsidies for food production.
Internationally, Canada has an image as a wealthy country. The impoverishment that exists within our own borders is not widely recognized. A sustainability plan for Canada will need to take account of the factors that continue to marginalize increasing numbers of Canadians. The data collected by IISD for the Projet de Soci‚t‚ on sustainable development initiatives indicate that initiatives related to poverty are significantly fewer compared to other which point to the lack of practical committment to poverty eradication. Anti-poverty groups are particularly concerned with the unsustainability of policies relating to employment and job creation.
CANADIAN ACTIVITIES EVOLVING THROUGH THE SUSTAINABILITY PROCESS
Canadians have played a dynamic role in the sustainability process. The Canadian government facilitated the participation of many sectors during the preparations for UNCED. There were representatives from business, NGOS, indigenous people, women's groups, labour, youth, etc. on the Canadian delegations. Canada repeatedly supported the contributions of these sectors in the UNCED documents.
Canada has also figured quite strongly in the Alternative Treaty Process. Seven treaty coordinators are Canadians. Both CIDA and the Canadian Council for International Cooperation (CCIC) are supporting the expansion of the Alternative Treaty networks.
Women's groups have been extremely active. The Women and Environments Education and Development (WEED) project is involved in building Women's Networks for Sustainability.
As well, the International Institute for Sustainable Development (IISD) has collaborated with the Indigenous Peoples in Canada and elsewhere in articulating their perspectives on poverty and sustainable development. These perspectives are reflected i nthe publication "Our Responsibility to the Seventh Generation". Also IISD will soon release a paper entitled, "Impoverishment and Sustainable Development: A Systems Perspective", which examinees poverty approaches and processes and outlines a systems approach to poverty.
The Liberal government is examining RESO, a community economic and social development model which originated in poor neighbourhoods of Montreal. The RESO has facilitated the collaboration of business, unions, community groups and various levels of government to promote an integrated approach to community development. This model is being considered for application throughout Canada.
SUGGESTED READINGS AND INFORMATION SOURCES
Clarkson, Linda, Vern Morrissette and Gabrieal Regallet. Our Responsibility to the Sevnth Generation, (Winnipeg: IISD, 1992).
Goodland, Robert and Herman Daly. Poverty Alleviation is Essential for Environmental Sustainability, World Bank, Environmental Department Divisional Working Paper 1993-42, (Washington, D.C.: World Bank, Environmental Division, April 1993).
Government of Canada. Canada's Green Plan, (Ottawa: Environment Canada, 1990).
. Canada's Green Plan and the Earth Summit, (Ottawa: Environment Canada, 1992).
. Canada's National Report: United Nations Conference on Environment and Development Brazil, June 1992, (Ottawa: Environment Canada, 1991).
International Development Research Centre (IDRC). Agenda 21: Abstracts, Reviews, and Commentaries, (Theodora Carroll-Foster, editor), (Ottawa: IDRC, 1993).
International Fund for Agricultural Development, The State of World Rural Poverty
Johnson, P. Stanley. The Earth Summitt: The United Nations Conference on Environment and Development (UNCED), (Boston: Graham & Trotman/Martinus Nijhoff).
Keating, Michael. Agenda for Change: A Plain Language Version of Agenda 21 and the Other Rio Agreements, (Geneva: Centre for Our Common Future, 1993).
World Commission on Environment and Development. Our Common Future, (Oxford: Oxford University Press, 1987).
Information Sources:
Alberta Teachers Association, 11010-142nd Street, NoW., Edmonton, Alberta, T5N 2R1.
All Native Circle Conference, 18-399 Berry Street, Winnipeg, Manitoba, R3J 1N6.
The Body Shop (National Campaign on Child Poverty), 15 Prince Andrew Place, Don Mills, Ontario, M3C 2H2.
Calmeadow Charitable Foundation, 4 King Street,West, Suite 300, Toronto, Ontario, M5H 1B6.
Canadian Council for International Cooperation (CCIC), 1 Nicholas Street, Suite Ottawa, Ontario, K1N 7B7, tel (613) fax (613) .
International Development Research Centre,
International Institute for Sustainable Development (IISD), 161 Portage Avenue East, 6th Floor, Winnipeg, Manitoba, R3B 0Y4, tel (204) 958-7700, fax (204) 958-7710.
North South Institute
Social Planning Council of Winnipeg, 412 McDermot, Winnipeg, Manitoba, R3A 0A9.
Women and Environments Education and Development (WEED), 736 Bathurst Street, Toronto, Ontario, M5S 2R4.
Cite as: Projet de société: Canada and Agenda 21.Winnipeg: IISD, 1995. Online. Internet. http://iisd.ca/worldsd/canada/projet/c03.htm.
