Canada and Agenda
21Canada and Agenda
21
CHAPTER 12
Managing Fragile Ecosystems: Combatting Desertification and Drought
-- Steve Thompson --
Steve Thompson is the Senior Fellow at the National Round Table on the Environment and the Economy (NRTEE). The views expressed in this chapter are those of the author who received input from a number of other stakeholders, and do not necessarily represent the views of the NRTEE, the Government of Canada, or the Projet de Société.
THE NATURE OF THE PROBLEM
Desertification describes land degradation in arid, semi-arid and dry sub-humid areas. This degradation results from climatic variations and human activities.
One quarter of the total land area of the world is affected by desertification. The most obvious impact of such desertification are degraded rangelands and declines in food production. Over 70% of rangelands, almost 50% of dryland areas where rained crops are grown, and 30% of irrigated croplands are degraded as a result of desertification.
Such land degradation leads in many cases to poverty and starvation. If such degradation is to be controlled, land use practices around farming and grazing must be made environmentally sound, socially acceptable and economically feasible.
In Canada, drought and desertification is a sub-regional issue. It affects are limited primarily to parts of British Columbia, Alberta, Saskatchewan and Manitoba.
PROGRAM AREAS AND OBJECTIVES
This chapter identifies six major program areas, each with a number of objectives. These are briefly outlined below.
(1) Strengthen knowledge base and information and monitoring systems.
promote the establishment of national environmental information coordination centres on desertification and drought;
strengthen the regional and global systematic observation networks in order to identify priority areas for action; and
establish permanent systems both nationally and internationally to monitor desertification and land degradation.
(2) Combat land degradation.
ensure appropriate management of existing natural formations (including forests) in areas not yet affected by desertification for the conservation of biodiversity, watershed protection , sustainability of their production , agricultural development, etc.;
rehabilitate moderately desertified drylands for productive use for agropastoral/agroforestry purposes through soil and water conservation;
increase vegetation cover and biotic resources management practices in regions prone to desertification through afforestation/reforestation, agroforestry, community forestry etc.; and
reduce woodfuel consumption through more efficient utilization, conservation and use of other sources of energy including alternative sources.
(3)Develop integrated development programs.
improve the capacity of communities to take charge of the development and management of their land resources on a socially equitable and ecologically sound basis;
achieve greater productivity within an approved program for conservation and use based on an integrated approach to rural development; and
provide opportunities for alternative livelihoods.
(4)Integrate anti-desertification programs into national development plans.
develop and integrate into national development plans strategic planning frameworks for the development and protection of natural resources in dryland areas;
initiate a long-term process for implementing and monitoring natural resource management strategies; and
strengthen regional and international cooperation for combatting desertification.
(5)Develop drought preparedness and drought-relief schemes.
develop national strategies for drought preparedness for the short and long term;
improve the flow of early-warning information about drought to decision makers and land users; and
integrate drought-relief schemes into national and regional development planning.
(6)Promote popular participation and environmental education in matters related to desertification.
increase public awareness and knowledge concerning desertification and drought;
promote true partnerships between governments, NGOs and land users in the planning and execution of development projects;
ensure partners understand one another's views and needs through the use of training, open dialogue etc.; and
support local communities in their own efforts to combat desertification, drawing on local knowledge, and ensure participation of women and indigenous populations.
This chapter also refers to a need for a Convention on Desertification. Such a Convention, originally proposed by the African nations, would be a legally-binding international document. It should be noted that, post-UNCED, initial negotiations for such a convention have proceeded through the International Negotiating Committee on a Desertification Convention.
CANADIAN POSITIONS AT RIO
1. Official Canadian Position
Canadian objectives at UNCED for Chapter 12 included:
(1)to help translate international policies and programmes into action to achieve world-wide sustainable and ecologically sound agriculture;
(2)to improve quantitative and qualitative information about soil loss and desertification;
(3)to support and encourage an integrated approach to land management including secure land tenure and the active participation of local farmers, foresters, and indigenous peoples.
(4)to work to build a consensus among African countries concerned with desertification and donor nations at the UNCED conference which will lead to more effective action in combatting desertification and drought, particularly in Africa
(5)to ensure that any recommendation for action within a call for a desertification convention given priority to combatting desertification in Africa.
2. Non-Governmental Organizations
Canadian NGOs expressed the views that:
desertification must be set in the larger North-South context of trade, debt and Northern consumption.
deserts are formed largely by land abuse -- something which is influenced in large measure by current unsustainable land tenure systems in Africa, Asia and South America. However, moves toward a sustainable agriculture in these regions can only be implemented with financial resources. Such financial assistance must be adequately addressed. Canadian NGOs proposed, amongst other ideas, that these financial resources could be debt forgiveness; peace dividends from demilitarization; and restructuring of the current flow of international financial resources into more effective and sustainable ways.
Northern patterns of food consumption and pricing need review, with fair pricing for agricultural commodities, which would include components for environmental and social costs.
Current international trade policies destabilize agricultural production systems in arid and semi-arid regions. In addition, international trade can have a negative impact on the quality of land where high potential land is taken from indigenous peoples and local communities in favour of usage by export-producing countries.
governments should ensure that all land tenure systems are well defined and should include equitable rights to small-scale farmers, women and indigenous groups
accommodations need to be made for diverse land tenure systems within the legal structures of concerned states.
there needs to be commitment by governments to implement national participatory action research programmes to determine the relationship(s) between land tenure systems and the desertification process.
In particular, Canadian NGOs noted that measures to combat desertification are ineffective given that the governments of affected countries cannot generate the financial means to alleviate desertification problems due to the burden of international debt and the deteriorating terms of trade for agricultural commodities.
3. Business and Industry
Canadian business and industry's position on this chapter supported the Government's position with the concern expressed for expanded time frames to integrate.
4. Indigenous
Indigenous People recommend that the involvement of Indigenous Peoples and Indigenous knowledge is essential to mitigating and/or maintaining areas that have been exposed to unsustainable land use, in particular the expansion of livestock grazing.
In areas affected by drought Nation states and NGOs should support Indigenous Peoples in resettling while maintaining ties with traditional homelands. As well indigenous knowledge should be consulted and employed to promote water and soil conservation for the alleviation of problems associated with drought.
COMMITMENTS MADE BY CANADIANS
1. Legally-Binding Documents
None were forthcoming out of UNCED. However, the UNCED process has resulted in international negotiations for a Convention on Desertification. Such a Convention will be legally-binding once it is negotiated, approved and signed by countries.
2. Political Pronouncements
On June 12, 1992, at the Earth Summit, Prime Minister Mulroney announced at the Earth Summit in Rio de Janeiro that Canada would provide a total of $50 million in humanitarian assistance to the victims of the drought in southern Africa (Canada had pledged an interim amount of $30 million the month before).
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. Of these treaties, one addressed the issues discussed in Chapter 12.
Treaty Regarding Arid and Semi-Arid Zones
In this treaty, arid and semi-arid zones are described as having considerable potential. They have suffered an accelerated process of social and environmental degradation principally because of:
the adoption of the "Green Revolution" technology package, especially irrigated agriculture;
the construction of large dams, resulting in permanent flooding of land and relocation of people;
refusal of emergent social and economic powers to accept traditional systems of production;
population growth causing over exploitation of natural resources;
unequal access to natural resources.
A number of principles are adopted in the treaty, along with a plan of action. Some of the principles include:
if approaches to development are socially just, ecologically sustainable, culturally appropriate and based on a holistic vision of science and nature, then arid and semi-arid zones can provide a good quality of life to those living there;
the effective participation of NGOs, of social movements and of the populations directly involved is indispensable in all stages of sustainable development;
to support sustainable development, the economic incorporation of arid and semi-arid zones should:
- seek food self-sufficiency on a regional scale
- give priority to the exchange of local products
- avoid the flight of resources that continues to reproduce the
same social, economic and environmental conditions;
a redefinition of economic indicators is required to redirect the political economy of these zones towards food production destined for the needs of the poor populations.
NGOs committed themselves to striving to make governments adopt some of the following measures:
development of public education;
democratization of government information on the realities of the social and environmental situation;
democratization of government programs to facilitate access, use and conservation of natural resources to favour peasants and traditional indigenous communities;
achievement of agrarian reform in countries where land ownership is in the hands of the few;
adoption of the principal that genetic resources are the cultural inheritance of the peasants and the traditional, indigenous and tribal communities;
reorientation of agro-industrial politics in order to support small-scale production generated by the popular sectors;
creation of a fund to support the restoration of natural resources in degraded areas in order to make the activities of local populations viable.
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. 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.
A number of statements are made within this Declaration which relate to "Lands and Territories". Many of these would have an impact on problems of soil erosion and desertification. For example under Article 35, it its stated that:
"where Indigenous territories have been degraded, resources must be made available to restore them. The recuperation of those affected territories is the duty of the respective jurisdiction in all nation states which can not be delayed. Within this process of recuperation the compensation for the historical ecological debt must be taken into account. Nation states must revise in depth their agrarian, mining and forestry policies".
As another example Article 44 states that "Indigenous Peoples should encourage their Peoples to cultivate their own traditional forms of products rather than to use imported exotic crops which do not benefit local Peoples".
DEFICIENCIES, GAPS AND CONSTRAINTS WITHIN CHAPTER 12
A number of commentators note that the chapter's definition of desertification is very broad, thus making the range of possible solutions very broad too - to the point of being unfocused. The extent of the world's fragile land systems is indeed very broad, and this chapter might more profitably concentrate on those cases in Africa, the Middle East, Asia and South America where the end result of land abuse will be deserts. A recurring phrase in Chapter 12 invites "governments at the appropriate level and with the support of the relevant international and regional organizations" to act. This should be widened to recognize the contributions made by many NGOs already operating in the area. Lastly, the emphasis of the chapter is heavily on cure rather than prevention, while in fact much research is still needed as to underlying causes and prevention.
COMPARISON BETWEEN CURRENT CANADIAN GOVERNMENT POLICY AND COMMITMENTS MADE
The Canadian government has recently cut back some of its Canadian International Development Agency (CIDA) funding to the poorer countries of Africa - and a number of these countries fall within the world's drought zones. The government has, however, agreed to African calls for a global convention on desertification. The government views new funding from developed countries as unnecessary, as sufficient resources are available in developing countries. The first substantive session of the negotiating committee was held in Nairobi at the end of May, 1993. By the end of the session delegates felt that desertification and drought were global problems. Most countries agreed that socio-economic factors were related to desertification, but developed countries argued that trade, debt etc. would be well discussed in other fora.
CANADIAN ACTIVITIES EVOLVING THROUGH THE SUSTAINABILITY PROCESS
The Canadian International Development Agency (CIDA) has, over the years, supported a number of projects to improve agriculture in the drier parts of the world. Its recently concluded project to develop a research capability in the barani (rain fed) areas of Pakistan is one good example. The Manitoba Marquis project is a similar example of the work of several Canadian NGOs in drought stricken areas. Two other organizations involved in the field of desertification are the International Institute for Sustainable Development (IISD), publisher of Earth Negotiation Bulletin, and the International Development Research Centre (IDRC) currently planning a desertification conference in January 1994.
The Marquis Project in Manitoba is one example of the work of Canadian NGOs who arc interested in the issues of desertification and sustainable agriculture. The Marquis Project has developed several educational programs, including annual agricultural conferences, speaking tours, development of a resource centre and other public community projects.
Recently the Agricultural Institute of Canada (AIC) has debated a proposal that it offer expertise as part of an international consortium on drought preparedness. The AIC is one of about 50 Canadian voluntary agencies working on agricultural development projects.
OTHER RELEVANT INTERNATIONAL SUSTAINABILITY-RELATED FORA
The Centre for Our Common Future (CCF)
The CCF was initiated as a focal point for follow-up activities on Our Common Future, the report of the World Commission on Environment and Development. One of the issues of concern for this organization is desertification which is given full coverage in their newsletter, The Network.
UN Commission on Sustainable Development
Among other contributions to the sustainable development discussion, a Canadian initiative is preparing materials on trade and sustainable development to enhance the North-South dialogue on desertification.
United Nations Conference on Desertification (INCD)
There is ongoing work on an Intergovernmental Committee for a Convention to Combat Desertification. This conference, will use Chapter 12 of Agenda 21 as a point of departure. The first conference was held May 24-June 3 in Nairobi, Kenya and followed up by a second meeting in Geneva in September. With several more meetings scheduled, the final convention of INCD is slated to be ready in June 1994.
A NGO meeting, assisted by INCD and several governments, to enlarge the role of NGOs in the INCD process and develop work-plans for participating in negotiations was held in August in Bamako, Mali. One hundred participants representing Africa, Asia, Latin America, Europe, Australia and North America were present.
United Nations Environment Program (UNEP)
UNEP coordinates and stimulates environmental action within the United Nations system.
Department of Policy Coordination and Sustainable Development (DPCSD) has established its head office in New York with over one hundred employees. Through its Geneva office, monitoring of work relevant to climate change and desertification will take place.
SUGGESTED READINGS AND INFORMATION SOURCES
Dumanski, J, D.R. Coote. G. Luciuk and C Lok. "Soil Conservation in Canada", in Journal of Soil and Water Conservation, 41, pages 204-210.
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).
. The State of Canada's Environment, (Ottawa: Environment Canada, 1991).
International Development Research Centre (IDRC). Agenda 21: Abstracts, Reviews, and Commentaries, (Theodora Carroll-Foster, editor), (Ottawa: IDRC, 1993).
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:
Agricultural Institute of Canada (AIC), #907, 151 Slater Street, Ottawa, Ontario, K1P 5H4, tel (613) 232-9459, fax (613) 594-5190.
Centre for our Common Future, Palais Wilson, 52 Rue des P…quis, CH-1201, Geneva, Switzerland, tel (41 22) 737-7171 fax (41 22) 738-5046.
Intergovernmental Committee for a Convention to Combat Desertification Secretariat, BP 76, CH-1219, Chƒtelaine, Geneva, Switzerland, tel (41 22) 797-5641, fax (41 22) 797-5693.
International Development Research Centre (IDRC), 250 Albert Street, Ottawa, Ontario, K1P 6M1, tel (613) 236-6163, fax (613) 238-7230.
International Institute for Sustainable Development, 161 Portage Avenue East, Winnipeg, Manitoba, R3B 0Y4, tel (204) 958-7716, fax (204) 958-7710.
United Nations - Centre for Science and Technology for Development (CSTD), One United Nations Plaza, New York, New York, 10017, USA, tel (212) 963-8600, fax (212) 963-4116.
United Nations - Economic and Social Commission for Asia and the Pacific (ESCAP), United Nations Building, Rajdamnern Avenue, Bangkok, 10200, Thailand, tel (66 2) 2829161-200, fax (66 2) 2829602.
United Nations Environment Programme (UNEP), P.O. Box 30552, Nairobi, Kenya, tel (254 2) 333930, fax (254 2) 520711.
United Nations Food and Agricultural Organization
Cite as: Projet de société: Canada and Agenda 21.Winnipeg: IISD, 1995. Online. Internet. http://iisd.ca/worldsd/canada/projet/c12.htm.
