Transcript Slide 1

Urban governance of
integrated disaster risk
management and climate
change adaptation
CLUVA – 2 Annual Meeting
Copenhagen 12th-15th
November 2012
Trond Vedeld
17/07/2015
Trond Vedeld
Senior development researcher
1
Objectives of WP3.1
• Toinvestigate the extent to which disaster risk
management (DRM) and climate change
adaptation (CCA) is integrated into existing
urban planning and governance systems
• Implications for how DRM & CCA is actually
implemented
• To provide recommendations on better
integration of DRM/CCA in urban planning and
government/governance system
WP3.1 - Urban governance
– deliverables
• D3.1 Report on planning system and
government structure in 2 case cities
– Dar es Salaam and Saint-Louis
• D3.2 Recommendations of how climate change
can be better integrated in the planning and
government system
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Slide 3
Basic approach
1. Explore the governance and government structure and
division of responsibility for climate change adaptation
and disaster risk management between state and
municipality and how various policy instruments are
applied
Cordination, decentralised organisation, law/regulation, finance,
accountability, participation
2. Focus on the interface of CCA/DRM in key policy fields;
- urban planning (framing, scoping, mobilizing - spatial planning)
- flood risk management/storm water mngmt
- water and sanitation etc
3. Role of the municipality – city wide
4. Role of local ward/quartier & citizens – local case study
Methodology
• Combination of document studies, review of literature, data
input from other CLUVA activities, participatory assessments,
interviews with key informants
• For each policy area; actors, interactions, practices, arenas and
multiple levels of governance and constraining factors
• Draw upon different strains of literature
• Attempt to do process-tracing within each of the cases
– Causal chain account of how various conditions and variables interacted
over time to produce current patterns of cooperation
• Validation of results through interaction with key stakeholders
and CLUVA colleagues
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In-depth governance analysis
through two PhD studies
• Dar es Salaam: Urban Land Use Planning and
Governance for Climate Change Resilience: Land Use
Development Control in Dar es Salaam City
– PhD cand. Clara Kweka-Msale
• Saint Louis: Integration of Water in Urban Governance:
Analysis of Systems of Decision Making in the
Municipality of Saint Louis
– PhD cand. Mareme Ndour
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Governance analysis of DRM & CCA
• Governance = process of steering or stewardship of the
formal/informal rules that regulate the public realm or public
action arenas
• Steering or coordination of action arenas with interaction of
actors (state, local government, private, civil) with different
status and positions meet – multi-level or polycentric;
– i) national level policy processes; ii) regional; iii) municipal; iv) local; iv)
sectoral; v) cross-sectoral (DRM/CCA)
• A concept, a framework of analysis, a structure and related
interactional processes between actors (public, private, civic)
– Confusing terms and many schools and definitions !
– Many associate the term with reform objectives of ”good governce” by
the World Bank/IMF
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Background: from governments to
governance
• Most countries in Europe in the 70s governed by governments
powerful and committed enough to pusure public goals of
redistribution and social justice
• Today governments more modest and the governing state
replaced by an enabling state - governs by coordination
• But governing the state and society is a highly political process
• Many still feel the state needs to be a leading agent in political
and democratic roles (normative argument)
– for example in redistribution and in pursuing public goods and services
related to e.g. climate change, disaster mgmt, environment – that are
underprovided by the market
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4 modes or types of governance
• Governance as hierarchies
– vertically integrated state structure – governance by law, command,
control – distinction between the public and private
– Local governments integrated but with high degree of autonomy
• Governance as markets
– ”efficient” allocator of resources – ”empower” consumers or clients
through price signals
• Governance as networks
– policy networks of state and organized non-state interests – in horizontal
interaction, interdependent but autonomous actors, negotiations within
set rules, self-regulating within external limits
• Governance as communities
– self-organisation - for local collective purpose (minimum state)
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Key issue: too much or too little state
government – hierarchy or network
• The four modes of governance raise issues of impacts of
processes and structures and institutions
– Governance approaches in the past often focused more on process and
outcomes than on the formal institutional structures
– But organisational and legal/rules/institutional structures often
determines what the state can do
• Governance is largely about the steering of interactions among
actors and related structures
• Two diverse assumptions
– To get governance ”right” different actors can manipulate or redesign
the structures (from above), or
– Structures are changed through dynamic interactions of social and
political actors that demand change (e.g. from below)
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Analytical focus
• Major hypothesis: decentralised capacity required at the level
where extreme events/floods hit and response first required
(ref. lit on urban DRM, decentralisation, NRM/Common-pool)
• State centric approach in a polycentric context
• Major research focus:
– Municipal and local levels (ward/Mtaa; quartier; neighbourhood)
– Relationships between decentralised capability of municipality and
national steering and coordination
– Division of responsibility for DRM & CCA across levels and scale (sociospatial) – focusing on municipal territory
– Policy fields in focus;
• Urban planning
• Stormwater and flood risk management; sewerage/sanitation, water
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Some core questions
• To what extent is integrated DRM & CCA a concern in
governance and urban planning at municipal and local levels?
– Caste studies: i) urban planning; ii) sectors
• What is the division of responsibility between the state, the
municipality, and non-state actors in these policy domains?
• How is the municipality enabled to operate in autonomous
manners? (powers, finances, accountability)
• What capacity exist for DRM & CCA at local level?
• How responsive and participatory are governance systems and
urban planning – to social inequalities?
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Integrated DRM & CCA
– mandate, actions, options
Institutional
level
Actors/
institutions
International
WB/AFD, UN
State
Pres. Office
Regional
state/ govern.
Governor,
firemen,
planners
DRM/flood
response
CCA/longterm risk red
Development
”low-regrets”
Regional gov.
Municipal
Ward/quart
Ward
Local groups
NGOs
Red cross,
CARE
Private sector
Developers
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Local case studies: Two informal areas
• Urban planning: Explain the evolution of informal and
vulnerable settlements over time (overall and case study area)
– Explain interactions between actors in determining land use
management over time; actors, positions, interests, influences, power,
interactions, and outcomes of decision making
• Stormwater and flood risk management
– Explain interactions among actors during a particular flood event and
outcomes
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Character of the sector/planning case
studies
• All policy fields are complex and new perspectives and
approaches are required due to recognition of new
issues/perspectives (floods & informality)
• Combine public, collective and private goods & services
• Relevant field for both state, municipality and non-state, civil
and private actors to enter
• Conflicting and cross-cutting views and interests surrounding
them
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Guy Weets
Slide 15
Relevant questions for municipal
planners and decision makers
• Tell us about problems facing the sector & area/city?
• What are goals of your work/institution and how do the
institution/committee work? Which programs are most
important for the area/in the sector/for whom?
• How effective/efficient?
• Who has influence over what?
• How do relations with local area/citizens (accountability) work?
• How do relations between municipal agency and state
authorities work? And municipal council? How do local
politicians operate?
• What does your job as decision maker involve?
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Findings on governance and
planning
• Discrepancy between national policies and plans and
what happens on the ground & local perspectives
• Municipality constrained in finance and capacity
• Not ”in charge” of core urban planning and
investments
• Urban plans with limited integration of CCA/DRM,
informal deals, weak enforcement, no land use design
principles, partial implementation
• Limited understanding of links between DRM and CCA;
focus on disaster response
• CCA more of a national concern than municipal
l
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Findings on governance &
floods risk management
• No real institutional home for flood
risk/stormwater (or DRM/CCA at municipality)
• National DRM system and coordination located
at state level; weak downward lines of
command/communication
• No EWS and weak emergency management –
except some local capacity in Saint-Louis
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Challenges at municipal level for
integration of DRM/CCA
• Lack of firm mandate and finances and organisation/staff at
municipal levels for DRM/CCA and overall
• Overlaps and unclearity between municipality/state
• Weak city level coordination of DRM/CCA and sectors
• Limited engagement of private sector and NGOs; Red Cross
central for emergency response, esp. Dar es Salaam
• Partiality observed in allocation of emergency relief funds
• Great scope for improvement in accountability, participation
and responsiveness to poor and vulnerable groups
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Recommendations on integration of
DRM/CCA in governance
• Put in place organisational homes DRM/CCA + budgets
and work on integration of knowledge for strategic
adaptation planning and DRM
• Establish coordination mechanisms and operational
integration between DRM/CCA & planning &
infrastructure
• Engage local communities in informal areas, address
inequality in urban development, and enhance local
political capacity to enhance accountability (up/down)
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Recommendations (2)
• Prepare city strategy for storm water management and local
sector plans (e.g. sewerage)
• Invest in and maintain critical/ ”low-regrets”/low cost
infrastructure that reduces risk
• Review existing plans and strategies to resettle families from
flood exposed areas
• Beyond CLUVA? National government to assess the
decentralisation process and clarify division of responsibility
between the state/state services/planning agencies and the
municipality
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Slide 21
Key NIBR staff involved
• Trond Vedeld, senior researcher, PhD, team leader, NIBR, urban
vulnerability, governance, disaster risk reduction and climate
change
• Siri Hellevik, PhD, political science, urban governance,
water/sanitation/health
• Jan E. Klausen, senior researcher, PhD, political science, urban
governance and climate change
• Inger-Lise Saglie, professor, PhD, UMB/NIBR, urban planning
and governance and climate change adaptation
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