CONFERENCE REVIEW

THE UNITED NATIONS DESERTIFICATION CONFERENCE

ENZO F A N 0

l h e Conference was held between 29 August and 9 September 1977. It was attended by over 1000 participants representing 95 governments, specialized agencies of the United Nations system, inter-governmental and non-governmental organizations, and obser- vers from national liberation movements. The Conference approved a Plan of Action to Combat Desertification and had before it a wealth of documentation as background material. To help the Executive Director of UNEP co-ordinate the implementation of the Plan with guidance from the Organization’s Governing Council and the Environ- ment Co-ordination Board, the Conference recommended that servicing should be provided by a small number of highly qualified staff, drawn from within the UNEP Secretariat and the various United Nations agencies concerned. Moreover, the creation of a consultative group’ to the Executive Director of UNEP was endorsed, t o meet as and when required, t o assist in financing and co-ordination. Finally, a call for the immediate creation of a special account for desertification within the United Nations, made as the Conference was drawing to a close, was favourably received and approved by the Conference. The Conference was preceded by an encounter with journalists and a scientific seminar convened by six science associations. It was followed by a workshop focusing on national action required to implement the Plan. The Plan of Action will be transmitted t o the United Nations General Assembly for its review and endorsement.

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The United Nations Desertification Conference joins the series of global gatherings on the environment, population, human settlements, the role of women, food and water - which have tried to bring before world public opinion some of the major issues of the day requiring a concerted action by Governments. The droughts of recent years which have enveloped countries as disparate as those of the Sahelian region in Africa, Afghanistan, the U K and the US, have emphasized the global nature of the problem and the need to concentrate the attention of the Conference on humanactivities which tend to create desert conditions on land that would otherwise be productive. Docu- mentation before the Conference shows that, according to estimates, over 9 million square kilometres of land have become desertified as a result of such activities, and that between 50,000 and 70,000 sq. kilometres of useful land are going out of production every year.

Mr. Fano is a member of the Centre for Natural Resources, Energy and Transport of the United Nations Secretariat and has served with F.A.O. ‘s Production Economics and Farm Management Service. Before 1960, he worked with the Agency for the Development of Southern Italy in Rome.

Nururul Resources Forum 2 (1978) 177-184. All Righrs Reserved.

During the preparatory process of the Conference, the Secretariat set out to collect as much information as possible on the causes of desertification, and its remedies. A map was prepared at a scale of 1:25 million with the assistance of specialized agencies of the U N system. For its purposes, desertification was defined as “the intensification or extension of desert conditions, this being a process leading to reduced biological productivity, with consequent reduction in plant bio-mass, in the land’s carrying ca- pacity for livestock, in crop yields and human wee1 being.” Human pressure on fragile ecosystems in adverse climatic conditions was recognized as the most important factor in desertification. Apart from the world’s deserts and desertification map, four basic documents were drawn up with the assistance of distinguished scientists. These dealt respectively with the relationship between desertification and climate, ecological change, technology and society, and were ultimately summarized in one document entitled ‘Desertification: An Overview’. This document became the principal paper for discussion at the Conference, on the agenda item dealing with the processes and causes of desertification. These reviews were in turn supported by two groups of case studies in which scientists analysed the actual land degradation processes which had taken place in their countries. Six of the studies were financed by the United Nations Development Programme and conducted by the Governments concerned with the cooperation of UNESCO - Northern Chile and Southern Tunisia for arid areas with winter rainfall; Northwest India and Niger for arid areas with summer rainfall; and Pakistan and Iraq for irrigated areas with water logging and salinisation problems. The Governments of Austrialia, People’s Republic of China, Iran, Israel, U.S.A. and U.S.S.R. contributed additional studies, in which the processes ofdesertification were reviewed, under different ecological and socio-economic settings, with a view to evaluating the effectiveness of remedial action. The 15 case studies were in turn summarized within a Synthesis of Case Studies, placed before the Conference.

The third group of supporting documents entailed the preparation of six transna- tional feasibility studies involving international co-operation to halt the desertification process ~ and possibly reverse it - in a number of regions. The objective in these cases, was to identify immediately a number of concrete and important projects t o which governmental efforts could be directed once the necessary sources were made avail- able.

The first of these projects aims at improved management of livestock rangelands through an alleviation of overgrazing, and other measures, in the Sudano-Sahelian region. Emphasis is placed on stratification of livestock production in order to create the necessary complementarity between arid breeding areas and the more humid zones, suitable for fattening and finishing. The countries involved are Chad, Mali, Maurita- nia, Niger, Senegal, Sudan and Upper Volta. The second involves the management of the major regional aquifers in North-East Africa and the Arabian Peninsula for the common benefit of all. The third, known as the Northern Sahara Green Belt project, seeks to harmonize the on-going large scale shelter belt planting and rangeland management programmes in North Africa on a regional basis. The countries involved in this case are Algeria, Egypt, Libya, Morocco and Tunisia. A similar project was devised for the Sahel, aimed at establishing a green belt in that region to block and possibly reverse the desertification process. A fifth programme for Latin America relates t o monitoring, preferably by satellite, of desert processes and undertaking a

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survey of natural resources in critical areas of the region. The countries involved are Argentina, Chile, Peru and Bolivia. Lastly, a project for the monitoring of desertifica- tion processes and related natural resources in South West Asia has objectives which are similar to the Latin American one, geared to enhancing the capacity of individual countries to combat desertification. This study includes Afghanistan, Iran, India and Pakistan. These proposals were drawn up by panels of government representatives and experts and a number of governments had confirmed prior to the Conference their concurrence and willingness to embark on the projects.

The main focus of attention of the preparatory process at the intergovernmental level was centered on the four regional preparatory meetings - in the Americas, the Mediterranean area, Africa south of the Sahara, and Asiaand the Pacific- which took place early in 1977. Apart from discussing the case studies pertinen' to each respective region, these meetings helped to shape the draft plan of action, originally prepared by an international group of experts, and reviewed also by the UNEP Governing Council. The plan as submitted to the Conference was in five chapters dealing with: (a) origin and scope of the plan; (b) objectives and principles; (c) recommendations for national and regional action (d) recommendations for international action and (e) programme of immediate initial actions. Clearly, as with all United Nations Conferences, the implementation of the Plan will be dependent t o a very large extent on governmental follow-up and initiative, with the support - where needed - of international and bilateral programmes. Apart from the trans-national projects, already referred to, some recommendations also dwelt on desirable regional co-operative arrangements. Each recommendation has a n introduction, an operative paragraph and an action section.

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It is clear that there is a close inter-relationship between many of the recommendations, particularly those dealing with land use, range and agricultural management practices. This already indicates the integrated approach which is required at the national level if the spread of deserts is t o be halted and their reclamation made effective.

The first recommendation places its accent on assessment needs, and emphasises the importance of a proper information base. This aspect is covered in its broadest context and takes in monitoring not only of atmospheric processes, but the state of vegetation and soil cover, the distribution of wildlife and conditions of livestock. Desertification maps will have to be compiled.

A recommendation on land-use planning underscores the need to apply ecologically sound planning principles in conformance with socio-economic development and equity objectives. Encouragement is given to planning at the local level and to the implementation of natural resources surveys. A strengthening of existing regional institutes for economic and social development and planning and other related mechanisms is called for.

O n the insistence of a number of countries attending the Conference, a separate recommendation was introduced on the role and relevance of public participation in the prevention and combating of desertification. Attention was drawn t o a need for a n increased awareness of the problem through education, group discussions, exhibitions, etc.

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Water resources are dealt with at some length in the context of economically and environmentally sound planning of drought management and of irrigation. Reference is made to the body of recommendations developed at the United Nations Water Conference (Mar del Plata, 1977) and to the call for establishing or strengthening a national co-ordinating body with comprehensive responsibilities for water resources data. Assessment of water resources and of demand by various consumer categories are singled out as relevant premises to water resources development and management which should take place in the context of national planning. Efficiency in the use of water is given prominence in the document as are desirable quality characteristics. Reference is also made to the use of appropriate technology particularly with respect to ground water storage, recharge and development.

Drought management measures introduced at Mar del Plata are recalled in another recommendation and special attention is paid to drought insurance both at the national and international levels as a means of protecting the socio-economic needs of the people and combating the risks and effects of drought.

Another recommendation in this group relates to the control of waterlogging, salinisation and alkalinisation in irrigated lands. Various measures are proposed for improvement, all linked to improved irrigation and drainage measures.

Finally, a recommendation relating to international co-operation deals with the need for countries which share water resources to co-operate in their sound and judicious management as a means of combating desertification effectively. Reference is made to the recommendation of the United Nations Water Conference in this area and to the work of the International Law Commission. The breadth and scope of the proposals clearly suggest that water management problems have to be viewed in a unified context at both the local and national level, and that planning for agricultural and livestock production must be intimately related to national land management and conservation policy.

Two other closely related recommendations deal with the improvement of degraded rangelands (and related livestock and wild life management) and the protection of vegetation through, among other measures, soil conservation. The protection of flora and fauna in desert areas is the subject of yet another recommendation. The first is particularly relevant t o areas subject to nomadism and uncontrolled grazing, and the remedial steps envisaged - including rotational or deferred grazing, protection of tree species used for shelter and firewood, and improved grazing and livestock manage- ment strategies - require firm government policies and enforcement machinery which are not always easy to muster. Special provisions are suggested for dealing with the effects of drought in rangeland areas, including the promotion of alternative livelihood sources for pastoralists.

Two recommendations deal with population and health aspects. Governments are encouraged to assist rural migrants wishing to resettle in urban areas while ensuring an appropriate maintenance of an adequate rural labour force, and to provide adequate levels of primary health care to people affected. by desertification, including family planning where necessary. The first of these appears directed specifically at nomadic past oralists, which have tended to be somewhat neglected in government urban resettlement policies, while the latter is a plea for adequate fixed health stations, mobile health team units, first aid posts and air services.

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Under a group of recommendations related to strengthening science and technology at the national level, one in particular is directed to improving and controlling the conventional use of energy sources based on the use of vegetation. A strong plea is made for research into alternative or unconventional energy sources in the drylands including sun and wind power. Apart from different approaches to research in these areas, bio-gas generators and geothermal energy are also mentioned as potentially important sources of energy. Reference is made to the need to ensure that women, who often are responsible for wood collection, are consulted on the acceptability of new devices introduced and trained in their management. Indigenous scientific and technological capability must also be enhanced, and the Plan includes proposals to strengthen and adapt these in fighting desert encroachment.

On the institutional plane, a recommendation proposes the establishment of co- ordinated national machinery to combat desertification and drought, where none exists, and another suggests that programmes to combat desertification should be formulated, wherever possible, in accordance with the guidelines of comprehensive national development plans. In the former, the establishment of a national desertifica- tion commission at the highest level of government is proposed, inter-organizational in nature, or alternately its creation could be envisaged under the aegis of an appropriate government department (possibly the one responsible for environmental protection).

Several of the recommendations for action at the national level have implications for follow-up actions at the regional level, particularly those relating to the establishment or strengthening of training, research and co-operative ventures.

Institutional arrangements also figure prominently at the international level. UNEP, its Governing Council and the ECB were given responsibility for following-up and co- ordinating the implementation of the Plan of Action while the catalytic co-ordinating and, as appropriate, executive role of the regional economic commissions was under- scored.

As already indicated in the introduction, the Conference approved the establishment of a consultative group on the control of desertification advisory to the Executive Director of UNEP, which would meet as and when necessary. It was expected that the first meeting of this group would take place very soon after endorsement of the Plan of Action by the General Assembly.

As regards actions by the international community, a recommendation to be specifically addressed to the United Nations Secretary General requests that he and the governing bodies of the United Nations specialized agencies make suitable provisions and allocations in their programmes, to support the needed international action to combat desertification, as envisaged inthe context of the Plan of Action. It is expected that inter-agency meetings will be organized very soon on the initiative of UNEP to clarify how best the United Nations system may respond to the challenge.

With respect to financing, apart from the establishment of a special account within the United Nations approved by the Conference, a statement is currently in prepara- tion which will detail estimated amounts required for various aspects of the Plan, how the funds might be collected and applied.

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3.

Both the United Nations Desertification Conference and the United Nations Water Conference which preceded it have begun to set a new pattern for this type of global 'happening'. After a series of conferences devoted to broader issues broadly affecting the survival of mankind and the quality of life - such as the environment, population, food, the role of women, and human settlements - these two conferences have decidedly placed the focus of attention on more sectoral and more technically oriented problems. Other conferences to follow, such as the one on technical co-operation among developing countries (1978) and on science and technology (1979) also fall within this philosophical framework. The result has been the establishment of a somewhat different format than heretofore, both in the preparatory stages and in the outcome of the conferences themselves.

By and large, preparations have hinged on the gathering of an impressive array of technical and policy oriented data, both by the Secretariats and at the country level, with a view to analysing on a global and regional basis the reasons for shortcomings and problems which motivated the convening of these conferences in the first instance. This has resulted in both conferences and in the production of a series of excellent background documents which will serve scientists well in future years. It has also encouraged governments to give serious attention to regional preparatory meetings and to have these attended by high level policy makers in the principal fields of interest of the two conferences. As a result, therefore, more emphasis has been placed on having governmental involvement prior to the main event, including the finalization of action proposals, than had been the case with earlier conferences. This certainly facilitated the approval of the two action plans at the conferences themselves.

Because of the more technical nature of these conferences, political confrontation and disruption have tended to be low key, limited by and large to questions of principle affecting the Middle East and to differences of opinion on funding criteria between recipient and donor countries. The question of shared water resources was also raised in both conferences, with a reaffirmation of principle by upstream and downstream users. The severe dislocation encountered in earlier conferences in this regard was not apparent, thereby leading to more fruitful deliberations.

The action plans were prepared for both conferences with a similar format: an introductory statement, followed by the action recommendations, followed in turn by steps required to implement the proposals.

These plans may be said to einbody a recapitulation of sound management principles under the various subject matters covered, and will be useful guidelines, reference and back-up material for planners seriously intent upon developing or improving the desert and/or water problems of a country or region. The two action plans did provide an incentive for the internationalcommunity - primarily the United Nations, the regional economic commissions and the specialized agencies, to attempt further co-ordination within the system, in an effort to streamline technical assistance activities and re-order work priorities.

There was a clear call for the regional economic commissions to strengthen their role within the system, and towards this end for the creation of regional inter-governmental bodies for water resources to provide the necessary guidance, where these do not yet

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exist. These proposals for improved co-ordination at the international level have resulted in the preparation of a UN system paper proposing a n interagency water resources board and small accompanying secretariat whose merits will be discussed shortly at the inter-governmental level; and of a consultative group for desertification - which would include the United Nations and Specialized Agencies - advisory to the Executive Director of UNEP. The role of ECOSOC and of its Committee on Natural Resources in guiding activities in the water resources area is also strengthened, primarily as a result of the recommendations of the United Nations Water Conference. The anxiety manifested a t these two conferences for strengthened co-ordination at the international level, under the guidance of the appropriate inter-governmental bodies, is a rather recent development which, to some extent, reflects the increasing concern for a slow but continued expansion of international programmes in these crucial areas, but on the other hand recognizes the inevitabilty of a n even greater involvement by the international community given the magnitude of the tasks to be tackled.

This preoccupation with the scope of what lies ahead is well borne out by the strikingly similar proposals which emerged from both conferences on financing. It is quite clear that donors are firmly opposed to the creation of new institutional structures for financing and that they favour a n expanded use of existinginstruments, such as the UNDP, and of international or bilateral financing programmes. It is probable, however, that the large sums envisaged for a massive attack on the deserts, o r t o provide adequate water t o rural and urban communities o r for new irrigation before the end of the century, would entail a considerable reordering of priorities or of levels of input for existing funding organizations.

The proposal for the creation of a new water resources fund resulted in acomprom- ise request that the Secretary-General undertake an exhaustive study on current criteria for funding water resources projects and on ways by which the flow of resources might be increased. The related recommendation of the Desertification Conference calls on the consultative group which will advise the Executive Director of UNEP, and which includes donors, t o review the situation with respect to desertifica- tion and to make proposals in this area. In this instance the creation of a special account for desertification within the United Nations was approved by the Conference and it will be interesting to follow developments in this respect. Two considerations appear to be relevant in both these cases: first, it will bedesirable t o theextent possible to improve efficiency in the administration of international assistance by establishing co-ordination between international and bilateral assistance programmes; this is spotty a t best in most situations and will require close co-operation on the part of recipient governments. Second, Governments will have to be encouraged to draw up programmes and projects in an integrated manner t o facilitate having available for financing suitable packages within the context of medium and long-term planning.

Both conferences also rejected the idea of setting up new units for the administration of the action plans. In both instances, existing bodies within the UN system werecalled upon to co-ordinate the follow-up under the guidance of the respective inter-govern- mental governing bodies and in association with therelevant organizationsand units of the United Nations system. Thus, in this respect also, some of the practicesfollowed in earlier United Nations Conferences were not observed in keeping with adecided trend against the proliferation of new United Nations units, and in favour of strengthened activities at the regional level.

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The challenges posed by the United Nations Desertification Conference and by its predecessor, the United Nations Water Conference to which the former is intimately tied, are indeed immense. On the one hand, desertification is proceedingapace. On the other hand, the rapidly growing levels of population in the affected areas require an aggressive stance by Governments if the actions which are needed to stem its advance are to be successful. This entails the application of the principles of range, land and water management embodied in the recommendations, and in part also enunciated in the Mar del Plata plan of action for water resources. It also requires a much closer look at the complex issues related to ‘deserts as development’, which the Conference perhaps only in part addressed itself to, i.e., how to rationally maximize the potential output of desert areas. Only time will tell whether Governments have the will, the drive and are prepared to make available the resources to implement the action proposals approved in Nairobi in the fall of 1977, and soon to be put for approval before the United Nations General Assembly. In the meantime, UNEP has already taken the initiative to invite the relevant organizations of the United Nations system for a discussion on joint programming on environmental aspects of water and arid lands development.

Note

‘Such agroup would comprise representativesfrom the relevant organizations of the United Nations system. major donors, multi-lateral financing agencies and from developing countries havinga substantial interest in corn bating desertification.