亚开行-建设城市穷人的复原力：系统性变革的建议（英）-2022.11-54正式版.docx

ASIAN DEVELOPMENT BANKADBExecutive SummaryClimate change and disaster risk are increasing and while the impacts are already being felt globally, people living below or just above the poverty line in urban areas are highly vulnerable and at risk. Without action to address the structural inequalities that are the underlying drivers of vulnerability and build resilience to climate change and disasters, there is a risk that the number of poor and near-poor households in urban areas in Asia will rise over time, increasing the vulnerability of entire urban and country systems.The action needed requires a change from the business-as-usual approaches to addressing risk, to new approaches that have an explicit focus on the urban poor and near poor, and that put the urban poor and near poor at the center of decision-making. Crucial to these new approaches is an explicit focus on the drivers of vulnerability of the urban poor and near poor to climate change and disaster risk. The key to change is integrated action across specific policy areas that bridges households, neighborhoods, and cities, as well as sectors, and jurisdictional boundaries and that is complementary over time.National governments in partnership with other stakeholders have a critical role in supporting urban areas leading the change to new approaches that have an explicit focus on the drivers of vulnerability and bring about systemic change. By changing their approach to six policy areas-urban planning and development, social protection, housing, livelihoods, health, and integrated infrastructurefrom fragmented and siloed to integrated and coordinated through risk- informed and inclusive governance, and by making available finance at the household, neighborhood, and city levels, national governments can create an enabling environment for securing and sustaining resilience in individual urban areas, and for facilitating the innovation and partnerships necessary to scale up nationally.Several key openings or opportunities exist in each country and in each city to bring about systemic change. Households, neighborhoods, and cities are key openings or opportunities entry pointsfor national governments and urban local governments to begin investing in new approaches in ways that are integrated, complementary, and ultimately, transformational. Each of these three entry points is an opportunity to strategically invest in creating or strengthening vertical linkages, by bridging household, neighborhood, and city levels, and horizontal linkages, by integrating policy areas.Associated with each entry point are several strategic interventions, each with an explicit focus on addressing the underlying drivers of vulnerability of urban poor and near-poor populations to climate change and disaster risk. While the entry points are common for all cities and countries, the opportunities for strategic intervention in each country will depend on the specific policy context and enabling environment; the level of climate and disaster risk; and existingBuilding Resilience of the Urban Poorinterventions in reducing risk and building the resilience of urban poor and near-poor populations, including the existing coping and adaptation strategies of the urban poor and near poor themselves.This document sets out opportunities starting at the level of the household to strengthen adaptive social protection policies and programs in combination with livelihood programs using a whole-of- government approach. This is designed to help households manage residual risk when a shock occurs and strengthen financing for housing that is acceptable, aspirational, and affordable. This should be combined with robust planning, design, and maintenance to contribute to reducing exposure and vulnerability. This can improve access to essential services via integrated infrastructure designed to reduce risk and, during times of shock, function at a level acceptable to the community plus contribute to improving the health of urban poor and near-poor households.This document sets out opportunities starting at the level of the neighborhood to strengthen the planning, design, delivery, operations, and maintenance of community-led infrastructure一 including nature-based solutions. These opportunities aim to improve the health, productivity, and social inclusion of the urban poor and near poor, addressing underlying drivers of vulnerability and improving the capacity to adapt to changing shocks and stresses. They are also designed to strengthen livelihood-related interventions at the neighborhood level to increase resilience and at the same time address drivers of vulnerability.This document also sets out opportunities starting at the level of the city to strengthen urban planning so that it is risk-informed thereby reducing exposure and vulnerability; strengthen citywide early warning systems, providing early warning and improving recovery; network citywide infrastructure to enhance resilience to ensure continuous access to services during and after an event; and improve financial preparedness to ensure continuous access to funds during and after an event.Finally, this document sets out opportunities for intervention to strengthen the enabling environment so that governance is capable, accountable, and responsive; urban and climate data are accurate and accessible; and urban and climate financing is directed to households, neighborhoods, cities, and urban municipalities to meet their different requirements and bridge between levels, and there is the capacity to manage and monitor the use of these finances.In summary, this document makes the case for systemic change, and provides a framework for and pathway to change for propoor resilient urban development.The Case for a Change in Approach to Building the Resilience of the Urban PoorChapterBuilding Resilience of the Urban Poor1.1 The Need for ChangeUrban populations in Asia and the Pacific are increasing-from 375 million in 1970 to 1.84 billion in 2017. This has resulted in an increase in urbanizationfrom around 20% to 46% (AfDB et al. 2019). Urban areas, specifically cities in most countries in Asia, contribute more than 80% of gross domestic product (ADB n.d.). These urban areas are complex systems. Climate and disaster risk is increasing. The impact of climate change and disasters on one part of the urban system can have a cascading and compounding impact on another. Urban populations living below or just above the poverty line in urban and rural areas are highly vulnerable and at risk. Within urban environments, the urban poor and near poor are usually the most vulnerable to increasing risk due to higher exposure to hazards and a range of structural inequalities, not least income poverty and informality. Without action to address these structural inequalities along with reducing exposure and building climate resilience, the Asia and Pacific region is likely to see an increase in its urban poor population, increasing the vulnerability of entire urban and country systems.Systemic change is needed to address the structural inequalities that are the drivers of vulnerability of urban poor and near-poor households to climate change and disaster risk and build resilience. Structural inequalities such as income poverty; gender norms; age; disability; health status; insecurity of land tenure; and informality of settlements, housing, and livelihoods reduce the ability of urban poor and near-poor households to resist, absorb, recover from, and reorganize in response to climate change and disaster events without threatening their socioeconomic advancement and development (ADB 2013). Existing strategies to cope with and adapt to climate change and reduce disaster risk1.1 The Need for ChangeUrban populations in Asia and the Pacific are increasing-from 375 million in 1970 to 1.84 billion in 2017. This has resulted in an increase in urbanizationfrom around 20% to 46% (AfDB et al. 2019). Urban areas, specifically cities in most countries in Asia, contribute more than 80% of gross domestic product (ADB n.d.). These urban areas are complex systems. Climate and disaster risk is increasing. The impact of climate change and disasters on one part of the urban system can have a cascading and compounding impact on another. Urban populations living below or just above the poverty line in urban and rural areas are highly vulnerable and at risk. Within urban environments, the urban poor and near poor are usually the most vulnerable to increasing risk due to higher exposure to hazards and a range of structural inequalities, not least income poverty and informality. Without action to address these structural inequalities along with reducing exposure and building climate resilience, the Asia and Pacific region is likely to see an increase in its urban poor population, increasing the vulnerability of entire urban and country systems.Systemic change is needed to address the structural inequalities that are the drivers of vulnerability of urban poor and near-poor households to climate change and disaster risk and build resilience. Structural inequalities such as income poverty; gender norms; age; disability; health status; insecurity of land tenure; and informality of settlements, housing, and livelihoods reduce the ability of urban poor and near-poor households to resist, absorb, recover from, and reorganize in response to climate change and disaster events without threatening their socioeconomic advancement and development (ADB 2013). Existing strategies to cope with and adapt to climate change and reduce disaster riskResilience is defined as “the ability of countries, communities, businesses, and individual households to resist, absorb, recover from, and reorganize in response to natural hazard events, without jeopardizing their sustained socioeconomic advancement and development.Source: ADB. 2013. Investing in Resilience: Ensuring a Disaster-Resistant Future. Manila.ensure short-term survival and address the immediate causes of vulnerability, but do not typically enable transformation by targeting the structural inequalities that are the underlying drivers of vulnerability. Strategies that target structural inequalities are needed to complement existing coping and adaptive measures if national and urban local governments are to reduce the vulnerability of urban poor and near-poor households and enable their advancement and development (Figure 1).To bring about systemic change and transform the lives of the urban poor and near poor so they are more resilient, new approaches are needed to bridge existing policy silos and overcome policy fragmentation. These new approaches include improving governance and removing institutional impediments to taking an integrated and coordinated approach to urban planning and development.The Case for a Change in Approach to Building the Resilience of the Urban PoorFigure 1: A Continuum of Adaptation Strategies三 q9 £n> sssnE。oos(DsnB。 lpExo-d-B>AJns lu-TtrousNew approaches that improve the delivery of social protection, support of livelihoods, and delivery of health services, as well as address the exposure and vulnerability of informal settlements and housing and integrate community-led infrastructure into city-level systems are needed. Gaps need to be 川led in data on hazards, and their likelyimpacts, as well as data on the underlying drivers of vulnerability to climate change and disaster risk. Gaps also need to be filled in the availability and allocation of funding and all levels of governments need to be strengthened so they are capable, accountable, and responsive.ResilienceRecovery, constancy, resistance, stabilitylearning, experimentation, transformabilitySource: ADB. 2020. Advancing Inclusive and Resilient Urban Development Targeted at the Urban Poor: Pro-poor Climate Change Adaptation for Urban Areas. Consultanfs report. Manila (TA 9513-REG).Building Resilience of the Urban Poor1.2AFramework for ChangeTo achieve systemic change, national governments need to strengthen the way they currently enable action in urban areas to build resilience by engaging with urban poor communities, undertaking risk-informed urban planning, and delivering adaptive social protection. They should support resilient livelihoods, deliver health services, address the exposure and vulnerability of housing and shelter, plus ensure the integration ofcom munity-ledinfrastructurein citylevel systems.Systemic change requires focusing on six policy areas that deliver benefits at three different levelshousehold, neighborhood, and city with complementary actions that address the root causes of socioeconomic and ecological vulnerability to climate and disaster risk. Systemic change is underpinned by a supportive environment featuring a capable, accountable, and responsive government; accurate and accessible urban and climate data; and urban and climate finance directed to households, neighborhoods, cities and urban municipalities.1.2.1 Six Policy Areas for ChangeThe framework for change identifies six policy areas for integration at the household, neighborhood, and city levels over time if impact is to be maximized and sustained (Figure 2).Adaptive social protection is needed to transform the social and economic drivers that keep urban poor and near-poor households poor and vulnerable to climate change and disaster risk. Social protection designed with adaptive features is needed to enable urban poor and near-poor households to prepare for and withstand covariate shocks by protecting1.2AFramework for ChangeTo achieve systemic change, national governments need to strengthen the way they currently enable action in urban areas to build resilience by engaging with urban poor communities, undertaking risk-informed urban planning, and delivering adaptive social protection. They should support resilient livelihoods, deliver health services, address the exposure and vulnerability of housing and shelter, plus ensure the integration ofcom munity-ledinfrastructurein citylevel systems.Systemic change requires focusing on six policy areas that deliver benefits at three different levelshousehold, neighborhood, and city with complementary actions that address the root causes of socioeconomic and ecological vulnerability to climate and disaster risk. Systemic change is underpinned by a supportive environment featuring a capable, accountable, and responsive government; accurate and accessible urban and climate data; and urban and climate finance directed to households, neighborhoods, cities and urban municipalities.1.2.2 Six Policy Areas for ChangeThe framework for change identifies six policy areas for integration at the household, neighborhood, and city levels over time if impact is to be maximize