Drought Resilience, Adaptation and Management Policy (DRAMP)

Framework

Neville D. Crossman

July 2018

NevilleD.Crossman13WhiteAveFullartonSouthAustralia5063AUSTRALIA+61439844628neville.crossman@gmail.com

July2018.

Acknowledgements:

DanielTsegai(UNCCD)andthereviewersfromEgypt,China,Colombia,Brazil,Switzerland,Australia,SouthAfrica,EuropeandtheUSA.

Theviewsexpressedinthispublicationarenotnecessarilythoseoftheagenciesorcountriesinvolvedinthisproject.ThedesignationsemployedinthisdocumentandthepresentationofmaterialthereindonotimplytheexpressionofanyopinionwhatsoeveronthepartoftheUNagencies.Unlessotherwiseindicated,theideasandopinionsexpressedbythecontributorsdonotnecessarilyrepresenttheviewsoftheiremployers.Thepublisherswouldwelcomebeingnotifiedofanyremainingerrorsidentifiedthattheeditingprocessmighthavemissed.

TABLE OF CONTENTS

1 ANEWAPPROACHTODROUGHT............................................................................................12013:ATURNINGPOINTFORDROUGHTMANAGEMENTPLANNING.................................................................12015:REDUCINGDROUGHTRISKISEVERYONE’SRESPONSIBILITY....................................................................32016:AFOCUSONAFRICA......................................................................................................................4THENEEDFORAPOLICYFRAMEWORK........................................................................................................4

2 THEDROUGHTRESILIENCE,ADAPTATIONANDMANAGEMENTPOLICY(DRAMP)FRAMEWORK 6

3 KEYPRINCIPLESOFTHEDRAMPFRAMEWORK........................................................................8

4 ACTIONSOFTHEDRAMPFRAMEWORK..................................................................................94.1 REDUCEEXPOSURETODROUGHT...................................................................................................94.2 REDUCEVULNERABILITYTODROUGHT............................................................................................94.3 INCREASERESILIENCETODROUGHTRISK.......................................................................................104.4 TRANSFORMATION.....................................................................................................................114.5 PREPARE,RESPONDANDRECOVERFROMDROUGHT.......................................................................114.6 TRANSFERANDSHAREDROUGHTRISKS.........................................................................................12

5 THEWAYFORWARD.............................................................................................................13

6 REFERENCES..........................................................................................................................14

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1 A New Approach to Drought

Drought is a natural phenomenon which often impacts people, the economy and ecosystems. Prolongeddroughtsreducefoodproductionandwateravailabilityandattheirworstleadtosignificanthumansufferingandlossoflife.Droughtshaveanegativeimpactonecosystemfunctions,reducesocial,politicalandeconomicstability and can increase vulnerability to other natural disasters, such as heat waves and floods. Climatechange is expected to increase the frequency and severity of droughts in large parts of Africa and in theAmericas,aswellas insouthern,centralandeasternEurope, theMiddleEast,Australia,andSoutheastAsia[2]. The population of the most vulnerable regions, particularly the poorer areas where land and waterresourcesarealreadylimited,needtobebetterpreparedforfuturedroughtsbyreducingrisksandincreasingdroughtresilience.

Recent international and regional initiatives have changed the way drought is assessed and managed.Historically, drought was viewed as a natural disaster to which society responds with a reactive crisismanagementapproachthatdealsonlywiththesymptomsofdrought.Thisapproachhasproventobehighlyinefficient, because it creates a culture of dependency and offers few incentives for changing the ways inwhichlandandwaterresourcesaremanagedtoreducefuturedroughtimpacts[3].

Nowadays drought is more often viewed as a natural event that requires society to take a pro-activepreparedness approach to reduce societal vulnerability and increase resilience to drought [4]. As with anynatural disaster, addressing drought should not be focused solely on managing the crisis, but needs toencompassthefullcycleofdisastermanagement.

Apro-active approach to increasingdrought resilience is centredonbettermanagementof land andwaterresources.Haltinglanddegradationalongwithprotectingandrestoringnaturalcapitalandecosystemservicesthrough land rehabilitation, ecological restoration and the allocation of water to environmental flows willstrengthenecological,economicandsocialsystemsagainstmoresevereimpactsofdroughtandincreasetheirability to recover from disaster. Nature-based solutions to drought management provide many otherecologicalbenefits,includingreducingrisksfromothernaturaldisastersaswellasmitigatingandadaptingtoclimatechange.

Pro-active ways to reduce drought risks also include improved drought monitoring, forecasting and earlywarningsystems,alongwithassessmentsondroughtvulnerabilityandimpactforcommunitiesatrisk.

2013: A turning point for drought management planning

Theshiftfromare-activetoproactiveapproachtodroughtwasthekeythemeoftheHigh-levelMeetingonNationalDroughtPolicy(HMNDP)held inGenevainMarch2013.TheoutputsoftheHMNDP[5] includetheFinal Declaration, the Policy Document advising national drought management policy, and the ScienceDocument outlining best practices in developing national drought management policies. These documentsoutlinefivemajoroutcomesoftheHMNDP:

1. Nationsmustrecognisetheurgencyandseverityofthedroughtproblem;2. Scientificprogressmustbeachievedindevelopingdroughtmonitoringandearlywarningsystems;3. Coordinatedandconsistentdroughtvulnerabilityandimpactassessmentsareurgentlyneeded;4. Drought relief and emergency response and recovery measures must be well-targeted to ensure

betterpreparation,mitigationandadaptiontofuturedroughts;5. Thereisanurgentneedforeffectivedroughtmanagementpoliciesthatmitigatedroughtimpactsby

combating land degradation and desertification, as well as by implementing IWRM principles androllingoutscience-basedclimatepredictionandservices.

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During the HMNDP, the Global Water Partnership (GWP) and World Meteorological Organisation (WMO)launchedtheIntegratedDroughtManagementProgramme(IDMP).TheIDMPsupportsregionsandnationsindeveloping more proactive national drought policies and better drought prediction tools, including thepublication of the National Drought Management Policy Guidelines in 2014 [1]. The National DroughtManagement Policy Guidelines presents a ten-step process (presented in Box 1) for developing andimplementingnationaldroughtmanagementpolicies.AUN-Watercollaborativeinitiativetosupportcountriesin developing National Drought Management Policies (NDMP) was also launched at the HMNDP andspearheaded by WMO, the United Nations Convention to Combat Desertification (UNCCD), the Food andAgricultureOrganizationoftheUnitedNations(FAO),theConventiononBiologicalDiversity(CBD)andtheUN-WaterDecadeProgrammeonCapacityDevelopment(UNW-DPC).

Throughout2013-2015,aseriesofregionalcapacitybuildingworkshopsondevelopingdroughtmanagementpolicieswereheldinEasternEurope,LatinAmericaandtheCaribbean,Asia-PacificandAfrica(EastandSouth,Near East and North, West and Central). The workshops presented the ten-step process (Box 1) to assistdrought-prone countries in developing droughtmanagement policies and preparedness plans. The regionalworkshopsalsooutlinedthe“threekeypillars”ofdroughtriskreduction,namely:

• Implementdroughtmonitoringandearlywarningsystems;• Completevulnerabilityassessmentsforsectors,populationsandregionsvulnerabletodrought,and;• Implement drought mitigation measures that minimise adverse impacts of drought and provide

appropriateresponsemeasureswhendroughtoccurs.

The “three key pillars” are encapsulated in Step Five of the process and involve writing national droughtmanagementpolicyandpreparednessplans(seeBox1).

Box 1: The Integrated Drought Management Programme ten-step process for developing and implementing drought management plans.

Step1:Appointanationaldroughtmanagementpolicycommission.Step2:Stateordefinethegoalsandobjectivesofarisk-basednationaldroughtmanagementpolicy.Step3:Seekstakeholderparticipation;defineandresolveconflictsbetweenkeywaterusesectors,alsoconsideringtransboundaryimplications.Step4:Inventorydataandfinancialresourcesavailableandidentifygroupsatrisk.Step5:Prepare/writekeyprinciplesofthenationaldroughtmanagementpolicyandpreparednessplans,whichshouldincludethefollowingelements:monitoring,earlywarningandprediction,riskandimpactassessment,mitigationandresponse.Step6:Identifyresearchneedsandfillinstitutionalgaps.Step7:Integratescienceandpolicyaspectsofdroughtmanagement.Step8:Publicizenationaldroughtmanagementpolicyandpreparednessplans,buildpublicawarenessandconsensus.Step9:Developeducationalprogrammestoincludeallage/stakeholdergroups.Step10:Evaluateandrevisenationaldroughtmanagementpolicyandsupportpreparednessplans.SeeWorldMeteorologicalOrganization(WMO)andGlobalWaterPartnership(GWP)[1]

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2015: Reducing drought risk is everyone’s responsibi l ity

InparallelwiththeHMNDPandsubsequentregionalcapacity-buildingworkshopswasthedevelopmentandadoption(inMarch2015)oftheUnitedNationsSendaiFrameworkforDisasterRiskReduction2015-2030.TheSendai Framework succeeds the Hyogo Framework for Action (HFA) 2005-2015: Building the Resilience ofNationsandCommunitiestoDisasters,whichbuildsonpreviousUNinitiativesdatingbacktotheearly1990s[4, 6] to encouragebetter preparation for natural disasters. A key approachof the Sendai Framework, andconsistentwiththeHMNDP,isthatnationstakeaproactiveapproachtomanagingdisasters.

TheSendaiFrameworklaysoutthirteenprinciplesandfourprioritiesfornationstoreducerisksfromnaturaldisasters.Thefourprioritiesforactionare:

i) Understandingdisasterrisk;ii) Strengtheningdisasterriskgovernancetomanagedisasterrisk;iii) Buildingresiliencebyinvestingindisasterriskreduction,and;iv) Enhancing disaster preparedness for effective response and to “build back better” during

recovery,rehabilitationandreconstruction.

ThethirteenprinciplesoftheSendaiFrameworkare:

1. Each state needs to assume the primary responsibility for preventing and reducing disaster risk, ifneededthroughsustainableinternationalcooperation;

2. Responsibilities of disaster risk reduction are the shared duty of central governments and relevantstakeholders;

3. Management of disaster risk serves to protect people, their assets, as well as cultural andenvironmentalwealth;

4. Disasterriskreductionrequirestheengagementandpartnershipsofallofsociety;5. Disaster risk reduction and management depend on coordination mechanisms within and across

sectorsandwithrelevantstakeholdersatalllevels;6. Local authorities and local communities need to be empowered to take an active role in reducing

disasterrisk;7. Disasterriskreductionrequiresamulti-hazardapproachandinclusiverisk-informeddecision-making;8. Disaster risk reduction,which is essential toensuring sustainabledevelopment, requires coherence

acrosssustainabledevelopmentandgrowthareas–foodsecurity,healthandsafety,climatechangeandvariability,aswellasenvironmentalmanagement;

9. Localandspecificcharacteristicsofdisasterriskmustbeunderstoodtoreduceit;10. Addressingunderlyingdisasterriskfactorsbyinformingthepublicandmobilizingprivateinvestments

ismorecost-effectivethanrelianceprimarilyonpost-disasterresponseandrecovery;11. Post-disaster recovery, rehabilitation and reconstruction need to reduce future disaster risk by

“buildingbackbetter”andincreasingpublicawarenessofdisasterrisks.12. Global partnerships and strengthened international cooperation, especially through development

assistance,areessentialfordisasterriskmanagement;13. Developing,middle-incomeandothercountriesthatfacechallengesinaddressingdisasterriskneed

adequate,sustainable,timelyandcustomizedsupportthatmatchestheirneeds.

The priorities and principles of the Sendai Framework provide a strong foundation for drought resilience,adaptation and management policies that can reduce risks associated with drought at national and sub-nationalscales.

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2016: A focus on Africa

The first AfricanDrought Conference, held inWindhoek,Namibia inAugust 2016, brought togetherAfricanMember States andParties to theUNCCD, aswell asministers, headsofDelegation and experts to discusswaystoenhancedroughtresilience inAfrica.Thetwomajoroutcomesof theconferencearetheWindhoekDeclaration[7]andtheWhitePaperonDroughtResilientandPreparedAfrica(DRAPA)[8].SignatoriestotheWindhoekDeclarationcommittedtotheimplementationofastrategicframeworkforDRAPAatnationallevel,guidedbysixprinciples:

1. Droughtpolicyandgovernancefordroughtriskmanagement;2. Droughtmonitoringandearlywarning;3. Droughtvulnerabilityandimpactassessment;4. Droughtmitigation,preparednessandresponse;5. Knowledgemanagementanddroughtawareness;and6. Reducingunderlyingfactorsofdroughtrisk.

TheWindhoek Declaration reaffirms the countries’ commitment to seek synergies in implementing the RioConventions and various international multi-lateral proclamations, decisions and resolutionsincluding theUNCCD commitment to achieve Land Degradation Neutrality by 2030, the 2013 Final Declaration of theHMNDP,the2015SendaiFramework,the2015ParisAgreementonClimateChange,the2015UNSustainableDevelopmentGoals,theAgenda2063TheAfricaWeWant,andthe2016UNEnvironmentAssemblyresolutiontocombatdesertification,landdegradationanddroughtandpromotesustainablepastoralismandrangelands.

While there is a strong focus on drought as the primary area of concern for Africa, there have also beensubstantialeffortstoreduceriskofnaturaldisastersingeneral.Sincetheearly2000s,theemphasishasbeenplaced on pre-emptive actions that reduce disaster risk: the 2004Africa Regional Strategy forDisaster RiskReduction, its2006-2015ExtendedProgrammeofAction,aswellastheoutcomesofthe6thAfricaRegionalPlatformonDisasterRiskReductionandtheFifthHigh-LevelMeetingonDisasterRiskReductionheld in late2016.

The need for a policy framework

Emergingfromthemanyinitiativesoverthelasttwentyyears,butespeciallysince2013,isastrongadvocacyfordevelopingnationaldroughtmanagementpolicies,whichestablishaclearsetofprinciplesandoperatingguidelines togovern themanagementofdroughtandmitigate its impacts.Anationaldroughtmanagementpolicyshouldtakearisk-managementapproachthatappliesmeasurestopreparefor,adapttoandmitigatedrought impacts. Drought management policy should also support the development of comprehensivedroughtmonitoringandearlywarningsystemsandoutlinewaysforbettercommunicationanddisseminationof information on drought onset and risks. But above all, a drought management policy should empoweractionandchangethatreduceriskandincreaseresilience.

However, no single policy, action or sector can achieve this by themselves, because drought is a complexphenomenonthatistemporallyandspatiallydiffused,requiringmultipleindicatorstomeasureitsimpactandan array of actions to reduce its risk [9]. Reducing drought risk requires a multi-pronged approach andsupportingpolicy frameworkthatembracestheprinciplesandgoalsofdroughtresilienceandmanagement.The policy framework should coherently organize into logical groupings the wide variety of potentialapproachesandactionsforreducingdroughtriskandincreasingresilience.Acoherentandintegrateddroughtresilience and management policy framework would avoid fragmented and uncoordinated investments inland,water and socio-economic systems. The policy framework should recognise that drought impacts and

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risks can have interconnected effects on multiple sectors, including land, water, energy, environment andagriculture.

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2 The Drought Res i l ience, Adaptat ion and Management Pol icy (DRAMP) Framework

TheDroughtResilience,AdaptationandManagementPolicy(DRAMP)Frameworktakesanintegrated,multi-prongedapproachtoreducingrisksandimpactsofdrought.Organizedaroundsixcross-cuttinggoals(Figure1),theDRAMPFrameworkidentifiespragmaticactionsforcountriestobetterprepareandrespondtodrought,andguidesthedesignandimplementationofdroughtpolicyatnationaltosub-nationallevel.

Figure1:TheDroughtResilience,AdaptationandManagementPolicy(DRAMP)Framework.ThegoalsoftheDRAMPframeworkaremappedontothe“threekeypillars”ofdroughtriskreductiontodemonstratethelinksbetweenthe

frameworkandthepillars.AdaptedfromIPCC[10].

ThesixgoalsoftheDRAMPFrameworkarenotmutuallyexclusive,withmanyoftheactionsformanagingandadaptingtodroughtapplicableformorethanonegoal.ThesixgoalsoftheDRAMPFrameworkare:

1. Reduceexposuretodrought:reducethepotentialforlossofpeople,livelihoods,ecosystemservicesandresources,infrastructure,aswellaseconomic,socialorculturalassetsinplacesthatcouldbeadverselyaffectedbydrought;

2. Reducevulnerabilitytodrought:reducetendencytobeadverselyaffectedbydrought;

Actions

Transformation

Transferandsharedroughtrisks

Keypillar#1 Implementdroughtmonitoring andearlywarningsystems

Keypillar#2 Assessdroughtvulnerability

andrisk

Keypillar#3 Implementmeasurestolimit

impactsofdrought andbetterrespondtodrought

Reduceexposuretodrought

Increaseresiliencetoincreasingdroughtrisk

Prepare,respondandrecoverfrom

drought

Reducevulnerabilityto

drought

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3. Increaseresiliencetodroughtrisk:strengthentheabilityofcommunities,ecosystemsandeconomiestoanticipate,absorb,accommodateorrecoverfromtheeffectsofdroughtquicklyandefficientlybyensuringthepreservation,restorationorimprovementofnaturalcapital;

4. Transformation:alterfundamentalattributesofsocial,economicandecologicalsystems,includingvaluesystems;regulatory,legislative,orbureaucraticregimes;financialinstitutions;andtechnologicalorbiologicalsystems;

5. Prepare,respondandrecoverfromdrought:thebackboneofmanagementandplanningapproachestoreducedroughtrisk,includingdevelopmentofcomprehensivedroughtmonitoringandearlywarningsystems.

6. Transferandsharedroughtrisks:distributerisksamongwidersectionofsocietytoincludethosewhobenefitdirectlyandindirectlyfromrobustdroughtriskmanagement.

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3 Key Pr inc ip les of the DRAMP Framework

TheimplementationoftheDRAMPFrameworkgoalsshouldbeguidedbyasetofkeyprinciplestoensureconsistencyandclarityinthedevelopmentofdroughtmanagementpolicyandplans.ThekeyprinciplespresentedbelowarebasedontheSendaiFramework,theoutcomesoftheHMNDPandsubsequentregionalcapacitybuildingworkshops,aswellastheDRAPAstrategicframeworkandotherrelevantsources(NewZealandMinistryforPrimaryIndustries,1AgricultureVictoria2).ThekeyprinciplesthatguideDRAMPimplementationare:

1. Everycountryhastheprimaryresponsibilitytoprepareforandmitigatedroughtimpactsandreducedroughtrisks.Thisresponsibilityrequirespartnerships,coordinationandcollaborationbetweenalllevelsofgovernment,individuals,localcommunities,privatesectorandotherrelevantstakeholders;

2. Theaimofdroughtriskmanagementistoprotecthuman,social,cultural,environmentalandeconomicassets;

3. Addressingunderlyingdroughtriskfactorsismorecost-effectivethanpost-droughtcrisismanagement;

4. Education,disseminationofinformation,communicationandbuildingawarenessofdroughtrisksareessentialtoriskreduction;

5. Localcommunitiesandauthorities,aswellassocialandculturalminoritiesalongwithtraditionallymarginalizedgroups(women,poor,disabled,youngandold)mustallbeinvolvedintheprocessofdroughtriskreduction;

6. Workingwithnature(land,water,biodiversityandecosystems)isakeytoolforreducingdroughtrisk;7. Reducingdroughtriskiscriticalforsustainabledevelopment,achievinglanddegradationneutrality,

climatechangeadaptationandmitigation,foodandwatersecurity,humanhealthandbiodiversityconservation;

8. Thepriorityindroughtrecoveryandsupportshouldbegiventocommunitiesthathaveundertakenreasonableeffortstoreducerisks,withassistanceaimedatrestoringthecommunitycapacityforself-helpandrecoverywithoptimalspeed;

9. Droughtrecoveryandrehabilitationshouldbetargetedtomechanismswhichreducerisksoffuturedrought;

10. Vulnerablecountriesshoulddevelopandimplementdroughtadaptationandmanagementplansthatemployevidence-basedapproachesto:

a. Improvegovernanceofdroughtriskmanagement;b. Buildmorecomprehensivedroughtmonitoringandearlywarningsystems;c. Undertakecoordinatedandconsistentdroughtvulnerabilityandimpactassessments;d. Mitigate,prepareandrespondtodrought;e. Raiseawarenessandshareknowledgeofdrought,and;f. Reduceunderlyingfactorsofdroughtrisk.

1https://www.mpi.govt.nz/document-vault/146232http://agriculture.vic.gov.au/agriculture/farm-management/drought-preparedness/victorias-drought-preparedness-and-response-framework

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4 Act ions of the DRAMP Framework

ManyactionsareavailabletoachievethesixgoalsoftheDRAMPFramework.Thegoalsarenotmutuallyexclusive,thusactionspresentedforeachgoalcouldalsobeapplicableforothers.Takingintoaccounttheheterogeneousexpressionandimpactsofdrought,notallactionsareapplicableforeverycountry.Tokeepthisdocumentbrief,concisedescriptionsofactionsavailableforachievingtheDRAMPFrameworkgoalshavebeenincluded.Referencestoliteratureforfurtherreadingandexamplesofmanyoftheactionsarealsoprovided.Acompaniondocumentoutlinestechnicalguidelinesforpractical,on-the-groundimplementationoftheDRAMPFrameworkatnationalscale.

4.1 Reduce Exposure to Drought

Reducethepotentialforlossoflives,livelihoods,ecosystemservicesandresources,infrastructure,economic,socialorculturalassetsinplacesthatcouldbeadverselyaffectedbydrought.

Availableactionsinclude:

• Sustainablelanduseandmanagementtoimprovesoilconditions(forexample,soilorganiccarbon),increasebiodiversityandvegetatedlandcover,aswellasreduceorhaltlanddegradation[11];

• Diversifylandandagriculturalsystemstoreducerelianceonsinglecropandsingleland-usetypes[12],increasingtheuseofdrought-resistantcropvarieties;

• Takeamulti-hazardapproachtodroughtbyaligningdroughtpolicywithotherdisasterriskmanagementpolicies[13,14];

• Promoteincreasedlabourproductivityandmobilitytoreducepopulationpressuresinriskareas;• ImplementprinciplesofIntegratedWaterResourceManagementtoreducepressureonwaterresources

andincreaseavailabilityofwatertoreducethenumberofpeopleexposedtodroughtimpacts;• Buildcapacityinlocalcommunitiesandimplementbottom-upapproachestodiversifylocaleconomic

activitiesandsectors.

4.2 Reduce Vulnerabil ity to Drought

Reducethetendencytobeadverselyaffectedbydrought.

Availableactionsinclude:

• Deepenunderstandingofcommunitydroughtriskandvulnerabilitybydevelopingriskprofileswhichconsidervulnerablegroups,includingwomen,children,theelderly,thelandless,farmers,pastoralists,marginalizedcommunitiesandindigenousgroups;

• Disseminateknowledgeanddeepencommunityunderstandingofexistingdroughtadaptationpractices[15];

• Utilizesustainabletechnologytransfer,informationexchange,networkdevelopment,managementskills,professionallinkagesandotherresources[8];

• Reduceinequalitiesrelatedtowealthandeducation,disabilityandhealthstatus,aswellasgender,age,classandothersocialandculturalcharacteristicsinpopulationvulnerabletodrought[8];

• Reduceinequalitiesinaccesstonaturalresources,especiallyagriculturalwater;• Encourageinnovationsinwateruseefficiency,managementandvaluation,croppingandgrazingsystems,

landuseandlandcoverindrought-proneareas[16-18];• Increasewatersupplyoptionsthroughinvestmentinsustainableapproachestowaterharvesting,locating

newpotentialresources,buildingnewstoragesandgroundwaterrecharge;

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• Increaseanddiversifylivelihoodoptionsindrought-proneareas[19,20];• Recognizeandmitigatetheimpactsofdroughtonmentalhealthandoverallwell-being[21];• Implementlanduseplanningatlandscapescaletoencouragesustainablelanduseindrought-prone

areas;• Ensuretheconservationandsustainableuseofbiodiversityresourcesinfarmingsystems;• Encouragethecultivationofdrought-resistantspeciesandvarietiesindrought-proneareastoimprove

cropyieldsduringdrought.

4.3 Increase Resi l ience to Drought Risk

Strengthentheabilityofcommunities,ecosystemsandeconomiestoanticipate,absorb,accommodateorrecoverfromtheeffectsofdroughtquicklyandefficientlybyensuringthepreservation,restorationorimprovementofnaturalcapital.

Availableactionsinclude:

• Takeadvantageofthenaturalsystems’abilitytoreducedroughtriskthroughincreasedprovisionofecosystemservicesaswellasecologicalrestorationandbiodiversityconservation[8],reducedlanddegradationanddesertification,alongwiththewisestewardshipofallnaturalresources[22];

• Conserveandsustainablymanagewaterresources;• Usemixofhardinfrastructureandsoftsolutions,suchascapacitybuilding,greeninfrastructureand

nature-basedsolutions,toabsorbandrecoverfromtheeffectsofdrought[23];• Inagriculturalproductionsystems,diversifyherdcompositionandmovementalongwithcroptypes,

changesowingtimes,managepastureandrangelandcarryingcapacities,restoresoilfertilityandintegrity,increaseavailabilityandaccesstowater[19,24];

• Identifyanddemonstrateclearlinksbetweendroughtriskreductioninterventionsinagriculturalsystemsandlivelihoodimprovements[25];

• Insocialsystems,reducedependenciesonsingleresourcesandeconomicsectors,resolveconflictsoverlandandwaterresources;

• Taketeamapproachtothedisseminationofinformation[25]bycreatingdialogues,educatingandinformingcitizensofdroughtrisk[8].Facilitateknowledgeexchangeanddroughtexperiencesamongcommunities;

• Recognizespatialheterogeneityoflocalbiophysicalandsocio-economicdroughtcharacteristics,levelsoftechnologyadoptionandadaptationresponses[13,26-28];

• Supportcommunity-led,bottom-upinitiativesthatcreatesenseofownershipindroughtresilienceandriskreductionstrategies[8,25];

• Incorporatedroughtriskassessmentandplanningintolanduseandruraldevelopmentplanning,healthcaresystems,environmentalandnaturalresourcemanagementapproaches,supplychainsandbusinessmodels,aswellasnon-agriculturalsectors[13];

• Takeanintegratedapproachtotechnological,policyandinstitutionaloptionsthatincreasedroughtresilience[20];

• Increasehumanadaptivecapacity[29,30],especiallysocialcapital[31].

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4.4 Transformation

Top-downorbottom-upapproachestoalteringthefundamentalattributesofsocial,economicandecologicalsystems(includingvaluesystems;regulatory,legislative,orbureaucraticregimes;financialinstitutionsandtechnologicalorbiologicalsystems).

Availableactionsinclude:

• Moveawayfromshort-termreactionary,crisis,post-impactdroughtpolicyandacultureofdependencyongovernmentanddonordroughthardshippayments[3,8,22];

• Rewardpreventativemeasuresandremoveperverseincentives;• Createapreventive,long-termriskmanagementculturesupportedbydroughtprevention,mitigationand

adaptationstrategies[22,32,33];• Empowergovernmentinstitutionstoassumecoordinatedandstrategicleadership[33,34]andimplement

droughtriskmanagementpolicies[8];• Anticipateandcommunicatedroughtrisk,inparticularbyeducatingruralcommunities[13];• Supportdrought-inducedlabormigrationandincreasedproductivityinagriculture[35,36];• Recognizethebroadrangeofwater,landandecosystemvalues[37];• Takeanintegrated,trans-boundaryandparticipatoryapproachtowatermanagement[25];• Supportfairandequitableapproachesthatencourageimprovementsinwater-useefficiency;• Takeapeople-centredapproachtoreducingrisk,engagingandempoweringtypicallymarginalisedgroups,

suchasthepoor,migrants,indigenouspeople,women,youth,elderlyanddisabled[7,8,13];• Supportprocessestoimprovegovernanceandtheruleoflaw[6];• Takeanadaptivegovernanceapproachthatpromotesresiliencethroughcollaborative,flexibleand

learning-basedissuemanagementacrossmultiplelevels[38,39];• Buildeffectivesocialnetworksopentochangeandlinkedacrossstakeholdergroups[40];• Supportchangeprocessesamonginfluentialindividualsandgroups[40];• Encourageandsupportleadersacrossmultiplelevelsofgovernancetopromoteradicalchange[40];• Supportadistributedgovernancemodelthatencourageslocalgroupstoinitiateandimplementchange

[40];• Developprocessesthatputnewscientificanddisciplinaryknowledgeintolocalcontext[40];• Buildcapacitytochangerules,moveawayfromthestatusquoanddevelopunconventionalideas[40].

4.5 Prepare, Respond and Recover from Drought

Thebackboneofmanagementandplanningapproachestoreducingdroughtriskincludesthedevelopmentofcomprehensivedroughtmonitoringandearlywarningsystems.

Availableactionsinclude:

• Collecthighspatialandtemporalresolutionbaselinedataonclimate,soil,wateravailability/demandandsocioeconomics,produceconsistentdroughtriskassessmentmaps,dataonimpactandloss,andprovidethepublicwithfreeandopenaccesstodata[8,13];

• Usedatafromfutureclimatechangemodellingtosupportalong-termstrategythatreflectsestimatedtransformationscausedbyclimatechange;

• Collectanddisseminatebetterdroughtindicators[41],includingindicatorsonimpact,damage,loss[22,42]andvulnerability[43].Ataminimum,calculatecommondroughtindicatorssuchasSPIandNDVI;

• Designparticipatory,tailoredandcomprehensivedroughtmonitoringandearlywarningsystems,integratingmulti-scaleclimate,soil,waterandsocioeconomicindicators[7,13],alongwithreal-timedroughtassessmentproducts[8,33]thatprovidekeyandtimelyinformationtosupportdecisions;

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• Uselocalandindigenousknowledgeondroughtcharacteristics,impactsandriskswhereverfeasible[22,33];

• Buildmulti-sectoral,interdisciplinary,inter-countryandregional-scalecollaborationsateachstageinthedroughtmonitoringandearlywarningprocess[9];

• Buildcapacityforeffectiveinterpretationandusageofdroughtmonitoring,earlywarningandshort-timeforecastingproducts;

• Implementtheten-stepprocesstodevelopdroughtmanagementplans[1,3,33];• Design“buildbackbetter”approachthatreducesriskandenhancespreparednesstofuturedroughtsby

utilizingeffectiveandtargetedinvestmentsduringtherecovery,rehabilitationandreconstructionphases[13].

4.6 Transfer and Share Drought Risks

Spreadrisksamongwidersectionofsocietytoincludethosebenefitdirectlyandindirectlyfromrobustdroughtriskmanagement.

Availableactionsinclude:

• Designandimplementintelligent,risk-reducingfinancialstrategiesthatfinancerelief,reconstructionandlivelihoodrecovery–suchasmicro-insurance,insuranceandreinsurance,alongwithnational,regionalandglobalriskpools;

• Developweatherindexinsuranceandsafetynets[20];• Mobilizefinancialresourcesandinvolveprivatesector[8];• Developnoveloptionsforattractingprivatephilanthropicinvestmentandfinance–forexample,through

amodelcomparabletotheUNCCDLandDegradationNeutralityFund;• Takeanintegratedfood-energy-waternexusapproachtoriskmanagementthatrecognizestheriskand

benefitsformultiplesectorspotentiallyaffectedbydrought[46,47];• Improvecommunicationandinformation-sharingprocesstoincreaseawarenessofrisksassociatedwith

drought.

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5 The Way Forward

TheDroughtResilience,AdaptationandManagementPolicy(DRAMP)Frameworkisanewandintegratedapproachtodroughtplanning.Sixcross-cuttinggoalsareincludedintheDRAMPFramework,eachoutliningpragmaticandpracticalactionsfornationsandcommunitiestoreducerisks,increaseresilienceandbetterprepareandrespondtodrought.

CentraltotheDRAMPFrameworkaretheactionsthatembodythe“threekeypillars”ofnationaldroughtpolicy:

I. implementcomprehensivedroughtmonitoringandearlywarningsystems;II. completevulnerabilityassessmentsforsectors,populationsandregionsvulnerabletodrought,

and;III. implementdroughtmitigationmeasuresthatlimittheadverseimpactsofdroughtandprovide

appropriateresponsemeasureswhendroughtoccurs.

TheDRAMPFrameworkextendsthe“threekeypillars”bypresentingmanyspecificandpracticalactionsavailablefornationstoreducerisk–andnotjusttodrought,buttothedecliningstockofnaturalcapitalwithinlandandwatersystemsaswell.Bytakinganintegratedapproach,adroughtmanagementpolicythatappliestheDRAMPFrameworkactionswillincreasesocialandecologicalresiliencetoinsecurityconcerningfood,energyandwater,anditwillprotectbiodiversity.TheDRAMPFrameworkthereforealignswithinternationalandmulti-lateralagreements,aswellastheRioconventions.

Arecommendationforcountriesdevelopingdroughtmanagementplansandpoliciesistouseamulti-criteriatypeofassessmenttoidentifywhichactionsintheDRAMPFrameworkaremostrelevantinthenationalcontext.Duetotheheterogeneityoftheenvironment,economyandsocietywithinacountryandacrosscountries,noteveryactionlistedundertheframeworkgoalsmaybeapplicable.AssigningprioritytoactionsaccordingtotheirrelevanceandeffectivenesswouldbealogicalfirststeptowardsimplementingtheDRAMPFramework.

TheDRAMPFrameworktechnicalguidelines3provideexamplesofactionsthathavealreadybeentestedandimplementedinachievingthegoalsoftheframework.Forexample,thetechnicalguidelinespresentanexampleofindicatorsandindicesusedindroughtmonitoringandearlywarningsystems.Dataandexamplesofdroughtvulnerabilityassessmentsarealsopresented.Decision-makerstaskedwithdevelopingdroughtmanagementplansandpoliciesareurgedtousetheDRAMPFrameworkasaguidefortheactionstobeundertaken.

3SeeCrossman,N.D.(2018).DroughtResilience,AdaptationandManagementPolicy(DRAMP)FrameworkSupportingTechnicalGuidelines.UNCCD,Bonn,Germany

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