A Resilient Jamaica Unifying Vision or Impossible Dream?

 

Dr. Barbara Carby

In 2017 two Category 5 hurricanes, Irma and Maria, damaged multiple Caribbean Islands. In 2019, Dorian, again a Category 5 hurricane, severely damaged the Bahamas. In 2025, Melissa, another Category 5 hurricane, severely damaged Jamaica. These storms are some of the most powerful ever in the North Atlantic Basin with sustained wind speeds of 185 mph, 200+ mph gusts and low central pressures. Given the damage – catastrophic by most descriptions - it is not surprising that there have been calls for a more resilient Caribbean. Nor is it surprising that there is widespread agreement within and outside the region on this necessity. 

Resilience building is included in regional frameworks such as the Caribbean Regional Strategic Programme for Climate Resilience and the Comprehensive Disaster Management Strategy and Framework. There have also been several regional programmes on adapting to climate change e.g. Planning for Adaptation to Climate Change, Adaptation to Climate Change, and Mainstreaming Adaptation to Climate Change, from which countries have benefitted. However, despite the widespread agreement, declarations of intent, and programmes in pursuit of resilience, there is no universal meaning of ‘a resilient region/nation’. Each country must craft its own vision of its resilient self. What does a ‘resilient Jamaica’ mean, what will it look like?  If we are to pursue resilience as a national goal there must be a common understanding of the term and a common vision to guide us as we undertake the journey. Different disciplines have different meanings for the term. In Disaster Risk Management the definition in the United Nations Glossary (2016) is often used: 

“The ability of a system, community or society exposed to hazards to resist, absorb, accommodate, adapt to, transform and recover from the effects of a hazard in a timely and efficient manner, including through the preservation and restoration of its essential basic structures and functions through risk management.”

Black River after Melissa.

The definition states what is expected of a resilient system impacted by a hazard and how resilience is to be achieved – through risk management. How is to be operationalised? Resilience must be linked to national risk management, climate adaptation and sustainable development programmes. Although calls for resilience are often linked to climate hazards, a multi-hazard approach to resilience-building must be taken to ensure a robust response to and recovery from any shock. The interconnectedness of risk management, sustainable development, natural resource management and building of social equity must be appreciated and policy development and planning must reflect this interconnectedness. When resilience is mentioned is our natural environmental included? Sections of the economy, leisure activities as well as natural hazard defences depend on our environmental systems. These systems should therefore be included in planning, and plans for building their resilience should be explicitly stated.

Building national resilience will require making choices about which sectors are to be priorities – social, economic, infrastructure, education among others, and which elements within sectors are to be done first. How and by whom will these decisions be made? Many authors argue for an inclusive approach with strong inputs from various communities, including those whose voices are often not heard or are ignored. A participatory approach, with clear identified pathways for inputs, clear methods for arriving at priorities and mechanisms for addressing grievances, is essential. 

Assuming a unified vision of what a resilient Jamaica will look like can be reached, having set goals and targets and embarked on the journey how will progress be measured?  Measurement will require adequate monitoring and evaluation systems, but there are difficulties as there is no commonly accepted method of measurement. Methods vary widely with some having multiple thematic areas, domains, components and variables. One method proposes 128 variables! The method used for rural communities may not work for large cities. Careful thought must be put into this area if true measurements of progress are to be made. 

The United Nations definition of resilience given above calls for the society seeking to become resilient to be transformed. Transformation will require “doing things differently“, and may not be a comfortable process. Resilience building requires removing the root causes of vulnerability many of which are embedded in entrenched socio-economic and political systems. It requires opening opportunities for community empowerment; allowing communities to identify vulnerabilities and to provide solutions consistent with community needs. It will mean allowing communities to decide on prioritisation and resource allocation. This process cannot be managed effectively by a centralised system. It will be essential to increase capacity and resourcing of local authorities and to support, indeed encourage, decision-making at multiple levels. Resilience is not only about robust infrastructure, redundant communication systems and strong buildings, necessary as these are. Resilience building also requires the courage to confront and change those factors - cultural, political or socio-economic - which will nullify efforts. Long term thinking, respect for all forms of knowledge and opinions, the ability to harness talent and creativity, to build enthusiasm and consensus across the entire society are all important for those who would seek to lead the process of resilience building. Most of all, the country will need to unite behind a common understanding and vision of a ‘resilient Jamaica’ and must find the will to effect whatever change is necessary to achieve the vision. Can we achieve this unity or will it prove to be an impossible dream?

Dr Barbara Carby is a Disaster Risk Reduction advocate and member of Citizens Rights to the City.