The views expressed in this paper/presentation are the views of the author(s) and do not necessarily

reflect the views or policies of the Asian Development Bank (ADB), or its Board of Directors, or the
governments they represent. ADB does not guarantee the source, originality, accuracy, completeness or
reliability of any statement, information, data, finding, interpretation, advice, opinion, or view presented,
nor does it make any representation concerning the same.

Addressing Coastal Poverty in Bangladesh in the

Context of Climate Change

Mohd. Shahadt Hossain Mahmud, PhD

Rural Risk Reduction Specialist, CDMP

Abstract: In Bangladesh, one-third of the total area having proximity to the Bay
of Bengal is considered as coastal zone. This area differs from the rest of the
country in terms of it social and ecological settings and is largely vulnerable to
global warming linked climate changes. As an evitable effect of climate change,
vulnerability is increasing there day by day aggravating the poverty of coastal
population. The Government of Bangladesh (GoB) is concern of it and has
initiated some measures to address this problem. Although the initiatives have
implication in addressing coastal poverty but those are not sufficient to address
the problem. Bangladesh needs to scale up those options along with exploration
of other appropriate economic opportunities. It is revealed that the developed
countries who are liable for global warming linked climate changes may share the
responsibility with GoB in addressing the coastal poverty of Bangladesh. Hence
this article is attempted to:

ƒ present an overview of coastal areas of Bangladesh and the livelihood

pattern of coastal population;
ƒ narrate poverty situation of coastal population and the possible risks of
global warming linked climate changes;
ƒ depict disaster management approach of Bangladesh that includes
climate risk management framework; and
ƒ talk about initiatives taken by the Government of Bangladesh to address
coastal poverty, achievements, lessons learnt and way forward.
The author also expects that it will help to gather opinions of regional experts to
find out more effective strategies to address the coastal poverty of Bangladesh.
 1. Introduction

Bangladesh is the low-lying largest deltaic island in the world formed by the
deposits of mud and sand left behind by three gigantic river systems viz the
Brahmaputra, the Ganges and the Meghna. It is situated in between 20034' and
26038' north latitude and 88001' and 92041' east longitude and criss-crossed by
over 270 rivers & tributaries. It covers an area of 143,998 sq kms and is and
resided by 156 million people having per capita yearly income 574 US$. This
densely populated, least developed agro-based country is very much prone to
natural disasters due to her unique geographical location and monsoon climate.
During last 20 years five devastating floods and four catastrophic cyclones hit
the country causing deaths of about half a million people and economic
damage equivalent to US$ 5.6 billion (Mahmud, 2010).

In Bangladesh, 19 districts out of 64 that cover almost one-third (32%) of the

county’s area have proximity to the Bay of Bengal and constituted coastal zone.
This zone differs from the rest of the country in terms of social and ecological
settings and is largely vulnerable to global warming linked climate changes. As
an evitable effect of climate changes, vulnerability is increasing there day by
day aggravating the poverty of coastal population who shares more than one-
forth (28%) of total population (PDO-ICZMP, 2004a).

Although the coastal zone posses wide range opportunities to contribute in

overall national development, those were unexplored and not received much
attention up to mid nineties. Accordingly a context of insecurity was created
there, which in turn discouraged investments at coastal zone and squeezed
economic activities of coastal people. The coastal vulnerabilities attracted the
attention of the GoB after mid nineties and realizing the reality government
declared the zone as one of the three ‘neglected regions’ (MoP, 1998) and
‘vulnerable to adverse ecological processes’ (ERD, 2003). Later on, GoB
formulated Coastal Zone Policy, 2005 and Coastal Development Strategy, 2006
and adopted Estuary Development Programme along with other initiatives to
address coastal vulnerabilities. This article is dedicated to have a look on it.

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 2

 2. The Context of Climate Change

Climate change as essential outcome of natural climatic evolution normally

happens very slowly. But due to harmful effect of global warming the trend of
climate change has got added impetus over the recent decades and resulted in
rapid alteration of the timing, pattern and levels of rainfall and temperature
across the globe. One of the most unexpected negative consequences of
global warming is ice melting, which is the prime cause of sea level rise and
inundation of coastal areas. Global warming linked climate changes are in fact
hindering the livelihood strategies of millions of people through generating
natural disasters of various types and magnitudes. Poor communities
dependent on natural resources and ecosystem services and women with
limited access to assets and decision-making processes are especially victim to
such climate changes (Mahmud, 2010).

The threat that climate change poses to animals and wildlife around the world
has made combating it one of The Nature Conservancy’s top priorities. Experts
predict that one-fourth of Earth’s species will be demolished by 2050 if the
warming trend continues at its current rate. Conservancy scientists see climate
change as the biggest threat against tranquil nature and secured investments in
lands and waters. As temperature rises, risks of heat-related illness, flooding,
severe storm impacts in coastal areas and insect-borne diseases increases.

Bangladesh is very much susceptible to climate change because of its unique

geographical location. Its deltaic shape at the funnel of sea has made it so
vulnerable to all sorts of oceanographic hazards. Other major reasons are:

‰ monsoon climate & topography

‰ huge network of rivers and channels

‰ enormous discharge of water heavily laden with sediments

‰ large number of islands in between the channels

‰ shallow funnelling to the coastal area

‰ strong tidal and wind action

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 3

 3. Perspective of Coastal Zone

In Bangladesh, the coastal zone is different to a considerable context from rest

of the country because of its unique characteristics. The Policy Note of the
Government of Bangladesh (MoWR, 1999) clearly indicates that the natural
resources of coastal zone are as different from their terrestrial counterparts as
to require different and special forms of management. It is ecologically
important because it contains critical terrestrial and aquatic habitats like
mangrove forests, wetlands and tidal flats. As a matter of fact it is blessed by
world’s largest mangrove forest Sundarban, longest sandy beach Coxsbazar,
72 offshore islands including attractive coral land mass Saint Martin. Available
data indicates that this coastal zone has lower population density with higher
literacy rates, comparatively better gender balanced population, special
livelihood groups (viz marine fishers, salt farmers, bawali and mawali), large
disadvantaged groups (viz erosion victims, island dwellers) and distinct ethnic
communities (viz Rakhaine, Pundra-Khatrio, Munda and Mahato).

Coastal zone of Bangladesh has diverse resources including mangroves,

coastal and marine fisheries, coastal agriculture, shrimp, crab and salt. There is
also opportunity of land generated through accretion process that may provide
settlement facilities to the growing coastal population. Management of on-shore
and off-shore oil and gas fields and other potential energy sources like wind
and tidal energy, sea ports located at Mongla and Chittagong and surrounding
industrial infrastructure, tourism opportunities at coastal beaches, islands and
Sundarban may create huge employment opportunity for coastal population.
Yet, vast population residing in coastal zone are passing distressing lives as
victims of cyclone, storm surge, drainage congestions, salinity intrusion, land
erosion and climate changes.

According to 2001 Population Census, coastal zone comprises 6.85 million

households with a population of 35.1 million. Their livelihoods are also varied
and some are very specific to the zone that is often influenced by different
coastal conditions. The major livelihood groups are presented below:

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 4

 Table 1: Major Livelihood Groups of Coastal Bangladesh

Livelihood Group % of HHs Remarks

Rural Areas:

Farm labour 25.5 Estimates are based on 2001

Population Census and Census of
Small farmer 25.2
Agriculture. Population Census of
Medium and large farmer 6.7 2001 indicates that rural households
Fisher 7.5 are 76.7%. In this table the same is
calculated 81.2%. The reason of
Salt farmer 0.6
slightly higher percentage is some
Shrimp fry collector 2.7 groups (salt farmer, shrimp fry

Forest resource collector 1.7 collector and forest resource

collector) are included in other
Others 11.3
groups.

Urban Areas:

Poor 11.7 2001 Population Census indicates

that urban households are 23.3%
Non-Poor 11.7
equally divided into poor & non-poor.

The vulnerability context of coastal zone may be explained in terms of problems

that people face, which affect their asset base, their choices and income. It has
regional variations as well as variations with regard to socio-economic
conditions of the people. One unique feature of the coastal zone is its distinct
vulnerabilities that many people face. These are moved varied and intense than
those faced by even poorer and most vulnerable inland communities. In fact
coastal people are vulnerable because they live in an extremely dynamic
estuarine environment facing all threats originated from ocean. Besides, there
are threats of climate change and upstream land and water uses. These threats
affect almost every aspect of live and limit livelihood choices of the people.
Major vulnerabilities are described in below table:

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 5

 Table 2: Overview of Vulnerabilities in Coastal Bangladesh

Vulnerabilities Vulnerable areas Present status Aggravation

Cyclone, storm surge Islands, exposed areas Devastating but seasonal Increasing

Land erosion Estuaries, islands, rivers Serious but seasonal Increasing

Flood Exposed areas Serious but seasonal Increasing

Drainage congestion Khulna, Jessore, Noakhali Localized but year round Increasing

Salinity Intrusion Exposed areas Localized and seasonal Increasing

Drought Satkhira Localized and seasonal Increasing

Earthquake Chittagong Unpredictable Increasing

Arsenic contamination All over Serious and year round Increasing

Ecosystem degradation Marine, Sundarban Serious and year round Increasing

Pollution Chittagong, Khulna Serious and year round Increasing

Climate change All over Serious and year round Increasing

4. Coastal Poverty Situation

The coastal zone is slightly income-poor compared to the rest of the country.
Average per capita GDP of coastal population in 1999-2000 (at current market
price of that time) was BDT 18,198 compared to BDT 18,291 outside the
coastal zone. Here poor and extreme poor separately accounts for 52% and
25% against national average of 49% and 23% respectively. Most alarming fact
is that despite rich sources of marine food their calorie intake is relatively lower
than the population residing at outside the coastal zone. Here out of 19
districts, severe poverty prevails in three districts while much lower GDP per
capita in seven districts and higher GDP per capita in two districts. Among the
livelihood groups, incidence of poverty is the highest among agricultural
labourers. In coastal zone poverty is aggravated by lack of employment, which
is further deteriorating due to increase of population (BBS, 2002).

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 6

 It is estimated that a quarter of a million new jobs need to be created annually
on the average, and about forth-fifths of these jobs should be available in urban
areas to overcome coastal poverty (PDO-ICZMP, 2004a). As a matter of fact,
like other areas of Bangladesh coastal women are poorer among the poor.
Here widespread gender gap is prevalent in all spheres and at all levels
including health, nutrition, education, employment and political participation.
Coastal zone also lacks in physical facilities with respect to market
infrastructure though those are critically important for economic life. It is found
that the average area per growth centre in and outside coastal zone is 80 km2
and 66 km2 respectively. The lower number of growth centres may be
considered disincentive to women’s market access, economic participation and
mobility (PDO-ICZMP, 2004b).

Services with respect to water, sanitation, health and electricity are poor in
coastal zone. Here density of running tube-wells per sq km is 7 while 8 in
outside coastal areas. Only 11 percent households posses water-sealed latrine,
compared to 14 percent nationally. One hospital bed (run by government) is
prevalent against 4,637 persons compared to 4,276 persons nationally. Access
to national electricity grid is limited with only 31 percent households. It is
apprehended that some parts of coastal zone particularly the off-shore islands
being remote and not accessible, will not be connected with the national
electricity grid in the foreseeable future (PDO-ICZMP, 2003).

In coastal zone, the average area under a UP is 35 km2 compared to 32 km2

outside coastal zone. Since proximity to Union Parishad (UP) office is assumed
to be positively correlated with services rendered by a UP in respective
jurisdictions, we can reasonably assume that coastal people are enjoying lesser
services compared to the people living outside coastal zone. Another
distressing point is that majority of rural households in coastal areas is either
landless or small farmer despite social structures are mainly based on land
holdings (PDO-ICZMP, 2004).

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 7

 5. Anticipated Climate Change Impact

Climate Changes are resulted in increasing frequency and severity of natural

disasters with adverse impact on natural ecosystem and quality of human
survival. Its possible major risks in coastal Bangladesh are:

(a) Sea level rise that may aggravates: floods and river bank erosion;
salinity intrusion in agricultural lands; shortage of pure drinking water;
water logging; undesired change in bio-diversity and loss of wildlife.

(b) Unpredicted rainfalls that may be liable for: droughts and decrease
productivity in agriculture; deforestation and change in cropping
pattern; unemployment of agricultural laborers.

(c) Risks related with health that may derive from: increased incidence of
water-borne and air-borne diseases; bacteria and parasites of
warmer and wetter conditions.

(d) Loss/lack of entitlements that may causes: loss of standing crops;

loss/damage of livestock/dairy/poultry/fisheries; loss of trees/fruits;
loss/damage of vegetable garden.

(e) Disruption of social net-work that may create: unemployed and

poverty; insecurity, crime, violence; migration of people.

According to the projection of Intergovernmental Panel on Climate Change

(IPCC), global temperature will rise 1.80 to 4.00 by the last decade of 21st
century that may result in 0.18 to 0.79 metres of sea level rise. National
Adaptation Programme of Action (NAPA) predicts that sea level is expected to
rise in Bangladesh about 88 cm by 2075. This may cause inundation of 17%
land and salinity move up to 60 km north, serious water logging, severe
drainage congestion, disruption in coastal polders, strong cyclones and tidal
surges, bigger floods and more river erosion, change in coastal morphological
dynamics and migration of 35 million people to cities. Hence, Bangladesh is
identified by UNDP to be the most vulnerable country in the world to tropical
cyclones and the sixth most vulnerable country to floods.

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 8

 6. Disaster Management Approach in Bangladesh

Bangladesh has created a simplistic model to guide disaster risk reduction

and emergency response management efforts. The model has three key
elements and ensures that the move to a more comprehensive risk reduction
culture remains central to all efforts. There are two major components of
comprehensive disaster management model, Risk Reduction and Emergency
Response. Risk Reduction has also another two elements: defining risk
environment and managing risk environment. The key characteristics of this
approach are:

• it provides a framework to guide the achievement of the Hyogo

Framework for Action commitments;

• it clearly articulates the key elements of disaster management and

their interactive relationships;

• it facilitates the transition from generic hazard based to specific risk

based programmes through the inclusion of technical inputs;

• it provides guidance for the design of policy, planning and training;

• it provides a mechanism to achieve consistency in process and

methodology;

• it ensures preparedness and response strategies are influenced by

technical and traditional considerations.

In Bangladesh, disaster risk reduction (DRR) and climate change adaptation

(CCA) share a common space for reducing the vulnerability of communities and
achieving sustainable development. It is because, climate change is altering
disaster risk, not only through increased weather related risks, sea-level rise
(SLR) and temperature and rainfall variability, but also through increases in
societal vulnerabilities from stresses on water availability, agriculture and
ecosystems. While CCA is an adjustment in natural and human systems, DRR
is the development and application of policies and practices that minimize risks
to vulnerabilities and disasters.

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 9

 Thus DRR is an essential part of adaptation is providing the first line of defence
against CC impacts. However, Bangladesh developed a Climate Risk
Management Framework to overview the linkages between mitigation, CRM
and DRR and their relationship with development and sector planning.

Climate Risk Management Framework

Mitigation Global Warming

Kyoto Protocol

Macro Country Analysis

•Temperature Variation
•Sea Level rise Research, Modeling
•Monsoonal Rainfall and Mapping
Climate
Risk Management Capacity Building
(UNFCCC)
Micro Sectoral Analysis
•Development Planning
Cross Sectoral Analysis •Sectoral and Agency
Planning
•Risk Reduction Action
Capacity Building
Planning
Community Risk
Assessment
Disaster Risk Reduction
(HFA)
Community Adaptation

PRSP and MDG Goals

In Bangladesh, climate change threatens both previous achievements and

future efforts to reduce poverty. In order address this problem GoB initiated
Comprehensive Disaster Management Programme (CDMP) in 2004 as a key
strategy in achieving the Government’s Vision and Mission on Disaster
Management. Meanwhile CDMP developed a framework model for
mainstreaming DRR integrating climate risks and followed by community level
adaptation which is working for sustainable livelihood development and poverty
reduction.

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 10

 7. Initiatives to Address Coastal Poverty

Coastal poverty and coastal opportunity in Bangladesh are not hidden issues
rather it is exposed to policy makers as well as development activists in many
ways. But those issues were not given proper attention in the past. Recently the
Government of Bangladesh (GoB) has initiated some measures to address this
problem. Below are the mentions of some measures taken by the GoB:

ƒ PDO-ICZMP: stands Programme Development Office for Integrated

Coastal Zone Management Plan, which is a program under Water
Resources Planning Organization (WARPO) of the Ministry of Water
Resources (MoWR) jointly financed by Netherlands and UK.

ƒ Land Reclamation: an initiative of Bangladesh Water Development

Board (BWDB) to recover accredited char and off-shore lands.

ƒ Green Belt Creation: initiative of Department of Forest (DoF) to protect

cyclone and storm surges through creating protection of trees.

ƒ Char Livelihood Project: BWDB leaded initiative supported by five

relevant departments to distribute khas lands among landless poor and
uphold their livelihoods

ƒ Coastal Rehabilitation Programme: BWDB initiated programme to

construct polders at different places

ƒ Empowerment Coastal Fisheries Community: an initiative of Ministry of

Fisheries (MoF) to uphold the livelihood of fisher folk community

ƒ Coastal Afforestation Programme (on going): a programme of Ministry

of Environment and Forest (MoEF) to create forest on the bank of sea
and coastal embankment

ƒ RR schemes for Sidr & Aila affected people: schemes of risk reduction
adopted at Sidr and Aila affected areas by GO-NGO-INGOs and
development partners.

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 11

 8. Achievements

It is difficult to mention any significant achievement with regard to addressing

coastal poverty in Bangladesh since no substantive measure was taken in this
respect. Although the Government of Bangladesh (GoB) in addition to national
level regular safety-net programmes has initiated some measures to address
this problem, most of those were indirect in nature and had limited implication
over the problem. Yet, the following steps may be treated as first stage
achievement in the way to address coastal poverty in Bangladesh:

ƒ Coastal Zone Policy (CPZPo), 2005: establishes the goal of integrated

coastal zone management to create conditions, in which the reduction
of poverty, development of sustainable livelihoods and the integration
of the coastal zone into national processes can take place.

ƒ Coastal Development Strategy (CDS), 2006: the linking pin in the

ICZM process, dedicated to linking the CZPo with concrete
development programmes and interventions.

ƒ Polders, embankments & shelters: constructed 123 polders, more

than 5000 km of embankments and more than 2000 multi-purpose
cyclone shelters.

ƒ Land Reclamation: more than 50,000 ha lands were reclaimed along

the Noakhali coast through Meghna cross dam.

ƒ Mangrove Plantation: vast areas in newly accreted chars and islands

have been put under mangrove plantation.

ƒ Cyclone Preparedness Programme (CPP): Bangladesh Red Crescent

Society (BDRCS) initiated CPP in the early 1970’s that eventually
developed into a world model of physical and institutional infrastructure
for disaster management in cyclone prone areas.

ƒ Promotion of Saline Tolerant HYV (BR 47, 15 types of vegetables)

and implementation of various RR schemes in Sidr and Alia affected
areas.

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 12

 9. Lesson Learnt

ƒ Favourable mindset of relevant stakeholders is essential

ƒ Needs horizontal-vertical integration at national, sectoral & local level

ƒ Should be emphasized in Annual Development Planning

ƒ Requires integration of DRR and CRM through effective partnerships

among wide range actors

ƒ Commitment, motivation and financial support is very much needed to

address coastal poverty

10. Way Forward

Need scale up of the above mentioned initiatives along with management of:

ƒ land generated through natural accretion

ƒ diverse resources of Sundarban

ƒ coastal and marine fisheries

ƒ coastal agriculture, shrimp, crab and salt

ƒ on-shore and off-shore gas fields

ƒ coastal wind and tidal energy

ƒ sea ports located at Mongla and Chittagong

ƒ tourism at beaches, islands and Sundarban

Developed nations liable for CC should contribute to address coastal poverty

of Bangladesh.

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 13

References

BBS, 2002: Statistical Yearbook of Bangladesh 2001, Bangladesh Bureau of

Statistics, Dhaka: 2002

ERD, 2003: Bangladesh – A National Strategy for Economic Growth, Poverty

Reduction and Social Development, Dhaka: Ministry of Finance, March, 2003

GoB, 2008, Bangladesh Climate Change Strategy and Action Plan, Dhaka:
MoEF, September, 2008

Mahmud, Dr. Mohd. Shahadt Hossain, (2010): Disaster Management and

Climate Change: Bangladesh Perspective” paper presented in the Climate
Change Science-Policy Dialogue organized by BCAS in collaboration with EU,
UNEP, IPCC and some other international organizations on 9th February, 2010
at Pan Pacific Sonargoan Hotel, Dhaka, Bangladesh.

MoWR, 2006: Coastal Development Strategy, Water Resources and planning

Organization, Dhaka: February, 2006

PDO-ICZMP, 2003, Coastal Livelihoods – Situation and Context, Programme

Development Office for Integrated Coastal Zone Management Plan, Dhaka:
September, 2003

PDO-ICZMP, 2004, Living in the Coast - People and Livelihood, Programme

Development Office for Integrated Coastal Zone Management Plan, Dhaka:
March, 2004

PDO-ICZMP, 2004a, Living in the Coast - Problems, Opportunities and

Challenges, Programme Development Office for Integrated Coastal Zone
Management Plan, Dhaka: June, 2004

PDO-ICZMP, 2004b, Women of the Coast – A Gender Status Paper of the

Coastal Zone, Programme Development Office for Integrated Coastal Zone
Management Plan, Dhaka: January, 2004

Addressing Coastal Poverty in Bangladesh in the Context of Climate Change 14