japan’s efforts on mainstreaming climate change adaptation into vietnamese development policy
DESCRIPTION
International Workshop on International Climate Financing (University Leuven)TRANSCRIPT
Japan’s Efforts on Mainstreaming Climate Change
Adaptation into Vietnamese Development Policy
Hanne Louise KNAEPEN10 December 2013
International Workshop on International Climate Financing (University Leuven) 1
Outline(A) Mainstreaming Climate Change Adaptation (CCA) into development
1 – Adapting to climate change
2 – Mainstreaming CCA into development
3 – Measuring mainstreaming: discourse, actors, rules & resources
4 - Case study of JICA in Vietnam(B) Japan’s efforts on mainstreaming CCA into Vietnamese development policy
1 – Mainstreaming CCA into Development: actors• Vietnamese Development Policy• JICA
2 - Mainstreaming CCA into Development: resources• Vietnamese development policy• JICA
(C) Addressing the mainstreaming gaps
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(A) Mainstreaming Climate Change Adaptation (CCA)
into Development1. Adapting to climate
change2. Mainstreaming CCA into
development3. Measuring mainstreaming:
discourse, actors, rules & resources
4. Case study of JICA in Vietnam
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1. Adapting to climate change
Figure 1 – Variations of the Earth’s surface temperature, 1000-2100
(Parry et al., 2007)4
1. Adapting to climate change
DEVELOPMENT PROBLEM
Figure 2 – Climate change vulnerability index 2012(Maplecroft, 2012)
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1. Adapting to climate change
Responding to climate change through
ADAPTATION
“The adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial
opportunities.” (Parry et al., 2007)
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1. Adapting to climate change
CLIMATE CHANGE
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2. Mainstreaming CCA into development
Climate Change Adaptation(CCA) mainstreamingall sectors of societyprocess of development policy planning & implementation
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2. Mainstreaming CCA into development
MACRO-LEVEL
MESO-LEVEL
MICRO-LEVEL
DONOR:
JICA
Support Programme
to Respond to Climate Change (SP-RCC)
NATIONAL LEVEL:
Government in Hanoi
National Target Programme to
Respond to Climate Change
(NTP-RCC)
LOCAL LEVEL:Can Tho City
Climate Change Coordination
Office
Figure 3 – Mainstreaming on three levels(Adapted from Persson & Klein, 2009)68
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2. Mainstreaming CCA into development
Figure 4 - Four key explanatory factors to understand policy change (Arts & Leroy, 2006)
3. Measuring mainstreaming: discourse, actors, rules & resources• Mainstreaming as a New Policy Arrangement:Policy Arrangements Approach (PAA) (Arts et al., 2006)resources
actorsrules discourse
Figure 5 - The tetrahedron as symbol for the connections between the dimensions of a policy arrangement(Adapted from Arts et al., 2006)6911
3. Measuring mainstreaming: discourse, actors, rules & resources
Figure 6 - Development of PAA for 3 levels12
3. Measuring mainstreaming: discourse, actors, rules & resources DISCOURSELEVEL PRIMARY INDICATORS SECONDARY INDICATORSMacro Policies, plans & strategies - Separate CCA policy
- CCA in country strategyClimatic data Climate change scenariosMeso
Policies, plans & strategies - Decentralisation- National CC policy- Sectoral Action Plans- CC in PRSP / SEDP / SEDS*
Climatic data Climate change scenariosMicro
Policies, plans & strategies - Decentralisation- Local CC policy- Sectoral Action Plans- CC in local SEDP / SEDS*
Climatic data Climate change scenarios* PRSP: Poverty Reduction Strategy Paper / SEDP: Socio-Economic Development Plan / SEDS: Socio-Economic Development Strategy13
Table 1 – Mainstreaming indicators for the discourse dimension
3. Measuring mainstreaming: discourse, actors, rules & resources ACTORSLEVEL PRIMARY INDICATORS SECONDARY INDICATORS
MacroAuthority High-level CC authorityCooperation - Donor coalition
- All-sector involvementStakeholder involvement - NGO engagement- Micro engagement
MesoAuthority High-level CC authorityCooperation - New institutional arrangements
- National CC platformStakeholder involvement - NGO engagement- Micro engagement
MicroAuthority High-level CC authorityCooperation - New institutional arrangements
- Local CC platformStakeholder involvement - NGO engagement- Scaling up
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Table 2 – Mainstreaming indicators for the actors dimension
3. Measuring mainstreaming: discourse, actors, rules & resources
RULESLEVEL PRIMARY INDICATORS SECONDARY INDICATORSMacro Declarations - MDGs Goal 1*
- Paris Declaration: ownershipLegislation Judicial advice CCAMeso Declarations - MDGs Goal 1
- Hanoi Core Statement: ownershipLegislation Laws / Decisions / Decrees CCAMicro Declarations Local MDGs Goal 1Legislation Laws / Decisions / Decrees CCA* Millennium Development Goals (MDGs) Goal 1: Eradication of poverty.
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Table 3 – Mainstreaming indicators for the rules dimension
3. Measuring mainstreaming: discourse, actors, rules & resources
RESOURCESLEVEL PRIMARY INDICATORS SECONDARY INDICATORSMacro Budget - Separate CCA financing
- Pilot-projects- CC budget mechanism
Meso Budget - Separate CCA financing- Pilot-projects- CC budget mechanism
Micro Budget - Separate CCA financing- Pilot-projects
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Table 4 – Mainstreaming indicators for the resources dimension
3. Measuring mainstreaming: discourse, actors, rules & resources
Ranking Systema)1 (not the case), 2 (low), 3 (moderate), 4 (high)b) Calculation of the level of mainstreaming per dimension and overall outcome per level: high (4.0>3.4), high (3.3>2.8), medium (2.7>2.2), low (2.1>1.7), very low (1.6>1.0)c) Understanding barriers to mainstreaming
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4. Case Study of JICA in Vietnam
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• Since 1995: top donor in Vietnam
• Traditionally: “growth-oriented poverty reductions”
• In recent years: economic & intellectual interests in Vietnam
• 2008: JBIC x JICA loans
• High number of climate change programmes in developing countries, e.g. 2009, Support Programme to Respond to
Climate Change (SP-RCC)
4. Case Study of JICA in Vietnam
• 2008, National Target Programme to Respond to Climate Change (NTP-RCC)
Figure 7 - Map of Vietnam (www.jaif.co.jp.) 19
1. Mainstreaming CCA into development: actors• Vietnamese development policy• JICA
2. Mainstreaming CCA into development: resources• Vietnamese development policy• JICA
(B) – Japan’s Efforts on Mainstreaming CCA into
Vietnamese Development Policy
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1. Mainstreaming CCA into development: actorsVietnamese development policy
ACTORSLEVEL PRIMARY INDICATORS SECONDARY INDICATORSMeso
Authority High-level CC authorityCooperation - New institutional arrangements- National CC platformStakeholder involvement - NGO engagement- Micro engagement
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Table 5 – Mainstreaming indicators for the actors dimension on the meso-level
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1. Mainstreaming CCA into development: actorsVietnamese development policy
• Interview, Senior Project Formulation Advisor, Disaster Management and Rural Water Supply, JICA:
“Basically, the coordination between the line agencies at the central level is the main obstacle to working with the Vietnamese government.”
• Interviews, Climate Change Policy Advisor, UNDP; Senior Project Formulation Advisor, Disaster Management and Rural Water Supply, JICA:
“The Ministry of Environment and Natural Resources are the least open to cooperation with other ministries.”
Main obstacle to institutional mainstreaming on meso-level:
2008, Vietnamese National Target Programme to Respond to Climate Change (NTP-RCC)
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1. Mainstreaming CCA into development: actorsVietnamese development policy
Figure 8 - Government and all line Ministries (M. = Ministry; own composition)
1. Mainstreaming CCA into development: actorsVietnamese development policy
Figure 9 – Government institutional arrangements for responding to climate change (Waibel, 2010)
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1. Mainstreaming CCA into development: actorsVietnamese development policy
Figure 10 – Organisation chart of the NTP-RCC(Government of Vietnam, 2008)
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1. Mainstreaming CCA into development: actorsVietnamese development policy
Figure 11 – National Disaster Mitigation Partnership (NDMP) in Vietnam
(Ministry of Agriculture and Rural Development (MARD), 2001)
Disaster Risk Area
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1. Mainstreaming CCA into development: actorsVietnamese development policy
Primary indicator
s
Secondary
indicatorsGrade Detail
CooperationNew
institutional arrangements
No(1) Non-existent
Low(2)
Well functioning institutions in DRR area; creation of at least one CCA coordinative institution; strong sectoral fragmentation mainly due to Ministry of Environment
Moderate (3)
Well functioning institutions in DRR area; creation of at least one CCA coordinative institution; strong sectoral fragmentation due to general political context
High(4)
Well functioning institutions in DRR area; creation of at least one CCA coordinative institution; effective ministerial cooperationTable 6 – Detailed grading system for “new institutional arrangements”, actors
dimension
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1. Mainstreaming CCA into development: actorsJICA
ACTORSLEVEL PRIMARY INDICATORS SECONDARY INDICATORSMacro
Authority High-level CC authorityCooperation - Donor coalition- All-sector approachStakeholder involvement - NGO engagement- Micro engagement
Table 7 – Mainstreaming indicators for the actors dimension on the macro-level
Macro
1. To support the development and implementation of climate change policies and strategies based on the NTP-RCC
2. To serve as a platform for (1) aid harmonization, (2) policy dialogue, and (3) project formulation.
1. Mainstreaming CCA into development: actorsJICA
2009, Support Programme to Respond to Climate Change (SP-RCC)
ClimateChangerelated
strategies, policies, etc.
Policy Action Sectors Main Responsible MinistriesMOIT
MARDMOCRelated ministries
MOT, MOC, MOIT2) Transportation and Construction3) Forestry and Agriculture4) Waste Disposal5) CDM6) Water
8) Disaster Prevention9) Forestry, Biodiversity and Agriculture
11) Health Care
7) Integrated Coastal Management
10) Transportation and Construction
MOC etcMARD etcMARDMARD, BCA etcMOT, MOCMOH
12) Assessment, Monitoring & Evaluation13) Financial Mechanism
15) Awareness Raising and Human Resource Development
MOSTMOF, MPIMPI
MOET
Mitigation
Adaptation
Cross-Cutting
Pillars
MONRE
1) Energy (Renewable Energy and Energy Efficiency)
14) Mainstreaming CC issues to development planning and Program Management of NTP-RCC and SP-RCC
10 Ministries and agencies 35 Depts together
1. Mainstreaming CCA into development: actorsJICA
Figure 12 – Outline of the SP-RCC
1. Mainstreaming CCA into development: actorsJICA
Primary indicator
s
Secondary
indicatorsGrade Detail
Cooperation Donor coalition
No(1) Non-existent
Low(2)
Donor takes part in harmonisation effort for aid effectiveness
Moderate (3)
Donor takes part in harmonisation effort for aid effectiveness; donor takes part in harmonisation effort related to climate change
High(4)
Donor takes part in harmonisation effort for aid effectiveness; donor takes part in harmonisation effort related to climate change; donor is member of an aid effectiveness group within the Environment Ministry; government creates CCA platform with clear framework for climate change funding.
Table 8 – Detailed grading system for “donor coalition”, actors dimension
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RESOURCESLEVEL PRIMARY INDICATORS SECONDARY INDICATORSMeso Budget - Separate CCA financing
- Pilot-projects- CCA budget mechanism
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1. Mainstreaming CCA into development: resourcesVietnamese development policy
Table 9 – Mainstreaming indicators for the resources dimension on the meso-level
MesoMeso
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1. Mainstreaming CCA into development: resourcesVietnamese development policy
Figure 13 - NTP-RCC allocation by categories(François Fortier, 2010, 233-234)
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1. Mainstreaming CCA into development: resourcesVietnamese development policy
• 2008, NTP-RCC:“a financial mechanism should be created for the State to ensure necessary resources and to mobilise domestic and international supports”.• 2006, Decree No. 131 on ODA management and utilisation:“financial planning related to ODA is the responsibility of the Ministry of Planning & Investment (MPI), in coordination with the Ministry of Finance (MoF)”.
However, the Ministry of Natural Resources and Environment (MoNRE) is mainly responsible for CCA. For mainstreaming, MPI and MoF should decide over the CCA budget allocation over all sectors.
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Primary indicator
s
Secondary
indicatorsGrade Detail
Budget CCA budget mechanism
No(1) Non-existent
Low(2)
Approval of CCA budget mechanism; unclear roles of MPI and MoF
Moderate (3)
Approval of CCA budget mechanism; clear roles of MPI and MoF
High(4)
Approval of CCA budget mechanism; clear roles of MPI and MoF; MoNRE proposes single CCA funding schedule
1. Mainstreaming CCA into development: resourcesVietnamese development policy
Table 10 - Detailed grading system for “CCA budget mechanism”, budget dimension
2. Mainstreaming CCA into development: resourcesJICA
RESOURCESLEVEL PRIMARY INDICATORS SECONDARY INDICATORSMacro Budget - Separate CCA financing
- Pilot-projects- CCA budget mechanism
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Table 11 – Mainstreaming indicators for the resources dimension on the meso-level
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2. Mainstreaming CCA into development: resourcesJICA
SP-RCC:
• Loan agreement / budget support(2012: 248 million USD; 2013: 278-328 million USD)
• However, lack of financial mechanism to allocate budget to climate change
• 2010: creation of framework for financing climate change investments as a priority (Decision No. 8981/VPCP-QHQT, Dec. 10 2010)
• 2011: Prime Minister approval• 2012: pilot application• 2013: regular operation of the framework
According to the SP-RCC Programme Manager: “most striking achievement of the SP-RCC”
Primary indicator
s
Secondary
indicatorsGrade Detail
BudgetCCA
budget mechanism
No(1) Non-existent
Low(2)
Commitment of donors to align CC activities with Government plans; increased budget support; understanding of the need for financial mechanism and budget line
Moderate (3)
Commitment of donors to align CC activities with Government plans; increased budget support; matching of aid within NTP-RCC; Creation of separate CCA budget allocation mechanism
High(4)
Commitment of donors to align CC activities with Government plans ;increased budget support; aligining aid within NTP-RCC; full implementation of budget line CC projects
2. Mainstreaming CCA into development: resourcesJICA
Table 12 – Detailed grading system for “CCA budget mechanism”, resources dimension
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Addressing the mainstreaming gaps
Three Key Findings (2)
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Figure 14 – 3 levels of mainstreaming, 3 different outcomes
Figure 15 - Overcoming the barriers through Mainstreamed Donor Policy Dialogue 41
Three Key Findings
Thank you very much for your kind attention.
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References• Arts, B. and P. Leroy. “Institutional Processes in Environmental Governance: Lots of Dynamics, not Much Change?” Institutional Dynamics in Environmental Governance. Edited by Bas Arts and Pieter Leroy. Netherlands: Springer, 2006.• Arts, Bas, Pieter Leroy, Jan van Tatenhove. “Political Modernisation and Policy Arrangements: A Framework for Understanding Environmental Policy Change.” Public Organiz Rev, no. 6 (2006): 93-106.• Fortier, François. “Taking a Climate Chance: A Procedural Critique of Vietnam’s Climate Change Strategy”. Asia Pacific Viewpoint, no. 3, (December 2010): 229-247.• Government of Vietnam. Approval of the National Target Porgramme in Response to Climate Change. Hanoi: Prime Minister Office, 2008.•Ministry of Agriculture and Rural Development, Disaster Management Centre, General Directorate of Water Resources. Establishment of a National Platform for Disaster Risk Reduction and Climate Change Adaptation in Viet Nam. Hanoi: MARD, 2010.•Parry, Martin L., Osvaldo F. Canziani, Jean P. Palutikof and Co-authors. “Technical Summary. Climate Change 2007: Impacts, Adaptation and Vulnerability.” In Contribution of Working Group II to the Fourth Assessment Report of the Intergovernmental Panel on Climate Change, edited by Martin L. Parry, Osvaldo F. Canziani, Jean P. Palutikof, Paul J. van der Linden and Clair E. Hanson, 23-78. Cambridge University Press, Cambridge, UK, 2007.• Persson Åsa and Richard J.T. Klein. “Mainstreaming Adaptation to Climate Change in Official Development Assistance: Challenges to Foreign Policy Integration.” In Climate Change and Foreign Policy: Case Studies from East to West, edited by Paul G. Harris, 162-177. London and New York: Routledge, 2009.
• Waibel, Gabi. “State Management in Transition: Understanding Water Resources Management in Vietnam.” ZEF Working Paper Series, no. 55 (2010), 1-48.
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