Japan’s efforts on mainstreaming climate change adaptation into vietnamese development policy

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


DEVELOPMENT PROBLEM

Figure 2 – Climate change vulnerability index 2012(Maplecroft, 2012)

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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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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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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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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


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


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


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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• 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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Figure 8 - Government and all line Ministries (M. = Ministry; own composition)


Figure 9 – Government institutional arrangements for responding to climate change (Waibel, 2010)

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Figure 10 – Organisation chart of the NTP-RCC(Government of Vietnam, 2008)

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Figure 11 – National Disaster Mitigation Partnership (NDMP) in Vietnam

(Ministry of Agriculture and Rural Development (MARD), 2001)

Disaster Risk Area

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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.


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


Figure 12 – Outline of the SP-RCC


Primary indicator

s

Secondary


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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Figure 13 - NTP-RCC allocation by categories(François Fortier, 2010, 233-234)

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• 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


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


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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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


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


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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Japan’s efforts on mainstreaming climate change adaptation into vietnamese development policy