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“Today it would be madness to make plans for development assuming no change in climate….Adaptation is development in a more hostile climate” (Sir Nicolas Stern, DFiD conference, 2010) From notes from Karen Hardee on session on climate financing and the MDG. Agenda 2010: Turning the Tide on Poverty. DFiD. London, March 12. In an earlier review in 2003, the World Bank Group concluded that: “Climate change is a serious risk to poverty reduction and threatens to undo decades of development efforts” World Bank Group. 2003. Poverty and Climate Change: Reducing the Vulnerability of the Poor through Adaptation. Washington, DC: World Bank Group. In guidance issued in 2009, OECD reiterated the same thing. OECD. 2009. Policy Guidance. Integrating Climate Change Adaptation into Development Cooperation. www.oecd.org/env/cc/adaptation/guidance.
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An analysis by OECD from six countries (Bdesh, Egypt, Tanzania, Uruguay, Nepal and Figi) sought to quantify the effects. Published in 2005, It showed that a significant proportion of annual official aid flows are directed towards activities affected by climate risk. Estimates ranged from a high of 50-65% of total official aid flows in Nepal to a low of 12-26% in Tanzania. In monetary terms, over half a billion US dollars might be affected in Bangladesh and Egypt and around 200 million in Tanzania and Nepal (van Aalst and Agrawala, 2005). In Fiji, while the absolute amount is low, approximately one-third of all aid flows is nevertheless directed towards activities that might be affected by climate change. Agrawala, S and F Crick. 2009. “Climate Change and Development: Time to Adapt.” In E Palosuo, Ed. 2009. Rethinking Developmenty in a Carbon Constrained World. Finland: Ministry for Foreign Affairs. “The World Bank estimates that up to 40% of all development financed by overseas assistance and concessional loans is sensitive to climate risk.” (Ayers and Huq, 2008: 3).
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Currently the MDG summit is taking place in New York – five more years to reach the MDG – the world’s agreed upon goals to reduce poverty and enhance development.
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UNDP has outlined how climate change will affect ability to achieve each of the MDG. For example, for goal 1, reducing poverty and hunger, …. For goal 8, partnerships, they call for increased funding for both development and adaptation
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Agrawala, S and F Crick. 2009. “Climate Change and Development: Time to Adapt.” In E Palosuo, Ed. 2009. Rethinking Developmenty in a Carbon Constrained World. Finland: Ministry for Foreign Affairs. “Bridging the gap between the climate change and development communities, however, requires more than a simple handshake. This is because the two communities have different priorities, often operate on different temporal and spatial scales, and do not necessarily even speak the same language. Many development practitioners are not familiar with the intricacies of climate science or of the climate negotiations, as they continue their annual journey from one exotic locate to another. Meanwhile, few in the climate change community have ever heard of the Paris Declaration on Aid Effectiveness or the Accra Agenda for Action which guide the agenda for development co-operation (Agrawala and Crick, 2009). “It is…not straightforward even for experts within the field of climate change adaptation and development – and much less so for development policy and project planners in developing countries – to establish a clear picture of what mainstreaming is, let alone how it can be made operational, supported and strengthened at the various national and sub-national levels” (UNDP, 2010)
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Yet, there is a lot of terminology to contend with: development sustainable development MDG – poverty reduction development pathways ODA vs. climate financing “Until recently, climate change was viewed largely as an environmental concern of little relevance to development policy makers or practitioners. Likewise, development approaches have been given less attention than technological and natural science approaches focusing on reducing GHG emissions. Nevertheless, unsustainable development is the underlying cause of climate change, and development pathways will determine the degree to which social systems are vulnerable to climate change.” 2009, Climate and Development Days, Copenhagen. http://www.iisd.ca/climate/cop15/dcd/html/ymbvol99num6e.html. Accessed 9.11.10 Andrew Revkin, DOT EARTH blog: August 21, 2010: Do the Top Billion need New Goals? http://dotearth.blogs.nytimes.com/2010/08/21/do-the-top-billion-need-new-goals/ Paris Declaration: Ownership Alignment Harmonization Managing for results Mutual accountability
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Note: cc mitigation = implementing policies to reduce GHG emissions and enhance [carbon] sinks IPCC cc adaptation = Initiatives and measures to reduce the vulnerability of natural and human systems against actual or expected climate change effects. IPCC http://www.ipcc.ch/pdf/glossary/ar4-wg3.pdf UNFCCC defines adaptation in a narrow sense, as adaptation to climate change as distinct from climate variability (hence the ‘additionality’ criteria).” Ayers and Huq, 2008. These distinctions are important for negotiations regarding costs and burden sharing. As an example, the recent flooding in Pakistan was certainly related to climate variability but what about climate change? At what point will we be able to pin any particular event on climate change?
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Note: cc mitigation = implementing policies to reduce GHG emissions and enhance [carbon] sinks IPCC cc adaptation = Initiatives and measures to reduce the vulnerability of natural and human systems against actual or expected climate change effects. IPCC http://www.ipcc.ch/pdf/glossary/ar4-wg3.pdf UNFCCC defines adaptation in a narrow sense, as adaptation to climate change as distinct from climate variability (hence the ‘additionality’ criteria).” Ayers and Huq, 2008. These distinctions are important for negotiations regarding costs and burden sharing. As an example, the recent flooding in Pakistan was certainly related to climate variability but what about climate change? At what point will we be able to pin any particular event on climate change?
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Note: cc mitigation = implementing policies to reduce GHG emissions and enhance [carbon] sinks IPCC cc adaptation = Initiatives and measures to reduce the vulnerability of natural and human systems against actual or expected climate change effects. IPCC http://www.ipcc.ch/pdf/glossary/ar4-wg3.pdf UNFCCC defines adaptation in a narrow sense, as adaptation to climate change as distinct from climate variability (hence the ‘additionality’ criteria).” Ayers and Huq, 2008. These distinctions are important for negotiations regarding costs and burden sharing. As an example, the recent flooding in Pakistan was certainly related to climate variability but what about climate change? At what point will we be able to pin any particular event on climate change?
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“Mainstreaming means integrating climate concerns and adaptation responses into relevant policies, plans, programs, and projects at the national, sub-national, and local scales (USAID, 2009) 2 views of adaptation: technology based view- ensuring that projections of climate change are included in decisionmaking in relevant government departments and relevant technologies are chosen Development based view – ensures that in addition to climate proofing, development efforts are consciously aimed at reducing vulnerability by including priorities that are essential for successful adaptation, such as ensuring water rights to groups exposed to water scarcity during a drought. This latter option takes a more holistic approach to adaptation, seeing responses not as stand-alone or discreet climate-specific options, but as also addressing the underlying drivers of vulnerability that exposes people to climate change impacts.” (Ayers and Huq, 2008: 5).
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Colleagues at the Joint Global Change Research Institute (JGCRI) are developing a framework to jointly assess the climate change and development outcomes of proposed projects. This practical framework will be most useful if it is used for development projects AND for climate change projects. Janetos, AC, E Mastrangelo, EL Malone. 2010. Linking Climate Change and Development Goals: Framing, Integrating, Measuring. Draft. Joint Global Change Research Institute and University of Maryland
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Ian Johnson, former Vice President for Sustainable Development at the World Bank, and Chairman of IDEAcarbon, 2008
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Meteorology and Environment focus from the beginning. The ultimate objective of the UNFCCC--to "stabilize greenhouse gas concentrations in the atmosphere at a level that would prevent dangerous anthropogenic interference with the climate system.“ The UNFCCC sets an overall framework for intergovernmental efforts to tackle climate-induced challenges. Under it, governments gather and share information on greenhouse gas emissions, national policies, and best practices and commit to coordinated national strategies for addressing greenhouse gas emissions and adapting to expected impacts, including the provision of financial and technological support to developing countries. Mitigation rather than adaptation 2010 – the “first” international conference on climate change adaptation in the Gold Coast, Australia
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“Adaptation requires mechanisms cutting across governments’ sectoral forms of organization. National policy coordination for adaptation, disaster risk reduction, poverty alleviation, and human development should be led from the highest political and organizational level. Climate change is far to big a challenge for any single ministry because it requires coordination among multiple sectors.” (Sweden Commission on Climate Change and Development, 2009)
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This structure is playing out in countries also. Writing about CC and sustainable development in Botswana, Opha Pauline Dube from the University of Botwana noted that: Botswana is only beginning to acknowledge that climate change solutions lie not with environmental ministries but with those dealing with economics and development issues including the private sector. A number of policy instruments addressing economic diversification, rural development and poverty alleviation, disaster management exist in Botswanabut need to be reviewed and integrated for use as a basis for addressing climate change mitigation and adaptation. While that is so, a number of these policies do not take into account climate variability. Systematic incorporation on climate change adaptation and mitigation into the development process will be best achieved where a climate change policy framework and a national climate change strategy is in place to guide the integration of climate change adaptation with response to climate variability and link these with mitigation under the national development goals. A clearly defined strategy will need to incorporate a system for monitoring and evaluating mitigation and adaptation strategies to ensure that the measures applied remain cost effective and have positive feed back on sustainable development. Botwana committed to tackling climate change. 4/21/10 http://www.gov.bw/en/News/Botswana-committed-to-tackling-climate-change-/ Botswana is marching towards becoming a green economy, Minister of Environment, Wildlife and Tourism, Mr Kitso Mokaila, revealed Monday. Mr Mokaila was speaking at the ongoing International Centre for Theoretical Physics (ICTP)–Africa conference on developing countries vulnerability to climate change at the University of Botswana. He said as a long term response to climate change, his ministry, as per a presidential directive had been tasked to oversee preparation of long term mitigation and adaptation strategy
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In a case study of Cambodia, the Swedish Commission on Climate Change and Development, which published their report in 2009, was old: “An official for the Council for the Development of Cambodia, responsible for national aid coordination, wondered how development resources could be effectively coordinated when there were 19 technical working groups and 2,000 bilateral aid projects, a figure that leaves out the roughly 1,000 projects managed by NGOs. ‘Under the leadership of the Ministry of the Environment, all ministries and agencies are required to integrate priority activities,’ the Commission was told, but in Cambodia, as in other countries, the environment ministry has little power over other ministries.” Sweden Commission on Climate Change and Development, 2009 Commission on Climate Change and Development [Sweden]. 2009. Closing the Gaps: Disaster Risk Reduction and Adaptation to Climate Change in Developing Countries. Report. Stockholm: Commission on Climate Change and Development, Ministry of Foreign Affairs.
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The objective of the climate change cell is to enable to management of long-term climate risks and uncertainties as an integral part of national development planning. Contribute to wider objectives of the wider Comprehensive Disaster Management Programme, which aims to strengthen the capacity of the BD Disaster Management System to reduce unacceptable risks and improve response and recovery activities. A major objective of the climate change cell is providing necessary support to the government in addressing climate change concerns and challenges through capacity development, knowledge management, and mainstreaming climate and disaster risks into development planning, policies and processes. Climate Change Cell [Bangladesh]. 2008. Changing the Way We Develop. Dealing with Disasters and Climate Change in Bangladesh. Dhaka: Ministry of Environment and Forestry, Department of Environment, Climate Change Cell. www.climatechangecell-bd.org
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Climate Change Cell [Bangladesh]. 2008. Changing the Way We Develop. Dealing with Disasters and Climate Change in Bangladesh. Dhaka: Ministry of Environment and Forestry, Department of Environment, Climate Change Cell. www.climatechangecell-bd.org
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Frameworks are being developed to show how mainstreaming can be done, but they focus on the development side. This one by Saleem Huq and Jessica Ayers of IIED is good but would be stronger if it also showed how to bring the climate change side – e.g. ministries of meteorology to knowledge about development – and I dare say the people side of development so that development and climate really become business as usual together. Ayers, J and S Huq. 2008. “Supporting Adaptation to Climate Change: What Role for Official Development Assistance?” Presentation at the DSA Annual Conference 2008. ‘Development’s Invisible Hands: Development Futures in a Changing Climate.’ 8 November. London. https://www.iied.org/climate-change/key-issues Story about talking to a negotiator from a European country before Copenhagen – gender has nothing to do with climate change. We need dams and hydroelectric power and big infrastructure projects and to focus on energy.
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World Bank. 2010. Monitoring Climate Finance and ODA. Washington: World Bank. Yannick Glemarec et al. 2009. “Charting a New Low Carbon Route to Development: A Primer on Integrated Climate Change Planning for regoinal Governments,” Chapter 2. New York: UNDP. Key climate funds: World Bank Pilot Program on Climate Resilience (PPCR) through Strategic Climate Fund (Largest multilateral source, grants/loans) Least Developed Countries Fund (NAPA) through GEF Underfunded, slow pace, additional cost principle applices Special Climate Change Fund Activities in all countries; emphasis on adaptation Adaptation Fund, established under Kyoto protocol Not yet operational Copenhagen Green Climate Fund (mitigation and adaptation) Many questions about operationalization
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POSSIBLE SLIDE 2: Copenhagen Green Climate Fund · Outlined in the Copenhagen Accord in December 2009 · Pledges $30 billion from developed countries for 2010-2012 · Ramps up to $100 billion annually by 2020 · Funds intended for mitigation and adaptation, to include a mix of public and private sources · Many questions remain about operationalization FOR NOTES PAGE: With frozen budgets and constituent demands, it will be tough for U.S. policymakers to make good on pledges from the U.S. “fair share” for fast-start financing. Already for FY 2011, the administration’s climate request falls short of what is needed. The U.S. and other key donors will probably not be appropriating funding toward the Green Climate Fund until there is a Secretariat in place (which happens at COP 16 in Cancun). It’s hopeful that over the next 9 months, a High-Level Panel on financing that was convened by Ban Ki-Moon will get the wheels in motion to a point where operationalizing the fund can happen this December. However, it’s likely that 2 years will be needed before funds start to flow into this Green Fund. In the meanwhile, the global health community’s work on starting up the Global Fund may offer international donors (such as the U.S.) valuable lessons for the Green Climate Fund’s inception.
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World Bank. 2010. Monitoring Climate Finance and ODA. Washington: World Bank. “Integrating adaptation into national development plans will be more cost-effective if available resources for adaptation and development can be pooled and if existing development processes and mechanisms can be strengthened.” p. 19. “distinguishing ‘additional’ costs of climate change impacts from baseline development needs is extremely complex if not impossible.” Also, “many countries cannot afford to meet the baseline development costs so the offer of funding for the additional cost is futile.” Ayers and Huq, 2008 World Bank. 2010. Monitoring Climate Finance and ODA. Washington: World Bank. Assuming +20 Celsius global climate stabilization target, about $75-$100 billion could be required annually over next 40 years to support adaptation to inevitable climate change in developing countries This amounts to about “only .2% of the projected GDP of all developing countries in the current decade and at the same time to as much as 80% of total disbursements of ODA.’ WB. 2010. The Economics of Adaptation to CC.
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This is from the WB report: The Cost to Developing Countries of Adapting to Climate Change: New Methods and Estimates. Looked at: Infrastructure Coastal zones Water supply and flood protection Agriculture, forestry and fisheries Human health Extreme weather events Since the 1960s, weather-related natural disasters have more than tripled “An analysis of the cateogories of ODA activities reported by the OECD DAC countries demonstrated that more than 60% of all ODA could be relevant to building adaptive capacity and facilitating adaptation.” (Ayers and Huq, 2008: 3). Adaptation costing studies have tended to focus more on these “hard” adaptation measures, as they are easier to cost than behavioural and policy measures. This may lead to a bias towards structural measures and a neglect of potentially critical “soft” measures needed to facilitate adaptation (such as better land use planning), and lead to inappropriate and costly adaptation actions. It may also result in overestimation of adaptation costs. Economic Aspects of Adaptation to Climate Change: Costs, Benefits and Policy Instruments Edited by Shardul Agrawala and Samuel Fankhauser, OECD, 2008.
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Nancy Birdsall – setting up a system for adaptation funding that is based on the system for ODA would be a mistake. CC requires pooled funds that are outside the donor system. At DFID meeting Agenda 2010: The Turning Point on Poverty “Rather than funding adaptation as it is understood by the UNFCCC, and which is morally an additional responsibility of developed countries to currently ODA contributions, new development funds relevant to climate change adaptation should be used to fund what the UNFCCC cannot; broader resillience building, necessary for ‘additional’ adaptation to be successful.” Ayers and Huq, 2008 Ayers, J and S Huq. 2008. “Supporting Adaptation to Climate Change: What Role for Official Development Assistance?” Presentation at the DSA Annual Conference 2008. ‘Development’s Invisible Hands: Development Futures in a Changing Climate.’ 8 November. London. OECD calls for a horizontal fund for adaptation to “provide the additional resources necessary for sectoral ministries to meet the costs of incorporating adaptation into their activities” (OECD, 2009)
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World Bank. 2010. Monitoring Climate Finance and ODA. Washington: World Bank. This designation would allow countries to record contributions to ODA – for “classic” development activities and for activities that contribute to addressing climate change – recorded as “ODA climate” Determining the incrementality of climate action in development programs and projects will remain a challenge.
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How are the health and climate sectors collaborating? WHO estimates that climate change may already be causing more than 150,000 deaths/yr, and will grow. Furthermore, the UNFCCC estimates PDF that climate adaptation costs for the health sector will be in the range of $4 billion to $12 billion per year by 2030. Weather-related disasters affect human health and national health systems. Temperature rises, drought and flooding worsen diarrhoeal diseases, malnutrition, malaria and dengue. Climate changes affect what the World Health Organization (WHO) calls the fundamental requirements for health, namely, clean air, safe drinking water, sufficient food and secure shelter. Additionally, people need access to functioning health systems to build resilience and to turn to in times of disaster. Climate disasters also affect health systems. WHO estimates that more than 200 health facilities have been damaged or destroyed as a result of the flooding in Pakistan. People are cut off from needed medicine and services, including maternal health services for pregnant women.
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As the lead health agency within the U.N. system, WHO represents the health community at the international level and provides the link to operational health programs in the field. When possible, it cooperates with the UNFCCC on aspects of climate change and lends its expertise to specific UNFCCC initiatives;. WHO recently launched a global campaign PDF to raise awareness of the effects of climate change on health and to ensure that health is part of the agenda in UNFCCC negotiations. It prepared a global work plan to assess and address the implications of cc for health and health systems following a resolution titled "Climate Change and Health," adopted in May 2008 by the World Health Assembly. WHO has also submitted an action pledge to the Nairobi Work Program in October 2008. WHO committed itself to strengthening its scientific, normative, and policy development functions; enhancing operational programs (e.g., combating infectious disease, improving water and sanitation services and hygiene practices, and providing health support in emergencies); and supporting ministries of health and other health actors throughout the world.
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UNFCCC adaptation projects, including NAPAs, supported financially by the GEF Implementation of on-the-ground projects/ programs through GEF agencies GEF agencies serve as the channel between countries and the GEF for the project-approval process, and Participate in GEF governance, policy, and program development.
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UNFCCC adaptation projects, including NAPAs, are supported financially by the Global Environmental Facility (GEF), which operates funds such as the Least Developed Country Fund and the Special Climate Change Fund. It also facilitates the implementation of on-the-ground projects and programs through GEF agencies. Today, there are 10 GEF agencies--the original three implementing agencies (the World Bank, U.N. Environment Programme, and U.N. Development Programme) and seven executing agencies. These agencies serve as the channel between countries and the GEF for the project-approval process, and they participate in GEF governance, policy, and program development. Unfortunately, WHO is not currently a GEF agency, and health is not among the GEF's focal areas. [Biodiversity, Climate change, International waters, Ozone depletion, Land degradation, Persistent organic pollutants.] The GEF is currently holding discussions on a variety of reforms, among them a proposal to add three more institutions, including WHO, to the roster of GEF agencies.
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As climate change adaptation planning moves to longer-term approaches it is instructive to examine how well the process for developing National Adaptation Programmes of Action (NAPA) was linked to national development planning. NAPAs established as part of the Marrakech Accords of the 2001 Conference of Parties (COP) to UNFCCC. NAPAs are a major mechanism through which adaptation funding is to be provided to least developed countries and small island states, which are likely to face the most severe impacts of climate change and have least capacity to cope. NAPAs provide a process for LDCs to identify priority activities that respond to their urgent and immediate adaptation needs. NAPAs are supposed to link with national development strategies and fit into longer-term national plans of adaptation action - ongoing discussions on enhanced long-term co-operative action on adaptation occurring within the UNFCCC negotiations – including meeting this month (June 2009) in Bonn. An important guiding principle in the preparation of NAPAs is that the process ought to be a bottom-up, participatory approach that involves a broad range of stakeholder groups and focuses on local communities. In reality, the lead sectors have been environmental and meteorological – with implications for what is included in NAPAs. Most written; not so many projects underway – around 10% of the more than 400 projects proposed are approved -
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A guiding principle in the preparation of NAPAs is that the process is to be built upon existing national development plans such as Poverty Reduction Strategies, Sustainable Development Strategies, national conservation strategies, disaster preparedness/management plans and sectoral plans. Clive Mutunga and I did an analysis at PAI of NAPAs, including assessing how links were made with development planning. Figure 1 shows that in 31 countries (76%), NAPAs do not clearly demonstrate how they are linked to the national development processes. In 10 countries (24%) the documents clearly establish the linkages between the NAPA and national development plans, complete with detailed analyses of the identified vulnerabilities and proposed projects. This analysis is supported by others, including an assessment of six country development plans by the OECD (van Aalst and Agrawala, 2005), which found that “very few core development plans, strategies and projects explicitly considered the implications of climate change.
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This disconnect may be due, in part, to the structural differences between development plans and NAPAs. Although the sustainable development approach implies a longer-term perspective, the guidelines for NAPAs imply a shorter-term perspective. Also, national developing plans are prepared by ministries of finance or planning, while climate change is under the purview of environment ministries.
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Using the UNFCCC classification, the 448 projects identified in the submitted NAPAs fall into 12 broad categories, including one cross-sectoral category. Half of the projects fall into three sectors – food security terrestrial ecosystems water resources All critical for feeding and sustaining the livelihoods for millions of people who are susceptible to climate change and adverse weather effects. Health sector - 7% of all projects. In addition, two cross-sectoral projects have health sector components, in Sudan and Solomon Islands.
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Population is a factor in climate models measuring emissions, based on the I-PAT model by Erlich and Holdren in the 1970s - Impact (GHG emissions) = Population x Affluence x Technology Kaya Identity (1990s): Impact (GHG emisssions = Pop x (GDP/population) x (energy/gdp) x (CO2 /Energy) CO2 emissions = population x per capita economic production x amount of energy used per unit of economic production (energy intensity), and the amount of CO2 emitted per unit of energy produced (carbon intensity) When we think of population growth, we tend to think of the UN “medium variant” projection, but in fact, depending on a number of factors, the variation in possible population size is tremendous, even in just the next 40 years. In 2050: population range 8.5-10 billion Medium variant population projection assumes strong investments in and expansion of family planning programs. One study suggests that achieving the low variant projection for 2050, rather than the medium growth scenario of around nine billion people, could result in one to two billion fewer tons of carbon emissions. O’Neill B. “Population and Climate Change.” In Mazur L. 2009. A Pivotal Moment. Population , Justice and the Envioronmental Challenge. Washington, DC: Island Press. Jiang, Leiwen and Karen Hardee. 2009. “Does Population Matter to Climate Change?” PAI Working Paper. WP09-1. April.
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From the study: Kidanu, A, Rovin K and Hardee K. 2009. Linking Population, Fertility and Family Planning with Adaptation to Climate Change: Views from Ethiopia. Washington, DC: Population Action International.
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Population is mentioned as an important factor related to climate change in 37 NAPAs only 6 NAPAs (Comoros, Ethiopia, Gambia, Kiribati, Zambia and Uganda) explicitly state that slowing population growth or meeting an unmet demand for FP should be a key priority for their adaptation strategy, only 2 NAPAs propose projects that include FP/RH (Uganda and Sao Tome and Principe). Neither of the projects has been funded.
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-Data on unmet need exist for 25 out of 49 NAPA countries -Projections are based on the medium-variant assumptions As an aside PRS aren’t great on population and RH/FP either, so the topic is being neglected in both NAPAs and PRS.
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Recommendations Need a new paradigm – really linking cc and development – post MDG and climate change as it affects natural and human systems Need commonly understood/agreed definitions of climate change, development and financing. Rethink the global/national architecture on development and cc – if they aren’t harmonized and brought together, they will always be competing to some extent CC funding need to be adaptive to development funding yet the 2 should not be put in silos. Clearly development with climate change will take much more funding than development w/out climate change. Yet figuring out “additionality” and what is development and what is climate change is going to be impossible. We need another paradigm. Integrated programming is need for both development and climate change mitigation and adaptation and for both together Really involve communities – not just lip service and not just small Community-based adaptation projects
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