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Fiji's National Adaptation Plan Framework
- 1. NATIONAL ADAPTATION PLAN FRAMEWORK Dr. Adrian Fenton 17th November 2017
- 2. • An Integrated Approach: Aims to integrate climate risk into national development planning, policies, and programs. • Country-Specific Solutions: Develop a national planning process with outputs tailored to specific needs. • Continuity: Medium and long-term adaptation planning is an iterative and complex ongoing process. • Institutional learning: Counteracts uncertainties associated with meeting medium and long term adaptation challenges. • Structural causes of vulnerability: Addresses structural causes of vulnerability, not the consequences of vulnerability. How has Fiji interpreted the NAP process? 2
- 3. There are four key steps in the NAP process: 1. Laying the groundwork and addressing gaps. 2. Preparing elements such as future climate change scenarios and climate vulnerabilities. 3. Developing implementation strategies. 4. Reporting, monitoring and reviewing. General stages of the NAP process 3 Source: LEG NAP Guidelines
- 4. Development of the NAP Framework 4
- 5. Main Relevant National Policies Main existing policies are the: • National Climate Change Policy • Green Growth Framework • National Development Plan But new policies are expected soon: • National Climate Change Policy • Disaster Risk Reduction Policy • Enhanced NDC 5
- 6. The National Adaptation Plan (NAP) Process is fundamentally different to other government policy. The NAP Process is about implementation. What to do? How to achieve it? NAP ProcessExisting Policy Focus of the NAP process 6
- 8. Approaches underpinning the NAP 8 • Horizontal integration: Mainstreaming adaptation issues across government ministries. • Vertical integration: Mainstreaming adaptation issues throughout sub- national structures. • Rural-urban linkages: recognising the separate but also connected relationships between rural and urban areas. 8
- 9. Approaches underpinning the NAP 9 • Ecosystem-based adaptation: Places ecosystems at the centre of adaptation planning. • Human rights and Gender- responsive approach: Examines, addresses, and promotes human rights and gender equality. • Private sector involvement: Leveraging the private sector. 9
- 10. Principles underpinning the NAP 10 • Inclusiveness: comprehensive stakeholder involvement. • Pro-poor: Recognising the context specific, interlinked, and multidimensional nature of poverty & vulnerability. 10
- 11. Principles underpinning the NAP 11 • Robust decision-making: Using scenario-based planning measures for major infrastructure. • Low-no regrets: Benefits regardless of climate change, triple-wins. • Managing trade-offs: Addressing trade-offs in a transparent and participatory manner. 11
- 15. Progression of the NAP Proposed activities to advance the NAP process: • Undertake an assessment of climate change activities and natural resources. • Create a knowledge management platform to facilitate institutional learning. • Standardise project documentation sent to the government to facilitate knowledge management. • Create Integrated Coastal Management (ICM) plans at the provincial level. 15
- 16. 16 Continued Create a pipeline of technical approach papers: • Integrating vulnerability assessments into sub-national planning. • Integrating adaptation into sub-national development planning processes. • Creating a resource mobilisation strategy. • Creating a monitoring and evaluation system to monitor progress. 16
- 17. Thank You For Your Attention
Editor's Notes
- The NAP Process was formally established under the Cancun Adaptation Framework, of the UNFCCC as a means to identify medium and long-term adaptation needs, as well as develop and implement strategies and programmes to address these needs. Report of the Conference of the Parties on its sixteenth session, held in Cancun from 29 November to 10 December 2010 Addendum Part Two: Action taken by the Conference of the Parties at its sixteenth session FCCC/CP/2010/7/Add.1
- Before we begin, I want to say that it is important to note that Fiji does not consider the NAP as an ends in itself. Its not just a document, it is a process, and one which has value whether or not its submitted to the COP. The NAP process has been interpreted in the following ways. Firstly, the NAP process is considered to represent a vital opportunity to enhance on-going development processes by integrating climate risk into national development planning, policies, and programs. Secondly, it is imperative that the NAP process be specific to the Fijian context... Not all countries will pursue the same type of NAP, so while there will be lessons from general guidelines and other country experiences, there is a need to ensure that these lessons are adapted to meet the Fijian context. Thirdly, The NAP process is considered to be a continuous concern for two reasons, firstly because tackling medium- and long-term adaptation planning needs should be seen as an iterative, ongoing process; but also because it is a complex task, where by the aim is to continuously improve on existing ways to integrate adaptation issues. Additionally, Due to the uncertainties associated with adaptation planning over the medium and long term…it was felt that importance should be placed on creating processes which improve institutional learning in order to counteract and meet medium and long term challenges. Finally, it was felt that the National Adaptation Plan, should be more concerned with structural causes of vulnerability rather than the consequences of vulnerability. Because of this the NAP process is highly concerned with adaptation barriers which are factors which restrict the feasibility of adaptation options or which reduce adaptive capacity Additionally, it is also concerned with adaptation limits, which represent the boundaries beyond which adaptation becomes impossible, in other words they determine an adaptation possibility frontier. Some adaptation limits are already being reached. For instance, sea level rise is creating the need to relocate rural villages and settlements. While ocean acidification and warming is contributing towards coral reef bleaching events.
- Generally speaking the NAP process is depicted as having four stages: Laying the groundwork and addressing gaps. Preparing elements such as future climate change scenarios and climate vulnerabilities. Developing implementation strategies. Reporting, monitoring and review. Fiji can be best described as being at stage 1…although on the other hand you could also offer arguments that stages 2,3, and 4 are being simultaneously addressed due to the range of initiatives currently being implemented by the government, civil society, as well as development partners. This NAP framework is part of Stage 1, it sets out the approaches and principles which will underpin how the NAP is implemented. It also sets out the institutional arrangements which will guide the formulation and coordination of efforts to implement the NAP and thus steer the national process over the long term. It also proposes some initial efforts to progress the NAP process. However, it does not itself constitute an action plan which would require more activities and wider consultation. The NAP process in Fiji is very young, we are at the beginning phase. However, there has already been a large amount of NAP relevant activities which has been undertaken which the NAP process should build upon. And when we talk about adaptation we use this term very broadly, so that it encapsulates activities such as those which address underlying drivers of vulnerability on the one hand and those which directly confront climate risk on the other hand.
- Fiji’s NAP framework which is in front of you has been developed over the last month in light of a: literature review, key informant interviews with 17 organisations ranging from private sector organisations, civil society, government institutions, and international development partners, a comprehensive written feedback process where by a draft version of the framework was sent to approximately 40 organisations And a national level consultation workshop attended by 37 representatives from 25 organisations ranging from private sector organisations, civil society, government institutions, and international development partners. By being able to create the framework in this manner we feel we have been able to have a robust framework which has been created with representatives across the civil society, private sector, regional bodies as well as international development partners.
- It was imperative that the NAP process build upon existing government policy. As climate change has cross cutting implications the NAP process is invariably relevant to just about every piece of government policy. However, 3 main pieces of government policy stand out. The first is the National Climate Change Policy, which is currently under going a process of revision to remains relevant to the fast changing context. The second is the Green Growth Framework, which is strongly linked to Fiji’s NDC The third is the new National Development Plan, which is both a 5 year and 20 year development plan, and which was launched at the COP last week. In addition to national policy, there is a substantial amount of regional and international policy and frameworks which are relevant to the NAP process. In terms of regional policy there is the SAMOA pathway and the Framework for Resilient Development in the Pacific. In terms of international policy there are the three UN conventions (desertification, bio-diversity, and climate change) and then we have the UN 2030 Agenda which gave us the SDGs and then finally the Sendai Framework. The mandate for the NAP process will stem from the soon to be revised National Climate Change Policy which will make three references to the NAP process. Firstly, it identifies the NAP as the process which builds upon Fiji’s existing adaptation activities. Secondly, it identifies the NAP as the process which integrates climate change into every aspect of national decision-making. Thirdly, it identifies the NAP as the process which fulfils Fiji’s commitment to the UNFCCC and operationalises the adaptation component of the NCCP (2017) at all levels. The NDP (2017) also provides a number of goals, priorities, and strategies which serve as a mandate for the NAP For instance, it requires adaptation to be incorporated into town planning schemes, a National Platform to be established where stakeholders can interact and better coordinate resources; 4) improved awareness of adaptation issues at community-level; and to develop a National Strategic Plan for Climate Change and Disaster Resilience.
- So what is the focus of the NAP process in light of existing national, regional, and international policy and frameworks, Well, the NAP process is fundamentally different to other policy as it is fundamentally about implementation. Specifically the implementation of the adaptation components of the National Climate Change Policy, the National Development Plan, and the NDC. This is in recognition that there is already a substantial amount of policy relevant to adaptation, there isn’t any need for more. Additionally, both the National Climate Change Policy and the National Development Plan provide the long term focus for implementation efforts.
- An important purpose of the NAP Framework is to outline the approaches and principles which underpin how the NAP process will unfold. A theory of change perspective was taken where by the approaches and principles adopted represent the enablers of the change the NAP process seeks to bring about.
- The NAP Framework highlights 6 approaches which underpin how the process will unfold. The first of these is horizontal integration, which is the process of Government Ministries and Departments incorporating climate change into their work as well as creating institutional links to enable cross-sector issues to be addressed. The Government has already made progress in this regard, for instance, there is a Climate Change and Health Strategic Action Plan 2016 - 2020. The NAP process will support efforts such as this on an on-going basis. The second approach is Vertical integration, which represents the creation of strategic linkages between national and sub-national development planning processes, as well as the incorporation of climate risk so that they become climate resilient. Another approach is Recognising rural and urban areas as separate but linked areas. Too often they are seen as distinct areas for policy. But it must be recognise that urban areas derive much of their resources for economic activity across wider geographical areas, and it is the same for their vulnerability to climate change.
- Another is the promotion of ecosystem-based adaptation where appropriate, to address deteriorating ecosystems but also to acknowledge that healthy ecosystems make a significant contribution towards adaptation and economic activity at all levels. Also vitally important is the focus on human rights and gender responsiveness, A gender responsive approach requires examination and addressing of gender norms, roles and inequalities; and to actively promote gender equality from the outset, It recognises women as agents of change rather than simply a vulnerable group. The final approach is leveraging the private sector, which is considered a vital component of the NAP process. Private sector engagement can mean businesses supporting government led adaptation measures, but it could also mean businesses adapting operations to ensure that they remain operational and profitable.
- In addition to the approaches which guide the NAP process there are also a number of guiding principles. Inclusiveness is vitally important because Fiji’s NAP process is orientated towards implementation, and development partners hold this practical knowledge in abundance. The NAP process will be designed to take advantage of this expertise as part of an explicit focus on institutional learning. However, an inclusive approach will also have the added bonus of improving coordination of government and non-government activities and minimizing the duplication of efforts, Being pro-poor is also especially relevant principle to adaptation planning . Low-income and otherwise disadvantaged groups often the most seriously affected by climate change but which often have the least capacity to cope with and adapt to negative impacts. Adaptation planning must recognise the context specific, interlinked, and multidimensional nature of poverty and vulnerability. It must also seek to improve the agency and knowledge (including indigenous or traditional knowledge) of these groups.
- Robust decision making, focusing on low-regret options, and managing trade-offs are three interlinked adaptation planning principle Robust decision-making will be used to tackle the uncertainties regarding long term climate change projections. The approach typically involves the use of climate models to screen potential adaptation options or create scenario-based decision-making processes which reduces risk. It could also mean the identification of low-regret options, which are adaptation options which either yield benefits regardless of climate change, demonstrate early benefits or quick payback periods; or offer environmental, social, and economic co-benefits. Managing trade-offs is the final principles specific to adaptation planning. Typically making a decision involves opportunity costs, while the NAP process can’t avoid this, it can ensure trade-offs are managed in a transparent and participatory way which balances the needs of all stakeholders and the need to implement government policy.
- Institutional arrangements are another vital component of the NAP process, because for adaptation to be effective it must formulate and coordinate policy across many ministries, sectors, and organisations. Now I want to reiterate that all organisations involved in adaptation have relevant expertise; and it is necessary to draw upon this expertise for adaptation planning to be efficient and effective. And to ensure that the NAP process has practical value, technical validity, acceptance, and legitimacy.
- The body charged with driving the NAP process is the ‘Climate Change and International Cooperation Division’, based within the Ministry of Economy. NAP Steering Committee A NAP Steering Committee will be created and will be comprised of representatives from each Government Ministry. The purpose of the Steering Committee is to review and ratify the content and direction of the NAP process, as well as Setting the NAP vision, Establishing responsibilities and steering the ongoing planning process, Ensuring relevant ministries continue to prioritise the NAP process into the future, Specify key actions Expert Consultative Groups and a Scientific and Technical Advisory Taskforce will support the steering committee. These will be comprised of stakeholders across civil society, the private sector, and development partners. These groups are needed to ensure it meets the NAP process meets the needs of stakeholders, and is in keeping with best practices. However, while this group can suggest or recommend changes to the NAP, final decisions regarding content rest with the NAP Steering Committee.
- The first key milestone for the NAP process is the verification and finalisation of the NAP Framework by a consultation process and the National Cabinet. It will be presented at the 23rd Conference of the Parties of the UNFCCC. Once the NAP Framework is complete efforts will start to further develop and implement the NAP process on an on-going basis. The NAP should go under formal review at every start of the national development planning cycle (every 5 years) and direct Fiji’s enhanced NDC which is to be submitted in 2018. Adaptive learning is needed with feedback sought from consultative groups comprising stakeholders across government, civil society, donors and regional bodies, academia, and the private sector. The NAP Framework will drive the formal start of the NAP process in mid-November 2017.
- Undertake an assessment of climate change activities. An immediate step could be to undertake a rapid assessment of the extent to which climate change has been integrated into relevant activities, including enforcement of climate change-related legislation. For instance, the previous NCCP (2012) required each ministry to mainstream climate change concerns within their affairs. It is currently unknown precisely the extent to which this has occurred. Linked to this priority is the need to ensure that current adaptation strategies continue to be in line with government policies such as the Green Growth Framework and the new NCCP (2017). This could involve conducting further awareness-raising workshops and sessions for policy makers, decision makers and local and national planners on climate change issues. Additionally, the assessment will need to include activities relating to, and being delivered by the private sector. This could also include an assessment of whether these projects are effective in improving the adaptive capacity of the private sector. Furthermore, the assessment will need to include all non-state efforts to pilot adaptation planning and interventions related efforts. Such efforts would have the added benefit of contributing towards Fiji’s 3rd National Communications. Mainstreaming should be seen as an on-going concern. Create a knowledge management platform to facilitate institutional learning between adaptation stakeholders. Initial consultations highlighted the absence of mechanism to disseminate project practices, lessons learned, and best practices to other stakeholders including government departments. There is a varied range of adaptation projects being implemented which would benefit sub-national adaptation planning and implementation. For instance, many NGOs are piloting the creation of adaptation plans which could benefit the integration of adaptation concerns into existing development plans. This could include an annual conference or national workshop focusing on aspects of adaptation, much like previous National Summits which used to be held. Ensure standardisation of project documentation sent to the government to facilitate knowledge management. For the government to monitor adaptation activities in the country and to distribute resources there should be some standardised elements of project documentation. For instance, to safeguard against corruption and enable local-level actors to adequately track adaptation finance, project documentation could provide locations of proposed activities so stakeholders can see to whom any adaptation project is relevant. It should give proposed budgets for each project activity outlining how much finance will flow to executing entities, for what purposes, and enable communities to question and understand the proposed cost of activities. If budgets change later, stakeholders should be aware that this has occurred. Descriptions of each individual activity could be provided so it can be understood by local-level stakeholders how they should benefit and check whether finance is being used as intended. Finally, intended beneficiaries should be identified so finance can be tracked to intended recipients, and guard against the redirection of resources. Increase efforts to create ICM plans at the provincial level. ICM appears to have an important role in future adaptation planning. To date, one province has finalised an ICM Plan, but others are being developed which incorporate a ridge-to-reef vision. . The NAP process can turn this into an advantage by increasing their development as part of sub-national development planning. A comprehensive resource mobilisation strategy will be needed. While the ICM Framework should form the basis of creating ICM Plans at the provincial level, it is imperative this framework be updated in light of recent experiences and resources are identified for implementation.
- Finally, a series of technical approach papers are proposed to enable the NAP process to progress in 4 key areas (in no particular order). The first technical approach paper relates to integrating vulnerability assessments into sub-national planning. As mentioned previously, adaptation is a mostly a local phenonom carried out by communities in response to hazards occuring within locally situated contexts. This makes local level vulnerability assessment a key component of adaptation. However, these assessments must integrate climate change vulnerability with disaster risk reduction and development to ensure communities are not over burdened by endless consultations. This is where the difficulties lie. The second technical approach paper relates to the integration of adaptation (or climate risks) into sub-national development planning processes. As stated previously, this is a significant aim of the NAP Process. Fortunately for Fiji, there are a number of execellent pilot projects currently being implemented by development partners which can help in this regard. The lessons learned through these programmes will no doubt prove invaluable, as well as reduce the likelhood of duplication. The third proposed technical approach paper is a resource mobilisation strategy which enables all of the strategies outlined above to be achieved. Importantly, the resource mobilisation strategy will relate to both financial and non-financial resources, its not simply about money. The aim is for a strategy which ensures coherence and complementarity for any external support which will be sought, with internal sources. We are highly aware of the need to ensure that external and internal resources are coordinated to maximise leveraging capacity and their efficiency. A major aim of the resource mobilisation strategy is to catalyse investment for adaptation. Where is that investment going to come from? Realistically, it will at least partially come from the private sector, consequently, we know we will have to work with the private sector, and leveraging their support will be a fundamental component of the resource mobilistion strategy. This is especially true for financial sector organisations and in preparation for this we have already had several meetings with the Reserve Bank of Fiji to start this process of engagement. The final proposed technical approach paper relates to monitoring and evalution towards achieving the aims of the NAP process. Not only for the reduction of vulnerability at the local level, but as to whether the NAP process as a whole is being achieved.