Box 183 Mainstreaming

The links between greenhouse-gas emissions, mitigation of climate change and development have been the subject of intense study (for an overview see Markandya and Halsnss, 2002). More recently the links between climate-change adaptation and development have been brought to light (Section 18.6). As these links have become apparent, the term 'mainstreaming' has emerged to describe the integration of policies and measures that address climate change into development planning and ongoing sectoral decision-making. The benefit of mainstreaming would be to ensure the long-term sustainability of investments as well as to reduce the sensitivity of development activities to both today's and tomorrow's climate (Beg et al., 2002; Klein, 2002; Huq et al., 2003; OECD, 2005).

Mainstreaming is proposed as a way of making more efficient and effective use of financial and human resources than designing, implementing and managing climate policy separately from ongoing activities. By its very nature, energy-based mitigation (e.g., fuel switching and energy conservation) can be effective only when mainstreamed into energy policy. For adaptation, however, this link has not appeared as self-evident until recently (see Chapter 17). Mainstreaming is based on the premise that human vulnerability to climate change is reduced not only when climate change is mitigated or when successful adaptation to the impacts takes place, but also when the living conditions for those experiencing the impacts are improved (Huq and Reid, 2004).

Although mainstreaming is most often discussed with reference to developing countries, it is just as relevant to industrialised countries. In both cases it requires the integration of climate policy and sectoral and development policies. The institutional means by which such linking and integration is attempted or achieved vary from location to location, from sector to sector, as well as across spatial scales. For developing countries, the UNFCCC and other international organisations could play a part in facilitating the successful integration and implementation of adaptation and mitigation in sectoral and development policies. Klein et al. (2005) see this as a possible fourth role of climate policy, in addition to the three presented earlier in this section.

In April 2006 the OECD organised a ministerial-level meeting of the OECD Development Assistance Committee (DAC) and the Environment Policy Committee (EPOC). The meeting served to launch a process to work in partnership with developing countries to integrate environmental factors efficiently into national development policies and poverty reduction strategies. The outcomes of the meeting were an agreed Framework for Common Action Around Shared Goals, as well as a Declaration on Integrating Climate Change Adaptation into Development Co-operation (OECD, 2006). These outcomes are evidence of the importance that is now being attached to mainstreaming adaptation into Official Development Assistance (ODA) activities. The OECD framework and declaration are expected to provide an impetus to all development agencies to consider climate change in their operations and thus facilitate mainstreaming.

To facilitate mainstreaming would require increasing awareness and understanding among decision-makers and managers, and creating mechanisms and incentives for mainstreaming. It would not require developing synergies between adaptation and mitigation perse, but rather between building adaptive and mitigative capacity, and thus with development (see Section 18.6). This fourth role of climate policy highlights the importance of involving a greater range of actors in the planning and implementation of adaptation and mitigation, including sectoral, sub-national and local actors, and the private sector (Robinson et al., 2006, see also Section 18.3).

The above may give the impression that a broad consensus has emerged that mainstreaming adaptation into ODA is the most desirable way of reducing the vulnerability of people in developing countries to climate change. There is indeed an emerging consensus among development agencies, as reflected in the OECD declaration. However, concerns about mainstreaming have been voiced within developing countries and among academics. On the one hand, there is concern that scarce funds for adaptation in developing countries could be diverted into more general development activities, which offer little opportunity to evaluate, at least quantitatively, their benefits with respect to climate change (Yamin, 2005). On the other hand, there is concern that funding for climate policy would divert money from ODA that is meant to address challenges seen as being more urgent than climate change, including water and food supply, sanitation, education and health care (Michaelowa and Michaelowa, 2005).

agriculture, especially since Senegal and Mauritania remain highly dependent on agriculture and suffer deficits in staple cereal crops. These initiatives have global sustainable development benefits since they are able to offer both adaptation and mitigative benefits as well as accelerate the economic development of countries sharing the river (namely Senegal, Mali and Mauritania) (Venema et al., 1997).

The Convention on Biological Diversity has acknowledged the potential win-win opportunities between biodiversity management, on the one hand, and adaptation and mitigation to climate change, on the other. There is particular scope for this in large-scale regional biodiversity programmes such as the Mesoamerican Biological Corridor Project, in which reforestation and avoided deforestation can help to mitigate climate change through the creation of carbon sinks, while creating livelihood benefits for local communities, thus increasing their capacity to adapt to climate change. In addition, the creation of large biological corridors will help ecological communities to migrate and adapt to changing environmental conditions (CBD, 2003).

The national, sub-national and local scales are where most adaptation and mitigation actions are implemented and where most inter-relationships may be expected. However, there is little academic literature that describes or analyses policy and institutions at these levels with respect to inter-relationships of adaptation and mitigation. The literature does provide a growing number of examples and case studies (see Section 18.5) but, unlike the emerging literature on global policy and institutions, it does not yet discuss the role of policies and institutions vis-à-vis inter-relationships between adaptation and mitigation, nor does it discuss the implications of potential inter-relationships on policy and institutions. A research field is emerging that builds on studies carried out for adaptation or for mitigation. For example, the AMICA project (Adaptation and Mitigation: an Integrated Climate Policy Approach) aims to identify synergies between adaptation and mitigation for selected cities in Europe (http://www.amica-climate.net/).

In the Niayes region of central Senegal, the government has sought to promote irrigation practices and reduce dependence on rain-fed agriculture with the planting of dense hedges to act as windbreaks. These have enhanced agricultural productivity. Windbreaks have been effective in combating soil erosion and desiccation and have also provided fuelwood for cooking, thus reducing the need for women and girls to travel long distances in a rapidly urbanising area in search of wood. The windbreaks have carbon sequestration benefits but, most of all, they have helped to intensify agricultural production, especially with commercial products, thus boosting the economic livelihoods of poor communities. Thus, what started off as an adaptation strategy has had substantial integrated development benefits by easing deforestation and reducing carbon emissions, as well as addressing gender and livelihood issues (Seck et al., 2005).

Effective implementation of climate change adaptation and mitigation is often dependent on the support from local nongovernmental organisations, private sector and public government authorities. Market-based policy instruments (e.g., pollution taxes and different types of tradable permits) have been successfully implemented to provide incentives in both industrialised and developing countries. The use of tax credits and financial assistance in India has opened up the electricity market to the private sector, which has resulted in a 'wind energy boom' (Sawin and Flavin, 2004). Similarly, incentives for the uptake of biofuels and energy-efficiency programmes in Brazil have considerably reduced carbon emissions (Pew Center, 2002). Although these programmes have typically not been designed with the purpose of creating synergies between adaptation and mitigation, they do provide net adaptation and mitigation benefits, as well as addressing sustainable development priorities of communities. In addition, the private sector is increasingly becoming involved in environmental governance. For example, transnational corporations are being drawn into partnerships and networks to help managing the global environment.

A special role can be played by international funding agencies and climate change funds. For example, the World Bank BioCarbon Fund and Community Development Carbon Fund provide financing for reforestation projects to conserve and protect forest ecosystems, community afforestation activities, mini- and micro-hydro and biomass fuel projects. These projects are focused specifically on extending carbon finance to poorer countries and contribute not only to the mitigation of climate change but also to reducing rural poverty and improving sustainable management of local ecosystems, thereby enhancing adaptive capacity.

18.7.2 Inter-relationships in practice

In practice, adaptation and mitigation can be included in climate-change strategies, policies and measures at different levels, involving different stakeholders (see Section 18.3). For example, the European Union previously emphasised policies to focus on reducing greenhouse-gas emissions in line with Kyoto targets. However, it is increasingly acknowledging the parallel need to deal with the consequences of climate change. In 2005 the European Commission launched the second phase of the European Climate Change Programme (ECCP), which now also includes impacts and adaptation as one of its working groups. They recognise the value of win-win strategies that address climate-change impacts but also contribute to mitigation objectives (EEA, 2005).

Examples at the national level include the UK Climate Change Programme, which includes adaptation and mitigation (DETR, 2000). The UK also addresses adaptation through its Adaptation Policy Framework, the UK Climate Impacts Programme (UKCIP) and a Cross-Regional Research Programme led by the Department for Environment, Food and Rural Affairs (Defra). Malta identified in its first National Communication to the UNFCCC a range of win-win adaptation options, including efficiency in energy production, improving farming and afforestation (Ministry for Rural Affairs and the Environment Malta, 2004). The Czech Republic has agreed to give priority to win-win measures, due to financial constraints (EEA, 2005).

Relevant to the sub-national and local level in the UK is the planning policy and advice released by the Office of the Deputy Prime Minister for the benefit of regional planning bodies

(ODPM, 2005). It includes advice to planners on how to integrate climate change adaptation and mitigation into their policy planning decisions. ODPM (2004) encourages an integrated approach to ensure that adaptation initiatives do not increase energy demands and therefore conflict with greenhouse-gas mitigation measures. Adaptation measures would include decisions about the location of new settlements and not creating an unsustainable demand for water resources, by taking into account possible changes in seasonal precipitation.

Other examples of projects which incorporate 'climate proofing' include the Cities for Climate Protection Campaign, a worldwide movement of local governments working together under the umbrella of the International Council for Local Environmental Initiatives to reduce greenhouse-gas emissions, improve air quality and enhance urban sustainability. Local governments following this programme develop a baseline of their emissions, set targets and agree on an action plan to reach the targets through a sustainable development approach focusing on local quality of life, energy use and air quality (ICLEI, 2006). For example, Southampton City Council has developed a climate change strategy in conjunction with its air quality strategy and action plan, seeing close links between the two. The strategy includes measures for the council and partners to reduce net emissions of greenhouse gases and other pollutants through integrated energy systems and continued air quality monitoring. The mitigating measures are supported by improved management of the likely impacts of future climate change and the impacts on air quality through better planning and adaptation, such as coastal defence, transport infrastructure, planning and design, and flood risk mapping (Southampton City Council, 2004).

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