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South-South ExchangE REpoRtGuadalajara, Mexico, August 11 to 13, 2015
Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+
Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+
Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+
Presenters:
BRAZIL: AlexandreSantosAvelino, Ministry of the Environment, Brazil
CHILE: OsvaldoQuintanilla,National Forestry Commission of Chile, CONAF
COSTA RICA: AlexandraSaénz,MaríaElenaHerrera,FONAFIFO
COLOMBIA: EderssonCabrera,IDEAM RubénDaríoGuerrero,Ministry of the Environment and Sustainable Development
ECUADOR: MaríadelCarmenGarcía, Ministry of the Environment
GUATEMALA: JorgeLu,National Council for Protected Areas
HONDURAS: MelaniaDurán,Programa ONU-REDD Honduras; JorgeLuisSantos,Institute for Forestry Conservation
MÉXICO: AnaKarlaPerea,JorgeMorfínand JaimeSeverino,CONAFOR
PARAGUAY: DamianaMann,INFONA DaniaMoreno,Ministry of the Environment
PERU: JoséLuisCapella, Peruvian Society for Environmental Law ClaudiaOchoayJorgeTorresPadilla, Ministry of the Environment
Guest Experts:MaríaDoloresAlmeida(Consultant);JosefinaBraña(WWF),WalterOyarzabal(Ministry of the Environment of Uruguay and Expert at the UNFCCC);ZeniaSalinas(FCPF),GmelinaRamírez(BID-FIP),DanielaRey(Climate Law & Policy). Editing of the report:PatriciaToquica, UN-REDD Programme
Photographs:GuadalupePérezEstrada, Alsain Soluciones Audiovisuales, México
Rapporteurs and presenters on behalf of the UN-REDD Programme Agencies:
FAO: SerenaFortuna,AngelParra,LucioSantos.
UNDP: MarcoChiu,BrunoGuay,PierreGuedez, CleaPaz,KimberlyTodd.
UNEP: DanielaCarrión,JacintoCoello, GabrielLabatte,ThaisNarciso,StevenSwan, JudithWalcott.
About the UN-REDD Programme:
The UN-REDD Programme is the United Nations collaborativeinitiativeonReducingEmissionsfromDeforestationandForestDegradation(REDD)indevelopingcountries.TheProgrammewaslaunchedin2008andbuildsontheconveningroleandtechnicalexpertiseoftheFoodandAgricultureOrganizationoftheUnitedNations(FAO),theUnitedNationsDevelopmentProgramme(UNDP)and the United Nations Environment Programme (UNEP). TheUN-REDDProgrammesupportsnationally-ledREDD+processesandpromotesthe informedandmeaningful involvementofallstakeholders, including Indigenous Peoples and other forest-dependent communities, in national and international REDD+implementation.
About CONAFOR:
TheNationalForestryCommissionofMexico(CONAFOR),createdbypresidentialdecreeon14April2001,isaDecentralizedPublicAgencywhoseobjectiveistodevelop,promoteandfosteractivitiesrelatingtoproduction,conservationandrestorationwithregardtoforestryresources,aswellasparticipatingintheformulationofplans,programmes,andintheimplementationofpoliciesrelatingtosustainableforestdevelopment.
SOUTH-SOUTH EXCHANGE REPORT
2
Introduction 5
Session 1. Opening 6
Session 2. Possible Relationships between the Elements of the Warsaw Framework for REDD+ 7
BRAZIL.AlexandreSantosAvelino,MinistryoftheEnvironment 7
ECUADOR.MaríadelCarmenGarcía,MinistryoftheEnvironment 8
MEXICO.AnaKarlaPerea,CONAFOR 8
GUESTEXPERT:KimberlyTodd,UN-REDDProgramme,UNDP 9
Session 3. Integration of policies and measures in the context of national policies 10
CHILE.OsvaldoQuintanilla,CONAF 10
ECUADOR.MaríadelCarmenGarcía,MinistryoftheEnvironment 11
COSTARICA.MaríaElenaHerrera,FONAFIFO 11
MEXICO.JaimeSeverino,CONAFOR 11
GUESTEXPERT:DoloresAlmeida,FormerVice-MinisterofFinanceinEcuador 12
CHALLENGES 13
Session 4. Legal aspects of REDD+ 14
GUATEMALA.JorgeLu,NationalCouncilforProtectedAreas,CONAP 14
HONDURAS.MelaniaDurán,UN-REDDNationalProgramme 15
PARAGUAY.DaniaMoreno,UN-REDDNationalProgramme 15
PERU,JoseLuisCapella,PeruvianSocietyforEnvironmentalLaw 15
Session 5. Financial challenges for REDD+ policies and measures and the management of various results-based payment mechanisms 16
PANELPRESENTATIONS 16
COLOMBIA,RubénGuerrero,MinistryoftheEnvironmentandSustainableDevelopment 16
COSTARICA.MariaElenaHerrera,FONAFIFO 17
Table of contents
3
4Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
BRAZIL,AlexandreSantosAvelino,MinistryoftheEnvironment 18
PERU,JorgeTorresPadilla,MinistryoftheEnvironment 18
WORKGROUPS 19
Group1:ChallengesforthefinancingofREDD+PAMS 19
Group2:Results-basedpaymentsforREDD+andchallengesforharmonization 20
Session 6. Lessons learned regarding the preparation of Forest Reference Emission Levels and the technical annex for access to financing 21
BRAZIL,AlexandreSantosAvelino.MinistryoftheEnvironment 21
COLOMBIA,EderssonCabrera,IDEAM 22
MEXICO,JorgeMorfín,CONAFOR 22
PERU,ClaudiaOchoa,MinistryoftheEnvironment 23
GUESTEXPERT:WalterOyarzabal(TechnicalReviewerforBrazil) 23
GUESTEXPERT:MariekeSandker(FAO) 24
Session 7. Safeguard Information System 25
PresentationbyStevenSwan,GlobalSafeguardsExpert,UN-REDDProgramme 25
Workgroups,Keypointsandconsiderations 26
Legal/institutionalissuestobeaddressedinapproachingandcomplyingwiththeCancunSafeguards 26
TechnicalandfinancialconsiderationsforpreparingandimplementingtheSIS 26
PreparinginformationsummariesinaccordancewiththeSBSTA42decision 27
Perspectivesofcivilsocietyandindigenouspeoplesrelatingtosafeguards 27
Session 8. Progress in the implementation of the Warsaw Framework regarding the National Forest Monitoring System (NFMS) 29
CHILE.OsvaldoQuintanilla,CONAF 29
COLOMBIA.EderssonCabrera,IDEAM 30
HONDURAS.JorgeLuisSantos,ForestryMonitoringInstitute 30
PARAGUAY.DamianaMann,INFONA 30
Session 9. Analysis of challenges for the implementation of the Warsaw Framework for REDD+ 32
Challengesconcerningtherelationshipandsequenceofcomponentsandprogress 32
ImplicationsofvariousNREFoptions 32
Howtomaintainconsistencywithregardtoresults-basedpayments 32
Financing 33
ParticipatoryprocessesinrelationtotheWarsawFramework 33
Session 10. Conclusions 34
ANNEXES 36
ANNEXI Additionalworkshopdocumentation 36
ANNEXII AcronymsandAbbreviations 36
Practical Experiences towards the Implementation of the Warsaw Framework for REDD+: Opportunities and Challenges
CountriesinLatinAmericaandtheCaribbeanhavemadesignificantprogressinpreparingfortheimplementationofREDD+withvariousdegreesofprogressintheiralignmentwithexistingguidelinesoftheUNFCCC,particularlywithregard to the guidelines of theWarsaw Framework forobtainingresults-basedpaymentmechanisms.
In August 2014, an initial exchange was held in Quito,Ecuador,relatingtotheexperiencesbetweencountriesintheregionregardingthedevelopmentoftheirNationalStrategiesandREDD+ActionPlans.ThiseventwitnessedthesharingofexperiencesbetweencountriesinpreparingforthefutureimplementationofREDD+.Aspartofthefollowupdoneafterthemeetingbetweenparticipatingcountries,participantsrecognizedtheneedforcarryingoutadditionalexchangesconcerningtheimplementationofthefourpillarsoftheWarsawFrameworkaswellaspossibleoptionsforsuitablecoordinationwithotherresults-basedpaymentmechanisms.
Taking into account the various opinions expressedby countries relating to priority issues, stakeholdersidentifiedtheneedtodiscusspracticalissuesrelatingtotheimplementationoftheWarsawFrameworkforREDD+andinparticular,theexchangeofexperiencesrelatingto theapproachesand ideasofcountries for tacklingchallengesandopportunitiesforputtingthisframeworkintopractice.
Theneedtodiscusstheseexperiencesintheregionhasbecomeevenmoreurgentwhentakingintoaccountthat:
• Brazil,Colombia,Ecuador,MexicoandGuyanapresentedtheirNationalForestReferenceEmissionLevelstotheUNFCCCandhavegainedinexperiencethroughtheirreviewprocess.
• Progress has been witnessed in defining the legalconditionsofthevariouspilotagreementsforresults-based payment of REDD+ in which countries in theregionareinvolved.
• ManycountrieshavemadesignificantprogressoverthelastyearinthedevelopmentoftheirNationalStrategiesand/orActionPlans.
Inthiscontext,theUN-REDDProgrammeandtheNationalForestryCommissionofMexico(CONAFOR)havemadeadecisiontoprovideaforumforlearningandthepracticalexchange of experiences among the countries in theregion,basedonthefollowingspecificobjectives:
• Provideaframeworkforlearningandobtaininglessonslearnedfromcountriesintheregionregardingprogressand challenges towards the implementation of theWarsawFrameworkforREDD+
• Familiarizationwiththepracticalexperiencesofcountrieswhen it comes to relationships between the fourpreparatorypillarsofREDD+, includingtechnicalandlegalissues
• IdentifypossiblesolutionstochallengesencounteredbycountriesinmakingprogressinthepreparationandsubsequentimplementationofREDD+.
Theeventcountedontheparticipationof83individuals(48menand35women)from15countriesintheregion,including Argentina, Brazil, Chile, Colombia, Costa Rica,Ecuador,ElSalvador,Guatemala,Honduras,Mexico,Panama,Paraguay, Peru, the Dominican Republic and Surinam.The event took place over three days and consisted of10 thematic sessions in which the countries themselveswerethemainprotagoniststhroughtheirexperiencesinspecializedpanelsandworkinggroups.
INTRODUCTION
5
OpeningSESSION
01MAURICIO RAMíREZ,UNDP Mexico Country Director (Representing the Resident Coordinator of the United Nations in Mexico)
• As reflected in thePeruCOP(UNSummitonClimateChange),countriesinLatinAmericaandtheCaribbeanare making significant progress with regard to theimplementation of REDD+, building capacities anddeveloping instruments to meet the requirementsestablishedintheWarsawFrameworkforresults-basedpaymentmechanisms,anincreasingexpectationwhichhasnotyetbeentranslatedintotherequiredflows.
• Countries recognize the need to continue makingprogressandexpeditethecompletionofpreparatorymechanisms,particularlywiththepresentationoftheReferenceLevels,thedefinitionofthelegalconditionsapplicabletothevariousarrangementsforresults-basedpaymentandprogressintheNationalStrategy,aswellasintheNationalForestMonitoringSystemsandtheSafeguardInformationSystem.
• Notwithstanding the fact that the guidelines of theWarsaw Framework have been definitive, challengesstill exist that impede their implementation and thisworkshopistheopportunityforsharingexperiencesandlearningbestpractices,especiallyatawatershedmoment
entailingtheestablishmentofanewglobalagendaforsustainabledevelopmentforwhichthemainstreamingofclimatechangeissuesisvital.
ARTURO BELTRáN RETIS,Deputy General Director of the National Forestry Commission of Mexico, CONAFOR
• Theexchangeofexperiencesisofvitalimportanceforachievingcommongoalsfollowingtherecentdecisionsrelating to the Warsaw Framework and UNFCCCnegotiations.
• Mexicoandothercountries inLatinAmericaandtheCaribbean are making decisive progress towards thesuccessful implementation of the strategy for theReductionofEmissionsderivedfromDeforestationandForestDegradation(REDD+).
• InDecember2014,MexicosubmitteditsNationalForestReferenceEmissionLevelstotheUNFCCC,whicharestillbeingreviewedby itsexperts;aspartof theMexico-Norway Programme, the National Forest MonitoringSystemwascompletedandatthiswritingwearecarryingoutanextensiveprocessofpublicconsultationforourREDD+NationalStrategy.
KEY MESSAGES
6
Possible Relationships between the Elements of the Warsaw Framework for REDD+
SESSION
02Panel including representatives from Brazil, Ecuador and Mexico
Moderated byAngelParra,UN-REDDProgramme
GUIDINGQUESTIONS1. HowarethefourpillarsbeingcoordinatedintheREDD+preparatoryprocess?
2. Inyourexperience,isthereasequenceforgeneratinginputsandtheflowofinformationbetweenthefourpillarsandtheUNFCCC?
3. Arethereanyconsiderationswithregardtotime-frames?
BrazilALEXANDRE SANTOS AvELINOMinistry of the Environment
BrazilhasextensiveandsuccessfulexperienceinREDD+anddescribeshowithasdevelopedandcoordinatedthefourpillarsoftheWarsawFramework:
• We begin with the REDD+ National Strategy, whichseekstosupportpolicyconvergenceandcoordination,integrate governmental structures and existinginstrumentsandmobilizeinternationalresourcesformitigation.
• Furthermore,since1988,BrazilhashadinplaceaforestmonitoringsystemforAmazonianbiomasswithconsistentresults,therebylayingthegroundworkforprogressmadewithregardtopoliciesagainstdeforestation.
• In2014,BrazilpresenteditsForestReferenceEmissionLevelstotheUNFCCCandthereviewprocessyieldedconclusionsregardingconsistencybetweenthevariouscomponents(GHGInventories,INDC).
• Finally,safeguardshavebeenamorerecentconcernwhich still calls for greater coordination betweengovernmentandcivilsociety.
KEY MESSAGES EMERGING FROM PANEL PRESENTATIONS
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8Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
• As a lesson learned, the involvement of Brazil ininternationalclimatechangeactivitieshascontributedtostrengtheningthepoliticalcommitmentthatwasalreadyinevidencedomestically.
Seepresentation Session 2 Brazilhere.
EcuadorMARíA DEL CARMEN GARCíAMinistry of the Environment
Initially,aftertheCancunCOP,thefourpreparatoryelementswere separately seen in Ecuador and were worked in aparallelmanner.TheWarsawFrameworkmadeitpossibleto expedite coordination between these elements andtoregardthemmoreasanoverallprocess.“TheNationalStrategyorActionPlanisanumbrella,wherethethreeothercomponentscanbepillarsforimplementation”.
• FacedwiththepresentationofaFREL,thecountrynowhasagreaterunderstandingaboutrequirementsandtimeconsiderations.
• There is clarity concerning the reporting of the BURtechnicalannexandthesummaryofthe informationaboutsafeguards,withalinktotheNationalStrategy.
• TheNationalStrategyshouldhaveclarityconcerningcauses/driversofdeforestationanddegradation.
• Thewaysinwhichsafeguardsarecompliedaredifferent,depending on the focus of projects or policies. For
Ecuador, the integration of technical studies wasimportantinexpeditingtheNationalStrategyprocesswhichanalyzeddrivers (analysisofcauses,economic,politicalandsocialfeasibilityaswellasmeasuresandactionsfortacklingcauses).
Seepresentation Session 2 Ecuadorhere.
MexicoANA KARLA PEREACONAFOR
Mexico described the interrelationships between thecomponents of the Warsaw Framework for REDD+ inaccordancewithitsownexperiencesandwiththefollowingresults:
• ThedraftfortheREDD+NationalStrategy,presentedinearly2015,iscurrentlyattheconsultationstage.
• MexicowillworkonanationalFREL,withinaninternallyconsistent, coherent, and transparent approach tomitigationeffortsintheforestrysector.
• A National Forest Monitoring System (NFMS) will bedevelopedtomonitortheeffectivenessofmitigationpolicies;thissystemwillbetransparentandrobust,anditwillpromotegrass-rootsparticipation.
• Intheareaofsafeguards,actionwillbetakentoestablishtheSafeguards InformationSystem(SIS)onthebasisoftheUNFCCCanddrawinguponaspectsofMexico’snationalconstitutionandothersafeguards-relatedlaws.
9Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
Thecountryseeslinksbetweenthefourpillars,beginningwith the FRELs which are inextricably linked to thepreparationofthetechnicalannex.Intermsofsequencing,inMexico’sopinionthetechnicalannexcannotbepreparedunlesstheFRELispublished.ThepresentationoftheFRELand its validation is a process that takes between sixmonthsandoneyearduetotheevaluations.WithregardtotheSIS,thelinkispublishedattheUNFCCCinformationhub,andMexicoexpectsthatthelinkwillbepublishedin2016—theyearinwhichtherewillalsobeanationalcommunicationandanupdateoftheGHGInventory.By2016,Mexico’sgoalistopresentthetechnicalannex,thesafeguardssummary,andtheupdatedGHG.
Seepresentation Session 2 Mexicohere.
CommentsbyGuestExpert:KIMBERLY TODDUN-REDD Programme, UNDP
• BetweenCancunandWarsaw,anevolutionwasobservedin the manner in which countries regarded the mainelementsofREDD+,fromisolatedpillarstocomponentsthatcanbeviewedinamoreintegratedmanner.
• TheNationalStrategycanberegardedasanumbrellafor framing and integrating the four elements. Thenationalstrategydocumentcanhelptostrengthenthelinksbetweenthesecomponentsandshowthegeneralconsistencyinthecountry-ledapproachtoREDD+.
• The decisions taken in each of the four elements ofREDD+canhaveimplicationsforothers.Itisimportanttoensureregularcommunicationandcross-fertilizationinthedevelopmentandimplementationofthedesignoftheelmentsinordertocontributetoamoreefficientpreparatoryprocess.
• Therearevariousinterconnectionsthroughwhichthepillarscanbeconsidered,inparticular,thedecisionsthataretakenwithregardtoscope,scaleandpriorityareas
tobeaddressedinthecountriesconcernedandwhichwillhaveimplicationsforeachofthecomponentsoftheWarsawFramework.
• There is some flexibility with regard to the sequenceof work in the Warsaw Framework, for example, theFRELsshouldbedevelopedandevaluatedbeforetheoutcomescanbereported.But,ingeneral,thereisnolinearsequence;instead,iterativeflexibleprocessesareatwork.
• With regard todesignconsiderations for theSIS, it isimportantforacountrytoidentifyREDD+policiesandthemeasuresproposedforimplementationbeforethecountryisinapositiontoidentifywhatinformationisneededfordemonstratingthattheREDD+safeguardsarebeingaddressedandrespected.ThetypesofREDD+actions, and their potential benefits and risks, willdeterminewhattypesofinformationshouldbeprovidedthroughtheSISaswellasthemannerofcompilingandcoordinatingsuchinformation.
› TheWarsawFrameworkdecisionsclarifytheinteractionsbetween the REDD+ preparatory pillars: these defineclearandcoordinatedmechanismsthatwillbecriticalfor requesting results-based payments under theConvention.
› In the process of defining the links between theREDD+pillars,countriesagreethattheENREDD+istheumbrellathatencompassestheotherpillarsalthough
importantrelationshipsareidentifiedbetweenthefourcomponents.
› Thedecisionsthateachcountrytakeswithregardtothescope(REDD+eligibleactivities),scaleofimplementationand priority causes of deforestation have importantimplications in termsof thedevelopmentof the fourpreparatory pillars for REDD+ and the subsequentimplementationofmeasuresandactions.
KEY MESSAGES
Integration of Policies and Measures in the Context of National Policies
SESSION
03Panel with the participation of Chile, Ecuador, Costa Rica and Mexico
Moderated byPierreGuedez,UN-REDDProgramme
ChileOSvALDO QUINTANILLACONAF
ThedegradationofChile’snativeforestsdeterminestheapproachadoptedbytheNationalStrategyforClimateChangeandVegetationalResources(ENCCRV)withinwhichactionistakentocoordinateREDD+,desertificationandothernationalobjectives.
Through inter-institutional coordination (AgricultureMinistry,TreasuryMinistryandForeignAffairsMinistry)and inter-sectoral coordination (including regionalorganizations and the private sector) Chile seeks topromote and improve policies for the management offorests.Allianceswithacademiaandresearchcentershavebeenkeyintermsofgeneratingtechnicalinputsforthedevelopmentofpoliciesandmeasureswhileservingtobuildcapacitiesinnationalagencies.
KEY MESSAGES FROM ThE PANEL PRESENTATIONS
GUIDINGQUESTIONS1. WhatopportunitiesexistforintegratingREDD+inthedesign/implementationofnational
policiesandmeasures?2. Whattechnicalinputswereusedandhowweretheseused,indefiningpoliciesand
measures?3. Whatlegalconsiderationsandinter-institutionalcoordinationweretakenintoaccount
whenintegratingPAMsintonationalpolicies?4. Whatisthepotentialroleoftheprivatesectorandotherkeystakeholdersinimplementing
PAMsandsupportingREDD+nationalpolicies?
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11Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
With regard to financing, Chile has elected to rely onthreesources:internationalfunds,andgoingforward,theGreenClimateFundandtheprivatesector.ConvincingtheTreasuryMinistryandtheFinanceMinistryisoneofthegreatestchallengesforCONAFasitseekstomobilizenationalresourcesandallowforthefutureimplementationoftheENCCRVstrategy.
With regard to opportunities, Chile identifies theimprovementoflegalinstrumentsandthedevelopmentofnewlaws;theimprovementofforeststhroughmonitoringand supervision systems; and the development of asafeguardsplanforpublicpolicies.
Seepresentation Session 3 Chilehere.
EcuadorMARíA DEL CARMEN GARCíAMinistry of the Environment
At the beginning of the UN-REDD Joint NationalProgramme in Ecuador, many challenges existed thatmade it necessary to define the REDD+ approach, andopportunitiesweresoughtformainstreamingREDD+intoclearlydefinednationalpoliciesregardingclimatechange.
Insummary,thisprocessincludedtheidentificationandanalysis of causes of deforestation, the identification ofpolicymeasuresandactionsfortacklingthesecauses,thecreationofeconomicstudiesforassessingthefeasibilityof implementing policies and measures in addition to asubsequentprocessofvalidationandprioritizationofthePAMs.
In tandem, for Ecuador a number of important legalconsiderationsexisted,includingthelegalframeworkwithregard to carbon, policies with regard to the causes ofdeforestation,aswellasthoseconcerningindividualandcollectiverights.
InthecaseofEcuador,basedontheexhaustiveanalysisof
thecausesofdeforestationandtheanalysisofopportunitycosts,sevenmeasuresrelatingtotheREDD+ActionPlanwereidentifiedandimplementedinthefield.
Oneimportantlessonlearnedisthatiskeytoengagehighgovernmentinstitutionsfromtheoutsettobuildastrategythatcanbeimplementedinpractice.InthecaseofEcuador,REDD+wasidentifiedasatoolformainstreamingclimatechangeintoothersectors.
Seepresentation Session 3 Ecuador.
CostaRicaMARíA ELENA HERRERAFONAFIFO
InCostaRica, themaincausesofdeforestation includestructuralfactorsrelatedtotheeconomicmodel,includingmigration.
TheumbrellaframeworkinCostaRicaistheforestrylawthatprohibitschangesinlanduse,withcompensationsthrough Payments for Environmental Services (PES).The framework is also based on the National ForestryDevelopmentPlanandtheNationalProgrammeforForestsandRuralDevelopment.“ItwasnotnecessarytoinventaREDD+strategy,thenationalforestrydevelopmentplanhadalreadyestablishedthenecessarybasis.”
Forthecountry,REDD+isacomplexofsixinter-relatedpoliciesanchoredintheForestsandRuralDevelopmentProgrammeandactionplansarederivedfromit.
Seepresentation Session 3 Costa Rica.
MéxicoJAIME SEvERINOCONAFOR
Asinothercountries,thecausesofdeforestationinMexicoaremanyandvarious,andarenotsimplytobefoundintheforestrysector;asaresult,MexicohasdecidedtotackletheseEcuador’s Presentation. Policies and Measures. August 2015.
Mexico’s Presentation. Policies and Measures. August 2015.
12Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
causesonvariousfrontsandinacoordinatedmanner.Inthisframework,thestrategyisadocumentthatbringstogetherexistingpoliciesthroughaparticipatoryprocess.Atthesametime,importantprogresshasbeenmadeinincorporatingelementswithintheexistinglawsandthecountryhasinplaceasolidlegalandinstitutionalframeworkforintegratingcomponentsintosectoralplans.
Mexico has a clear vision of REDD+ which seeks to: 1)integratepublicpoliciesthatpromotesustainableruraldeve-lopment,2)strengthencommunity-basedmanagementofforestsandtheirconservationand3)ensuretheintegratedmanagementoftheterritory.
Inthestrategy,thecausesofdeforestationanddegradationare approached from four angles: Actions designedto meet the needs of regions; promoting a model ofregionalgovernancethatfostersparticipation;promotinginstitutionalarrangementsforbolsteringcoordinationacrosssectorswhilegalvanizingsustainableruraldevelopment;andlastbutnotleast,coordinationinsectoralpolicies.
TheENREDDinMexicodoesnotestablishspecificactionsbut rather generates the necessary inter-institutionalarrangements to ensure more effective coordinationtowardsacommonvisionofsustainableruraldevelopmentthroughbroad-basedeffortstodealwiththedirectcausesofdeforestationandforestdegradation.
Seepresentation Session 3 Mexico.
InvitedExpertDOLORES ALMEIDAFormer Vice-Minister of Finance in Ecuador
• Asapointofdeparture,thecountryshoulddefinewhy,where and with what aim in mind it is implementingREDD+.
• Inordertoensuresustainableproduction,itisnecessarytoactnotonlythroughthepublicandprivatedomainsbutalsotoinvolveelementsofinnovationthroughacademia.
• It is important to speak the language of financiersregardingbenefitsandlinkswithStatepoliciesandtospecifythebenefitsintheshort-term,mid-termandlong-term.
• It is important that various government institutionsmanagefinancingprojectsjointly.
• StudiesofopportunitycostsarekeywhenspeakingabouteconomicbenefitsandalsoaboutcostsofimplementationandveryusefulforinvolvingotherMinistries.
• It is necessary that the Treasury Ministry and internalrevenue offices are present at the meetings as theseagenciesarepowerful instruments formotivatinganddeterringconsumptionandproductionandpublicpolicymeasures.
See presentation by Dolores Almeida
13Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
• HowtobesuccessfulinattractingtheattentionofotherMinistries regardingenvironmentalpolicies?
• Howtomonitortheefficiencyofpoliciesandmeasures in order to introduce correctivemeasuresinatimelymanner?
• Howtoarticulatelong-termresultsandshort-termoutcomes?Inthisregard,JaimeSeverinofromMexicoarguedthattheplanningofpublicpolicies forclimatechangetakesplaceoverthelong-termanditisimportanttotakethisfact intoaccountinshort-termprojectsandfinancing.Countriesshouldestablishhowtocoordinatestepsandshort-termprojectssothat a scenario encompassing x number ofyearsleadstoareductionindeforestation.
ChALLENGES
› Thecausesofdeforestationarevariousandmanifoldand do not arise only in the forestry sector, andthereforethedesignofthePAMsshouldbemanagedjointlybyvariousStateinstitutions,callingforpoliticalwillatthehighestlevel.Inthisregard,REDD+shouldstrengthen and/or build on efforts thatpertain toalreadyexistinginvestmentpoliciesandprogrammes.
› Thepoliciesandmeasurescanbedesignedwithagrass-rootsfocuswithgreaterimportancegiventolocalconcernsasopposedtonationaldimensions,and with various and complementary operationsamongthepoliciesandmeasures,thatcontributetowell-definednationalpoliciesandobjectives,withREDD+ being not an end in itself but a means ofachievingtheseobjectives.
› Thecountriesthathavebeensuccessfulinclarifyingthe strategic vision regarding REDD+ have alsobeen successful in more clearly linking REDD+strategies with existing policies or programmes.SomenoteworthycasesinpointareMexicointheareaofsustainableruraldevelopmentandlivestock,and Ecuador in the area of the transformation ofproduction.
› It is crucial to prioritize measures and actions intandem with other institutions and stakeholdersthat play a key role in implementation, such astheMinistriesofAgricultureandTreasury,regionalandlocalgovernments,andtheprivatesectorandacademia,andtoaligneconomicandfiscalpolicieswithREDD+objectives,seekingtocomplementorincentivizepublic-privateactions.
› AcknowledgmentwasmaderegardingthedifficultiesfacedbyEnvironmentMinistriesinworkingwiththeTreasuryMinistryandotherrelevantstakeholderswhengeneratingproposalsfor“bankable”policies,co-financedwithnationalresources,andentailingthepossibilityofimplementationonanationalscale,inanefforttopromotearealchangeindeforestationpractices.
› Inordertomaintainadialoguewithothersectorsit isnecessarytohaveaccessto informationthatfacilitates understanding between parties withdifferent interests and“to speak the language offinanciers”.
KEY MESSAGES
Legal Aspects of REDD+
SESSION
04Panel with the participation of Guatemala, Honduras, Paraguay and Peru
Moderated byThaisNarciso,UN-REDDProgramme
GuatemalaJORGE LUNational Council for Protected Areas, CONAP
TheexperienceofGuatecarbonwasimportantinordertolearnandunderstandneeds.IfthestartingpointistheUNFCCCframework,REDD+atthenationallevelsignifiesincentivesthatmayormaynotbetranslatedintomarketmechanisms.Nonetheless,‘ItisnecessarytohaveaclearervisionofthenatureofREDD+.Isitamechanismforthesaleofcarbon?Isitamitigationmeasure?Isthereresults-basedpaymentforactionsagainstdeforestation?”
GuatemalahasinplacearobustlegalframeworkthroughthenationalactforregulatingthereductionofvulnerabilitytotheeffectsofclimatechangeaswellasthroughDecree
7-2013whichstatesthatprojectsarethepropertyoftheowners/ownersoftheland,whichinturnhasimplicationsforinterpretingREDD+.
AnotherquestionthatarisesconcernsthenatureoftheEmissionReductionUnits(ERUs).Isthisafinancialactivity?Arethese“securities”?Theissueofownershipentailsanimmenseresponsibilityonthepartoftheowner.
Insummary,itisalsoessentialtohaveclarityregardingmechanismsfortheinflowandadministrationofresourcesthatcanbecapturedviaREDD+,specificallywhendealingwithpublicprojectsaswellasregardinghowtoensurethatthesebenefitsreachthecommunitiesinwhichREDD+isimplemented.
KEY MESSAGES OF ThE PANEL PRESENTATIONS
GUIDINGQUESTIONS1. Whatlegalarrangementshavebeenadopted/identifiedtodealwithchallengesintheimplementationofREDD+?2. HowisthelegalframeworkinstrumentaltotheWarsawFrameworkandtheimplementationofpoliciesandmeasures?
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15Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
HondurasMELANIA DURáNUN-REDD National Programme
InHondurasalegalanalysisofREDD+hastakenplace,inwhich31internationalconventionsand48nationallawsexist that support the REDD+ framework; nonetheless,variouslegalloopholesandlawswithconflictingobjectiveshavebeenidentified.Theanalysisidentifiedduplicationofeffortsingovernmentorganizationsandhasbeenusefulin embarking on a process of the restructuring of thegovernmentcabinet, focusingontheneedtopromoteinter-institutionaldialogue.
ApriorityissueforHondurasistosecuretheparticipationof indigenous peoples. A draft law relating to Free,Prior and Informed Consent (CLPI) exists and, withinthe framework of the UN-REDD National Programme,consultations will continue to take place betweengovernmentagenciesandindigenouspeoples.
ParaguayDANIA MORENOUN-REDD National Programme
Paraguayhasidentifiedthefollowingchallengesthatmustbeaddressedifthefourpillarsaretobeincorporatedlegallyandinabindingmanner:
• Thefirstchallengerelatestothelegalnatureofcarbonand then defining to whom it belongs, who enjoysthe eventual benefits accruing therefrom, and where
the responsibility lies for distributing those benefits.Paraguaystilldoesnothaveinplacealegalframeworktodefinelegalnatureorownershipofcarbon.
• Anadditionalchallengeistheownershipofthelandandissuesassociatedwithlandforwhichnotitledeedexists,orforwhichoverlappingtitledeedsareonrecord.
• Athirdchallengerelatestoinstitutionalgovernance;and
• Afinalchallengeconcernsthefinancialmechanismforchannelingresults-basedpayments.
PeruJOSE LUIS CAPELLAPeruvian Society for Environmental Law
InthePeruvianlegalframework,thelawoncompensationfor ecosystemic services and the forestry law are ofparticularimportance.ForREDD+specifically,somemainpoints to be taken into account are: To whom will beentrustedownershipofemissionreductions,andwherewilltheresponsibilitiesbeestablished,includingwhowillleadtheprocessininstitutionalterms,andhowtotakenationalgovernancetothesub-nationallevel.
Peruhasextensiveexperienceinearlyinitiativesandnowthechallengeisthattheseprocessesandprotocolsshouldbeformalizedintheframeworkofnationallegislation.Thecurrentmainchallengeistogenerateaformalmechanismthat is sufficiently flexible to accommodate these newundertakingsonanongoingbasis.
› CountriesareseekingtoclarifythelegalframeworkforREDD+.Therearechallenges involved inestablishinglinkagesbetweentheWarsawdecisionsandthelegalframeworksofcountries,includinghowtoimplementinter-institutionalagreements.
› Someofthecommonchallengesarethelegalstatusoftheownershipofcarbonandlandownership;throughwhichfinancialarchitecturewillresults-basedpaymentsbechanneled;andwhatwillbetheunderlyinginstitutionormechanismentrustedwiththedistributionofbenefits.
› ThereareseveralcomponentsofREDD+implementationthat require legal security. This legal backing is alsonecessaryforfacilitatinginvestmentsforthepreparationandimplementationofpoliciesandmeasures.
› There are aspects of REDD+ implementation whoselegalimplicationsaredefinedaccordingtothefinancingframework,forexamplethetradingofemissionreduction
units.Dependingonthefinancingsource,itisnecessarytoclarifythelegalissuesthatshouldbetackledinthecountries.
› Itisnecessarytobringaboutasoundcoordinationofnationalandsub-nationallegalframeworks,particularlyincountriesthathaveahighlevelofdecentralization.
› With regard to the institutional status of REDD+, thelegalframeworkcansupportinstitutionalarrangementsforguaranteeingtheparticipationofkeystakeholders,includinginstitutionsandcivilsociety.
› The legal understanding regarding results-basedpaymentsversusthepurchaseofEmissionReductionUnits(ERUs)shouldberefined,asthepurchaseofERUsislinkedtoanapproachthatwasoriginallydesignedtobemarket-oriented.
See additionaldocumentationhere
KEY MESSAGES
Financial Challenges for REDD+ Policies and Measures and the Management of various Results-Based Payment Mechanisms
SESSION
05Panel with presentations from Colombia, Costa Rica, Brazil and Peru and working groups
Moderated byJacintoCoello,UN-REDDProgramme
ColombiaRubén GuerreroMinistry of the Environment and Sustainable Development
InColombiamostoftheforestsareintheAmazonregion,whichalsoaccountsforthegreatestdegreeofdeforestation.ThecommitmentundertakenbythegovernmentistoreachzerodeforestationintheAmazonby2030.
In addition to efforts made in terms of conservationand land titling for indigenous communities and afro-colombians,manyelementsofREDD+havebeenprioritizedin the AmazonianVision (Visión Amazonía) programme,an early REDD+ initiative linked to the Colombian LowCarbonDevelopmentStrategythatsetsouttocoordinatemanagement processes and a vision based on fivepillars (forestry governance, sectoral agreements, agro-environment,indigenousgovernanceandMRV).AmazonianVisionencompassesinvestmentneedstothetuneofUSD450millionandcombinesfinancingsourcesfornational
resources, internationalcooperation(GEFandREM),andtheprivatesector.
With regard to international cooperation, this includesaperformancepaymentagreementwiththeREMintheamountofUSD64.9million,GEFresourcesthroughtheHeartoftheAmazonprogrammeintheamountofUSD40millionandanagreementisbeingnegotiatedwiththeUnitedKingdom(USD50million)aswellasamemorandumofunderstandingwithNorway.
Mainchallenges:
• Clear identification of financial resources needed forcomplyingwithdeforestationobjectivesanddevelopmentofcostbenefitanalysis.
• Coordinationof investmentsofnationalandregionalgovernments.
• Coordinationofregionalprogrammesforresults-basedpaymentsinconnectionwithvoluntarymarketprojects.
PANEL PRESENTATIONS
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17Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
• The requirements of certain results-based paymentmechanismsarehighlystringentinmethodologicaltermsandlimitthepossibilitiesforparticipation,(e.g.;ColombiadeclinedtoparticipateintheFCPFforthesereasons).
• Themanagementofexpectationsoflocalstakeholdersinregardtoresults-basedpaymentsisadelicatematterand,asaresult,communicationstrategiesandworkinthefieldonsafeguardsisoftheutmostimportance.
• Coordination: As has been pointed out, the issues offinancing are bound up with policy, legal, as well astechnicalissuespertainingtotheREDD+andcannotbeviewedinisolation.
Seepresentation Session 5 Colombia.
CostaRicaMARIA ELENA HERRERAFONAFIFO
The objective of Costa Rica’s programme for reducingemissionsistocontributetothecarbonneutralitygoaland to the National Programme for Forests and RuralDevelopment.
CostaRicasignedaletterofintentwiththeWorldBankinwhichthecountrycanoptforthesaleofuptoUSD63millionincarbonemissionsoramaximumof12.6metric
tons of CO2, on terms including a sales period 2010-2020(thiscanvaryandbenegotiable),compliancewithsafeguardsoftheWorldBank(inadditiontotheCancunSafeguards), the FREL and the NFMS, the programmedocumentandduediligence.
InCostaRica,strategicoptionshavebeenaddressedintermsofsixpoliciesaspartoftheREDD+strategywithacross-cuttinglinkthroughouttheprivatesectorasafundamentalfundingsource.ThecountryincludedforestconservationintheERPDbutthiswasnotrecognized.Emphasiswillalsobeplacedonareasandactivitiesinwhichcompliancecanbeachievedwithpropertyrightsandownershipofemissionreductions.
Thefinancingplanincludesbothcostsanddiversifiedincomesuchas:
• Costs:administration,implementation,developmentandoperationoftheNFMS/FREL,MIRI(grievancemechanism),safeguardsandconsultations.
• Income:25percentoftheuserfeeforwater,inadditionto resources from the tax on fuel, relating to the PESprogramme(privateagreementswithairlines,nationalcompanies,hydroelectricplants,etc.)andincomefromtheagro-forestryprogrammeandresults-basedpayments.
Theinvolvementoftheprivatesectorisenvisionedthrough1) goods linked to pineapple, as an indirect cause of
18Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
deforestation,andbusinessesrelatingtowoodandhousingand2)servicesrelatedtocarbonthroughtheFCPFandJNR(domesticmarketsforthereductionofemissions)andcorporatesocialresponsibilityprogrammes.
Finally, Costa Rica established four types of CarbonEmissionReductions,whetherornotrecognizedundera market mechanism to be used domestically and tomaintainmethodologicalconsistency:
• a:verified,paidandsold(ERPA,FCPF)
• B:verified,paidbutwithouttransferofownership
• c:nationalunitsofthecountrythatcanbeverified,notpaidandnotsold
• D:verifiedtocoverrisks,offsetsandreversals.
Finally,CostaRica intendstopresentareference levelwithvariouscreditlinesfortheJNR,themethodologicalframeworkoftheWorldBankandaccountingstandards.
Seepresentation Session 5 Costa Rica.
BrazilALEXANDRE SANTOS AvELINOMinistry of the Environment
The presentation focused on the experiences of theAmazonianFundasapilotfundforresults-basedpaymentsforREDD+, theend-productofanagreementbetweenBrazil and Norway, with grants from Germany andcompaniessuchasPetrobras.
After the explanation of the structure, financing andgovernance of the Amazonian Fund, which has beenfunctioningforfiveyears,Brazilhighlightedthefollowinglessonslearned:
• TheNFMShastoberobust,efficientandtransparent.
• The MRV system should be linked/integrated withoperationsoftheAmazonianFund.
• Itisvitaltofosterstakeholderparticipation.
• Itisnecessarytoreviseperiodicallyguidelinesandcriteriaforinvestment.
• Itisnecessarytoinvestintransparency.
Asnextsteps,BrazilisworkingonaproposalrelatingtotheGreenClimateFunddevelopedbytheMinistriesoftheEnvironment,Treasury,andForeignAffairstocarryoutactivitiesalongthesamelinesastheAmazonianFund.
Seepresentation Session 5 Brazil.
PeruJORGE TORRES PADILLAMinistry of the Environment
FromPeru’svantagepoint,financingneedsareestablishedbasedonactivitiestobefinancedintheNationalStrategy:PES, improving forests and agriculture, empoweringconditionsandgovernance,interalia.Variousfinancingsourcesareavailablefortheseactivitiesthatincludecredit,donationsandresults-basedpayments.
The National Strategy for Forests and Climate Changetranscends the focus of the environmental sector andshouldbeacommitmentundertakenbythevariousrelevantstakeholders, transcending government, including theprivatesector,civilsociety,communitiesetc.Theresourcescomefromvarioussourcesandaddressvariousneeds:publicresourcesforgovernanceandempoweringconditions;ruralcreditforimprovingforestryandagriculture;andprivateresourcesforcarbonmarketsandpaymentforecosystemicservices.
Withregardtoresults-basedpayments,theagreementswithNorway,Germany,theCarbonFundandtheGreenClimate Fund are cross-cutting to complement thefinancialstrategy,anditshouldbemadeclearthattheseresourcesdonotexistinisolationandshouldfunctioninacoordinatedmannerandwithoutcrowdingoutalreadyexistingpublicandprivateresources.
Peru is creating a flexible financial mechanism forprogressiveimplementation(privatefunds,publicfunds,marketandnon-marketfunds,localfundsandinternationalfunds)andatthesametimeitismanagingthecreationofadomesticmarketforforestrycarbon.Thisfundcanbeofaprivatenatureandoperateasatrust,aprocessthatisbeingdefined.
Seepresentation Session 5 Peru.
Peru’s Presentation. REDD + financing. August 2015.
19Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
WORK GROUPSGroup 1: Challenges for the financing of REDD+ PAMs
POINTS FOR DISCUSSION:What plans are being made for financing the implementation of PAMs? Challenges, risks,opportunitiesandlegalissuestobeconsidered.
› Engaging in outreach efforts to the “rural” financial sector.Countriesseethisaspivotalandhaveinitiatedstrategiestoenhanceaccesstothefinancialsectorassociatedwithagriculturalactivities,awareastheyarethatsomeoftheirinstrumentscallforchangesinlanduse.However,inthesearchformutualareasofinterest,challengesaretobefacedinmanagingacommonlanguage,includingintermsofmaintaininganongoingdialogue.
› Various types of financing for various “users”. Itisessentialtoenvisagevarioussourcesoffinancingfor diverse users and needs, as well as to identifystakeholders from the perspective of supply anddemand. The instruments used for mobilizingresources should be flexible and tailored to thecharacteristicsofeachsector.
› Role of the State as the catalyst for consistent financing.TheStatecanimprovepublicinvestmentthrough intra-sectoral coordination with a view togenerating investments consistent with REDD+objectives;and,moreover,theStatecanactasasourceoffinancingtoharmonizetheuseofresourceswithREDD+objectives.
› Credit lines and the private sector as key agents.Aconsiderablepartoffinancinglinkedtochangesinlanduseisrelatedtoactivitiesthatcauseemissions.These activities may or may not be related to theprivatesector.Inanycase,itisimperativetobeawareof this relationship and verify possible financingalternatives.
KEY MESSAGES
20Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
Group 2: Results-based payments for REDD+ and challenges for harmonization
POINTS OF DISCUSSION:Whatstrategyforensuringasufficientvolumeoffundsforresults-basedpaymentsisbeingconsideredbycountries?Challenges,risksandopportunitiesandlegalissuestobeconsidered(harmonizationofmechanisms,ownership,accountingforemissions).
Two main problems were identified:
› Results-based payment is a new tool.ItisclearthatOfficialDevelopmentAssistance(ODA)hasthusfarnotbeenfunctioninginaccordancewiththesameprinciples.Whatwehaveatpresentisthe“worstofbothworlds”wherebesidesthecustomarydemandsplacedontraditionalODAthereisthedemandforresults.Theemergingresult-basedpaymentsoptionsareverydemandinganditisnotclearthattheseareattractive.
› The coordination of support for the Decision of the CP19 is not being achieved.Thecurrentschemeisfragmented with various donors with their owndemands and that are often different from theWarsawFrameworkundertheUNFCCC.TheUNFCCCstatesthatthePFREDD+shoulddesignateentitiesfor receiving results based payments, the GreenClimateFundopensupapathforaccreditationandthesetwoprocessesshouldbecoordinatedbuttherearemanyotherfinancingsourcessuchasFCPF-CFandREM.
Possible policies for facilitating solutions:
› Countries should create efficient structures for safeguarding national and international funds.Financingfromnationalresourcesiskeytoensuringsustainability.Theuseofasingletoolatthenationallevel can be more efficient but the challenge isto comply with the requirements of the variousfinancingsources.Itshouldalsobeensuredthatthistoolfacilitatesthechannelingofresourcestowardsactivitiesinthefield.
› Achieving coordination of support within the emerging framework is the responsibility of REDD+ countries.Thisconsiderationincludessettingclearobjectivesandcreatinga functionalstructure.Thecountriesshouldspellouttheirneeds,andtakeintoaccountwhichoptionsarecost-effectiveandwhicharenot.Inthisregard,theimportanceofageneralfinancing framework is paramount, and for manycountriesthisisdefinedintheREDD+strategy.
› Facedwiththechallengeofhowtoinitiatetheprocessandensurenecessaryinvestmentforachievingresultsor passing through “death valley” without accesstoexantefinancing,the UNFCCC has established that there has to be ex ante support.Therecanbeanadvancepayment,notallthefundsshouldcomeattheend.SomeexamplesaretheagreementwithNorwaywiththeassociatedpolicymilestones(Peru)andtheFCPFwithitsadvancepaymentsofupto20percent.
KEY MESSAGES
Lessons Learned Regarding the Preparation of Forest Reference Emission Levels and the Technical Annex for Access to Financing
SESSION
06Panel with delegates from Brazil, Mexico and PeruModerated byLucioSantos,UN-REDDProgramme
BrazilALEXANDRE SANTOS AvELINOMinistry of the Environment
Brazil submitted its FREL to the UNFCCC in June 2014followedbywhattheytermed“averyintensebutfruitfulprocessoftechnicalrevisionanddialogue.”Themainlessonlearnedwasthattechnicalcoordinationandinstitutionalcoordination should go hand-in-hand to obtain betterresults.
With regard to additional activities, the Amazonian andCerrado biomass make up 90 per cent of emissions. InadditiontotheFRELfordeforestation,BrazilwillmakeaReferenceLevelfordegradationfortheAmazon.Themainchallengeidentifiedistechnologyformonitoringbysatellite.
With regard to the technical annex, the first step is theformulation of the FREL. While Brazil does not perceiveconsiderablechallengesinthisconnection,itrecognizesthattheBURhascalledforsignificantinstitutionalcoordination.
KEY MESSAGES OF ThE PANEL PRESENTATIONS
GUIDINGQUESTIONS1. WhatlessonshavebeenlearnedduringthepreparationandpresentationoftheFRELproposal?2. Whattechnicalchallengeshavebeenidentifiedregardingtheinclusionofnewareas,activities?3. Whatstepsandwhatchallengesaretakenintoaccountinpreparingthetechnicalannexforfacilitating
accesstoresults-basedpayments?
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22Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
ColombiaEDERSSON CABRERAIDEAM
TheFRELwassubmittedonDecember15,2014.Amongthemainlessonslearned,Colombiawishestodrawattentiontothefollowing:
1. Theimportanceofconsistencybetweenreports,GHGcommunicationsandBUR,throughaunifiedstrategyforgeneratingdatathroughtheNFMSasauniquesourceofdataforallthesereports.
2. Colombia incorporated national circumstances andpoliticaldecisions(includingthosepotentiallyderivingfromthesigningofapeaceprocess)thatcouldaffectdeforestationandasaresult“itispossibletoincorporatenational circumstances into the formulation of theFRELs”.
ForColombia,themainchallengehasbeeninstitutionalcoordinationandlinksbetweentheREDD+strategy,theColombianStrategyforLowCarbonDevelopment,nationalpoliciesforreducingdeforestationandinstitutionsrelatingtoeachofthesestrategies.
Thesub-nationalapproachwithfivebiomasseswillallowColombia to continue to take steps with regard to thenational FREL. The UN-REDD Programme will work onpreparingtheroadmapfortheintegrationofthereferencelevels.TheFRELthathasbeensubmittedonly includesdeforestationbutthisyearitintendstoincorporateforestrydegradation.Regardingothergases,theissueofforestfireshasalsobeenconsideredimportantanditsinclusionisapriority.
Withregardtothesepoints,themainchallengesarerelatedtoprocessesforqualitycontrolandtheevaluationofresultswhichwillbekeyinresults-basedpaymentmechanisms.Anadditionalchallengeisthedefinitionofforests:manyexpertsarecallingformakingachangetoanapproachbasedon“use”ratherthanbasedoncover,andthiscouldhaveanimpactonallreportsthathavebeendrawnupuntilnow,forFRA,BUR,nationalcommunications,FRELsetc.
Attheendof2015,ColombiaaimstoformallypresentthefirstBURanditisanticipatedthatin2017itwillpresentthetechnicalannexwiththesecondBUR.
MexicoJORGE MORFíNCONAFOR
MexicopresenteditsreferencelevelsinDecember2014andhighlightsthat“therevisionprocesshasbeenveryinteractiveandgavevaluablecommentariesforimprovingandpreparingthetechnicalannex.”
Amongthemainlessonslearned,Mexicowishestodrawattentiontothefollowing:
1. TheexperienceofthelastfivenationalcommunicationshasshownthatitiskeythatthecapacitiesregardingtheNFMSandtheconstructionofreferencelevelsaresituatedinthesameinstitutions.
2. Much effort has been invested in inter-institutionaldialogue and coordination in order to replicateprocesses,agreeoninputs,andcarryoutqualitycontrol,bothfortheNFMSandtheFREL.
3. ConsistencybetweentheNFMSandtheFRELisessentialasiscoordinationwiththeBUR.“Itisimportantnottoviewthereportsinisolation”.
In preparing the FRELs, existing data were analyzedand after the review process, participants identifiedchallenges regarding the definition of“forest” that wasto be presented—in addition, any modification to theFREL would have to be reviewed again in agreementwiththeinstitutionsinvolvedandif,intheprocessoftherecalculation,thefiguresweretochangesubstantially,ajustificationwouldhavetobeprovided,anditwouldbenecessarytoupdateallthereportsthatareinterconnected.
In2016,MexicohopestohaveaninitialassessmentoftheresultsoftheFRELevaluation.It isstillbeingevaluatedwhetherattheendof2016intheBUR,boththeFRELandthetechnicalannexwillbepresented.
23Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
PeruCLAUDIA OCHOAMinistry of the Environment
PeruiscurrentlypreparingtheproposalandmethodologyforpresentingFRELsintheCOP21fortheAmazonianbiomassandwhichwillbeupdated insomeyears fortheCoastandtheSierraregions.Inthisprocessthemainlessonshaveindicatedthatcoordinationshouldincludetechnicalandpoliticaldimensionsandthatcoherenceandconsistencyisimportantwhenvariousreportsareinvolved. In the case of Peru, the FREL is the point ofdepartureandgeneratesinputsfortheNationalStrategy,INDCs,BUR,etc.
The greatest challenge identified has been toinstitutionalize MRV processes to ensure that they aremaintainedover timeand inamannerconsistentwithpoliticalchangesgiventhattheyalsosupportinformationforresults-basedpaymentarrangements.
In terms of building upon these efforts, the countryauthoritieshave identifieda furtherchallenge intermsof integrating degradation, a state of affairs which isattributablenotonlytomethodologicalconsiderationsbut
alsotothedatarequired,nottomentiontheincorporationofadditionalareasbeyondtheAmazonianbiomass,whichraisesimportantpoliticalissues.Anadditionalchallengehastodowiththetaskofintegratingreductionsthathavebeentakenintoaccountwithothermethodologies,andmaintainingconsistency.
Withregardtothetechnicalannex,Perurecognizesthatitwilltakeacoupleofyearstopresentthis:however,Peruhasaresults-basedpaymentsmechanisminplacewithNorwayandGermanyandshoulddemonstratereductionswhilepreparingtheFREL,whicharepreparatorystepsfortheannex.
GuestExpertWALTER OYARZABAL,UNFCCC Technical Reviewer for Brazil
TheexpertsummarizedthemainpointstakenintoaccountduringthereviewofBrazil’sFREL,suchas:
• Thedegreeofinformationsent,theconsistencyoftheFRELandtheGHGInventories;andhowthehistoricdatawasusedfortheFREL;
24Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
• It is important that the information be transparent,consistent and as accurate as possible; and it is alsoimportant that all the necessary information for thereconstructionoftheFRELbeavailable;
• ThecountriesthatpresenttheFRELshavetobemindfulofthefactthatpoliticaldecisionswillbekeptoutofthetechnicalevaluation;
• Intheeventofsignificantactivitiesandpoolsthathavenotbeenincluded,Brazilshouldjustifytheiromission.
• Theuseofthecountry’sowndefinitionofforests;andif there is a different definition (for REDD+) then thisneedstobeindicatedfromthetechnicalpointofview.ItisimportanttohavethesamedefinitionfortheFRELandfortheinventory,andifthatisnotthecase,thenanydifferencesneedtobeaccountedfor.
Insummary,OyarzabalemphasizedthatBrazilconstructeditsFRELonthebasisofrobusttechnicalinstalledcapacities(ithadinplacecarbonmaps,allometricequations,informationaboutchangesinlanduse,etc.).Forcountrieslackingthiswherewithal,internalandtechnicalcapacitiesneedtobestrengthenedsothattheycanpreparetheirreferencelevels.
Moreover, he praised Brazil’s FRELs for being simple,transparent, well structured, with a document that isconcise but complete (including information that wasnecessaryforthemaintextandannexes);andtermedasexcellenttheexchange,themechanismforconsultation
with the various technical units and the revision ofsuccessivedrafts.TheinteractiongeneratedanewversionoftheFRELofanevenhigherstandard.
“ThedecisionsoftheCOParewiseastheyallowcountriestotakeonestepatatime,forexamplebeginningwithasubnational/biomass—one activity, and they need notevenincludeallthepools,andjustonegas(CO2)whilesettingoutintheFRELhowinthefutureimprovementswilltakeplaceandencompassingthewholeofthenationalterritoryandotheractivities,”saidOyarzabal.
GuestExpertMARIEKE SANDKER,FAO
TheexpertsetoutthemainchallengesthatarelikelytobefacedinpreparingthetechnicalannexoftheBURanditsrelationshipwiththeFREL,includingthefollowing:
• Itisimportanttoobtainaccuratedata(withasufficientlyacceptablelevelofuncertainty)fortheresultspresentedin the annex; in addition it is also necessary to haveaccuratedataondegradationinparticular.
• It is important to be able to maintain consistencywithresultsandtheFRELaspointedoutbyMexico,inpassingfromanexternalconsultativeprocesstoamoreinstitutionalizedprocess,whichhelpstomaintainconsistency.
› ItisoftheessencetoconstructtheFRELwithdomestictechnicalinstalledcapacities.Itisimperativetocreate/strengthencapacitiesininstitutionswithresponsibilityformonitoringforestsandreferencelevelswhichwillenablethecountrytorespondtotechnicalreviewsandimprovetheFRELbystages,andwithavisionthatencompassesshort-term,medium-termandlong-termneeds.
› Inter-institutionalcoordinationshouldtakeplacebothattechnicalunitlevelandinpoliticaldecision-making.
› ThereshouldbecohesionbetweentheFREL,NFMS(National Forest Monitoring System) and GHGInventoriesgiventhatthedatafortheconstructionoftheFRELcomesfromtheNFMS.
› Someadditionalchallengesincludetheintegrationofthesub-nationalFRELinanationalFRELandtheinclusion of activities transcending deforestation(degradation and others) as well as nationalagreementsconcerningthedefinitionofforestsandtheinternalsynchronizationwiththevariousreports.
› InordertogiveinstitutionalstatustoMeasurement,ReportingandVerificationprocesses,andtoensuretheircontinuity,itisnecessarytoestablishclearandconsensus-basedregulationsandprotocolsbetweeninstitutionslinkedatthegovernmentallevel.
AdditionalinformationconcerningdecisionsthatarerelevantfortheUNFCCCregardingtheNREFs.
KEY MESSAGES
Safeguard Information Systems
SESSION
07Introductory presentation and thematic work group
Moderated byDanielaRey,GlobalExpert,ClimateLaw&Policy
PresentationbySTEvEN SWAN,Safeguards Global Expert, UN-REDD Programme
ThepresentationemphasizedhowthesafeguardsundertheConventionencompassanextensivespectrumrangingfrom matters relating to governance and social andenvironmentalconcernstothemitigationofrisks.However,therearethreemainpointsthatcountriesneedtotakeintoaccountregardingUNFCCCrequirements:
1. Promoting and supporting the Cancun safeguardsthroughouttheentireprocessofREDD+implementation.
2. HavingSafeguardInformationSystems(SIS)thatoffersinformation about how the country is tackling andcomplyingwiththeCancunSafeguards.
3. Presentingasummaryofinformationconcerningtheapproachtoandcompliancewithsafeguardswithaviewtogainingaccesstoresults-basedpayments.
In order to support countries with these requirements,the UN-REDD Programme has developed the Country-LedApproachtoREDD+safeguards(seediagram)whichindicates in a general manner the necessary steps and
components, including evaluations of the country’sapproachtoandoutlookonsafeguards.Insummary,theseinclude1)existingpolicies,lawsandregulations(greencolour)2) institutionalcapacitiesandarrangementsforimplementingandcomplyingwithsafeguards(blue)and3)informationsystemsandsources(purple).
Seepresentation Session 7. Safeguards, Steven Swan.
SOURCE:UN-REDD
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26Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
WORK GROUPS, KEY POINTS AND CONSIDERATIONS
Legal/institutional issues to be addressed in approaching and complying with the Cancun Safeguards • The main objective should be the cross-cutting
applicationofthesafeguardsintheREDD+actionplanornationalstrategy.
• Thelegalframeworkisthefirstelementthatshouldbeanalyzedanditisalsoimportanttoclarifytheconceptofsafeguardsandthemeaningofeachofthesesafeguardsforthecountryinquestion.
• It should be borne in mind that the measurement,evaluationandreportingofcertainsafeguardsisverycomplicatedandattheinitialstageitmaybeadvisabletohaveinplaceafewindicatorsofthegeneralstructure.
• With regard to the SIS, it is necessary that this be aflexiblesystem.Withregardtotheresponsemechanism,shouldthisbeacomponentoftheSISorpartofanothermechanismandlinked?
• Inter-institutionalcoordinationiskeyfortheconstructionof the SIS although it poses a challenge due to themandatesandrolesoftheinstitutionsinvolved.
• ThekeystepsintheconstructionoftheSISshouldbeparticipatory and transparent, incorporating relevantstakeholdersandmainstreaminggenderperspectives.
• Finally,safeguardsshouldbelinkedtocommunicationsstrategiesandtailoredtothenationalcontextinorderto enhance comprehension of the underlying issuesinvolved.
Technical and financial considerations for preparing and implementing the SIS
• Countries in Latin America and the Caribbean aregoingthroughdifferentstages:beforemovingahead,itisimportanttounderstandthatthereisnouniformconsensusregardingsafeguards.
27Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
• Thecurrentchallengeistohaveinplaceclearinformationregardingwhatkindsofdatashouldbereported;andhow safeguards provide information to the REDD+nationalstrategy,andviceversa.
• Itisveryimportanttodecideiftheapproachisnationalorsub-nationalandtocontrastnationalobjectiveswiththeSIS.Whatarethepreciseobjectivesformonitoringandreporting?
• The UNFCCC insists on the safeguards system, whichposesachallengeintermsofconsistencywhenfacedwiththetaskofharmonizingtherequirementsassociatedwiththesafeguardsentailedbyotherinitiatives.
• An additional challenge is how to optimize existinginformationinvariouscountries;Willcountriesdevelopexistingsystemsorcreateanewsafeguardssystem?Inthisregard,theconclusionwasreachedthatitisvitalto have in place just one system for providing suchinformationinsteadofcreatingaseparatemechanismforeachsystem.Thissystemshouldbeflexibleandallowforgradualimprovements.
• TheSISgeneratesmanyexpectations,especiallyincivilsocietyandconsequentlyitisimportanttoconductananalysisofwhatneedsthissafeguardssystemisintendedtomeet.
• TheparticipatoryprocessinthedesignandcompilationofinformationfortheSISiscrucial.
• With particular reference to the structure of thisinformationsystem,participantsconsidereditessentialtoanalyzewhattypesofinformationcanbegeneratedbyotherexistinginitiativesorprocessessuchastheNFMS.
• With regard to financing, it is crucial to ensure thesustainabilityoftheSISinaccordancewithitsstructure.
Preparing information summaries in accordance with the SBSTA 42 decision
• Manycountriesintheregionarestudyingthedecisionandthinkinghowtopreparetheirsummaries.
• Inthefirstinstance,itisnecessarytoevaluatethenationallegalframeworkaswellasspecifyingREDD+activitiesandsubsequentlyevaluatinghowthesearelinkedwiththesafeguards.
• At the same time, an analysis of policies, laws andregulationsisrequired,asisdefiningthescopeforthe
summary,andconsideringwhattypesof informationareinplace,whichrequirementsmustbemetandwhatimplicationsthishasforthefuture.
• It is worth noting that the summaries continue toimproveovertimewithagradualapproach.
• InaccordancewiththeexperienceofBrazil,itisnecessarytoidentifywhatinformationgoesintotheSISandwhatinformationmightornotbeintheSIS,inordertoincludenecessaryinformationinthesummary.
• Thevalidationanddisseminationofsafeguardsamongthevariousstakeholdersisakeyconcern.
• Finally,countriesconsiderthatmanychallengesmustbeaddressedregardinghowtouseandincludeinformationfrom various initiatives (eg, SESA) for the safeguardssummary.
Perspectives of civil society and indigenous peoples relating to safeguards
• Whilethereisundoubtedlyalegalumbrellaintermsofinternationalconventions,thedegreeofprogressandrecognition of indigenous peoples is far from beinguniformincountriesthroughouttheregion.
28Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
› Theinterpretationoftheconceptofsafeguardsandeach of the Cancun Safeguards is critical in orderto make progress in providing responses for therequirementsoftheUNFCCCsafeguards.
› With regard to the relationships between thepillarsoftheWarsawFramework, there isaclearlinkbetweenthenationalstrategyandsafeguardsin three areas: 1) in defining the scope of thesafeguards,itisnecessarytoconsiderthecountry-ledREDD+approachasformulatedinthenational
strategy;2)inthedevelopmentanddesignoftheSISthatshouldprovideinformationinthecontextoftheimplementationofREDD+activities;and3)intheinformationsummarythatwillexplaintheapproachtakenwithrespectto,andcompliancewith,safeguardsinREDD+activities.
› Finally,theinvolvementofcivilsocietyandindigenouspeoplesisvitaltotheformulationofthesafeguards,thedesignandimplementationoftheSISandtheinformationsummary.
KEY MESSAGES
• However, a consensus does exist regarding theimportanceofparticipatoryprocessesandconsultationswithindigenouspeoplesandcivilsocietyatallstagesofREDD+(design,implementation,anddecision-making).
• Opportunitiesareavailableforstrengtheningcapacitieswithregardtorights,organizationandparticipationsothatindigenouspeoplescanaddressREDD+issuesonanequalfooting.
• Thebioculturalanduniversalrelationshipcanbebroughttobearonthesafeguardsinamorecontext-sensitivemanner.
• An important opportunity exists whereby currentcommunitystrategiesandactivitiesregardingforestrycanbestrengthenedthroughREDD+strategies.
• In presenting REDD+, there is a disconnect betweentheforestrytechnicalaspectandhowthelatteraspectgeneratessocialbenefitsforindigenouscommunities.
• In indigenous communities, forestry safeguards havebeendevelopedoverthelast500yearsbutitisnotclearhowtheseactivitiesaretranslatedortakenupatthenationalorinternationallevels.
• Socialorganizationsandindigenouscommunitiesshouldbe encouraged throughout to engage in extensiveparticipationinREDD+activitiesanddecision-makinginREDD+projects.
Progress in the Implementation of the Warsaw Framework Regarding the National Forest Monitoring System (NFMS)
SESSION
08Panel with delegates from Chile, Colombia, Honduras and Paraguay
Moderated bySerenaFortuna,UN-REDDProgramme
ChileOSvALDO QUINTANILLACONAF
• In relation to the links between the NFMS and othercomponentsoftheWarsawFramework,Chile’sNationalClimateChangeandVegetationalResourcesStrategy(ENCCRV)encompassesthesystemforaccountingforcarbonandmetricsforenvironmentalservices.
• TheemphasisoftheREDD+strategyandtheFRELison
degradation and this entails technical challenges onaccountofgeographicalandtechnologicalfactors.
• It is expected that the NFMS will also play a role inmonitoring performance in factors that are not onlyenvironmentalbutalsosocial,andrelatedtosafeguards.
• Regarding inputs required the main are the forestryinventoriesinimplementationledbyvariousinstitutionsand that require additional analysis, in addition toinformation relating to national inventories and theAFOLUsectorasconductedbytheMinistryofAgriculture.
KEY MESSAGES FROM PANEL PRESENTATIONS
GUIDINGQUESTIONS1. WhatisthecontributionoftheNFMStoothercomponentsoftheWarsawFramework?2. Whatdataandinputsarenecessary?3. WhatchallengesconfrontcountrieswithregardtotheNFMS?
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30Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
• Someofthemainchallengesarerelatedtoimprovingsystemic interoperability both among and withininstitutions.
• Inaddition,theNFMSoperationshouldbeformulatedin a regulation that includes processes, roles andgovernancesothatthisexercisecantakeapermanentformandbefinancedovertime.
Seepresentation Sesison 8. Chile
ColombiaEDERSSON CABRERAIDEAM
• Colombia’s Forests and Carbon Monitoring Systemwas established formally in 2012 and has involvedearlywarningsystemsforreducingdeforestationandassociatedemissions.
• TheNationalStrategyestablishestheroadmapfortheMRVSysteminthecountrywiththreepillars:theNFMS,theforestryinventoryandtheinventoryforgreenhousegases.
• The definition of forests is fundamental as it allowsforconsistencyamongvariousreportingsystems(forColombiathisdefinitionhasmanyexclusions).
• TheNFMSisbuiltprimarilyonremote-sensingsystemsbutwithasemi-automatedmethodology,andannualreportsarebeingproduced.
• The FRELs are prepared primarily on the basis ofinformationgeneratedbytheNFMS.
Honduras JORGE LUIS SANTOS,Forestry Monitoring Institute
• HondurasisseekingtocreateasustainableNFMSthatgeneratesmethodologiesandinformationfordecision-making.
• WithregardtothevariouscomponentsoftheWarsawFramework, the NFMS is a component of the systemandcontributesthemain inputsfortheFRELandforgeneratingplanninginputsforthenationalstrategyorActionPlan.
• Equally,fordatacollectioninthefield,stepsarebeingtaken to engage communities; whereas in regard tosafeguards,effortsarebeingmadetoembodyrespectfortherightsandknowledgeofindigenouspeople,whilegenerating information required for maintaining andimprovingthemultiplefunctionsofforests.
• Municipal forestry atlases are being created for thepurposeofhelpingwithstrategicplanningatthelocallevel, and from the point of view of dissemination, apublicinformationgeoportalisbeingcreated.
• Coordinationininstitutionalplanningintheshort-termandlong-termin identifiedasthemainchallenge,aswellasensuringthatfinancialresourcesareavailableformakingthesystemoperational.
Seepresentation Sesison 8. Honduras
ParaguayDAMIANA MANNINFONA
• The NFMS provides primary information regardingactivity data and emission factors required for theconstructionoftheFREL,theGHGInventory(USCUSSsector),fortheThirdNationalCommunicationandtheBUR.
• In Paraguay the NFMS will be included as a tool forPoliticalActionsandMeasuresfortheREDD+NationalStrategy.
• Furthermore,theNFMS,throughtheNationalForestryInformationSystem,whichincludestheNationalForestryInventoryandtheSatelliteSystemforLandMonitoring,canprovideinformationfortheSIS.
• With regard to the National Forestry Inventory (IFN),thecollectionoffielddataisachallengethatmustbeaddressedwhendeterminingnationalemissionfactors.
• LegalissuesrelatedtojurisdictionsalsoposechallengesintermsoftheinstitutionalizationoftheIFNforprovidingsustainabilityfortheprocess.
Seepresentation Sesison 8. Paraguay
31Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
› In summary, it should be emphasized that thepreparationandimplementationoftheNFMSisacontinuousprocessofimprovementthathastobesustainableovertimeinordertocontinuetoshowREDD+performanceinthecountry.
› Functions and important points of the NFMS with regard to REDD+:
• Supportingdecision-makingandthepreparationoftheREDD+strategy(e.g.,identifyingpriorityareas);
• Demonstrating the performance of the REDD+strategy (and/or national forestry policies) sothatthisrepresentsabasisforobtainingresults-basedpayments,withdatathatisbothrobustandtransparent;
• Generating data necessary for constructingNational Forest Reference Emission Levels (GHGInventories and others) and contributing tomaintainingconsistencyamongreports(NationalCommunications,BUR,FRAetc).
› Possible points of relationship between the NFMS and the SIS:
• Supportingreportingdataregardingsafeguardsonreversionanddisplacementofemissions;
• Contributing to achieving the support ofcommunities and small producers in decision-making;
• Improvingaccesstoinformationforthepublicanddecision-makers(geoportals).
› Pending challenges
• Technical challenges and the importance ofcontinuing to strengthen national monitoringcapacities and ensuring a permanent pool oftrained human resources within governments/stakeholders.
• Inter and intra-institutional coordination toimprovetheinteroperabilityofexistingsystemsandallowingfortheexchangeanduseofdata.
• Financial sustainability that necessitates thecoordination of monitoring activities withbudgetaryplanningandinstitutionaloperationalplanstoachievenationalfinancing.
• Participation and outreach with the owners offoreststhroughcommunitymonitoringandthedisseminationoftheNFMSanditsrelevancetothevarioussectors.
KEY MESSAGES
Analysis of Challenges for the Implementation of the Warsaw Framework for REDD+
SESSION
09Conclusionsofthematicworkgroupssummarizing
themainchallengesfacedbycountries
Challenges concerning the relationship and sequence of components and progress • The UNFCCC guidelines should be contextualized in
eachcountryand,accordingtoemergingchallenges,thesolutionsposedwillbedifferent.
• It is the countries that should define their vision ofREDD+anddemonstratebenefitsthattranscendforestryconcerns.TheNationalStrategyistheumbrellagroupforthevariouspillarsoftheREDD+process.
• There is no single way of sequencing the variouscomponentsgiventhatcountriesdisplayvariouslevelsofprogressinthevariouspillars.
• ItisnecessarytoinstitutionalizepreparatoryprocessesanddefinethelegalframeworkforREDD+.
• Anadditionalchallengeistoachievethesustainabilityof REDD+ processes with national and internationalresources.
Implications of various NREF options • In some cases, the various options of results-based
paymentcanbemoredemandingthantheUNFCCCinanumberofrequirementsandthisisadisincentivetoparticipationbycountries.
• Therulesingeneralareimposedmorethanagreed,(eg,reviewmechanisms,calculationorconstructionoftheNREFs).
• Countriesshouldhavejointdiscussionsandpositionsfordiscussionswithdonorsinsteadofthisprocessheadingintheoppositedirection.
• Itisnecessarytodefinehowtoarticulatemarketandnon-marketmechanismsandthepotentialimplicationsforthedevelopmentofReferenceLevels.
How to maintain consistency with regard to results-based payments
• Notallofthecomponentsofthevariousmechanismsarecoherentandconsistent.TranscendingtheissueofReferenceLevels,thegreatestinconsistenciesfoundbycountriesareasfollows:
› The methods and mechanisms for the transfer ofresources1arevariousandnotallofthesearealignedwiththeUNFCCC;undertheUNFCCC,matterspertainingtoprice,accountingrules(uncertainty,riskofreversions),timeframes/paymentschedules(percentageanteversusexpost)stillhavetobedefined.
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33Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
› TheFCPFintroducestherequirementoftransferringownershipregardingreductionsofemissionswhiletheUNFCCCdoesnothavethisrequirementandmentionsexplicitlythattheresultsreportintheinformationhubdoesnotcreaterightsorobligationsofanykind2.
› There is a duplication of reports and MRV for thevariousfinancingsystems(eg,UNFCCCandREM)
› Thereare inconsistenciesregardingsafeguardsanddifferences with the FCPF and also regarding thedistributionmechanismforbenefitsthatisvoluntaryundersomesystemsandobligatoryunderothers.
› WhiletheUNFCCCtalksaboutworkingtogethertochannel resources in a manner that is appropriate,predictable, equitable and balanced3, bilateralagreementshavebeennegotiatedwithoutclearortransparentrulesequallyapplicabletoallcountries.
› Nor does clarity exist regarding phases combiningpreparatoryrequirementswithresults-basedpayments.
• Theseinconsistencieshaveconsequences:1)Increasingtransactioncostsinsuchawayastocomplicatecountries’effortstoparticipateinresults-basedpaymentschemes;2)ReducingthecredibilityofREDD+asaninternationalmechanismandloweringtrustintheUNFCCCprocesswhichinitsturnreducestheincentivetoparticipate.
• As one possible solution for eliminating theseinconsistencies, participants considered the idea ofaligningtherequirementsandprocessesofallresults-basedpaymentswiththeprocessesandcriteriafortheGreen Climate Fund. Proposals have been made forattemptingtoestablishregionalpositionsforsendingtotheGreenFundandapproachingexpertstoresolvethesediscrepancies.Withthisobjectiveinmind,conductingastudyfordealingwithsuchinconsistencieswasdeemedtobeahelpfulcourseofaction.
Financing • Discussionsinitiallytookplaceregardingtheexpectations
ofsocialstakeholdersfromtheinitialphasesofREDD+which reminded us that the REDD+ phases are notsequentialbutiterative,therebyaddingcomplexitytotheprocessandposingachallenge for thecountriesconcerned.
• Exantesupportisrequiredtochannelactionsthatresultintangiblebenefitsforlocalstakeholders.
• TheREDD+bubblemustbebrokeninordertocoordinate
acountry’ssupplysoastomobilizefundsandinordertomakeprogresstowardsajointlyresponsiblerelationshipbetweendonors.
• The national supply must be coordinated in order tofacilitate a transition to a low-carbon economy, byintegratingandlinkingpolicies.
• NegotiationsshouldincludestakeholdersoperatingonthebasisofaStatepolicyagendainordertoenhancethepoliticalstatusofREDD+.
• Thelinkagewiththeprivatesectorisacomplexissuethatcallsforconsiderationinaseparateworkshop.Relevantstakeholdersshouldbeclarifiedas to their roles. It isvitaltospeakalanguagethatisaccessibletotheprivatesectorfromtheproductivitystandpoint.
• Giventhecomplexityofthesubject,aspecificworkshoponfinancingisconsiderednecessary.
Participatory processes in relation to the Warsaw FrameworkChallenges identified:
• Howtoensurethatstakeholdersaretrulyrepresentativeintheeyesoftheirpeoplesandcommunitiesandhowtoensurethatinformationreachesthegrass-roots.
• Participationcostsandrequirements.
• Howtoguaranteeeffectivecompliancewithrightstoparticipation.
• Intersectoral participation remains at technical unitlevelyetfailstoreachtheleveloftheministersatotherministerialportfolios.
Solutions and opportunities:
• Aclearstakeholderengagementplanisnecessary.
• Fosterparticipatorylaws.
• Anchorcommitmentsatthelocalandregionallevels.
• Timely back-up from United Nations agencies isadvisable.
• Thestrengtheningoftheparticipatorylegalframeworkisnecessary.
• Workonconsolidationfromthegrass-rootslevel.
• Participantscalledforaregionalworkshopregardingtheparticipationofindigenouspeoples.
1. Decision9/CP.19mentions“Waysandmeanstotransferpaymentsforresults-basedactionsasreferredtoindecision1/CP.18,paragraph29.
2. Decision9/CP.19“NotesthattheinsertionofresultsontheinformationhubdoesnotcreateanyrightsorobligationsforanyPartyorotherentity”.
3. Decision9/CP.19mentions“tocollectivelychanneladequateandpredictableresults-basedfinanceinafairandbalancedmanner,takingintoaccountdifferentpolicyapproaches,whileworkingwithaviewtoincreasingthenumberofcountriesthatareinapositiontoobtainandreceivepaymentsforresults-basedactions”.
ConclusionsSESSION
10CountriesinLatinAmericaandtheCaribbeanacknowledgesignificantprogressmadeintermsofacquiringexpertiseandrecognizetheimportanceoftheexchangingoflessonslearnedandexperiences.Inparticular,agroupofcountries,including those that have made significant progress,believethatsufficientmaturityisnowinplacetoworkwithblockproposals,tobemoreproactiveandtoseeksolutionstocommonchallengestobeaddressedinimplementingtheWarsawFrameworkalongwithvariousresults-basedpaymentmechanisms.
Countriesstressedtheneed,fromthenationalpointofview,tofindconsistencyandcoordinationespeciallyinthefinancialareaandregardingtherequirementsofthevariousresults-basedpaymentmechanisms.Inthisarea,emphasiswasgiventotheimportanceofseekingcommonpositions,formulatingchallenges,andworkingjointlywithcountries,civilsocietyandorganizationsinvolved.
Tothisend,variousparticipantsconsideredtheneedtoworkonaSouth-SouthCooperationstrategytranscendingissuesofcapacity-buildingandtheexchangingoflessonslearned,byworkingonjointpositionsthatmakeitpossible
toaddressexistingchallengesfacedwithorganizationssuchastheUNFCCCanddonors.
Participants identified the need to pursue exchanges,develop expertise, and embark upon strategies foraddressingvariousspecificissues:financing,legalaspectsof REDD+ and securing the involvement of the privatesectorandtheparticipationofindigenouspeoples.
The challenge of coordinating the strategy of South-Southcooperationwasraisedfromthemethodologicalstandpoint with a view to meeting the needs of thecountriesthatrequiregreatercapacity-buildingtogetherwiththosethatseektoworkonjointpositionstoaddresschallengeswithagenciesandinternationalstakeholders.Inthisregard,theUN-REDDProgrammeispositionedtoplay a major coordinating and catalyzing role, therebypromotingtheleadershipofvariousinterestedcountries.
WithregardtocountriesundergoingtheinitialstagesofREDD+,theschemesofcooperationcouldincludeworkindifferentiatedgroupsandexchangesandsystemsof“mentoring”betweencountriesconcerningspecificissues.
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35Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
“Working with block proposals is an option, and we have achieved the level of maturity required to work in this way”.
Jorge Torres, Peru
“The workshop has provided a level of information and participation, taking into account that significant uncertainty exists. There are very significant challenges ahead, we haven’t yet found all the answers but at least the questions are now clear for us”.
Osvaldo Quintanilla, Chile
“More than sharing lessons learned is the fact that this is an important forum so that synergies regarding regional positions can focus on the common challenges that we are facing”.
María del Carmen García, Ecuador
“We require a South-South cooperation strategy for Latin America and the Caribbean that is more programmatic. It is important to have a workshop on financing, as this will be a key issue after Paris so that countries are really ready to implement REDD+”.
Leandro Fernández, Argentina
“I want to recognize the quality of the event as well as the exchange and to highlight two words that keep on coming up—namely, consistency and coordination, especially in the financial area as well as the importance of finding common ground”.
Zenia Salinas, FCPF
“This has been a true South-South dialogue that our teams have been able to follow thanks to the live broadcast. It is clear that we share problems in common, and logically therefore, we must endeavour to identify common solutions”.
Roberto Portillo, Honduras
“The Quito workshop was positive in terms of observing the progress made by the countries and this one to see the degree of coordination between the various pillars. The process is not easy but, provided we can coordinate challenges between countries, civil society and organizations involved, we can work together”.
Josefina Braña, WWF
KEY COMMENTARIES FROM PARTICIPANTS AT ThE CONCLUSION SESSIONS
AnnexesANNEX 1Links to additional workshop documentation
Additionalworkshopmaterials,includingagenda,listsofparticipantsandpresentations,areavailableintheUN-REDDworkspace(www.unredd.net)throughthefollowinglink:
http://bit.ly/1LWsRL1
ANNEX IIAcronyms and Abbreviations
ANAM NationalEnvironmentalAuthority(nowMinistryfortheEnvironment)
ATPA ProductiveTransformationAgendaoftheAmazonia(Ecuador)
BID Inter-AmericanDevelopmentBank
BM WorldBank
CC ClimateChange
CLPI Free,PriorandInformedConsent
UNFCCC UnitedNationsFrameworkConventiononClimateChange
CONAFOR NationalForestryCommission(Mexico)
CONAM NationalCouncilfortheEnvironment(Peru)
CONAP NationalCouncilforProtectedAreas(Guatemala)
COP ConferenceoftheParties
CPI ClimatePolicyInitiative
DyD DeforestationandDegradationofForests
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37Experiences and Challenges in Latin America and the Caribbean towards the Implementation of REDD+South-South Exchange Report
ENREDD+ REDD+NationalStrategies
ENCCRv NationalStrategyforClimateChangeandVegetationalResourcesinChile
FAO FoodandAgriculturalOrganizationoftheUnitedNations
FAPI FederationfortheSelf-DeterminationofIndigenousPeoples(Paraguay)
FCPF WorldBank’sForestCarbonPartnershipFacility
FIP ForestInvestmentProgramme
NREFs /FRELs ForestReferenceLevels/ForestReferenceEmissionLevels
GHG GreenhouseGas
GCP GreenCommoditiesProgramme
INDCs IntendedNationallyDeterminedContributions
INF NationalForestryInventory
INFONA NationalForestryInstitute(Paraguay)
IPCC IntergovernmentalPanelonClimateChange
MADS MinistryofEnvironmentandSustainableDevelopment(Colombia)
MAE MinistryofEnvironment(Ecuador)
MAGAP MinistryofAgriculture,Livestock,AquacultureandFisheries(Ecuador)
MINAM MinistryofEnvironment(Peru)
MIRI Mechanismforinformationandtheresponsetoinconsistencies(CostaRica)
MRv Measurement,Reporting,andVerification
NAMAs NationallyAppropriateMitigationActions
PNUD UnitedNationsDevelopmentProgramme
PNUMA UnitedNationsEnvironmentProgramme
PSA PaymentforEnvironmentalServices
REDD+ ReducingEmissionsfromDeforestationandForestDegradationinDevelopingCountries; andtheroleofconservation,sustainablemanagementofforestsandenhancementofforest carbonstocksindevelopingcountries.
REM REDD+EarlyMovers
R-PP REDD+ReadinessPreparationProposal
SEAM SecretariatofEnvironment(Paraguay)
SENPLADES NationalSecretariatofPlanningandDevelopment(Ecuador)
SERNA SecretariatofNaturalResourcesandEnvironment(Honduras)
SES Socialandenvironmentalstandards
SESA StrategicEnvironmentalandSocialAssessment
SIS SafeguardInformationSystem
SNMB NationalSystemfortheMonitoringofForests
tCO2eq EquivalenttoametrictonofCO2
URE EmissionReductionUnit
WWF WorldWildlifeFund
www.un-redd.org
TheUnitedNationsCollaborativeProgrammeonReducingEmissionsfromDeforestationandForestDegradation
(REDD+)inDevelopingCountries