Environmental

Environmental governance and climate change in Africa Legal perspectives Rose Mweba. and Louis J Kot. EFTA01090080 EFTA01090081 Contents Preface vii About the Editors xv About the Authors xix Part 1 Climate Change in Africa: General Perspectives Chapter 1 The impact of climate change In East Africa 3 Rose Mwebaza Introduction 4 Background on East Africa 5 Emerging evidence on climate change 7 The impact of climate change in Eastern Africa 10 Conclusion 14 Chapter 2 Gender roles, land degradation and climate change A Ugandan case study 21 Godard Busingye Introduction 22 Conceptual framework 22 Land degradation 30 Linking climate change to land degradation 35 Gender roles, land degradation and climate change 37 Conclusion 39 MONOGRAPH 167 EFTA01090082 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Part 2 Climate Change Mitigation Chapter 3 Climate change and informal institutions in the Lake Victoria Basin 49 Donald A Mwiturubani Introduction 50 Africa's economies and the impact of climate change 51 Institutional arrangements in natural resources management 52 Policies and legislation in natural resources management 54 The associations of traditional leaders and natural resources management 57 Conclusion 62i Part 3 Climate Change Adaptation Chapter 4 Adaptation policies in Africa Challenges and opportunities in the application of tools and methods on climate change 71 Zerisenay Habtezion Introduction 72 Adaptation mainstreaming 73 Tools and methods 73 The Eritrean situation 74 Challenges and opportunities 77 Conclusion 81 Chapter Policy, legislative and regulatory challenges in promoting renewable energy in Nigeria 93 Muhammed Tawfiq Ladan Introduction 94 The importance of efficient and renewable energy in the Nigerian context 96 Overview of the policy, legislative and regultory measures available to promote energy efficiency and renewable energy in Nigeria 103 Challenges and strategies relating to climate change mitigation, use and regulation of renewable and efficient energy in Nigeria 108 11 INSTITUTE FOR SECURITY STUDIES EFTA01090083 Conclusion 110 Chapter 6 Biofuels in Tanzania Legal challenges and recommendations for change 117 Eliamani Laltaika Introduction 117 Tanzania: Economic geography, climate change and the biofuels industry 119 Effects of biofuels 121 Legal and policy recommendations 124 Conclusion 127 Part 4 The Clean Development Mechanism Chapter 7 Towards sustainable development An African perspective on reforming the Clean Development Mechanism 141 Michaela Lau, Olivia Rumble and Phillipa Niland Introduction 142 The clean development mechanism in a nutshell 144 The application of the clean development mechanism 144 Increasing the scope of the clean development mechanism 145 Correcting distributional imbalances and imblances in project types 149 Reform of the verification and certification criteria 150 Institutional reform 154 Reform of the adaptation fund 156 Conclusion 159 Chapter 8 The clean development mechanism and forestry projects in Cameroon The case of forestry projects in Cameroon 171 Christopher F Tamasang Introduction 171 The clean development mechanism requirements or conditonality 173 Clean development mechanism requirements for forestry projects 173 Trends, challenges and opportunities related to the attainment MONOGRAPH 167 iii EFTA01090084 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA of CDM requirements in african forestry projects 182 Legal responses and progress mechanisms 185 Conclusion 186 Chapter 9 Regulatory mechanisms for implementing renewable energy projects in Uganda 197 Emmanuel Kasimbazi Introduction 198 Potential for rrenewable energy resources in Uganda 198 Implementation of CDM projects in the renewable energy sub-sector 200 The regulatory framework for clean development mechanism under the renewable energy sub-sector 203 Challenges for the implementation of clean development mechanism projects in the renewable energy resources sub-sector 214 Conclusion and recommendations 216 Part S Human Rights Approaches to Climate Change Mitigation and Adaptation Chapter 10 Climate change and the international human rights framework in Africa ..227 Rose Mwebaza Introduction 228 The nexus between climate change and human rights 229 The impact of climate change on human rights in Africa 234 Mitigating and adapting to the impacts of climate change through the international human rights framework 242 Conclusion 253 Chapter 11 Implications of climate change for the right to health in Uganda 263 Ben Kilomba Twinomugisha Introduction 264 Climate change and public health: An overview 265 The interface between environment, human rights, and climate change 267 The normative content of the right to health 271 iv INSTITUTE MR. ECURITY STUDIES EFTA01090085 ROSE MWERAZA AND LOUIS J KOTZE Strategies for addressing the impact of climate change on the right to health 273 Conclusion 276 MONOGRAPH 167 EFTA01090086 EFTA01090087 Preface Africa is one of the most vulnerable continents to climate change and climate variability, a situation aggravated by the interaction of 'multiple stresses, occurring at various levels, and low adaptive capacity ... Africa's major eco- nomic sectors are vulnerable to current climate sensitivity, with huge economic impacts, and this vulnerability is exacerbated by existing developmental chal- lenges such as endemic poverty, complex governance and institutional dimen- sions; limited access to capital, including markets, infrastructure and technol- ogy; ecosystem degradation; and complex disasters and conflicts. These in turn have contributed to Africa's weak adaptive capacity, increasing the continent's vulnerability to projected climate change.' With these somber words, the Intergovernmental Panel on Climate Change (IPCC) confirmed in 2007 that Africa is one of the continents on earth that is most susceptible to the potentially devastating effects of climate change. In the African context, the ecological impacts resulting from climate change are compounded by, what the IPCC terms, 'multiple stresses. These stresses mani- fest themselves in various forms, including, inter alit': immense socioeconomic challenges such as poverty; lack of basic amenities which negatively affect mate- rial conditions for human welfare; lack of good governance practices; political instability and armed conflicts; displacement of people as a result of human- induced and natural disasters; the prevalence and increase of diseases, par- ticularly HIV/AIDS; wide-spread human rights abuses; developing economies attempting to claim their rightful place in the world economic order; and lack of financial resources. The Fourth Assessment Report of the Intergovernmental Panel on Climate Change (2007) details and further elaborates on all these chal- lenges and paints a particularly gloomy picture for the continent's future and the enormous challenges that lie ahead in progressively and effectively address- ing the challenges. MONOGRAPH 167 vii EFTA01090088 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA It is therefore not surprising that climate change constitutes one of the most topical themes increasingly permeating the current development debate, especially insofar as climate change will require a paradigm shift regarding approaches to sustainable development and the attainment of the Millennium Development Goals in Africa. Sustainable development is a complex phenom- enon. It therefore seems pertinent to engage in vigorous discourse to devise strategies to ameliorate the severe impact of climate change on developing coun- tries and, more specifically, the vulnerable countries situated on the African continent. Effectively tackling climate change requires a multi-disciplinary approach. Law, and more specifically, environmental law, plays an important role in this respect, especially insofar as legal mechanisms are able to shape the behaviour of people with respect to their interaction with the environment. The manner in which law could be used to address the deleterious effects of climate change accordingly provides numerous opportunities to reinvigorate the debate surrounding climate change and its effects on developing coun- tries, particularly, those situated on the African continent. In response to the latter, the Environment Security Programme (ESP) of the Institute for Security Studies (ISS), Nairobi, and the Centre for Advanced Environmental Studies in Environmental Law and Policy (CASELAP) at the University of Nairobi, or- ganised a scientific conference which specifically sought to investigate the chal- lenges of climate change in Africa and to formulate possible legal responses to address some of these challenges. This scientific conference that was held from 23-25 March 2009 at the Silver Springs Hotel in Nairobi, Kenya, coincided with the Third Symposium of the Association of Environmental Law Lecturers from African Universities (ASSELAU). This book contains a selection of papers pre- sented at the scientific conference. The book is divided into five parts. Part 1 contains papers that seek to present a general overview of climate change issues in some African countries. In Chapter 1, Mwebaza investigates the impact of climate change on East Africa. The author notes that East Africa is set to be one of the areas to be worst hit by climate Change in Africa. The worst impacts of climate change in this area are projected to be at principally two levels; the human impact and the environmental or biodiversity impact. The major human impacts of climate change have been observed in the areas of human health, food security and access to water for domestic and industrial use. Environmental and biodiversity impacts, on the other hand, have mainly been felt through a rise in sea level viii INSTITUTE FOR SECURITY STUDIES EFTA01090089 ROSE MWERAZA AND LOUIS J KOTZE along the East African Coast, and loss of biodiversity resulting form extreme weather patterns and changes. The author proposes that, given the observed and projected impacts of climate change in East Africa, governments in the region need to make more concerted efforts to deal with the impacts of climate change. These efforts should include development of appropriate legal and policy regimes at national and regional level and the mainstreaming of climate change issues in all sectors, especially those projected to suffer the greatest impacts of climate change. In Chapter 2, Busingye provides an enlightening perspective on the rela- tionship between gender roles, land degradation and climate change in Uganda. The author contends that this relationship is one of cause-and-effect and that a proper understanding of this relationship would enable the creation of mecha- nisms to address challenges posed by climate change. Busingye suggests this re- lational model shows that gender roles, which are a function of social-cultural, economic and political underpinnings of society, are at the confluence between two other concepts, namely, land degradation and climate change. The author points out in this respect that land degradation is aggravated by unsustainable human activities including over-cultivation, overgrazing and failure to agree on which activity is suitable for which environment by the two genders in a household, namely women and men. Women in particular are disempowered by society's social-cultural constructs and as such cannot meaningfully con- tribute to decisions relating to the sustainable utilisation of family land. Against this broader context, the author suggests that a proper understanding of the linkage between gender roles, land degradation and climate change is useful in addressing social-cultural issues since these are all factors, which may influence the challenges posed by climate change. Part 2 of the monograph focuses on approaches to mitigate the harmful effects of climate change in certain African countries. In Chapter 3, Mwiturubani reflects on the role of informal institutions in enhancing coping mechanisms to deal with the impacts of climate change in the Lake Victoria Basin (LVB). The author states that an IPCC analysis of the impacts of climate change suggests that in sub-Saharan Africa, where the majority of the popula- tion depends on rain-fed agriculture, economic activities are likely to be more vulnerable to climate change. This is so because the coping mechanisms of the indigenous communities in the rural areas are limited due to a lack of appropri- ate technology. A survey of households and interviews involving key informants MONOGRAPH 167 Ix EFTA01090090 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA in the LVB, however, illustrates that local people in the LVB, through their informal institutions, have been developing different (informal) strategies to deal with the impacts of climate change. Mwiturubani suggests that these strat- egies are in most instances adaptable to changing ecological conditions and are effective and useful in responding to natural resource constraints caused by climate change. Some of the strategies include: creating and implementing specific rules on access to and utilisation of some specific natural resources such as those in the water catchment areas; creating and implementing rules on the type of crops to be grown; creating and implementing restrictions on the type of harvests to be sold; and disseminating knowledge of weather forecasts informed by indigenous-based tools and indicators to understand the onset and end of rainfall. The author concludes by proposing several recommendations to the governments in the region to formulate policies and enact laws with a view to supporting informal institutions and indigenous-based technologies for sustainable development. Part 3 of the monograph is dedicated to papers focusing on climate change adaptation. In Chapter 4, Habtezion provides a general overview of adaptation policies in Africa, and specifically Eritrea, and also reflects on the challenges and opportunities in the application of tools and methods related to climate change. The author argues that scientific advances in seasonal and multi-decadal pre- dictions in climate variability and change have laid bare the enormity of chal- lenges in adaptation, and have also highlighted some impediments in pushing the United Nations Framework Convention on Climate Change (UNFCCC) process forward. The author points out that currently, a range of tools and methods exist, or are being developed, to facilitate access, understanding and application of climate data, which could be employed by least developed coun- tries (LDCs) in the design of appropriate adaptation policies, strategic pathways and enabling legislation. These tools and methods are essential for making science-based policy decisions on adaptation. The author, however, finds that the complexity and cost associated with such data, tools and methods do not always coincide with the state of human resources and technological capacity of African LDCs and, as such, their effect on the design of adaptation processes is bound to be limited. Habtezion contends that increased efforts need to be made through the UNFCCC process, as well as through possible regional initiatives, to enhance the capacity of African LDCs in the application of available tools and methods related to climate change, also with a view to ensuring that these X INSTITUTE FOR SECURITY STUDIES EFTA01090091 ROSE NEWEBAZA AND LOUIS J KOTZE tools and methods are considered to be an integral part of ongoing discourse on climate change financing, and the transfer and deployment of technology. The author concludes that parallel to such efforts, regulatory measures are needed to ensure harmonisation of environmental/natural resource-related laws and poli- cies and coordination among relevant institutions, with the view to facilitating adaptation mainstreaming into development planning. In Chapter 5, Ladan investigates the myriad legislative and regulatory challenges faced in promot- ing efficient and renewable energy with respect to climate change mitigation in Nigeria. The author contends that while much has been written about the science, technology and policies for promoting energy efficiency and renewable energy, little has been written on the legislative and regulatory options that are necessary to implement these technologies and policies. He proposes that by promoting clean and efficient energy use at the legislative and regulatory levels, governments will be able to ensure that all stakeholders have the opportunity and incentives to adopt new practices that will help to mitigate climate change and reduce pollution while keeping on the path of economic and social devel- opment. Ladan supports his arguments by: emphasising the importance of ef- ficient and renewable energy to produce electricity for the mitigation of climate change; providing an overview of the policy, legislative and regulatory measures available to promote energy efficiency and renewable energy; and highlighting the challenges and strategies to overcome the barriers to the effective use and regulation of renewable energy in Nigeria. In Chapter 6, Laltaika specifically focuses on the use of biofuels in the Tanzanian context and, for this purpose, discusses various legal challenges and recommendations for change in this respect. By surveying evidence of climate change, rising prices of fossil fuels and the ever-increasing demand for energy, the author underscores the importance of investing in alternative fuels in Tanzania and also discusses the effects of agrofuels on biodiversity conservation, food security and land tenure. Laltaika argues that precautionary measures should be adopted and implemented to ensure that this propelling industry does not cause more harm than good to the environment. Part 4 of the monograph focuses on the Clean Development Mechanism (CDM) in the African context. It contains three chapters dealing specifically with this issue. Chapter 7 provides an African perspective on reforming the CDM. Lau, Rumble and Niland eloquently argue that the idea behind the CDM is that developing nations will benefit from sustainable development in the MONOGRAPH 167 xi EFTA01090092 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA form of 'climate-friendly' projects that reduce emissions of greenhouse gases (GHGs) while developed nations receive Certified Emissions Reduction (CERs) credits that may be used for compliance purposes. However, since its inception, a number of problems have arisen with this mechanism. The authors proceed to analyse the problems inherent in the formulation and implementation of the current CDM from an African perspective, and in doing so, consider an array of possible solutions to these shortcomings with a view to informing the possible reform of the CDM in the Copenhagen Protocol, which will replace the Kyoto Protocol at the end of the first commitment period in 2012. The authors also include in their discussion an analysis of options for scaling up the CDM to promote more active participation of African nations in the post- 2012 climate regime. In Chapter 8, Tamasang investigates the CDM and its potential for climate change mitigation in Africa by specifically focusing on forestry projects in Cameroon. For this purpose, the author turns his atten- tion to the issue of conditionality by drawing from the provisions of the Kyoto Protocol and certain decisions of the Conference of the Parties to the Protocol. The issue of conditionality is also examined within the context of African forest projects in general and Cameroon forest projects in particular. The author concludes that there are a number of legal concerns under the Kyoto Protocol which require review if the objectives of the CDM are to be achieved. He further proposes that a more viable option for an effective climate change governance mechanism would consist of efforts to complement project devel- opment with litigation. In Chapter 9, Kasimbazi provides a critical review of regulatory mechanisms for implementing renewable energy CDM projects in Uganda. In doing so, the author assesses the various challenges and opportuni- ties associated with the current Ugandan regulatory framework and he argues that the success of CDM projects in the renewable energy sub-sector largely depends on the existence of an adequate regulatory framework. An examina- tion of Uganda's policy and legal framework reveals that, generally considered, it is adequate to implement renewable energy CDM projects. The author, however, finds that there are other non-legal limitations that curb the effective operation of the regulatory framework and that, if these limitations are not ad- dressed, the regulatory framework and several CDM projects are likely to fail. Kasimbazi concludes by providing several recommendations directed to the appropriate authorities, which may assist in overcoming current deficiencies in this respect. xii INSTITUTE FOR SECURITY STUDIES EFTA01090093 ROSE MWERAZA AND LOUIS J KOTZE Parts of the monograph is devoted to the issue of human rights approaches to climate change mitigation and adaptation. In Chapter 10, Mwebaza points out that while there is a vibrant global discourse on climate change and the serious threats it poses to both the environment and humanity, there is little in this discourse focusing on how climate change will adversely affect fundamen- tal human rights of present and future generations. She finds that there is even less discourse on how the fundamental rights of the most vulnerable people of Africa will be affected by climate change, and that little or no attention is af- forded to the need to integrate human rights into the climate change mitigation and adaptation policies and strategies being implemented in various African countries. Mwebaza concludes that, for African countries to effectively respond to the challenges of climate change and its impact on the fundamental rights of people, these countries must integrate basic human rights standards and norms as contained in the international human rights framework into their mitigation and adaptation policies and strategies. She further contends that until and unless fundamental human rights are integrated into Africa's efforts to mitigate and/ or adapt to climate change, any efforts undertaken to respond to the impacts of climate change will only result in minor successes. Twinomugisha discusses the implications of climate change for the right to health in Uganda in Chapter II. The author points out that climate change may adversely affect access to ad- equate housing, clean and safe water, sanitation, and adequate nutrition, all of which have implications for the right to health. Yet, as Twinomugisha indicates, Uganda is obliged by its constitution and various human rights instruments to progressively realise the right to health of its people. Pursuant to its constitu- tional and international obligations, Uganda has, in partnership with the inter- national community, undertaken measures to enhance public health. However, the gains made in the area of public health may be undermined by the negative impacts of climate change. The author succinctly argues in this respect that the fulfillment of human rights, such as the right to health, can significantly con- tribute to efforts aimed at addressing the consequences of climate change. He concludes that for Uganda to fulfill its obligation to realise the right to health, it must devise and implement legislative and policy strategies to prevent the deleterious consequences of climate change on human health. This book does not attempt to provide profound solutions to all the chal- lenges posed by climate change in Africa. Rather, it aims to contribute to the ongoing discussion by investigating certain aspects of climate change and the MONOGRAPH 167 Lai EFTA01090094 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA manner in which these manifest themselves in a selection of African countries. It also acknowledges the dearth of literature dealing specifically with climate change and its effects on the African continent. It is therefore hoped that the collection of insights presented in this book would contribute to and further encourage debate surrounding what is perhaps currently one of the most press- ing issues in modern day society. Rose Mwebaza and Louis J Kotth The Editors-in-Chief xiv INSTITUTE FOR SECURITY STUDIES EFTA01090095 About the Editors EDITORS-IN-CHIEF ■ Dr Louis J Kotze is professor of law at the Faculty of Law, North West University, South Africa, where he teaches environmental law at pre- and post-graduate level. He is the co-coordinator of the LLM Programme in Environmental Law and Governance at the Faculty of Law. His research focuses, among others, on environmental governance and European, inter- national and domestic environmental law. He has published extensively on these themes, and has co-authored and co-edited various national and inter- national environmental law textbooks, the most recent publications being: L J Kotze and A R Paterson AR The Role of the Judiciary in Environmental Governance: Comparative Perspectives (Kluwer Law International, 2009), and A R Paterson and L J Kota' (eds) Environmental Compliance and Enforcement in South Africa: Legal Perspectives (Juta, 2009). He serves on the executive editorial boards of various international and national environ- mental law journals. He is a member of, among others, the South African Environmental Law Association, the IUCN Academy of Environmental Law, the IUCN Commission on Environmental Law, the Global Ecological Integrity Group, the International Network for Environmental Compliance and Enforcement, and the IUCN Commission on Environmental Law Specialist Group on Environmental Governance. He is also a member of the Association of Environmental Law Lecturers from African Universities (ASSELLAU), and co-chair of the Association's Editorial Board. ■ Dr Rose Mwebaza is a Senior Legal Advisor on Environmental Security at the Institute for Security Studies in Nairobi, Kenya. She is a former Carl Duisberg Research Fellow at the IUCN Centre for Environmental Law in MONOGRAPH 167 XV EFTA01090096 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Bonn Germany and a former Lecturer and Deputy Dean at the Faculty of Law Makerere University, Kampala, Uganda. Her research interests include environmental governance, environmental security, natural resources man- agement, trade and environment; climate change, gender and rights based approaches to environmental governance. She is a member of the IUCN Academy of Environmental Lawyers. CO-EDITORS ■ Dr Kwadwo Appiagyei•Atua is Senior Lecturer at the Faculty of Law, University of Ghana, Legon, Accra. He teaches Public International Law, International Environmental Law and International Human Rights Law. His areas of interest and specialisation are in the relationship between human rights, environmental law and development as well as post•conflict and tran- sitional justice issues. Dr Appiagyei•Atua has done consultancy work in the above areas with organisations such as International Centre for Transitional Justice (ICTJ), New York, NY, USA and the Africa Governance Monitoring and Advocacy Project, London, UK as Lead Researcher the publication on AfriMAP - Justice Sector and the Rule of Law). Kwadwo is a member of the Ghana Bar Association; the Association of Environmental Law Lecturers from African Universities (ASSELLAU) and member of the Association's Editorial Board; as well as being an Associate Editor of the University of Ghana Law Journal.. ■ Dr Twinomugisha Ben Kiromba is an Associate Professor and the Dean of Law at Makerere University, Kampala, Uganda. He has taught, researched and published in the areas of environmental law, gender, health and human rights. He is also an advocate of Courts of Judicature in Uganda, practicing with Twinomugisha Shokoro and Company Advocates. ■ Ms Odile Lim Tung teaches environmental law at the University of Mauritius and is the current leader for the theme 'Comparison of laws and policies on energy: Reunion Island and Mauritius' for the 'Maurice Ile Durable' project. Her research interests are in environmental law and medical law. She is a member of the University of Mauritius 'Multidisciplinary Centre of Excellence: Environment, Water and Energy' as well as a member of the XVi INSTITUTE FOR SECURITY STUDIES EFTA01090097 ROSE ?AWE BAZA AND LOUIS J KOTZE National Invasive Alien Species Committee which was set up to draw a national action plan against invasive alien species in Mauritius. Over the past three years, she has also been a member of the Mauritian Law Reform Commission. She is one of the co•editors of the Association's Editorial Board and a member of the Association of Environmental Law Lecturers from African Universities (ASSELLAU). MONOGRAPH 167 xvii EFTA01090098 About the Authors ■ Zerisenay Habtezion LLB, (University of Asmara) LLM (UCLA). 'The author is presently a visiting research fellow at the W E B Du Bois Institute for African and African American Research, Harvard University. He is a member of the IUCN Commission of Environmental Law and, presently a member of the executive council of the Association of African Environmental Law Lecturers from African Universities (ASSELLAU). ■ Dr Donald Anthony Mwiturubani is a senior researcher in the Environmental Security Programme at the Nairobi office. He holds a BA degree in land use planning and environmental studies, an MA in geography and environmental studies, MRes (Master of Research) and PhD (Water Resources Management). Dr Mwiturubani has over ten years research experience in water resources management with gender perspec- tives; corruption and governance; youth and HIV/AIDS; traditional (in- digenous) knowledge systems; tourism management; and environmental crimes management. He has over eight years teaching experience at the University level where taught courses on hydrometeorology, water re- sources management, tourism management and research methods at the Univeristy of Dar es Salaam. ■ Dr Emmanuel Kasimbazi is the Head of Department; Public and Comparative Law at the Faculty of Law, Makerere University, Kampala, Uganda. He has a PhD Degree in International Water Law from the University of KwaZulu•Natal, Durban, South Africa. He is a member of the IUCN Commission on Environmental law. He has consulted for many international and national agencies including the World Bank, African Development Bank, United Nations Environmental Programme (UNEP), xviii INSTITUTE FOR SECURITY STUDIES EFTA01090099 ROSE ?AWE BAZA AND LOUIS J KOTZE United Nations Office for Project Services (UNOPS), Nile Basin Initiative, European Union, United Nations Development Programme (UNDP), Food and Agricultural Organisation (FAO), Germany Technical Cooperation (GTZ), United States Agency for International Development (USAID) Norwegian Agency for Development Cooperation (NORAD) and Danish International Development Agency (DANIDA). ■ Dr Muhammed Tawfiq Ladan LLB (1986), LLM (1990) and PhD (1997)) is a Professor of Law with specialisation in comparative jurisprudence, human rights, and environmental laws at the Department of Public Law of the Faculty of Law, A hmadu Bello University, Zaria, Kaduna State, Nigeria. Professor Ladan is a member of the World Jurist Association, Washington DC, USA; IUCN Academy of Environmental Law; Association of African Environmental Law Scholars; a Hubert Humphrey Fellow, USA; member, Nigerian Society of International Law, and Member IUCN Commission on Environmental Law. ■ Dr Christopher Funiwe Tamasag holds a PhD in Environmental Law from the University of Yaounde II•Cameroon where is also a senior lecturer in law in the Faculty of Laws and Political Science. He is member of the Association of Environmental Law Lecturers from African Universities, the IUCN Academy of Environmental Law, and Network for Environment Education and Sustainability in West and Central Africa. His present research interests include climate change law, sustainable development law, indigenous and customary law, water law, mining law and intellectual property law relating to the environment. ■ Major Godard Busingye is a Senior Legal Advisor in the Ministry of Defense in Uganda and a Lecturer at the Uganda Christian UniversitrMukono specialising in Environmental Law and Policy. Godard is also an Associate Consultant at the Uganda Management Institute (UMI) and External Examiner for the Law Development Centre, Kampala, Uganda. He is an Advocate of the Courts of Judicature in Uganda and Member of the Uganda Law Society and the East African Law Society. He has long standing exile- rience as Legal Consultant in the fields of Environmental Law, Legislative Drafting, Review of Legislation and provision of advice to the government MONOGRAPH 167 xix EFTA01090100 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA and other institutions in the field of Environmental and Natural Resources Law, Human Rights, Taxation and Intellectual Property law. ■ Eliamani Laltaika is a Doctoral Candidate at the Max Planck Institute for Intellectual Property, Competition and Tax Law, Munich Germany. He is also a lecturer in Intellectual Property and Environmental Law at the Faculty of Law, Tumaini University-Iringa University College, Tanzania. He holds an LLM Intellectual Property Law from the Munich Intellectual Property Law Centre MIPLC, Munich•Germany; LLM Environmental Law from the University of KwaZulu-Natal, South Africa and Bachelor of Laws LLB-Hons from Tumaini University-Iringa University College-Tanzania. ■ Michaela Lau, Olivia Rumble and Phillipa Niland are LLM (Environmental Law) students at the University of Cape Town. XX INSTITUTE FOR SECURITY STUDIES EFTA01090101 PART I Climate Change in Africa General Perspectives EFTA01090102 EFTA01090103 1 The impact of climate change in eastern Africa ROSE MWEBAZA ABSTRACT East Africa is projected to suffer some of the worst impacts of climate change in Africa. These impacts are projected to be in primarily two areas: the human impacts and the environmental or biodiversity impacts. The major human impacts of climate change have been observed in the areas of human health, food security and access to water for domestic and industrial use. Environmental and biodiversity impacts, on the other hand, have mainly been felt through the sea level rise along the East African Coast, and loss of biodiversity resulting from extreme weather patterns and changes. However, in spite of the projected impacts of climate change in the region, there is nothing or little that has been done by the countries to prepare to respond adequately to the impacts of climate change. This chapter will examine in detail the projected impacts of climate change in East Africa. In particu- lar, the chapter will examine the impact of climate change on human health, food security and access to water. The chapter will also recommend the need for policy action at both local and national level as means of responding to the impacts of climate change. MONOGRAPH 167 3 EFTA01090104 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA INTRODUCTION Climate change has been described as the leading challenge of our time. The UN Secretary-General Mr Ban Ki-moon describes it as 'the most global of problems' facing our times. While speaking at the meeting of the industrial- ised nations of the Group of Eight (G8) gathered at Heiligendamm, Germany, Mr Ban Ki-moon stated that forces must be mustered to fight global warming under a multilateral process within the UN framework. He said that climate change and how we address it will define us, our era and ultimately the global legacy we leave for future generations.' He noted that while wealthy nations possess the resources and know-how to adapt to the effects of climate change, African countries face a bigger chal- lenge in dealing with the effects of climate change. He noted further that an African farmer losing crops or herds to drought and dust storms is infinitely more vulnerable. Large-scale adaptation and its funding to the order of billions of dollars a year to manage climate-change impacts, particularly in the develop- ing world, will be needed. He spoke of a Namibian representative who, at the UN Security Council Meeting in April 2007, stated that climate change is not an academic exercise but a matter of life and death, especially as the Kalahari Desert is expanding, destroying farm land and rendering whole regions in his country uninhabitable.' A French representative at the same meeting described climate change as the number one threat to mankind! Mr Ban Ki-moon is not alone in his call for global action on climate change. Honourable Helen Clark, former prime minister of New Zealand, notes that the issues raised by climate change have given a tangible core and renewed sense of urgency to the goal of sustainable development' But climate change is not just about the environment. As Sir Emry Jones Parry notes, climate change is transforming the way we think about security. While this will not be the first time people will have fought over land, water and other resources, the scale of the conflicts resulting from climate change means that they are likely to dwarf the conflicts of the past.' A report published on the 16 April 2007 by the Military Advisory Board of the United States notes that projected climate change poses a serious threat to America's national security because it will be a multiplier of instability in some of the most volatile regions in the world. However, it is not just America that will suffer these projected changes. Africa is projected to suffer the brunt of climate change because of 4 INSTITUTE FOR SECURITY STUDIES EFTA01090105 ROSE MW BAZA AND LOUIS J KOTZE its limited capacity to adapt. From flooding to disease and famine, migration in areas of high tension to drought and crop failure, from increased competi- tion for food, water and energy in a continent in which resources are already stretched to the limit to economic disruption on an unprecedented scale, Africa is likely to suffer the full force of the projected impacts of climate change and the domino effect of this is bound to be felt by the rest of the world. In recognition of the growing importance of the discourse on climate change, the UN Security Council, in an unprecedented move, recognised climate change as a core security issue on the 17 April 2007. Nevertheless, as Sir Emry Jones Parry notes, climate change and security should not be looked at within the traditional narrow confines of national security. Climate change and human security is about collective security in a fragile and increasingly inter- dependent world and, tragically, it will be the most vulnerable and least able to cope, most of whom are on the African continent, who will be hit first" At the world gathering on climate change in Bali, there was unanimous consensus among the conference of parties delegates that there was need to ur- gently enhance implementation of the UN Framework Convention on Climate Change in order to achieve its ultimate objective in full accordance with its principles and commitments? It is in the context of the recognised importance of climate change at a global level that this paper seeks to present the impact of climate change in East Africa. In order to understand the context within which climate change is hap- pening in East Africa, the paper will commence with an expository background of East Africa. It will review the major geophysical features, its biodiversity and the population that will be affected by the impacts of climate change. It will then proceed to examine the emerging evidence on climate change before pro- ceeding to present the impact of climate change in East Africa. The paper will end with a conclusion based on the emerging evidence on climate change and its impact in East Africa. BACKGROUND ON EAST AFRICA East Africa is traditionally comprised of three countries: Uganda, Kenya and Tanzania. However, the political definition of East Africa now includes Rwanda and Burundi. Geographically, the East African region is described to include the coastal countries of Mozambique, Somalia, the island of Madagascar, the KIOSK/GRAPH 167 5 EFTA01090106 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA three archipelagoes of Comoros, Mauritius and Seychelles, and the French Territories of La Reunion.' In order to give scope to the presentation, the paper will focus on the impact of climate change on the four East African countries of Uganda, Kenya, Tanzania and Rwanda. The four countries have a combined population of over 107 million people. The population has doubled in the last 25 years and is expected to grow by 63 per cent in the next 25 years to reach 175 million. The population is predomi- nantly young, with over 40 per cent under the age of 15.9 The four countries cover a total land area of 167.45 million hectares, which is 7 per cent of sub-Saharan Africa's land area. Rwanda has the highest share of its land under permanent cultivation, which increased from 48 per cent to 56 per cent between 1992 and 2002. Tanzania has the lowest share of land under cultivation, accounting for just 5 to 6 per cent of its total land area. Uganda's total land under cultivation amounts to 35 to 37 per cent, while Kenya's land area under permanent cultivation is a mere 8 to 9 per cent.'° The amount of land allocated to pasture is highest in Tanzania at 40 per cent, followed by Kenya at 37 per cent and Uganda at 26 per cent. Rwanda has seen its share of land allocated to pastoralism reduced from 26 to 19 per cent between 1992 and 2002." The amount of forested land has declined in the four countries in the last ten years, with Rwanda witnessing a decline from 17 to 12 per cent. Tanzania's decline was from 42 to 41 per cent; Kenya's forest cover has shrunk by 2 per cent, while Uganda's forests have shrunk by 4 per cent. In total, the region lost 2 923 000 hectares of forested land in a period of ten years (1990-2000). This is an area greater than Rwanda's total land area of 2 467 000 hectares!' The region has 192 cubic kilometers of renewable water resources each year. Tanzania enjoys 47 per cent of this resource, Uganda 34 per cent, Kenya 12 per cent and Rwanda 3 per cent. Tanzania accounts for the highest water withdrawal at 49 per cent, followed by Kenya at 40 per cent, with Uganda and Rwanda withdrawing 8 per cent and 3 per cent respectively. Water withdrawal in the region is primarily for agriculture, with Tanzania's agricultural usage amounting to 93 per cent, Kenya 64 per cent, and Uganda and Rwanda 39 per cent. Water usage for industrial production is minimal, accounting for just 1 per cent in Tanzania, 6 per cent in Kenya, 15 per cent in Uganda and 14 per cent in Rwanda." 6 INSTITUTE FOR SECURITY STUDIES EFTA01090107 ROSE MWEBAZA AND LOUIS J KOTZt An important aspect of water usage in the region is Lake Victoria, the second largest fresh water body in the world, which is shared by the three countries of East Africa. The lake is also important geopolitically for its downstream users in Sudan and Egypt. However, since 2003, the lake has experienced a drop in its water level. Recent studies on the lake reveal that 45 per cent of the drop in the water level of the lake is attributable to drought and 55 per cent to the over•release of water from the Owen Falls Dam!' The East African of March 13 to19 2006 also reports that the drop in the level of lake Victoria can be attributed to global warming associated with the emission of greenhouse gases (GHG) by Western countries and the drying up of its two major contributory rivers, Kagera and Nzoia, which contribute over 47 per cent of all the water to Lake Victoria. In terms of biodiversity, the region has a total area of 19,2 million hectares of protected areas. This accounts for 11 per cent of the total land area of the region and accounts for 2,4 per cent of all protected areas in the world. Tanzania has protected 15,6 per cent of its land area, Uganda 8,9 per cent, Kenya 6,1 per cent and Rwanda 7,9 per cent. The four countries have between themselves protected 19 marine areas, 11 biosphere reserves and ten internationally important wet- lands. The four countries are home to 1 348 species of mammals of which 109 are threatened or endangered. There are also 3 839 species of birds, comprising a significant 38 per cent of the global total. The region is also host to 23 702 species of plants, comprising of 9 per cent of the global total. 'S EMERGING EVIDENCE ON CLIMATE CHANGE There is now indisputable evidence that climate change is happening in Africa, as it is in the rest world, and that it is not only bringing with it changes to biodi- versity but also social and economic impacts. Climate change is defined by the Intergovernmental Panel on Climate Change (IPCC) as a change in the state of the climate that can be identified by changes in the mean and/ or the variability of its properties and that persist for an extended period, typically decades or longer. It also refers to any change in climate over time, whether due to natural variability or as a result of human activity. This definition of climate change is different from the one used by the United Nations Framework Convention on Climate Change (UNFCCC), which only refers to climate change as attributable directly or indirectly to human activity that alters the composition of the global atmosphere which is in addition to human activity MONOGRAPH 167 7 EFTA01090108 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA that alters the composition of the global atmosphere and that is in addition to natural climate variability observed over compared over time periods.' Scientists now tell us with certainty that the global surface temperature is rising and this is largely due to human activities. Human activities are chang- ing the composition of the earth's atmosphere. Increasing levels of GHGs like carbon dioxide in the atmosphere are largely a result of the burning of fossil fuels. Once emitted, these gases remain in the atmosphere for periods ranging from decades to centuries. The burning of fossil fuels also results in the emis- sion of aerosols that absorb and emit heat, and reflect light. The addition of these gases and aerosols has changed the atmosphere, leading to changes in temperature, precipitation, storms and sea level. The IPCC projects that if GHG emissions continue to rise at their current rates, the mean global temperatures will rise by a substantial 1,4 to 5,8 degrees Celsius by the end of the 21st century." Observed evidence by the panel of sci- entists further indicates that 11 of the 12 years between the period 1995 to 2006 rank among the 12 warmest years in the instrumental record of the global surface temperatures since 1850. The temperature increase is widespread and is greatest at the higher northern latitudes. Land regions have warmed faster than oceans 18 The panel also projects that global warming this century is likely to trigger serious consequences that include rise in sea levels. Global average sea level rose at an average rate of 1,8 mm per year in the period 1961 to 2003 and at a stag- gering average rate of about 3,1 to 3,8 mm per year in the period 1993 to 2003." Observed decreases in snow and ice are consistent with global warming. There is evidence to show that the annual average arctic sea ice has shrunk by 2,7 to 2,3 per cent per decade. There is also observational evidence of increased tropical cyclone activity in some regions.30 It is therefore very clear that there currently exists objectively verifiable evidence to demonstrate that climate change is happening and that, unless something is done, it is only likely to get worse in the near future. Any inten- tion of containing climate change will therefore depend to a large extent on the extent to which GHGs and aerosols are controlled and regulated and the extent to which features of the climate respond to GHG and aerosol concentrations. It is important to note that, in addition to human activity, natural influ- ences also play a big part in climate change and so influences, such as those from volcanic activity and changes in the sun's intensity, will, to a great extent, affect climate change. Volcanism affects climate by causing cooling for a period of a few 8 INSTITUTE FOR SECURITY STUDIES EFTA01090109 ROSE MWERAZA AND LOUIS J KOTZE years. The sun, as the ultimate source of all the heat in the climate system, also affects climate change. The sun is getting brighter with higher energy output as it continues its slow evolution. Orbital variations which are considered by some sci- entists to be extensions of solar variability also cause changes in the distribution and abundance of sunlight reaching the earth's surface, thus affecting climate. In addition to the effect of the sun, plate tectonics also contributes to climate change as plate tectonics reposition continents, shape oceans, build and tear down moun- tains, and generally define the stage upon which climate exists." Climate change is not a new phenomenon. The earth's climate has changed throughout history, from the glacial periods or ice ages, where ice covered significant portions of the earth, to interglacial periods where ice retreated to the poles or melted entirely. These changes were triggered by a combination of forces such as changes in the earth's orbit, changes in the sun's intensity, vol- canic activity and changes in ocean currents. However, since the Industrial Revolution, human activities, especially the burning of fossil fuels and biomass, have added to the amount of heat-trapping GHGs in the atmosphere. The IPCC reported in 2005 that the atmospheric concentration of carbon monoxide has risen to 379 ppm' compared to the pre- industrial levels of 280 pmm'. " Manufacturing is said to contribute significantly to climate change and cement manufacturing alone is said to be the third-largest cause of manmade carbon dioxide emissions. Cement production is responsible for approximately 2,5 per cent of total worldwide emissions from industrial sources." Other human activities that have contributed to climate change include changes in land use and cover which have affected temperatures by changing the amount of solar radiation the land reflects and absorbs. Activities such as defor- estation, reforestation, desertification and urbanisation influence climate change by affecting temperature, wind and precipitation in the places where they occur. Changes in land use also affect the amount of carbon dioxide taken up or seques- tered or released by the land surface. A famous hypothesis by William Ruddiman suggests that the rise of agriculture and the accompanying deforestation led to the increase in carbon dioxide and methane 5 000-8 000 years ago?' A 2006 UN report, titled Livestock's Long Shadow, asserts that livestock is responsible for 18 per cent of the world's GHG emissions as measured in carbon dioxide measurements. It was further reported that, in addition to carbon mon- oxide, livestock produces 65 per cent of human-induced nitrous oxide, which MONOGRAPH 167 9 EFTA01090110 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA has 296 times more the global•warming potential of carbon monoxide, and 37 per cent of human•induced methane, which has 23 times the global•warming potential of carbon monoxide. Other evidence of climate change reported by Butterfly Conservation in the UK states that climate change has changed the migratory patterns of species. They report that relatively common species with a southerly distribution have moved north, while scarce upland species have become rarer and even been lost. Organisations such as Wildlife Trust, World Wide Fund for Nature, and Birdlife International are actively monitoring the effects of climate change on biodiversity. It is therefore clear that climate change is a reflection of the variations in the earth's atmosphere, processes in other parts of the earth such as oceans, and the effects of human activity. THE IMPACT OF CLIMATE CHANGE IN EASTERN AFRICA Introduction East Africa is considered to be one of the areas on the African continent most vulnerable to climate change and its impacts. The impact of climate change in East Africa has been observed at principally two basic levels: the human impact and the environmental or biodiversity impact. The major human impacts of climate change have been mainly observed in the areas of human health, food security and access to water for domestic and industrial use. Environmental and biodiversity impacts on the other hand have mainly been felt through rising sea levels along the East African Coast and loss of biodiversity resulting from extreme weather patterns and changes. It is important to note at the onset that these impacts of climate change are likely to be aggravated by the interaction of other stressors prevalent within the region, such as extreme poverty, limited access to capital, ecosystem degrada- tion, complex disasters and conflicts. Human impacts of climate change Food security's Food security in most of East Africa is not guaranteed through the market but through seasonal rain•fed subsistence farming. Eighty per cent of the IO INSTITUTE FOR SECURITY STUDIES EFTA01090111 ROSE PAM BAZA AND LOUIS J KOTZE population in the region depends on agriculture for a livelihood. Food security in the region is therefore intricately tied to climate variability and the predict- ability of planting and harvesting seasons. However, since 1996 there has been a marked variation in the amount of rain falling in the region as a result of climate change. This has in turn affected agricultural production, which has in turn affected food security. Funk et al report that between 1996 and 2003 there was a dramatic decline of rainfall in the region of between 50-150 mm per season.'' In addition to the decline in rainfall, there is also a growing variation and deviation from normal growing seasons which affects food production and thus food security. The major cause of these variations and deviations is the El Nifio, which produces abnormally high amounts of rain in parts of East Africa, leading to flooding. This decrease and variation in rainfall in the region as a result of climate change will have a direct impact on crop yields, meat production, fisheries and sources of wild food for forest•dwelling hunter•gatherer communities. It will also have the direct impact of increasing encroachment of marginal lands and protected areas as people look for fertile land for agricultural production to ensure continued food security. Other direct impacts will include an impact on people's incomes as a result of less income from agricultural production resulting from climate change. All this will have severe consequences on the livelihoods of the community in East Africa and its forms of social protection, which will be disrupted by the direct and indirect impacts of climate change on agricultural production and food security. Furthermore, climate change will affect soil fertility and its ability to retain the necessary minerals for food production that ensure a balanced diet. The direct consequence of this will be a reduction in the nutrient content of food in the region, including protein and gluten contents of grains, and toxin levels from pests and diseases. The resultant effect of this on human health will include weakened human body systems and increasing vulnerability to diseases. It is important to note, however, that the impact of climate change on food security in the region will be aggravated by the interplay of other factors, such as economic and social factors that determine the vulnerability of households and communities in the region, as well as their capacity to adapt." The impact of climate change on food security also needs to be considered within the wider discourse on human security, especially the realm of interstate conflict, intr- astate conflicts and the political economy of the East African countries. MONOGRAPH 167 1 EFTA01090112 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Climate change will not only affect food production but also fisheries. Climate change in the region has already been blamed for the drop in the levels of Lake Victoria, which has affected fish volumes in the hitherto well•stocked lake. Rising temperatures in the region have been blamed for the abnormal stratification of Lake Tanganyika, which has affected its fishery capacity. It is therefore no wonder that East Africa is currently considered to be one of the regions on the African continent prone to food shortages. This is in line with the UN Food and Agriculture Organisation (FAO 2004) report, which indicates that the number of African food crises per year has tripled in the time between the 1980s and 2000s. Access to water One of the worst predicted impacts of climate change in East Africa is on access to water for both domestic and industrial use. Currently, two-thirds of all people in rural Africa and a quarter of urban dwellers lack access to clean safe drinking water. This situation is likely to be aggravated by the negative effects of climate change on precipitation in the region. The IPCC notes that climate change and variability have the potential to impose additional pressure on water availability, water accessibility and water demand in Africa.28 The shortage of water in the region will mostly be a result of the variability in the frequency, intensity and predictability of rainfall in the region. The IPCCi9 predicts that warmer temperature in the region will lead to a 5-20 per cent in- crease in rainfall between December and February and a 5-10 per cent decrease in rainfall between June and August." However, it notes that these changes are likely to be sporadic and unpredictable and will not be uniform throughout the year in the region. This unreliability in the variability of rainfall will affect water management and thus affect water supply for domestic consumption and industrial use. Climate change in the region has also affected water availability as a result of warming sea surface temperatures in the Indian Ocean off the East African coast, which has been blamed for the recent reduction in rainfall and droughts in the equatorial and subtropical East African region." In Tanzania, for example, high temperatures and less rainfall has been predicted to affect the annual flow to the Pangani and Ruvu rivers by 6-9 per cent and 10 per cent respectively." Glaciers also feed the Pangani basin from Mount Kilimanjaro, which are predicted to disappear completely by 2015-2020. The Pangani basin is one of 12 INSTITUTE FOR SECURITY STUDIES EFTA01090113 ROSE ?AWE BAZA AND LOUIS J KOTZE Tanzania's most agriculturally productive areas and the inhabitants of its basin depend on the melt water from Mount Kilimanjaro and the fog water from the rainforest for drinking, irrigation and hydropower.' The Pangani basin is also an important hydropower production region. Because of this, climate change threatens the productivity and sustainability of this region's resources, which hosts an estimated 3,7 million people." Climate change has also had a severe impact on the fluctuations in lake levels in East Africa. Fluctuations in Lake Victoria have been attributed to climate change. In 1997/98, floods and rainfall triggered by El NitiO in East Africa re- sulted in a surface rise of 1,7 metres and disrupted agricultural production and pastoral systems in the region. The flooding resulting from the phenomenon also led to the death of over 1 000 people and disrupted communication and service provision in Uganda." In the same year, while waters were rising in Lake Victoria, El Nino triggered a severe drought in another location in Kenya, significantly reducing the availability of hydroelectric power in the region 96 Conway notes, however, that the impact of climate change on access to water must be considered with caution. For example, he observes that there is no in- dication of how the Nile flow, which originates in Uganda will be affected by climate change because of the uncertainty about rainfall patterns in the basin and the influence of complicated water management and water governance structures." Human health Climate change in East Africa, like elsewhere, is predicted to lead to adverse human health consequences. Rising temperatures and intense rainfall in the region have been held responsible for malaria epidemics in the highlands of Kenya, Uganda, Tanzania and Rwanda. Temperatures affect the development rates of vectors and parasites, while rainfall affects the availability of mosquito breeding sites. Changes in climate, such as the persistent warm and rainy days for more of the year, have led to an increase in malaria in many areas in the region. In addition, temperatures are warming in the formerly cooler, higher elevation areas of East Africa, leading to a spread in malaria in areas and popu- lations that had previously not been exposed to malaria." Patz et al reported in 2005 that the outbreaks of Rift Valley fever epidemics in the region are also correlated to climate variability. Between 1950 and 1998, three quarters of the Rift Valley fever outbreaks occurred during the El Nino seasons." MONOGRAPH 167 13 EFTA01090114 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Environmental and biodiversity impacts of climate change The increasing rise in temperatures coupled with a reduction in precipitation in East Africa is leading to changes in land use, which in turn are leading to the destruction of habitats and disrupting the connectedness of ecosystems, which could lead to many localised extinction of species. According to Lovett, climate change is expected to lead to significant altera- tions to Africa's biodiversity as species struggle to adapt to changing conditionsi° It is predicted that, due to its sensitive native fauna, East Africa is particularly vulnerable to exotic and invasive species colonisation. Several ecosystems, partic- ularly grass and shrub savannahs, in East Africa are shown to be highly sensitive to short-term availability of water due to climate variability. Shrub and grassland vegetation types have root systems that are shallow and dense; they draw their moisture from water that is available from upper soil layers and growth in these species depends highly upon the timing, intensity and duration of rainfall!' Migratory species in East Africa are also vulnerable to changes in climate change. Climate change has the potential to alter migratory routes of species which may also increase conflicts with humans, particularly in areas with scarce rainfall. Land use resulting from climate change will also affect migratory routes. For example, it has been demonstrated that park boundary fences have disrupted migratory journeys of wildebeest!' Also, a change in the intensity and duration of rainy versus dry seasons has affected the breeding habits and rates of African elephants!' Climate change is predicted to have considerable and severe impacts on the coastal areas of East Africa. The IPCCH projects that a rise in sea level along the coastal areas and the resulting coastal erosion could lead to destruction of coral reefs which absorb the energy of ocean swells. The coastal mangroves are also at threat from coastal erosion resulting from extreme weather changes. Additionally, sea level rise is also affecting the availability of fresh water by causing salt water to intrude aquifers and deltas. This is particularly most apparent in Tanzania. CONCLUSION The impact of climate change in East Africa is set to be bigger and more severe than already predicted because of the multiplier effects of other already existing stressors. The influence of other stressors is also likely to worsen the impact of climate change in East Africa and will lead to even worse consequences because of the lack of adequate resources and technical know-how in the region to adapt 14 INSTITUTE FOR SECURITY STUDIES EFTA01090115 ROSE MWEBAZA AND LOUIS J KOTZE to climate change." The current food shortages experienced by Kenya, East Africa's largest economy, is testament to the unprecedented impacts of climate change on region. On the 16 January 2009, the government of Kenya launched its largest-ever international appeal for food aid to save millions of starving Kenyans. Over ten million people are projected to be in danger of starvation in Kenya. The government needs 37 billion Kenyan shillings or USS468 million for emergency food, support to schools and for agricultural and livestock interventions. Kenya is suffering the vagaries of climate change. Weather patterns have become erratic, moving from the extremes of drought to flooding." The food crisis in Kenya as well as in the other East African countries is a reflec- tion of how little or no attention has been given to climate policy as a mechanism for responding to the challenges posed by climate change. It is clear that none of the countries in the East African region have well-designed and developed adaptation policies to help them adequately respond to the impacts of climate change. The East African countries basically need two types of climate adaptation measures: those aimed at increasing the agricultural resilience to climate variability and drought, and those aimed at enhancing access to and viability of drought-coping strategies:" The East African countries also need to develop the capacity to make local level links to national level policies and action plans to adequately respond to the impacts of climate change. Focusing on the linkages between local-level action and national-level policies and action plans would ensure resource efficiency in preparing required national level action plans and policies and implementing them. As noted by the African Ministerial Conference on the Environment, the creation of synergies in national implementation will help minimise conflict in goals, programmes and activities, avoid duplication of efforts and economise on scarce resources in the fight against climate change." The need for climate policy and adaptation measures cannot be emphasised enough and it is going to be incumbent upon all countries in the region to address these two important policy challenges in order to effectively respond to the impacts of climate change in the region. NOTES I Speech of the United Nations Secretary-General Ban Ki-moon at the opening of the GS meeting in Heiligendamm. Germany. 6 June 2007, htip://www.un.orgfPubstchronick/2007/ issue2/0207p04.htm (accessed 10 March 2008). MONOGRAPH 167 15 EFTA01090116 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 2 Ibid. 3 Quoted from Sir Emry Jones Parry, Permanent representative of the United Kingdom to the United Nations, httpd/www.un.org/Pubsichronicle/2007/issue2/0207p20.htm (accessed 10 March 2008). 4 See http://www.un.orgfPubsichronide/2007 5 Congolese representative at the UN Security Council, April 2007. 6 Sir Emry Jones Parry, Permanent representative of the United Kingdom to the United Nations, http://www.un.orgfPubs/chronicle/2007/issue2/0207p20.htm (accessed 10 March 2008). 7 See Bali Action Plan: Advanced unedited version. 8 See http:/www.unep.chiregionalseastmainkaffeafenv.html (accessed 13 February 2008). 9 Society for International Development, Trends. tensions and contradictions: the leadership challenge, in The State of East Africa Report 2006. Rome: 2006.17. 10 Ibid. 18 11 Ibid. 19. 12 Ibid. 13 Ibid, 25. 14 WWF, Climate change impacts on East Africa: a review of the scientific literature, November 2006. 15 Ibid. 29. 16 IPCC, Climate change 2007.• synthesis report, contribution of Working Groups I, II and III to the Fourth Assessment Report of the Intergovernmental Panel on Climate Change, Core writing team: R K Pachauri and A Reisinger (eds), Geneva: IPCC, 2007, I. 17 Ibid. 18 Ibid. 19 Ibid. 20 Ibid. 21 See Causes of climate change, http://en.wikipedia.org/wikiklimate_change 22 Ibid. 23 Ibid. 24 See generally W F Ruddiman, Plows, plagues and petroleum: how humans took control of climate, New Jersey: Princeton University Press. 2005. 25 Food security in this paper is considered less in terms of sufficient global and national agricul- tural food production and more in terms of livelihoods that are sufficient to provide enough 16 INSTITUTE FOR SECURITY STUDIES EFTA01090117 ROSE MWEBAZA AND LOUIS J KOTZE food (or individuals and households. Accordingly, for the purposes of this paper, food secu- rity is considered within the three principle components identified by Swaminathan (2000) and Hugon and Nanterre (2003). These are: the availability of food through the market and through own production. the adequate purchasingand or relational power to acquire or access food and the acquisition of sufficient nutrients from the available food. which is influenced by the ability to digest and absorb nutrients necessary for human health, access to safe drinking water, environmental hygiene and the nutritional content of the food itself. See IPCC, Climate change 2007.154. 26 WWF, Climate change impacts on East Africa, 1. 27 Adaptive capacity is a key component of studying the impact of climate change on food security. In this regard. a number of studies have been undertaken to probe the enormous challenges of developing adaptive capacity at multiple scales. From these studies. a complex array of factors have been identified, including behavioral economics, national aspirations. sociopolitical goals. governance, civil and political rights, literacy. economic wellbeing and stability, demographic structure, global interconnectivity. institutional stability and natural resource dependence. All these are emerging as powerful determinants of vulnerability and the capacity to adapt to climate change. Such determinants permeate through food systems to impact food security at household and community levels. Attainment of the Millennium Development Goals, particularly the first goal of eradicating extreme poverty and hunger in the face of climate change. will therefore require interventions that specifically consider food security as an integral element of human vulnerability within the context of complex social. economic, political and biosophical systems, that is, are able to offer usable findings to deci- sion makers at all levels. See IPCC, Climate change 2007, 456. 28 See IPCC, Climate change 2007, 414. It notes, however. that even without climate change. present population trends and patterns of water use indicate that more African countries will exceed the limits of their economically usable land-based water resources before 2025. In some assessments, the population at risk of increased water stress in Africa is projected at 75-250 million and 350-600 million people by the 2020s and 2050s respectively. Also. while the number of people experiencing water stress is likely to increase by 2055 in northern and southern Africa, in contrast. more people in eastern and western Africa will be likely to expe- rience a reduction rather than an increase in water resources. 29 IPCC, Climate change 2007.141. 30 Ibid. 31 One of the possible impacts of climate change in the region is the rise in sea level, which is projected to affect agricultural production on the East African coast. Kenya alone predicts that a metre rise in the coastal sea level as a result of climate change will lead to a loss of over 500 million dollars in terms of revenue loss from mangoes. cashew nuts and coconuts alone. Damage to the coastal zone of East Africa will not only affect cash crop production but will also grossly affect tourism in the region. While there is a dearth of specific information of the exact impact, the World Tourism Organisation predicts that changes in coastal zones resulting MONOGRAPH 167 17 EFTA01090118 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA from climate change could place tourism at risk. This is a wry serious potential impact since Africa accounts for three per cent of global tourism trade. 32 See Victor Orindi and Laurel A Murray, Adapting to climate change in east Africa: a strategic approach. Gatekeeper series. London: TIED, 2005,117. 33 WWF, Climate change impacts on East Africa, 4-6. 34 Ibid. 35 See Orindi and Murray, Adapting to climate change in east Africa, 117. 36 WWF, Climate change impacts on East Africa. 6. 37 See D Conway, from headwater tributaries to international river: observing and adapting to climate variability and change in the Nile Basin, in Global Environmental Change, Amsterdam: Elsevier. 2005,15,99-114. He observes that there is need for more detailed research on water hydrology. drainage and climate change. 38 See G Zhou. A Minakawa, K Githeko and Y Yan. Association between climate variability and malaria epidemics in the East African highlands, Proceedings of the National Academy of Sciences of the United States of America. 2004,2375-2380. 39 See J D Patz, D Campbell-Lendrum, T Halloway and J A Foley. Impact of regional climate change on human health, Nature 438 (2005). 310-317. 40 See J C Lovett, G F hludgely, P B Banard, Climate change and ecology in Africa, African Journal of Ecology 43 (2005), 279-281. 41 See V Vanacker et al, Impact of short-term rainfall fluctuation on inter-annual land cover change in sub-Saharan Africa, Science 298 (2005), 589-593. 42 See I J White. et al, Blue Wildebeest population trends in Kruger National Park and the effect of fencing, South African Journal of Wildlife Research 18 (1988), 78-87. 43 See J H Poole, Announcing intent: the aggressive state of musth in African elephants. Animal Behavior, 37 (1989), 140-152. 44 IPCC (2001). Op.cit. 45 There is a growing body of knowledge documenting adaption to climate change in Africa. This includes diversification of livelihoods, institutional architecture including rules and norms of governance, adjustment in farming operations. income-generation projects and the sale of labour. and the mow to oil- or nonfarm livelihoods. See IPCC. Climate change 2007. 452. 46 Nairobi Chronicles, 16 January 2009, www.breakingnewskenya.com(accessed 24 August 2009). 47 Ibid. 48 Sin Erikson. Policy linkages between climate change and adaptation, www.arizona.edu.oals (accessed 24 August 2009). 49 Ibid. 18 INSTITUTE FOR SECURITY STUDIES EFTA01090119 ROSE MWEBAZA AND LOUIS J Kant BIBLIOGRAPHY Conway, D. From head water to international river: observing and adapting to climate variability and change in the Nile basin. In Global Environmental Change. Amsterdam: Elsevier. 2005. Erikson, Sin. Policy linkages between climate change and adaptation. Available at www.ag.arizona. edu.oals (accessed 24 August 2008). Intergovernmental Panel on Climate Change. Climate change 2007: synthesis report. contribution of Working Groups I, II and Ill to the Fourth Assessment Report of the Intergovernmental Panel on Climate Change. Core writing team: R K Pachauri and A Reisinger (eds). Geneva: IPCC, 2007, Lovett, J C, Mudgely, G F, Banard. P B. Climate change and ecology in east Africa. African Journal of Ecology 43 (2005), 279-281. Orindi, Victor and Murray, Laurel A. Adapting to climate change in East Africa: a strategic ap- proach. Gatekeeper series. London: TIED. 2005. Patz, J D, Campbell-Lendrum, D, Halloway, T and Foley. I. Impact of regional climate change on human health. Nature 438 (2005). Poole, J H. Announcing intent: the aggressive state of musth in African elephants animal behavior. Animal Behavior. 37 (1989),140-152. Society for International Development. Trends, tensions and contradictions: the leadership chal- lenge. In The State of East Africa Report 2006. Rome: 2006. Vanacker, Vet al..Impact of short-term rainfall fluctuation on inter- annual land cover change in sub-Saharan Africa. Science 298 (2005), 589-593. White, J, et Al. Blue Wildebeest population trends in the Kruger National Park and the effect of fencing. South African Journal of Wildlife Research 18 (1988).78-87. WWF. Climate change impacts on east Africa: a review of the scientific literature. London: WWF, 2006. Zhou, G, Minakawa. A, Githeko. K and Yan, Y. Association between climate variability and malaria epidemics in the East African highlands. Proceedings of the National Academy of Sciences of the United States of America. NASIUSA. 2004.2375-2380. MONOGRAM 167 19 EFTA01090120 EFTA01090121 Gender roles, land degradation and climate change A Ugandan case study GODARD BUSINGYE ABSTRACT This chapter discusses the relationship between gender roles, land degradation and climate change in the context of Ugandan society. This relationship is one of cause•effect nature. An understanding of this relationship would enable the creation of mechanisms to address challenges posed by climate change. The chapter provides a conceptual framework upon which such mechanisms could be established. An analysis of this relational model shows that gender roles, which are a function of social•cultural, economic and political under- pinnings of society, are at the confluence between two other concepts, i.e. land degradation and climate change. The chapter discusses in detail how the social•cultural issue of gender roles influences land degradation, which is considered a precursor to climate change. Land degradation is escalated by unsustainable human activities including over-cultivation, overgrazing and failure to agree on which activity is suitable for which environment by the two genders in a household, namely women and men. Women in particular are disempowered by society's social•cultural constructs and as such cannot meaningfully contribute to decisions relating to the utilisation of family land. NIONOGRAP11 167 21 EFTA01090122 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Once climate change occurs, it is difficult to reverse and it impacts negatively on society. For example, in cases of floods, people are displaced from their homes and cannot continue with their day-to-day activities, and in cases of drought, human activity is also reduced to a bare minimum. In all these and similar instances, adaptation measures are required to enable communities to cope with the effects of climate change. When the nexus between gender roles, land degradation and climate change is complete, the element of gender roles still remains obscure or is never made prominent. Moreover, a proper understanding of the linkage between gender roles, land degradation and climate change is useful in addressing social-cultural factors related to the foregoing since these are all factors which may influence the challenges posed by climate change in Uganda. INTRODUCTION Gender roles, land degradation and climate change stand in a cause-effect re- lationship with one other. The objective of this chapter is to draw the linkage between gender roles, land degradation and climate change. The central ques- tion this chapter accordingly seeks to answer is: how can an understanding of the linkage between gender roles, land degradation and climate change be useful in addressing the social-cultural causes and their impact on climate change in Uganda? In order to clearly illustrate this relationship, this chapter has been divided into five main sections which deal with: conceptual and contextual back- ground information; land degradation in Uganda; linking climate change and land degradation; and gender roles, land degradation and climate change. The cause-effect relationship between these variables is discussed mainly from a sociocultural perspective. The chapter concludes with brief recommendations in this respect. CONCEPTUAL FRAMEWORK The following sections briefly investigate some of the principal theoretical concepts lying at the core of this chapter. They also briefly refer to general geo- graphical, socioeconomic and cultural aspects of Uganda. 22 INSTITUTE FOR SECURITY STUDIES EFTA01090123 ROSE MW BAZA AND LOUIS J KOTZE Climate change Conceptually, and for the purpose of this chapter, climate change refers to climatic modification which is attributed directly or indirectly to human activ- ity. Climate change affects the composition of global atmosphere in addition to natural climate variability observed over comparable time periods' Climate change causes alteration changes in the timing, regional patterns and intensity of precipitation events, in particular, in the number of days when heavy precipi- tation occurs.' When discussing the variability of climate change, it is impor- tant, in the context of this chapter, to consider the social-cultural dimension of society in Uganda that informs and conditions the decision-making capacity of individuals (based on one's gender and gender roles in society) to avert activi- ties likely to bring about land degradation. Land degradation Land degradation refers to the reduction or loss, in arid, semi-arid, and dry sub-humid areas, of the biological or economic productivity and complexity of rained cropland, or irrigated cropland? It might be a direct consequence of human activities and habitation patterns, such as soil erosion caused by wind and/or water; deterioration of the physical, chemical and biological or economic properties of soil, and the long-term loss of natural vegetation' It is possible that there are a number of social forces, such as gender relations and roles, at play in the entire process of land degradation that, even though their impact may not be evident from the outset, may still influence climate change to a great extent. At the confluence of land degradation and climate change lie 'invisible' gender roles that contribute to the escalation of land degradation and climate change, or in other words, gender roles may influence activities that contribute to land degradation which, in turn, may result in unfavourable effects which culminate in climate change. Gender Gender is a matter of culture;' an activity of managing situated conduct in light of normative conceptions of attitudes and activities appropriate for one's sexual category.' Simply put, it is the social classification into masculine and feminine.' MONOGRAPH 167 23 EFTA01090124 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA There seems to be a misconception between gender as a social-cultural or even economic and political concept and sex, a biologically or genetically deter- mined aspect of the human being. This misconception surrounding the concept of gender does not arise in respect to sex. Sex is determined by making ref. erence to the visible difference in genetalia between women and men and the related difference in procreative function' Under this `sexualised' determina- tion of gender, women are human beings of the female sex, that is, the sex that gives birth? It is probable that the least understood and unique behaviours attached to particular sexes could be a basis for determining roles for different genders in society," though this issue is not specifically investigated in this chapter. Gender roles, which are informed by sociocultural, economic and political undertones, fit squarely within the patriarchal ideology that is essentially the rule of the fathers, where patriarchy is a social system in which the father is the head of the family and men have authority over women and children." These roles may vary from place to place and from country to country. In the case of Uganda, the colonial legacy superimposed western patriarchal ideology over the indigenous one. The indigenous African patriarchy accom- modated some level of gender balance, but was later modified by the western form of patriarchy which was a combination of capitalism and western culture at the time of colonisation. Unlike the traditional African patriarchy which ac- commodated the different views of all genders, the current patriarchy model in Uganda is less accommodative in this respect. At the advent of colonialism, women were relegated to a redefined, subordinated domesticity. The status of men, in contrast, was elevated and reified!' This situation, however, is not unique to Uganda. In respect to land inheritance, for instance, patriarchal re- lations in KwaZulu-Natal, South Africa, resulted in restrictions bearing more harshly on women, thereby allowing only men to inherit." In respect to gender relations, therefore, the gender power is weighted against women, and women bear the brunt of men's negative response to change." Geographical information about Uganda Most parts of Uganda enjoy a moderately hot and wet climate. The annual rainfall ranges from approximately 500 mm in the drier parts of the country to well over 2 000 mm in the wetter areas of the country. Annual temperatures 24 INSTITUTE FOR SECURITY STUDIES EFTA01090125 ROSE MWERAZA AND LOUIS J KOTZP range from 16 degrees Celsius to around 27 degrees Celsius. In drier months of the year, however, temperatures can reach 36 degrees Celsius. The country is endowed with many fresh water bodies covering an area of about 39 460 km' of the country's total area of 235 800 km2. Natural vegetation cover constitutes ap- proximately 20,3 per cent of the country's total land area.1B Currently, however, the country is experiencing serious effects of land degradation." In some cases, these have resulted into unprecedented heavy rains that cause floods in most pans of the country, while severe droughts have been experienced in other areas. Climate change effects in Uganda Even though the deleterious effects of climate change are many, this chapter con- centrates on floods and droughts since the latter can be directly related to land degradation. Floods are caused mainly by sudden increases in precipitation or soil saturation following precipitation of several hours-duration. In 2007, much of the eastern region in Uganda, induding the districts of Amuria, Bukedea, Kaberamaido, Katakwi, Kumi and Soroti in the Teso sub-region; Amuru, Gulu, Kitgum and Pader in the Acholi sub-region; Amolatar, Apac, Dokolo, Lira and Oyam in the Lango sub-region; Abim, Kaabong, Kotido, Moroto and Nakapiripirit in the Karamoja region; Bududa, Bukwo, Kapchorwa, Mbale, Manafwa and Sironko in the Bugisu (Elgon) sub-region; and Adjumani, Arua, Moyo, Nebbi and Yumbe in the West Nile sub-region; as well as Kiboga and Kamuli districts in central Ugand, were affected by flooding, water-logging and mudslides." The oc- currence of floods in these areas affected the ability of traditional communities to cope with the ever-changing climatic patterns. Also, day-to-day human activities could not be carried out without a great degree of inconvenience. In response to these disasters, Yoweri Museveni, the President of the Republic of Uganda, declared the country's first-ever state of emergency in flood-affected areas of eastern Uganda on 19 September 2007. The state of emergency was endorsed by parliament on 25 September 2007." The consequences of climate change in this case were diverse, ranging from closure of roads, displacement of people from their homes, closure of educational institutions, an increase in the rate of contracting HIV/AIDS, increase in waterborne diseases incidences, and a general food shortage in the region because of the general disruption of human activity. Interestingly, there has also been an escalation in the number of cases MONOGRAPH 167 25 EFTA01090126 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA of domestic violence including gender based violence mainly perpetrated by men against women, defilement, incest and rape of women in the region during the same period." The occurrence of the floods made women in the flood-affected areas gen- erally insecure and vulnerable. Sadly, incidences of such insecurity-related cases were not routinely reported or documented; therefore, one had to rely on stories told by either the victims or their political representatives.30 The situation in the flood-affected region in Uganda was exacerbated by the mas- culinisation of the concept of the head of the household, under the premise that all families contained an adult male who was economically responsible for maintaining the women and children. This was the case especially during the 2007 floods, where people were in dire need of assistance from govern- ment and aid agencies." Sadly, where households were headed by only females, these households did not obtain relief donations because there were no men to represent their households. Drought is another consequence of climate change; it affects human activ- ity in general. It is characterised by scarcity of water for both domestic and agricultural purposes, and pastures for animals. It is increasing in frequency and severity, particularly in the semi-arid areas in Uganda where nomadism is practised. The cattle-corridor in Uganda stretches from the northeast of the country, across to the southwest and includes most areas of Karamoja, Teso, Nakasongola, Mubende, Rakai and the Ankole region." Cattle-keeping tribes, most of whom practise pastoralism or nomadism (a practice that accelerates land degradation), mostly occupy these rangelands. These areas occasionally experience severe drought conditions. These conditions are largely attributable to human activity in these areas, although blame is normally attached to the natural conditions. In some extreme cases, such as in the Karamoja region in the northeast of the country, land degradation has culminated in desert-like conditions." The frequent droughts in the region have lowered the water table, decreased rainfall, and increased temperatures." Access, control and ownership of land in the context of gender inequality One of the bare minimum aspects of God-given and constitutionally ordained human rights belonging to everyone is the right to enjoy a clean and healthy 26 INSTITUTE FOR SECURITY STUDIES EFTA01090127 ROSE MWERAZA AND LOUIS J KOTZE environment.' Enjoyment of this right, however, is affected by some of the human activities, which though initially intended to improve human wellbe- ing result in environmental degradation. Some human activities modify the environment, but it is important to note that some ecosystems may, more than others, be prone to degradation. For instance, coral bleaching can occur in a single exceptionally warm season, while long•living organisms such as trees may be able to persist for decades under a changed climate, but may be unable to regenerate." Gender roles and the household division of labour," even when known as being indirect contributors to climate change, are not given the prominence and attention they deserve by the community. These factors are given a low level of attention yet their impact on land and its subsequent degra- dation and eventually the effects on climate change may be enormous. This is so even if they directly and indirectly contribute to issues of access to land, land use and land•use patterns and ultimately land degradation which is a precursor to climatic change. Access to, control and ownership of land; determine land•use patterns and specific activities performed on it. Some of the activities such as overgrazing and over•cultivation contribute to the escalation of soil erosion, which is an initial stage in serious land degradation. Degraded lands are devoid of vegeta- tion cover, which should act as a buffer zone for climatic modification proc- esses. Gender roles, which attach to one's right of access to land, determine what activity a woman or man will do in respect to the land she or he harnesses. All these variables eventually contribute to land degradation, each in its unique manner. It is also important to note in this context that land degradation pre. cedes climate change. Climate change may degenerate into arid or desert•like conditions, or precipitation for a long time, which may result in rivers or lakes flooding their banks. Arid or desert•like conditions affect human activity much as floods do, and as a consequence, the rate at which human activity occurs drastically changes. Ultimately, when considering the foregoing, adaptation to climatic change calls for the inclusion of more equitable gender relations in land•related policies and legislation, although the ultimate process of effecting the changes may be gradual and slow." Ownership and the general process of access to land define social status and gender power relations in the household, village, and other social structures outside the household and local communities. Effective control of one's rights with regard to land, which society firmly grants to men and denies women, MONOGRAPH 167 27 EFTA01090128 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA therefore determines one's ability to control the activities carried out in respect to the land resource. This, in turn, determines whether or not a particular parcel of land will be utilised in a sustainable manner or not. For most women in Uganda, effective rights in land remain elusive, even as their marital and kin support erodes and female•headed households multiply. In the case of Ibanda Town Council, for instance, women have struggled for and won fairly extensive rights of access to and control of land." They can apply to register land in their sole capacities or jointly with their spouses or any other persons in accordance with the country's land laws. Their full enjoyment of these rights is, however, watered down by custom which demands that some male person should support a woman in very serious development ventures such as those concerning land." Preliminary findings of field research conducted in Ibanda Town Council suggest that women who register land in their sole names still co-opt their male relatives or friends to assist them in land development endeavours." In some of the cases identified during the Ibanda Town Council study, a few women who had begotten children before marriage had purchased land and registered it in their sole names with a view of later transferring it to those earlier begot- ten children. Traditionally children begotten by women before getting married could not be given land by the families where their mothers were subsequently married:12 The same study identified that on the other hand, men who had pro- duced children out of marriage either before or after their subsisting marriages were in position to give them part of the family land and, in most cases without seeking consent from their wives. A conclusion drawn from the findings of that study is that access to land and its ownership among the people of Ibanda Town Council has gender connotations that favour the male gender. In respect to gender roles and land degradation, Mwalimu Julius Nyerere, the late President of the United Republic of Tanzania, once stated that women in Africa toil all their lives on land, they do not own or control what they produce and at the end of a marriage, through divorce or death, they can be sent away empty-handed." Much as this trend may be gradually changing, largely because of globalisation," one may still find evidence to show that women are not firmly attached to their natal or spousal homes. Using as an example the Batagwenda, an ethnic community in the Ibanda District, once a marriage ceremony known as okuhingira (a ceremony akin to the giving- away ceremonies of other cultures) has been performed, a daughter ceases to belong to her natal home; she becomes inherently part of her spousal home. 28 INSTITUTE FOR SECURITY STUDIES EFTA01090129 ROSE MWEBAZA AND LOUIS J KOTZE The cultural songs that are sung during the performance of that ceremony indicate that she then belongs to her husband's home and would not be ex- pected at her natal home at any time, except as a visitor. Echoing Mwalimu Nyerere's statement, however, this person then never becomes an integral part of her husband's home. She may, for instance, be divorced or mistreated in a manner that points to the fact that she is a stranger in that home. Her return to the natal home is never anticipated at marriage this is hence not an acceptable notion to her relatives. Women, in this context, are not considered the equal of men; merely the 'subjects' of men." The whole process of gender inequity is rooted in the desire by patriarchal society to retain dominance over women. The implications of this relationship in respect to the land resource is that women in the described circumstances may not develop land in a sustainable manner; they may be motivated by their social location in society and work only to earn a simple livelihood or to satisfy household and societal demands as they arise. This attitude towards land may lead individuals to carry out activities that also, and importantly for the present discussion, lead to land degradation. Indeed, a United Nations (UN) report states that statistics worldwide attest to the fact that women form just over half of the world's population, perform two-thirds or 60 per cent of the world's working hours and contribute 50 per cent of the agricultural production." Women in Africa alone are responsible for 85 per cent of agricultural production and processing. They earn one•tenth of the world's income and own one•hundredth of the world's property." In the 21" century, a general realisation, that women and men ought to enjoy equal rights in land and also participate equally in decisions concerning its uti- lisation, has emerged. This realisation, however, is not uniformly appreciated. Men and elderly women consider this to be a young women's 'liberation' move- ment to overturn the social power relations that have sustained the former in power for quite a long time. They especially appear scared of the move to share rights in land equally with young and emancipated women. Some members of society have ignored this movement, contending that it will disappear over time." Some of them feel that it is a dangerous distraction from the central issues of class politics. Some of them may simply be excited by it but, as it turns out, women and men, in one way or another, are threatened and confused by it. As soon as it is touched, the everyday reality of our relationships is also touched." One gender scholar, Agarwal, recalls some of her experiences with MONOGRAM 167 29 EFTA01090130 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA the Indian Minister of Agriculture at an Indian Planning Commission Seminar on Land Reform. After her talk, the minister retorted thus: '[A]re you suggest- ing that women be given rights in land?' She deduced from the Minister's reac- tion certain prevailing assumptions about the family (in India, and certainly elsewhere in the world) which implies that: Mlle stability of the family as an institution is linked to the maintenance of unequal resource positions between women and men; and economic self-interest plays a significant role in intra- family gender relations that would be revealed with particular starkness in gender conflict over a critical form of property such as land.NO Agarwal proceeds to underscore the role of intra-family bargaining power in a bid to reconcile gender differences in a family. She points out that there are a number of factors which determine bargaining power at the family level, namely, individual economic assets and communal, as well as social and legal, recognition of the legitimacy of the claim!' She observes that the complexity of bargaining would be considerably less if the social legitimacy of a person's claim to some share of the contested item is recognised and only the size of that share is in dispute, than if the legitimacy of claiming any share at all in the item is unaccepted. According to her, the intra-household gender division of subsist- ence resources and of ancestral land are at the centre of the bargain. The rights of the female family members to basic subsistence are usually not in dispute, although the proportionate shares for them in arable ancestral land might be disputed in many communities.•' LAND DEGRADATION General It would appear that society, which is predominantly patriarchal in nature, is not ready to accept modern views on gender, gender relations and roles which inspire them to assign to the various genders certain social-cultural obligations. Social-cultural obligations contribute to land degradation in a peculiar manner. It seems that land-use patterns such as crop farming, animal farming or agro- forestry, impact greatly on either land degradation or its conservation in the long run. For instance, agro-forestry, which in the case of Uganda is largely under the domain of men, enhances the country's capacity to act as a carbon sink and facilitates the maintenance of the water cycle (which also contributes 30 INSTITUTE FOR SECURITY STUDIES EFTA01090131 ROSE MW BAZA AND LOUIS J KOTZE to the aesthetic value of the environment). Whether the outcome of human ac- tivity is land degradation or conservation, the resultant effect shall be climate modification," either for the worse or for the better. Climate change, in turn, affects other environmental issues: it may lead to loss of biodiversity, desertification, stratospheric ozone depletion; "freshwater availability and air quality improvement or pollution, which ultimately affects human beings' enjoyment of the right to a clean and healthy environment. For example, it is now known that the relationship between changes in atmospheric ozone and their environmental effects includes the oxidising power of the lower atmosphere, the self cleansing power, which is a complex phenomenal relation- ship. This cleansing occurs most rapidly in the tropics and at mid-latitudes in summer." Biological resilience and technical adaptations may buffer some of the impacts of climatic change on land productivity in the short term. Sustained and increased climatic change, however, would eventually cause a decline in land productivity and hence, human activity. This is so because ecosystems entail complex, dynamic and interactive processes, and climate change could cause critical thresholds to be passed:" Causes of land degradation There are many causes of land degradation. The list includes both human and natural activity as a consequence of wear and tear. Some of these are know, together with their relationship with the frequency and magnitude of climatic fluctuations, including daily, seasonal, inter-annual and decadal variability such as El Nino and the sources of greenhouse gases." According to McMichael, the predicted impacts of climate change are particularly dependent upon estimates of changes in climate variability and occurrence of extreme weather, such as temperature and precipitation extremes, and severe tropical storms." However, these factors are not given the attention they deserve. Climate change is inevi- table, although in most cases it is not easy to observe and identify that it is oc- curring and progressively escalating with time. The possibilities for observing the symptoms leading to land degradation are obscured by the ever-increasing demand for natural resources in a bid to improve people's livelihood. At the same time, in the majority of cases, there are no specific or appropriate meas. ures in place to mitigate the impact of human activities on the land resource. It is also possible that those whose activities contribute to land degradation may MONOGRAPH 167 31 EFTA01090132 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA not even be aware that once land degradation reaches unmanageable levels; it is not so easy to reverse to near its original state. Aspects of land degradation may be localised to particular areas. The result- ant climatic changes, however, may be widely spread to cover vast areas on the globe. This aspect was explored by Agora" while discussing the 'chaos theory, which was championed by Edward Lorenz, a meteorologist at the Massachusetts Institute of Technology in the 1950s. According to Agora, Lorenz discovered that a very slight shift in the initial data about weather conditions fed into analysis models would result in drastic differences in simulated weather condi- tions after a number of iterations.SO Agora's demonstration could be viewed as a basis for a scientific explanation as to why desert•like conditions spread from the centre of deserts such as the Sahara desert in the north and the Kalahari in the south of the African continent. The impact of climatic change also falls disproportionately upon developing countries and poor, disenfranchised people within all countries; it also falls disproportionately upon women and men, depending on their locality and roles. This exacerbates inequities between developed and developing economies, and between genders in respect to health status, and access to adequate food, clean water and other resources?' Gender roles and land degradation Land degradation, which the present author considers a precursor to climate change, begins with low levels of natural resource exploitation at individual or household level, which, in turn, has a bearing on gender roles and division of labour. Assigned gender roles and household division of labour disempower women from actively contributing to decisions concerning the management of the land resource, yet they are richly endowed with traditional knowledge which, if relied on, could help check the effects of land degradation and climate change. Household decisions on land use set the pace at which a particular parcel of land will be utilised before it is left to regain its natural nutrients. The decisions made with regard to land use contribute to land degradation or its conservation because they determine whether the activity to be carried out will be deleterious to the land or not. The social constructs of gender roles and division of labour demand that women extract as much as possible from the land resource in a bid to satisfy the high food and other basic requirements of their households. The whole system of decision making, however, excludes 32 INSTITUTE FOR SECURITY STUDIES EFTA01090133 ROSE ?AWE BAZA AND LOUIS J KOTZE women from participating in these activities; they are largely incorporated at the implementation level, which renders the entire issue of decision making a hoax because even the implementation process is planned for at the initial stage when decisions are adopted." Society perceives men as decision•makers for their households, but as passive participants in the process of extracting natural resources." This view is illustrated by understanding the example of the social construct of the Karimojongs in the north eastern part of Uganda. Among the Karimojong community, women are never regarded as equal to men. This inequality begins at an early stage when the youth are initiated into adulthood." For example, the term asapan (a complex of rituals marking the initiation of young men into the authority cycle of the Karimojong tribe), is applicable only to males and not to females." Another aspect of female exclusion among the Karimojongs is that while men are initiated into adulthood by fellow men, female initiation ceremo- nies are never presided over by women; in the latter instance the ceremony is also presided over by elderly men. After the females have been initiated into adulthood, they are assigned the duty of bearing children which is articulated by the following saying: 'May you bear children! May you multiply and become old On the other hand, after the initiation ceremony, males are assigned the role of looking after cattle and defending their communities. In general, Karimojong women become responsible for bearing and raising children, gath- ering building materials from the natural environment, building and keeping homesteads neat, and cultivation. For their part, men engage in herding animals (largely cattle), which they move from place to place in search of pastures and water. They also guard their communities from external aggression? A simplified version of land degradation A simplified version of land degradation may only target aspects that relate to the extraction of natural resources, such as building material, or clearing land for cultivation, which, in the case of the Karimojongs, are basically roles performed by women. Men's roles among the Karimojongs and other nomadic communities in Uganda, such as looking after large herds of animals, may be more deleterious to the environment than clearing of vegetation. This is so because in the case of other activities, no one goes back to extract the resources, such as building materials, unless the vegetation has rejuvenated and grown, MONOGRAPH 167 33 EFTA01090134 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA while in the case of grazing animals, the activity is continuous and may degrade the land to unmanageable levels at a more sustained pace. In the latter case, pastures are never afforded sufficient time to rejuvenate to levels that can protect the top soil layer from erosion. Moreover, the constant trampling of the top soil layer by animals accelerates the disintegration of soil particles, which renders these particles loosely attached to each other and thus prone to erosion. An analysis of men's role in the whole process of land degra- dation reveals that it is twofold. First, they encourage or even compel women to degrade the land resource by virtue of the roles assigned to them at household levels, and second, men are active participants in the degradation process by virtue of their activities, including, for example, overgrazing. The over-sim- plification of the whole process of land degradation therefore, compounds the problem because it is never attended to in time and in an appropriate fashion. Gender roles, social patterns and land degradation Gender roles and the household division of labour in Uganda reflect a sys- tematic social pattern. Among the Batagwenda in the districts of Kamwenge and Ibanda in the south west of Uganda, women, for instance, carry out much of the cultivation tasks in preparation for seasonal and perennial crops. Men clear shrubs and fell trees to make it easier for women to carry out cultivation activities. Where there is no male in the home, however, women proceed and clear the vegetation without meeting any specific hardships. This example ex- plains why assignment of gender roles has no direct bearing on one's sex, and makes it clear that it is the social-cultural perception of what a particular sex should do as a matter of convenience. What is important in all these examples is that if the activities carried out by each gender are not sustainable, then the gender constructs and the assignment of roles to women or men is rendered meaningless. For example, in the case of cattle keepers, men keep large stocks of animals that exceed the capacity of the natural vegetation to feed them throughout the year. In the case of cultivators, the same parcels of land are cultivated season after season and year after year without giving them time to recover the lost vegetation cover and soil nutrients. In all these instances, it is immaterial whether the person carrying out the activity is a woman or man; the question to be asked is rather: what is the impact of such a person's activity on the land resource? 34 INSTITUTE FOR SECURITY STUDIES EFTA01090135 ROSE MWEBAZA AND LOUIS J KOTZt According to preliminary findings of research currently being conducted in Ibanda Town Council in Uganda, men are generally the driving force behind all aspects of land degradation in that locality; they demand much from the women in terms of household sustenance." Women, in turn, do all they can to extract as much as possible from the land resource. This situation is exacerbated by the fact that women in that locality are not afforded an opportunity to contribute to deci- sions concerning the land they harness. In the long run their activities, namely cultivation of land for agriculture, lead to land degradation, which, when sus- tained, depletes the natural vegetation cover. This, in turn affects the water cycle which interrupts the process of evapotransipiration. Consequently, there is likely to be a change in rain patterns which translates into climate change effects." In summary, the relationship between gender roles, land degradation and climate change can clearly be understood if one examines their sociocultural, economic and political foundations. It is also important to understand the conceptual underpinnings of these aspects. This understanding enables us to underscore the importance of gender roles in the whole process of land degra- dation and, consequently, climate change. As mentioned earlier, gender power is heavily weighted against women. Overall, the resultant human activity culmi- nates into either land conservation or its degradation. When the nexus between gender roles, land degradation and climate change is complete, the element of gender roles still remains either obscure or unimportant. LINKING CLIMATE CHANGE TO LAND DEGRADATION General The social intent to exclude women in the decision-making process regarding access, ownership and utilisation of land, manifests itself in the activities they conduct on land. Gender roles, coupled with low levels of formal education for women in a number of developing countries, take them closer to land-based activities without informing them of the repercussions of over-utilisation or extraction of the land resources. The consequence of this is that socially-deter- mined, gender-based land degradation occurs. Land degradation in this respect becomes a consequence of unsustain- able human activity in respect to the land resource as conditioned by gender- social-cultural values. The effect of sustained over-utilisation of land (soil and MONOGRAPH la 35 EFTA01090136 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA vegetation) is to modify climatic conditions in a more-or-less irreversible fashion or to a state that is too expensive to reverse. A complete relational model of gender roles, land degradation and climate change60 then becomes functionally an outcome of the socially and culturally constructed gender roles that ignore the ability of women to equitably contribute to the decision-making process at the household level and also as regards their inputs into land tenurial policies at the national level. Land degradation, which started as a simplified household aspect and was translated into a national issue, ends up as a regional and eventually a global phenomenon. This gender-based land degradation is difficult to reverse by policymakers at the national level because society is unable to unpack those poli- cies in order to understand the root mishaps that inform them, and the patriar- chal social values which would enable them to deal with these appropriately. Addressing climate change-related issues It is important to note that, traditionally, developing countries paid little at- tention to the problem of environmental degradation, contending that it was a characteristic of developed countries, which, due to high levels of industrialisa- tion, science and technology, had initiated problems of pollution and over ex- ploitation of the natural resources in general.61 Today, however, most countries, including those striving to overcome depressing economic situations, have realised that environmental problems honour no geographical boundaries and are actively taking steps to avert the problem of land degradation. Traditional communities, such as the pastoral Karimojongs who occupy the cattle corridor in northeastern Uganda, and who have been passive participants in controlling land degradation, have now been integrated into the overall government devel- opment process to avert the problem of land degradation.' There has also emerged a global paradigm shift in the whole process of managing the land resource. This shift has compelled governments in many countries to change their traditional policy initiatives and tenurial systems and instead implement measures that promote the role of traditional communities and women, in particular with regards to the management of the land resource. Under the new paradigm, bottom-up approaches to policy matters are gradu- ally replacing the top-down approaches that previously formed the basis of most governments' development programmes." In the case of Uganda, for in- stance, land management issues are now well articulated in the decentralisation 36 INSTITUTE FOR SECURITY STUDIES EFTA01090137 ROSE ?AWE BAZA AND LOUIS J KOTZE programme that begins with the grassroots communities and moves to the centre to merge with the central government structures." The Local Governments Act, Cap. 243, for example, decentralises and de- volves functions, powers and services to local governments. It requires local governments to ensure good governance and democratic participation in the control of decision making of the people." Management of land in Uganda is structured in accordance with the structures established under the Local Governments Act." Decentralisation of land management in Uganda brings on board a significant cross-section of the citizenry into the decision-making processes concerning land in their localities, since this is done up to the village council level °J Much as this may not be the sole mitigation measure to problems associated with land degradation in Uganda, the system instils within the local communities a sense of social or community accountability when their activi- ties come tangentially incompatible with those of the larger community. At the same time, government programmes are tailored towards catering for the whole country, because it is now realised that land degradation is not restricted to the small demarcated zones such as the cattle corridor, but also extends to several other parts of the country." GENDER ROLES, LAND DEGRADATION AND CLIMATE CHANGE During the 20th century, the land surface temperatures globally increased by about 0,6 degrees Celsius. Changes in climate are the result of internal vari- ability within climate systems and external factors, both natural and anthropo- genic. Emissions and the degradation of the land resource are now significantly modifying the concentrations of some gases in the atmosphere. The principal anthropogenic gas responsible for land degradation is carbon dioxide, the con- centration of which has increased by 31 per cent since 1750. This has been the highest recorded level for the last 20 million years." Other anthropogenic gases include methane, nitrous oxide and oxides of nitrogen.J° The burning of fossil fuels and land-use change, especially deforestation, predominately increase land degradation and climatic change patterns. Today, there is unprecedented conversion of the natural habitat to human uses." The rate of harvesting from the land resource is high; this is coupled with unsustainable human practices, including over-cultivation, overgrazing, MONOGRAPH 167 37 EFTA01090138 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA deforestation and poor irrigation practices. These exacerbate land degradation. Coupled with pollution of the air and water, these activities greatly reduce the robustness of systems to cope with variations induced by climatic change. The resilience of systems to recover from such degradation also decreases. These pressures are present in developed and developing countries, but the dilemma is felt particularly in developing countries. Over-exploitation of the land resource cannot be divorced from the social and economic issues including food security, migration, and political issues which are closely linked to land degradation." The world's climate system is an integral part of complex life-supporting processes, one of the many large natural systems that are now coming under pressure from the increasing weight of human numbers and increased econom- ic activities. Globally, climate change is characterised by major events, includ- ing drought, floods, heatwaves, avalanches and windstorms." The differential gender decision-making process in respect to issues of land resource manage- ment is essentially a sequential aspect characterised by general uncertainty. On the one hand, women are not sure of the next step men and society in general will take in respect to their status in the home. On the other hand, men in de- veloping countries feel insecure because they are gradually losing their social power to women because of global social influence. The social-gender dynamics at household and nationwide levels are struc- tured on patriarchal values translate into national policies that never provide adequate space for all the role players in day-to-day management of the land resource. The male-gendered society determines who makes a contribution in the decisions that will ultimately affect the whole society and also whose input shall be taken into account when taking decisions at the household level and making policies at the national level. Ultimately, policies made by governments in respect to land tenurial systems, access to land and use of land, fail to stop land degradation and consequently climatic change because they are never bal- anced mostly because they lack female input into decision-making. Whether one views women's access to land from a historical perspective or simply from present-day configurations, one point emerges most clearly, namely that, both in the past and at present, women have had limited access to land. Overall, men control decisions relating to land and also the processes by which women access land." Decision-making processes concerning land determine a number of aspects relating to land use and, ultimately, the level of degradation to which a particular parcel of land is subjected. 38 INSTITUTE FOR SECURITY STUDIES EFTA01090139 ROSE MWEBAZA AND LOUIS J KOTZE CONCLUSION While discussing the subject of gender roles, land degradation and climate change and the cause-effect relationship each has with the other variables, a number of issues were raised in this chapter. Among these is that of unbalanced gender power relations. Gender power relations inform society of which activity should be performed and by whom. This, as was highlighted above, is weighted against women because they bear the brunt of men's negative response to change. The im- balance is largely felt at the point of determination of gender roles, which impact on activities on land that later translate into climate change through the agency of land degradation. Therefore, the cause effect relationship between gender roles, land degradation and climate change is pre-empted by the social-cultural aspect at play at the time of assigning roles to society members. In order to better un- derstand this causal-effect relationship, one must first understand the conceptual underpinnings that inform these variables. In this respect, this research makes it clear that women have limited access to land and that, on the other hand, men control decisions relating to land and also to the processes by which women access land. Overall, the resultant human activity from the assignment of gender roles, therefore, culminates into either land conservation or its degradation, depending on the direction given or anticipated at the time of assigning those roles. In conclusion, it is important to note that, when the nexus between gender roles, land degradation and climate change is complete, the element of gender roles still remains either obscure or is never afforded appropriate prominence. This may be why it may not be easy to reverse climate change once it has oc- curred because no serious attention is paid to its main causative agent. An un- derstanding of the linkage between gender roles, land degradation and climate change is therefore useful in addressing the social-cultural causes and probably their impact on climate change in Uganda. NOTES United Nations Framework Convention on Climate Change. 1994. article I. 2 A I McMichael, A Haines, R Stool, a al (eds), Climate change and human health: an as- sessment, prepared by a task group on behalf of the World Health Organisation, the World Meteorological Organisation and the United Nations Environment Programme, Geneva: 19%, 129. MONOGRAPH 167 39 EFTA01090140 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 3 The United Nations Convention to Combat Desertification in those Countries Experiencing Drought and/or Desertification. Particularly Africa, adopted at the United Nations Conference on Desertification in 1997. 1 P Bigombe Logo and Elise-Henriette Bikie. Women and land in Cameroon: questioning women's land status and claims for change. in L Muthoni Wanyeki (ed). Women and land in Africa: culture, religion and realising women's rights, London: Zed Books, 2003, 31. 5 L Sarkar and B Sivaramaya, Women and law: contemporary problems, Indian Association for Women's Studies, New Delhi: Vikas Publishing House PVT Ltd, 1994. 29. 6 5 Tamale, When hens begin to crow: gender and parliamentary politics in Uganda. Kampala: Fountain Publishers, 1999.28. 7 Ibid. 8 Ibid. 9 Logo and Bikie. Women and land in Cameroon, 31. 10 Tamale, When hens begin to crow, 32. II hop://www.freedictionary.com/patriachy, (accessed 5 May 2009). 12 Sarkar and Sivaramaya, Women and law, 29. 13 5 Meer (ed), Women, land and authority: perspectives from South Africa, OXFAM (UK and Ireland). Cape Town: David Philip in association with National Land Committee. 1997.9. 14 Ibid. 15 The National Action Plan for Uganda (NEAP), 1995. 16 The Republic of Uganda: State of Environment Report, 2006/2007. 17 United Nations Office for Coordination of Humanitarian Affairs, Partnership for Humanity, Situation Report No. 7. 18 Ibid.. 19 Interview with Mary Amajo (former Woman Member of Parliament for Kaberamaido, one of the districts constituting the greater Soroti region in northeastern Uganda, and Chairperson for Uganda Women Parliamentarians in the Seventh Parliament of the Republic of Uganda, Office of the Chairperson for UWOPA, Parliamentary Building. Kampala. 2007. 20 Ibid. 21 Ibid. 22 G Busingye, A critical examination of the legal regime on control of desertification and man- agement of drought in Uganda. LL.M thesis, Makerere University. Kampala. 2000.4. 23 Meer, Women, land and authority. 9. 40 INSTITUTE FOR SECURITY STUDIES EFTA01090141 ROSE MWERAZA AND LOUIS J KOTZE 24 United Nations Office for Coordination of Humanitarian Affairs, Uganda: Water Scheme Proposed for Parched Karamoja. 25 The Constitution of the Republic of Uganda, 1995. Art. 39. 26 WMO and UNEP, Climate change 2001: synthesis report stand-alone edition, 17. 27 Within the African setting, most women are assigned household chores and other activities that keep them in or near the home. Men, on the other hand. areassigned tasks such as hunting and grazing of animals, all of which take them off the homestead for most of the time. 28 J Asiimwe and E Nyakoojo. Included yet excluded: a study of women's land rights in she dis- tricts of Pallisa and Kapchorwa. Kampala: Uganda Land Alliance and Action Aid. 2000. See also Uganda Land Alliance, The Kibaale land question. Uganda Land Alliance Research Series Na 1, 2003. 29 Interview with P Kirindi at Ibanda Town Council on 26 July 2008. 30 Interview with Dr Eric Gamurorwa Buhazi. the Chairperson of lbanda District Land Board on 18 July 2008 at the Ibanda District Headquarters. 31 Ibid. 32 Ibid. 33 Asiimwe and Nyalcoojo. Included yet excluded, a preface page, unnumbered. 34 According to S Tamale, in her book When hens begin to crow. 30, iglobalisation' is a strait- jacket of the universal and globalising economic order. I understand that the term is fluid and may not have a universal definition. However, for purposes of this paper. it is restricted to that universalised global economic order, the impact on gender roles, which may be a subject of further research. 35 Ibid. 36 Asiimwe and Nyalcoojo. Included yet excluded, I. 37 Ibid. 38 W Ncube et al. Paradigms of exclusion: women's access to resources in Zimbabwe, Harare: WLSA Research Project, 1997,64. 39 V I Seidler, Recreating sexual politics: men, feminism and politics, London and New York: Routledge. 1991; cited in Imelda Whelehan, Modern feminist thought: from the second Wave to post feminism; Edinburgh: Edinburgh University Press, 1999. 64. 40 B Agarwal, A field of one's own: gender and property in South Asia, Cambridge: Cambridge University Press. 1994.60. 41 Interview with Eriseeba Kyamulesire at Ibanda Town Council on 26 July 2008. 42 Ibid. MONOGRAPH 167 41 EFTA01090142 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 13 I consider that, when the land is modified by human activities. the resultant modifications contribute to climate change. 44 A J McMichael et al, Climate change and human health. II. 45 I E Galbally and C R Roy. In the tropical troposphere: a review in Mohammad Llyas (ed). Ozone depletion: implications for the tropics. University of Science Malaysia, Penang, Malaysia and United Nations Programme, Nairobi. 1991.139. 46 A J McMichael et al. Climate change and human health. an assessment. prepared by a task group on behalf of the World Health Organisation, the World Meteorological Organisation and the United Nations Environment Programme. Geneva: 1996.17-42. 47 S Hales et al in A J McMichael et al, Climate change and human health: risks and responses 79. 48 A J McMichael et al, Climate change and human health: an assessment. prepared by a task group on behalf of the World Health Organisation, the World Meteorological Organisation and the United Nations Environment Programme. Geneva: 1996.33. 49 G Busingye, A critical examination of the legal regime on control of desertification and man- agement of drought in Uganda, 7. 50 Agora. What obligation does our generation owe to the next? An approach to global environ- mental responsibility: do we owe a duty to future generations to preserve the global environ- ment? 192. 51 Ibid. 77 52 This position is strongly supported by women I interviewed in Ibanda Town Council during my field research for my doctoral degree studies. In one focus group discussion. women in- formed me that. in some cases, they may not even plant the type of crop they are expected to plant when the planting season begins because their husbands have to forecast which crop will be marketable at harvest; that is the crop that will be planted during that season. 53 Ibid. 54 According to the Karimojong culture, both girls and boys must go through an initiation cer- emony to be considered adult. 55 A Paz/agile. The Karimojong: some aspects, Bologna: Camboni Missionaries, 1982. 123. 56 Ibid. 126-127. 57 The Republic of Uganda, Karamoja Integrated Disarmament and Development Programme (KIDDP), Creating Conditions for Promoting Human security and Development in Karamoja 2007-10. 58 Interview with Michael Kibeirere at Ibanda Town Council during field research in July 2008. 59 I am currently undertaking research for my doctorate degree on law and Gender Relations in Land Decision-making Processes in Uganda using Ibanda Town Council as a case study. 42 INSTITUTE FOR SECURITY STUDIES EFTA01090143 ROSE MWEBAZA AND LOUIS J Kant 60 The gender-roles-land-degradation-climate-change relational model is one of cause and effect. It starts with social-cultural constructs of gender. assigning to different genders different roles and then each of those genders performing certain tasks in relation to land. Some of the tasks carried out are degrading in nature, they culminate in climate change. Climate change. in turn, influ- ences what activities are to be carried out by each gender. That completes the relational model. 61 Johnson (ed). The earth summit, International environmental law and policy series, 243-1. Note that even developed countries like the US and Portugal at first argued that desertification was a regional problem that did not require a global convention which would benefit those countries experiencing serious drought and desertification. A compromise was, however, later reached. and arrangements were made to convene for an International Convention in 1994. 62 TheRepublicofUgmda.KaramojaIntegratedDisarmamentandDevelopmmtProgramme(KIDDP), Creating Conditions for Promoting Human security and Development in Karamoja 2007-1i1 63 G Busingye, A critical examination of the legal regime on control of desertification and man- agement of drought in Uganda, 87. 64 Section 3 of the Local Governments Act, Cap. 213 provides for the district as the basic unit of administration under the decentralisation programme. Other units of the local government's administration are Local Council, V, or the District Council, IV, or the County Council, Ill, or the Sub County Council, II, or the Parish Council and I or the Village Council. Section 43 of the Land Act, Cap. 227 requires that utilisation of land in Uganda be done in accordance with other laws, the Local Governments Act is one of such laws. 65 J T Mugambwa, Principles of land law in Uganda, Kampala: Fountain Publishers, 2002.33. 66 Uganda Land Alliance, Reviewing the implementation of the Land Act: critical issues for the national land policy, 2007.3. 67 Section 3 of the Land Act, Cap. 227. for instance, gives powers to the parish committee to process certificates of customary ownership of land by people residing in the parish. 68 IC Musoke, Drought hits more districts. The New Vision Newspaper, 4 August 2000. 69 Sarkar and Sivaramaya. Women and law, 232. 70 Ibid. 235. 71 A M Akol. B Isabirye. M J N Okwakol, Composition of ground foraging ant assemblage in relation to land use change in Mabira forest. Uganda, available on the internet (accessed 7 May 2009). 72 Ramnayya, Kutty and Migongo-Bake (eds). Land tenure and environmental degradation in the drylands of Asia, case studies from India. Mongolia and Nepal, a UNEP-sponsored publi- cation, 1999, I. 73 WMO and UNEP. Climate change 2001.236. 74 W Ncube et al, Paradigms of exclusion, 64. MONOGRAPH 167 43 EFTA01090144 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA BIBLIOGRAPHY Table of statutes The Constitution of the Republic of Uganda. 1995. as at IS March 2006. The Local Governments Act. Cap. 243. Table of official government documents The National Environment Action Plan for Uganda (NEAP). NEAP Secretariat. Ministry of Natural Resources, Kampala, 1995. The Republic of Uganda: State of environment report, 20N/2007. The Government of the Republic of Uganda: Office of the Prime Minister. Karamoja integrated disarmament and development programme (KIDDP). creating conditions for promoting human security and development in Karamoja 2007-10. Kampala. Table of International Instruments The United Nations Convention to combat desertification in those countries experiencing drought and/or desertification. particularly Africa, 1997. The United Nations Framework Convention on Climate Change, 1994. International reports World Health Organisation/United Nations Environment Programme. Climate change 2001: synthesis report. United Nations office for Coordination of Humanitarian Affairs. Partnership for humanity. Situation report No.7. United Nations Office for Coordination of Humanitarian Affairs. Uganda: Water scheme proposed for parched Karamoja. Books Agarwal, B. A field of one's own: gender and property in South Asia. Cambridge: Cambridge University Press, 1994. Asiimwe. f and Nyakoojo, E. Included yet excluded: a study of women's land rights in the districts of Palisa and Kapchorwa. Kampala: The Uganda Land Alliance and Action Aid Kampala. 2000. Bigombe Logo, P and Bikie, Elise-Henriette. Women and land in Cameroon: questioning women's land status and claims for change. In L Muthoni Wanyeki (ed). Women and land in Africa: culture. religion and realising women's rights. London: Zed Books. 2003. 44 INSTITUTE MR SECURITY STUDIES EFTA01090145 ROSE MWEBAZA AND LOUIS J KOTZE Galbally, I E. and Roy,C R. In the tropical troposphere: a review. In Mohammad Llyas (ed). Ozone depletion: implications for the tropics. Penang and Nairobi: University of Science Malaysia and United Nations Programme, Nairobi, 1991. Johnson, S P (ed). The earth summit, international environmental law and policy series, the United Nations Conference on Environment and Development (UNCED). London and Boston: Graham & Trotman/Martinus Nijhoff, 1993. McMichael, A J, Haines, A and Sloof R et al (eds). Climate change and human health: an assessment prepared by a task group on behalf of the World Health Organisation, the World Meteorological Organisation and the United Nations Environment Programme. Geneva: 1996. McMichael, A J. Global climate change and health: an old story writ large. In McMichael, AJ et al (eds), Climate change and human health: risks and responses. Geneva: WHO, WhIO & UNEP. 2003. Meer, S (ed). Women, land and authority: perspectives from South Africa, UK, Ireland and Cape Town: Oxfam (UK and Ireland) and David Philip Cape Town in association with National Land Committee, South Africa, 1997. Ncube, Wet al. Paradigms of exclusion: women's access to resources in Zimbabwe. Harare: Women and Law in Southern Africa Research Project. 1997. Ramnayya. E V, Kutty S R and Migongo-Bake, E (eds). Land tenure and environmental degradation in the drylands of Asia (Case studies of India, Mongolia and Nepal). Nairobi: UNEP. 1998. Sarkar. L and Sivaramaya, B. Women and law: contemporary problems. Indian Association for Women's Studies. New Delhi: Vikas Publishing House PVT Ltd, 1994. Seidler V J. Recreating sexual politics: men, feminism and politics. In Imelda Whelehan (ed). Modern feminist thought: front the second wave to post feminism'. London: Edinburgh University Press, 1999. Tamale, S. When the hens begin to crow: gender and parliamentary politics in Uganda. Kampala: Fountain Publishers, 1999. International programmes United Nations Environment Programme (UNEP) and Youth for Action, Hyderabad, India (undated). Thesis Busingye. G. A critical examination of the legal regime on control of desertification and manage- ment of drought in Uganda. Unpublished LL.M thesis. Makerere University, Kampala. 2000. Newspaper reports Musoke, K. Drought hits more districts. The New Vision, 4 August 2000. MONOGRAPH 167 45 EFTA01090146 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Other official documents European Commission. Addressing desertification: a review of EC Policies, programmes, finan- cial instruments and projects, 1997. Summary of the Fifth Substantive Session of the Intergovernmental Negotiating Committee for the Elaboration of an International Convention to Combat Desertification. Paris, 6-17 June 1994. In UNEP desertification control bulletin; a bulletin of world events in the control of deser- tification, restoration of degraded lands and reforestation 25 (1994). United Nations Office for Coordination of Humanitarian Affairs. Partnership for Humanity: Situation Report No.7. Uganda Floods - Focus on Teso and Bugisu, 9 October 2007. World Commission on Environment and Development. Our common future. 1987. World Health Organisation (WHO)/United Nations Environment Programme (UNEP). Climate change 2001: synthesis report. Stand-alone edition. 46 INSTITUTE FOR SECURITY STUDIES EFTA01090147 Climate Change Mitigation EFTA01090148 EFTA01090149 L.. Climate change and informal institutions in the Lake Victoria Basin DONALD A MWITURUBANI ABSTRACT The Intergovernmental Panel on Climate Change (IPCC) analyses of impacts of climate change suggests that in sub-Saharan Africa, where the majority of the population depend on rain-fed agriculture, economic activities are likely to be more vulnerable to climate change. This is so because the coping mechanisms of the indigenous communities in the rural areas are limited due to lack of appropriate technology. A survey of households and in-depth interviews with key informants in the Lake Victoria Basin (LVB), however, illustrate that local people in the LVB, through their informal institutions, have been developing different strategies to deal with the impacts of climate change. These findings also suggest that the strategies developed are in most instances adaptive to the changing ecological conditions and are effective and useful in responding to natural resource constraints as caused by climate change. The strategies employed include: creating and implementing specific rules on access to and utilisation of some specific natural resources, such as those in the water catch- ment areas; creating and implementing rules on the type of crops to be grown (mainly cassava and sweet potatoes); creating and implementing restrictions MONOGRAPH 167 49 EFTA01090150 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA on the type of harvests to be sold; and disseminating knowledge of weather forecasts informed by indigenous•based tools and indicators to understand the onset and end of rainfall. These findings form the basis for concrete recommen- dations to the governments in the region to formulate policies and enact laws to support informal institutions and indigenous•based technologies for sustain- able development. INTRODUCTION Climate change is a global concern which typically threatens livelihoods and, more generally, the sustainability of the majority of any population' The impacts of climate change are felt at different levels: global, regional, national and local. This chapter examines practices at the local level developed, by local people, to minimise and cope with the impacts of climate change. The focus of the present enquiry is specifically on rules and mechanisms created and implemented by informal institutions in managing natural resources. It also analyses cultural and social practices related to production systems and food management. The study on which this chapter is based was conducted in the Lake Victoria Basin (LVB) with particular focus on the Mara River Sub•Basin (MRSB), Tanzania. For the purpose of natural resources management and control, Tanzania is divided into nine basins with sub•basins.' These are Pangani, with its major Pangani River; Wami/Ruvu, with their major Wami and Ruvu Rivers; Rufiji with its major Rufiji River; and Ruvuma, with its major Ruvuma River and the south- ern coast. All these drain into the Indian Ocean. Others are Lake Victoria, Lake Nyasa, Lake Tanganyika, Lake Rukwa, and the internal drainage basins of Lake Eyasi, Manyara and Bubu depression. The MRSB, with its major Mara River, is a sub•basin within the LVB basin. The MRSB and its major Mara River originate from southwest Kenya in the steep slopes of the Mau escarpments at an elevation of approximately 3 000 m above mean sea level.' The Mara River then flows to Lake Victoria, 1 100 m above mean sea level in Tanzania, for a distance of about 350 km' The entire basin covers an area of 13 750 km', of which 4 812,5 km' (35 per cent) lies in Tanzania, and the remaining 8 937,5 km2 (65 per cent), in Kenya. The MRSB is located in a semi-arid zone in the LVB. The rainfall is bimodal with brief periods of rain falling in November to January, and longer periods in March to May. The average annual rainfall in the MRSB ranges between 500 mm to 1 250 mm, with highlands receiving more rainfall than the lowlands' 50 INSTITUTE FOR SECURITY STUDIES EFTA01090151 ROSE MWERAZA AND LOUIS J KOTZE This chapter commences by contextualising certain socioeconomic condi- tions prevailing in Africa, with specific reference to the sub-Saharan region in the context of vulnerability and adaptation to the impacts of climate change. This is considered against the received, albeit flawed, wisdom that Africa is unable to manage its own natural resources' Section three describes both formal and informal institutions that govern natural resources, including access, use and control thereof, with specific reference to water resources. Section four discusses in detail the role of informal institutions, namely the associations of traditional leaders in natural resources management. The section further examines rules on access to and utilisation of natural resources; rules on agricultural practices, and their roles in averting climate change risks and impacts. Section five exam- ines the process of disseminating weather forecast information to local people, while section six explores the challenges facing informal institutions in setting rules to govern natural resource access and utilisation. The remainder of the chapter draws several conclusions and proposes some recommendations relat- ing to the foregoing analysis. AFRICA'S ECONOMIES AND THE IMPACT OF CLIMATE CHANGE The climate change discourse started to gain increasing national and interna- tional attention in the 1980s. As a result, several governments came together in 1988 and formed the Intergovernmental Panel on Climate Change (IPCC). This led to the United Nations Framework Convention on Climate Change (UNFCCC), which was tabled in 1992 at the United Nations Conference on Environment and Development (UNCED).' UNCED, popularly known as the Rio de Janeiro Conference, focused on, among other issues, policy issues related to climate change adaptability. Africa, and more particularly the sub-Saharan region, are among the most vulnerable regions and are particularly exposed to the impacts of climate variability and change.' Africa's vulnerability arises from a combination of many factors, including extreme poverty, frequent natural disasters such as droughts and floods, and developing economies that are primarily dependent on natural resources and are thus extremely vulner- able to weather fluctuations. Vulnerability is the function of exposure, sensitiv- ity and adaptive capacity of the people and their economic activities to climate change.' Therefore, the capacity to anticipate, cope with, resist and recover from MONOGRAPH 167 51 EFTA01090152 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA the impact of hydrological disasters, such as droughts, indicates the level of vulnerability.10 Africa's high vulnerability to the impacts of climate variability and change is also attributed to its low adaptive capacity." Despite low adaptive capacity, some communities have developed traditional adaptation strategies to cope with climate variability and extreme events. Examples include: creating informal institutions to regulate the use of natural resources; adjustments to planting dates to take advantage of early rainfall; planting drought resistant crops; and periodic long-distance movements by nomadic pastoralists to areas less affected by drought in response to changing climates. Agriculture is the most important economic activity in the LVB, supporting over 80 per cent of the population of about 30 million people, but 60 per cent of these depend on rain•based rural economies, generating in the range of 30-40 per cent of the countries' gross domestic product (GDP)." Rain•fed agriculture in the LVB constitutes more than 95 per cent of the agricultural land use and it has undergone enormous environmental changes within the last 40 years." Climate change and land degradation have been repeatedly recognised as being among the major contributors of rapidly evolving changes in the basin that seri- ously threaten its ecosystem functions, overall biodiversity and the livelihoods of it populations!' INSTITUTIONAL ARRANGEMENTS IN NATURAL RESOURCES MANAGEMENT Sustainable management of natural resources in river basins is an important but very complex issue. The conditions and requirements for its achievement could vary from place to place over time, since it depends on factors such as geographi- cal location, ecological conditions, socioeconomic issues, institutional arrange- ments, and cultural background. Both formal and informal institutions have been established in Tanzania to manage and allocate natural resources among and between different users. Institutions, be they formal or informal, could po- tentially provide incentives to groups and individuals, and also structure human action and interaction, especially in economic activities, in collective action and in sustainable natural resource allocation and use. Institutions have dual facili- ties to constrain and liberate different actions in society, that is, either prohibit people from doing something or prescribe conditions for when something is done with respect to socioeconomic and environmental activities." 52 INSTITUTE FOR SECURITY STUDIES EFTA01090153 ROSE MWEBAZA AND LOUIS J KOTZE Although different scholars' admit the difficulty, and acknowledge various contradictions, in defining the term 'institution, there is a common under- standing that an institution is best described as a set of rules governing human beings and their activities. This can be seen from the definitions of two reputa- ble scholars." North" defines institutions, as 'the rules that govern a society or, more formally, are the humanly devised constraints that structure and shape human actions and interactions between members of the society and with the surrounding environment'. Ostrom" defines institutions as 'the set of rules ac- tually used (the working rule or rule-in-use) by a set of individuals to organise repetitive activities that produced outcomes affecting those individuals and potentially affecting others'. North notes two forms of institutions, namely formal (constitutions, policies, laws and property rights) and informal (taboos, codes of conduct, norms and traditions). He further notes that institutions can be created, such as constitutions, or institutions can simply evolve over time, such as common law. Institutions, therefore, according to North, are creations of human beings and they hence evolve and are continuously altered by human beings.2° Moreover, the ways institutions evolve and develop have an influence on the natural resource management and socioeconomic development of a society over time and space. To manage natural resources in the specific basins, institutions, both formal and informal, (customary) are established to coordinate and set rules and regulations to govern the utilisation of the resources. In Tanzania, for example, most river basins have River Basin Water Boards (RBWB) and River Basin Water Offices (RBWO) established under the Water Utilization (Control and Regulation) Act.31 These institutions have a basin-wide responsibility for resource allocation, in this instance, water.' In the LVB, formal institutions include the Lake Victoria Basin Water Office (LVBWO), based in Mwanza. Although the LVBWO was established by Act No. 10 of 1981," which is the amendment act to the principal Water Utilization (Control and Regulation) Act No. 42 of 1974, which aims to control, regulate and allocate water resources for different uses in the LVB, there are limited water-use rights granted to users. The latter limits sustainable utilisation of water and other natural resources in the basin because users lack incentives to manage the resources. The only user rights have been granted to the Water User Associations (WUAs) for boreholes. Other formal institutions include the Lake Victoria Environmental Management Project (LVEMP) based in Mwanza, with subsidiary offices in MONOGRAPH 167 53 EFTA01090154 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Musoma and Bukoba mainly dealing with the development of Lake Victoria's water resources and controlling water hyacinth (Eichhornia crassipes); and Mara River Initiative Project (MRIP) based in Musoma, dealing with the management of natural resources in the Mara River Sub-basin. MRIP works in collaboration with local communities to establish and implement strategies and mechanisms to manage natural resources. The RBWO, however, places significant emphasis on water supply for domestic and industrial uses, with little or no emphasis on environmental conservation. Similarly, there are informal institutions that are established under customary rules to govern access, control, ownership and utilisation of natural resources?4 These institutions play important roles in preventing the degradation of natural resources and/or restoring already degraded resources in order to minimise the effects of some extreme climactic events, such as droughts and floods. Writing on the relationship between formal and informal institutions, Cousinst5 notes that formal institutions are rules enforced by the state, i.e. un- derscored by law, while informal institutions are rules enforced endogenously. Thus, as Boesen, Maganga and Odgaad" note, customs and codes of conduct developed under specific socioeconomic and cultural conditions are therefore meant to govern informal institutions and are dynamic. While institutions, such as the RBWO, that grant resource user rights have accordingly been developed by the state (formal institutions), informal institutions are based on custom- ary laws? Local communities have been developing informal institutions with rules, norms and regulations over time to govern access to natural resources and the use of natural resources in the specific sociocultural and ecological conditions. This is generally the case in most developing countries, where the majority of the population live in rural areas and depend on natural resources for their survival. In these conditions, access to, utilisation and control over natural resources seem to be governed by customary systems based on culture." Thus, while informal institutions are mainly based on sociocultural practices of the local people, formal institutions are governed by policies and legislation. POLICIES AND LEGISLATION IN NATURAL RESOURCES MANAGEMENT Appropriate policies and legislation create an enabling environment for sustain- able natural resource management and development. A policy is a government's 54 INSTITUTE FOR SECURITY STUDIES EFTA01090155 ROSE MWEBAZA AND LOUIS J KOTZE main governance mechanism to provide guidelines for implementing develop- ment plans and strategies. For natural resources, a policy sets broad criteria and procedures intended to provide guidance to planners and decision-makers and those charged with power to implement and execute natural resource-based development plans. To operate effectively and efficiently, laws are enacted to enforce the implementation of the policies. A law defines the legal entitlement to the specific natural resource and identifies the rights and obligations tied to its allocation and use and, consequently, provide the prescriptive parameters for the resource's development. Some of these laws facilitate natural resource management on a river basin basis. In Tanzania, for example, water resource development is governed by both lase and policy." According to the 2002 Water Policy, water-based institutions, both formal and informal, are expected to play a greater role in water resource exploration, assessment, allocation, pol- lution control, catchment management, and basin planning and development. The policy, however, seems to afford more attention to formal institutions while informal institutions of water resource management are not afforded the same. Other sector-specific policies in Tanzania include the Agricultural Policy," the National Land Policy" and the National Forestry Policy," which are all equally important in governing natural resource use and management. Since these policies are sector-specific they sometimes create conflicts in their im- plementation. The National Environmental Policy," for example, failed to har- monise sector-specific policies with a view to creating a common policy which cuts across different related sectors, such as forestry and water. The National Environmental Policy describes the role of sector-specific policies without nec- essarily indicating how different sector-specific policies merge. The conflicting natural resource policies could be one of the exacerbating factors that contrib- ute to natural resource degradation in the country and accordingly, does not contribute to establishing a sound formal policy and legislative base to address issues such as the impacts of climate change. Similarly, the uncoordinated informal and formal institutions have af- fected natural resource development, particularly as far as allocation, access and control are concerned. Chancellor, Hasnip and Oneill write: 'There is generally a gulf between institutions particularly the officials of government institutions and local people institutions resulting in poor communication and poor appreciation of others' needs and expectations.'" These existing weak institutional arrangements, particularly in the river basins, have in all MONOGRAPH 167 55 EFTA01090156 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA probability been exacerbating natural resource mismanagement in most river basins in Tanzania. The challenges associated with conflicting formal and informal systems of natural resource management are further exacerbated by the fact that local people have limited knowledge about the policies and leg- islation governing water resources. Successful and sustained natural resource management requires the commitment of relevant institutions, policies and legislation. Certain studies" indicate that over 80 per cent of local people have limited knowledge regarding natural resource-related policies and legislation. Government and other responsible institutions seem not to have plans to dis- seminate the guidelines and laws governing natural resources as stipulated in the relevant national policies and legislation. Moreover, in Tanzania, some policies and laws lack clear strategies and mechanisms to protect the environ- ment from degradation. For instance, water laws" seem to be inadequate to facilitate proper catchment management and to protect water sources from degradation. The primary objectives of the Water Utilization (control and regulation) Act No. 42 of 1974 and its subsequent amendments, No. 10 Of 1981 and No. 17 of 1989,98 seem to be focused on water allocation, that is, administrative issues of granting water rights, and water pollution control, including setting water quality standards and permissible effluents standards. Few provisions are put in place to minimise or combat the degradation of natural resources. Governments would therefore be well-advised to integrate formal and in- formal systems for sustainable natural resources management. Gillingham" notes that the existing environmental problems in river basins are accelerated by the tendencies of formal river basin-based institution officials to ignore the basic principles of customary systems of natural resources utilisation. To show the need to integrate customary and formal legal systems in natural resources management Gillingham writes: 1f water managers attempt to impose change on water users by altering statutory law, such initiatives can be rendered inef- fective if the water users do not integrate them into the customary rules which govern their daily water use". It is further important to note in this respect that formal and informal systems can contradict or complement one another in natural resources management. North" notes here that formal rules can compliment and increase the effectiveness of the informal constraints through lowering information, monitoring, and enforcement costs and hence rendering informal constraints possibly more efficient. 56 INSTITUTE FOR SECURITY STUDIES EFTA01090157 ROSE MWERAZA AND LOUIS J KOTZE THE ASSOCIATIONS OF TRADITIONAL LEADERS AND NATURAL RESOURCES MANAGEMENT Background Informal institutional arrangements play a significant role in natural resource management in the LVB and, particularly, the MRSB. The most common and effective informal institutions in governing access, use and control in the MRSB, are the associations of tribal traditional leaders, which are governed by taboos, codes of conduct, norms and traditions. These institutions are important in governing local people's involvement in different sociocultural, economic, political and environmental activities, including the utilisation of natural resources. Members of these informal institutions are mostly elder men who are elected based on particular social, political and cultural characteristics of the family, including extensive knowledge of the spatiotemporal changes of surrounding natural resources and local medicines. The number of members of the associations of tribal traditional leaders per village range between 15 and 20, usually consisting of a chairman, secretary and treasurer. These associations have powers, based on customary laws, to set rules and enforce these in their areas of jurisdictions. They therefore play an important role in settling cultural, social, economic and political matters and conflicts as reported to them and/or observed by one or more members of the association. In the LVB and specifically the MRSB, tribal traditional leaders are the local experts in several aspects, including, inter cilia, the society and surrounding environment, local medicines, knowledge of environmental changes in their area, and location of different resources. Traditional leaders are superior indi- viduals in society and are highly respected by members of their community. Tribal traditional leaders are only older men, mainly 60 and above years of age. This gender and age, specifically, seem to reflect gender division of labour in the community, both in the production system and knowledge about the sur- rounding environment. Through their role of taking livestock to pasture and water, men seem to gain extensive knowledge of the dynamic nature of the surrounding natural resources as compared to their women counterparts!' Although each village has the association of tribal traditional leaders, there are, however, information flows from one village to another, provided that the same ethnic group(s) inhabit the villages concerned. Tribal traditional leaders play MONOGRAPH 167 57 EFTA01090158 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA the key role in setting rules to govern and control all cultural practices, such as ritual activities, and utilisation of some specific resources, particularly forests and water resources. Spiritual leaders further design mechanisms to implement the rules they set, also with the view to ensuring that local people adhere to those rules and regulations. The main rules that relate to coping mechanisms as regards the impacts of climate change include rules on access to and utilisa- tion of some specific natural resources, rules on the type of crops to be grown, and restrictions on the type of harvests to be sold. Traditional leaders are also responsible for disseminating knowledge and information on weather forecasts, and are informed by indigenous tools and indicators to understand the onset and end of rainfall in this respect. Rules on access to and utilisation of natural resources Traditional leaders typically impose limits on access to those natural resources, which are believed to be important for the livelihoods of local people. The most important natural resources that would require some restrictions in this respect include water resources; natural forests believed to control rainfall; and certain trees, such as fig trees, which are believed to be a source of water. There are also restrictions and prohibitions on felling trees for making charcoal intended for commercial purposes. Furthermore, bushfires are prohibited and non- compliance is heavily punished. The main objective of limiting access to these resources, is conservation, with the view to reducing or curbing degradation. Forms of restrictions of access to and utilisation of specific natural resources include the uses for which the resources are intended; the time of a day to which one is allowed to access the resources; the ability of social groups to access the resources; and the quantity of the resources to be harvested or utilised. Traditional leaders use different strategies and mechanisms to enforce the rules they set on access to and utilisation of natural resources. These strategies and mechanisms include practising ritual activities within and around the natural resources, and setting penalties for violators of the rules. The penalties are socio•culturally constructed, including separating violators from participat- ing in and sharing sociocultural and economic activities with other members of the society. Others include paying fines of livestock, local brews and money. This would accordingly coerce each member of the community to adhere to the rules to avoid penalties. Ritual activities, on the other hand, place limitations 58 INSTITUTE FOR SECURITY STUDIES EFTA01090159 ROSE MWEBAZA AND LOUIS J KOTZE (by informal rules) on access to and utilisation of certain areas and resources by restricting the access of some social groups believed to degrade natural re- sources to areas where ritual activities are practised. Traditional leaders claim to have local medicines that, when applied to a specific area, harm any unauthor- ised person visiting the area. For example, one man is claimed to have injured himself in the process of cutting down trees. For this reason, therefore, only traditional leaders have access to and authority over utilisation of forests and forest products located in and around areas where ritual activities are practised. These areas are mainly near or around water sources, within natural forests, and under certain large trees. The result is that local communities respect highly sensitive natural resources within and around these areas because they are aware of the rules, and in most instances agree with these rules. This, in turn, is expected to reduce degradation of natural resources and consequently would reduce levels of vulnerability to the impacts of climate change. Rules on agricultural practices One of the key impacts of climate change and variability relating to human security in the LVB is food insecurity. This is so because over 80 per cent of the population in the basin depends on rain-fed agriculture as their main source of livelihood. To minimise the impacts of climate change on agricultural produc- tion, traditional leaders set rules, informed by knowledge of rainfall variabil- ity and change, on what, where and when to plant certain crops. For instance, growing drought-tolerant crops such as cassava and sweet potatoes may be made compulsory for each household when less rainfall is expected in a specific year. This has made cassava and sweet potatoes, which were not the main food crops in the MRSB prior to the 1970s drought," the main food crops in the area. It has, for instance, been made compulsory for each household to grow cassava and sweet potatoes as a strategy to minimise the impacts of droughts and thus improve food security. Furthermore, decreased rainfall seems to have compelled traditional leaders to introduce the second cultivation season, that is, the 'short' season, to sup- plement food deficits in the 'long' season due to unreliable rainfall. When rainfall was sufficient and reliable, harvests from long seasons were sufficient. The decrease and unreliability of rainfall may have led to the reduction of har- vests during the long season, compelling local people to introduce the short MONOGRAPH 167 59 EFTA01090160 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA cultivation season. Other factors such as population increases at the household level and commercialisation of agriculture may, however, have caused the shift from one cultivation season to two cultivation seasons in the year, due to increased food requirements. Similarly, commercialisation of agriculture may have increased demand for land leading to a reduction of land for food crop production. Other agriculture-related rules, practices and coping strategies which are commonly used in the LVB in response to climate change and variability, include selecting the type of landscape (land surface units) where crops are grown, when crops should be grown (cultivation seasons), and techniques em- ployed during cultivation. What, where, when and how to cultivate crops in the MRSB depends on, among other factors, the knowledge of the amount of rain- fall in a specific time period (season) and the capacity of different landscapes to hold water. For instance, when there is insufficient rainfall over protracted periods of time, local people cultivate in the lowlands with relatively high moisture content. They also construct and grow crops on ridges in order to tap surface run-off water, thereby increasing moisture sufficiency for plant growth. Similarly, during heavy rainfall, ridges reduce surface run-off and therefore minimise impacts on the land, such as soil erosion. This strategy ensures sus- tainability of food sufficiency at household levels throughout the year. Furthermore, traditional leaders set rules to limit households from selling food crops following harvests. When weather forecasts, based on indigenous indicators, indicate either insufficient or late onset of rainfall, each household is prohibited from selling their harvested food as a strategy to increase food storage and security for future use. In some cases, members of households are also prohibited from having celebrations or cultural practices that require extra food. For instance, when low rainfall and, as a consequence, a smaller harvest is expected, traditional leaders prohibit circumcision ceremonies that normally take place every two years. Informal institutions and dissemination of weather forecast information To set specific rules or adopt a specific strategy, traditional leaders employ knowledge of the past, current and future weather conditions related to rainfall. The knowledge of rainfall variability is based on a number of elements observed 60 INSTITUTE FOR SECURITY STUDIES EFTA01090161 ROSE NEWEBAZA AND LOUIS J KOTZE over a number of years. The need to understand rainfall variability has required traditional leaders in the MRSB to develop tools for forecasting rainfall onset and end in order to prepare for the expected adverse hydrological conditions, or to prepare to take advantage of the expected favourable hydrological conditions in their socioeconomic activities. The tools for rainfall forecasts that have been developed have been based on practices and experiences gained while interact- ing with the environment, particularly when practising socioeconomic and political activities. The main tools that have been developed and employed for forecasting rainfall in the MRSB, are divided into seven major categories, namely: elements of weather, wild animal behaviour, insect behaviour, astronomy, water body characteristics, bird behaviour, and fishing. These tools are used to predict the beginning and end of rainfall. A single tool and its indicator(s), however, are not sufficient to forecast the onset and/or end of rainfall. Instead, spiritual leaders use a combination of tools and their indicators to reach a decision concerning the expected hydrological condition in their area. Thus, traditional leaders, as an institution, disseminate knowledge on expect- ed weather conditions to the local communities, which is a critical process nec- essary for enhancing the adaptive capacities of the smallholder communities in rural areas to climate change. Traditional leaders, through their associations, are therefore sources of information on weather or new and potential strategies for averting climate change risks. Smallholder communities could therefore benefit greatly from weather forecasts in a number of ways. For example, knowing in advance if the rainfall will be normal, below or above average, could help them chose the most suitable crop/varieties, adjust to their cropping practices, or take other measures necessary to maximise benefits or minimise losses." Challenges facing informal institutions Informal and formal institutions seem not to complement one another. For in- stance, the granting of water rights to private companies or individuals, and the allocation of land to individuals or private companies which is done by formal institutions, deprive traditional leaders of the right to impose any rule over the land and resources. Since local people seem to have limited knowledge of poli- cies and legislation, these people do not give due support to rules and regulations imposed by formal institutions and, instead, they rely on informal rules. Ruttan" MONOGRAPH 167 61 EFTA01090162 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA establishes the hypothesis that institutions governing natural resources should follow the principle `restraint for gain', that is, if users are able to agree on the rules in operation, it becomes possible to follow the rules. Similarly, Gillinghami" observes that, in Tanzania, formal rules have been ineffective because formal institutions tend to ignore the customary systems of the local people. Furthermore, rapid population growth due to in-migration, for example, migration of livestock keepers together with their livestock, has put informal institutions at risk. Migrants to specific ecological systems alter the natural states due to increased pressure on natural resources. Migrants with different sociocultural and political backgrounds also disrupt the management systems of natural resources of the local communities. Moreover, migrants lack alter- natives to earning their livelihoods, which leads to overexploitation of natural resources, including water, fuel wood, wild meat and land for cultivation. These and other needs have led to deforestation, degradation of catchments and general encroachment on marginal lands, making the land vulnerable to the impacts of climate change. Transboundary resources are also difficult to manage through informal rules as they cut across different socioeconomic and political boundaries. For instance, the main water catchment in the MRSB is the Mau escarpments, which lie in the MRSB, Kenya. This renders rules set by traditional leaders in the MRSB in Tanzania inapplicable to the Kenyan side. Urbanisation is another challenge facing informal institutions in the man- agement of natural resources in the LVB. Urbanisation in the LVB and Africa in general is increasing at an alarming rate. With urbanisation, informal systems lose their strength because urban areas are mostly inhabited by people from different socioeconomic and cultural backgrounds. The major problem seems to be a lack of adequate policies and legislation to support these informal systems of natural resources management. CONCLUSION This chapter has illustrated the roles that institutions and, in particular, infor- mal institutions play in governing day-to-day natural resource use and man- agement thereof at the local level. Institutions, be they formal or informal, can provide incentives to groups and individuals, and also structure human action and interaction, especially in economic activities, individually or collectively, 62 INSTITUTE FOR SECURITY STUDIES EFTA01090163 ROSE MWEBAZA AND LOUIS j KOTZE in sustainable natural resource allocation and use. Institutions can either con- strain or liberate different actions in society, and also establish rules to be fol- lowed before or when performing different socioeconomic and cultural activi- ties. With respect to natural resources, rules and regulations can prohibit people from doing something, impose conditions on actions and also permit certain socioeconomic, political and cultural activities at specific locations over certain resources during a specified period of time. These rules, as this chapter demon- strated, are important in natural resource management and would enhance the resilience of resources to the impacts of climate change at the local level. It is, however, essential that, since informal institutions are important to sustainable natural resource management, they are supported by more formal policies and legislation. NOTES 1 IPCC. Climate change 2001: synthesis report, A Contribution of Working Groups 1, II. and III to the Third Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge and New York: Cambridge University Press, 2001. 2 Ministry of Water and Livestock Development, National Water Policy, Dar es Salaam, 2002. 3 G O Krhoda. The hydrology of the Mara River: preliminary phase; project development and stakeholders analysis. W WF - East Africa regional programme office. Nairobi. 2001. 1 United Republic of Tanzania, Study for the development of the Mara River valley, Preliminary report of the pre-feasibility study in three sections, prepared by the experts from Yugoslavia. Mara Region: Regional Commissioner's Office. 1976. 5 Ibid. 6 M Leach and R Mearns, Environmental change and policy: challenging received wisdom in Africa. in Melissa Leach and Robin Nlearns (eds), The lie of the land: challenging received wisdom on the African environment. London: The International African Institute. 1996. 1-33. 7 IPCC, Climate change 1995: economic and social dimension of climate change, Contribution of Working Group III to the Second Assessment Report of the IPCC, Cambridge and New York: Cambridge University Press, 1996. 8 Ibid. Also see IPCC, Climate change 2001. 9 K D Frederick, Adapting to climate impacts on the supply and demand for water. Climate Change, (1997), 37. 141-156 10 Ibid. MONOGRAPH 167 63 EFTA01090164 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 11 IPCC, Climate change 2001: synthesis report, A Contribution of Working Groups I. II. and III to the Third Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge and New Yott: Cambridge University Press, 2001. 12 World Bank, World development report, 1997. Washington, DC: The World Bank, 1997. 13 E O Odada, D O Olago, K Kulindwa. M Ntiba and S Wandiga, Mitigation of environmental problems in Lake Victoria. East Africa: causal chain and policy options analyses. Amble 33 (2004), (1-2). 14 D Verschuren, T C Johnson, H I Kling et al, History and timing of human impact on Lake Victoria, East Africa, London: Proc. Roy. Soc. B, 2002, 269, 289-294. 15 See, for example, J Ensminger, 1998, North, 1990, Ostrom, 1990. 16 Ibid. 17 D North, Institutions, institutional change and economic performance. Cambridge: Cambridge University Press, 1990. North provides extensive understanding of different types of institu- tions. and also both operational and working definitions of the term. 18 See D North, Institutions, institutional change and economic performance, Cambridge: Cambridge University Press, 1990, 3. 19 E Ostrom, Crafting institutions for self-governing irrigation systems. San Francisco: ICS press. 1992, 19. 20 D North, Institutions, institutional change and economic performance. Cambridge: Cambridge University Press. 1990. 21 Water Utilization (Control and Regulation) Act No.42 of 1974 and its amendments - Act No. 10 of 1981 and Act No. 17 of 1989. 22 National Water Policy, Ministry of Water and Livestock Development, Dar es Salaam. 2002. 23 Water Utilization (Control and Regulation) Act No.42 of 1974 and its amendments - Act No. ID of 1981 and Act No.17 of 1989. 24 See, for example. J Boesen, I S Kikula and F P Maganga. 1999: F Maganga. 1999:2002 25 B Cousins, How do rights become real? Formal and informal institutions in South Africa's tenure reform programme. Proceedings of the international conference on land tenure in developing world, University of Cape Town. 27-29 January 1998, 88-100. 26 J Boesen, F Maganga, and R Odgaard, Rules. norms, organizations and actual practices in relation to land and water management in Ruaha River basin, Tanzania, in RiiaRiita Granfelt ed, Managing the globalized environment, London: Intermediate Technology Publications. 1999.114-132. 27 Odgaad (1999) quoted in Maganga, 2002, 64. noted four aspects of customary laws: 1. Customary laws as interpreted in the courts of law (the principle of precedents): 2. Indigenous 64 INSTITUTE FOR SECURITY STUDIES EFTA01090165 ROSE MWERAZA AND LOUIS J Kant customary laws: 3. Customary laws as interpreted by traditional authorities: and 1. Customary living law as applied by people in everyday life. 28 See, for example. J Boesen, l S Kikula and F P Maganga. 1999: F Maganga and I Juma, 2000: D A Mwiturubani, 2005. 29 Water Utilization (Control and Regulation) Act No. 42 of 1974 and its amendments - Act No. 10 of 1981 and Act No. 17 of 1989. 30 National Water Policy, Ministry of Water and Livestock Development, Dar es Salaam. 2002. 31 National Agricultural Policy, Ministry of Agriculture and Livestock Development. Dar es Salaam, 1997. 32 National Land Policy, Ministry of Land and Housing Development. Dar es Salaam. 1995. 33 National Forestry Policy, Ministry of Natural Resources and Tourism. Dar es Salaam, 1998. 34 National Environmental Policy. Vice President Office, Dar es Salaam. 1997. 35 F Chancellor, N Hasnip, and D Oneill, Gender-sensitive irrigation: guidance for small- holder irrigation development, Report OD 113 (Part 1). H R Wallingforg. Department for International Development. 1999, 25. 36 See, for example. D A hlwiturubani, 2005. 37 Water Utilization (Control and Regulation) Act No. 42 of 1974 and its amendments - Act No. 10 of 1981 and Act No. 17 of 1989. 38 Ibid. 39 M E Gillingham. Gaining access to water: indigenous irrigation on Mount Kilimanjaro, Tanzania, Unpublished PhD Thesis. Emmanuel College, University of Cambridge. 1997. 334. 40 Ibid, 331. 41 D North, nstitutions, institutional change and economic performance. Cambridge: Cambridge University Press. 1990. 42 Similar division of labour is also found in some societies in Egypt, see Hamed. Hlbrahim, Mekki et al. Indigenous environmental knowledges and sustainable development in semi-arid Africa, DFID Final Research Report (R7906). 2002. 13 1970s is referred to many times in the NIRSB as the worst decade because of persistent drought. 44 K P C Rao and G E Okwach, Enhancing productivity of water resources management in arid and semi arid regions prospective and challenges for the 21st century, Biospstcsns Engineering 81(2005).3-31. 45 L M Ruttan, Closing the commons: cooperation for gain or restraint? Human Ecology. 26(1) (1998), 43-66. 46 Gillingham. Gaining access to water: indigenous irrigation on Mount Kilimanjaro.. MONOGRAPH 167 65 EFTA01090166 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA BIBLIOGRAPHY Boesen. J. Kikula. I S and Maganga. F P. Sustainable agriculture in semi-arid Tanzania. Dar es Salaam: Dar es Salaam University Press. 1999. Ensminger, J. Anthropology and the new institutionalism. Journal of Institutional and Theoretical Economics 154 (1998). Gillingham, M E. Gaining access to water: indigenous irrigation on Mount Kilimanjaro, Tanzania. Unpublished PhD Thesis, Emmanuel College, University of Cambridge. 2002. Hamed, N. Ibrahim, H, Mekki, H A. Springuel, I. Yacoub, H, Briggs, J, Roe A, and Sharp. J. Indigenous environmental knowledges and sustainable development in semi-arid Africa. Department for International Development (DFID), Social Science Research Unit. Project No: R7906.2002. Intergovernmental Panel on Climate Change (IPCC). Climate change 2001: synthesis report. A Contribution of Working Groups I, II, and III to the Third Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge and New York. Cambridge University Press, 2001.. Maganga, F P and Juma. I H. From customary to statutory systems: changes in land and water management in irrigated areas of Tanzania - a study of local resource management in Usangu plains. Research report submitted to ENRECA, 2000. Maganga, F. The interplay between formal and informal systems of managing resource conflicts: some evidence from southern Tanzania. European Journal of Development Research 14(2) (2002). Mwiturubani, D A. Gender and water use management along Tabora River, Serengeti District, Tanzania. In Hussein Sosovele, Jannik Boesen and Faustin Maganga. Social and environ- mental impact of irrigation farming in Tanzania, selected cases. Dar es Salaam: Dar es Salaam University Press, 2005. North, D. Institutions, institutional change and economic performance. Cambridge: Cambridge University Press. 1990. United Republic of Tanzania. Water Utilization (Control and Regulation) Act No 42 of 7974. Dar es Salaam. 1974. United Republic of Tanzania. Environmental Management Act No. 20 of 2004. Dar es Salaam. 2004. United Republic of Tanzania. National Water Policy. Ministry of Water, Energy and Minerals. Dar es Salaam. 1991. United Republic of Tanzania. National Land Policy. Ministry of Land and Settlement Development. Dar es Salaam. 1995. 66 INSTITUTE FOR SECURITY STUDIES EFTA01090167 ROSE MWEBAZA AND LOUIS J KOTZE United Republic of Tanzania. Rapid Water Resources Assessment Vol. I and II. Ministry of Water. Energy and Minerals. Dar es Salaam, 1995. United Republic of Tanzania. Land use/cover of Tanzania. Ministry of Natural Resources and Tourism, Dar es Salaam, 1996. United Republic of Tanzania. National Environmental Policy. Vice President's Office, Dar es Salaam, 1997. United Republic of Tanzania. National Forestry Policy. Ministry of Natural Resources and Tourism, Dar es Salaam, 1998. United Republic of Tanzania. Institutional and Legal Framework for Environmental Management in Tanzania. A Report Prepared for Institutional and Legal Framework for Environmental Management Project (ILEMP) by Lawyer's Environmental Action Team (LEAT), Dar es Salaam, 1999.. United Republic ofTanzania. National WaterPoligtMinistryotWaterand Livestock Development. Dar es Salaam. 2002. Verschuren. D. Johnson, T C, Kling, H J, Edgington, D N, Leavitt, P R, Brown, E T, Talbot, NI R. and Hecky. R E. History and liming of human impact on Lake Victoria, East Africa. London: 2002. MONOGRAPH 167 67 EFTA01090168 EFTA01090169 Climate Change Adaptation EFTA01090170 EFTA01090171 Adaptation policies in Africa Challenges and opportunities in the application of tools and methods on climate change ZERISENAY HABTEZION ABSTRACT Scientific advances in seasonal as well as multidecadal predictions in climate variability and change have laid bare the enormity of challenges in adaptation to the adverse impacts of climate change. They have also smoothed out some impediments to pushing forward the United Nations Framework Convention on Climate Change (UNFCCCY process. A range of tools and methods now exist, or are in prototype phase, which are designed to facilitate access, un- derstanding and application of climate data which could be employed by least developed countries (LDCs) in the design of appropriate adaptation policies, strategic pathways and enabling legislation. These tools and methods are essen- tial for making science-based policy decisions on adaptation. Yet, the complex- ity and cost associated with such data, tools and methods do not always match the manpower and technological capacity of African LDCs and, as such, their effect on the design of adaptation processes is bound to be limited. This chapter dwells on policy and legal challenges, and opportunities, in the use of tools and methods for adaptation by focusing specifically on Eritrea as a case study. It is maintained that effort needs to be made through the UNFCCC process, as well MONOGRAPH 167 71 EFTA01090172 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA as possible regional initiatives, to enhance capacity of African LDCs in applica- tion of available tools and methods on climate change. Parallel to such efforts, regulatory measures are needed to ensure harmonisation of environmental/ natural resource related laws and policies and coordination among relevant institutions, with the view to facilitating adaptation mainstreaming into devel- opment planning. In this regard, it is further maintained that any future regu- latory attempts need to take due account of local coping strategies at national and regional levels. INTRODUCTION There is now general consensus that existing, as well as future, climate change-related global arrangements, even if they were to be keenly followed through, would not alone stabilise greenhouse gases (GHGs) and avoid climate change.' With this realisation, adaptation to impacts of climate change and variability is indispensable. This is especially true for Africa where, chiefly due to the continent's low adaptive capacity, the impacts of climate variabil- ity and change are expected to be immense. The fourth assessment report by the Intergovernmental Panel on Climate Change (AR4),3 documents evi- dence related to the widespread impacts of climate change on livelihoods and ecosystems. The continent is identified as one of the regions most vulnerable to climate variability and change due to multiple stresses and low adaptive capacity.' Contrary to popular belief, adaptation to adverse impacts of climate variability and change is not a novel phenomenon in Africa. People have been dealing with such impacts for decades. African societies have thus continuously developed local adaptation strategies' to cope with extreme weather events, such as droughts and famine. Yet `the expected regional changes in climate and the subsequent impacts - especially on water availability, agricultural produc- tion and human health - will severely strain their coping capacity" In sum, the reality is that it will be increasingly difficult for African countries to cope with impacts of climate vulnerability and change. This chapter deals with policy and legal challenges and opportunities in the use of much-needed tools and methods for adaptation to the adverse impacts of climate change, by focusing on the Eritrean scenario as a case study. The first part briefly introduces the concept and utility of adaptation mainstreaming and 72 INSTITUTE FOR SECURITY STUDIES EFTA01090173 ROSE AWE BAZA AND LOUIS J KOTZE the nexus with climate tools and methods. Part two then defines and explains the use of applicable methodologies/approaches, methods and/or tools that are currently being employed for assessing vulnerability and risks, and furthermore investigates the policy and legal challenges associated with these. Part three as- sesses adaptation-sensitive legislative and policy tools in Eritrea with specific focus on challenges and opportunities in the use and application of tools and methods for adaptation to climate change. It then proceeds to assess the impli- cations of these for other African LDCs. The final section presents conclusions drawn from the findings of the research. ADAPTATION MAINSTREAMING Improving adaptive capacity is critical to reducing vulnerability to climate change. Low adaptive capacity is linked to an array of factors, including, inter alia, deterioration of ecological base, poverty, land distribution, and high de- pendence on natural resources. Climate change is not only an environmental issue; it is also a development issue? As such, an integrated approach to adapta- tion is imperative. Adaptation has to be integrated within the broader milieu of sustainable development and poverty-reduction strategies .° Such integration presupposes the existence of appropriate policies and legal and institutional groundwork for coordinating multisectoral and multistakeholder adaptation- related interests and concerns. Adaptation to climate variability and change is a process. There is a link between the past, the present and the future. Past climatic impacts would need to be assessed and responded to in order to increase adaptive capacity and resilience and formulate plans and policies that address future risks. Such as- sessments necessitate the use of scientific means, not only to analyse climatic data, but also to determine proper adaptation responses to the problems iden- tified.' Science- based adaptation decision-making is a requirement under the UNFCCC process and is bound to involve the application of different scientific methodologies/approaches, and tools. TOOLS AND METHODS As noted in the preceding paragraph, the UNFCCC requires its developed country members to undertake national impact assessments of climate change MONOGRAPH 167 73 EFTA01090174 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA and report their adaptation efforts. Although not a strict requirement for LDCs at this stage, these countries also ordinarily submit their reports. In undertak- ing these assessments, parties are expected to utilise applicable methodologies/ approaches,10 methods," and/ or tools' for making these assessments (impact, vulnerability and risk) with sectoral or multisectoral applications (for example, scenario-building methods and stakeholder analysis tools). Some of these methods and tools are designed to assist in crafting adaptation pathways and policies following vulnerability, impact and risk assessments. Selection, under- standing and application of these tools could be exceedingly challenging. In addition, new tools and methods are constantly being developed and the ap- plication of those that are already in use is steadily being refined." Many of the tools and methods have intellectual property rights (IPRs) attached to them and, hence, are costly." It must be noted that the Bali Action Plan (2007)" has launched a comprehensive process to enable the full, effective and sustained implementation of the UNFCCC through long-term cooperative action that will be operational beyond 2012. The plan attaches equal weight to mitigation and adaptation, and identifies technology and finance as the key mechanisms to enable developing countries to respond to climate change. With technol- ogy transfer, the focus normally has been on 'hard' technologies. Methods and tools for, among others, vulnerability, impact, risk assessment; and adaptation decision-making, are not conventionally discussed in the ongoing discourse on technology transfer.16 The following section assesses the policy and legislative tools in Eritrea in light of the opportunities and challenges faced in adaptation mainstreaming, science-based adaptation decision-making and the associated access to and ap- plication of tools and methods. THE ERITREAN SITUATION Climatic (vulnerability) context Like most LDCs, Eritrea is highly vulnerable to climate variability and change and has low adaptive capacity. The country is composed of low-lying coastal regions, arid and semi-arid areas, areas that are highly susceptible to drought and desertification, fragile ecosystems (for example, mountainous ecosystems), and its fledgling economy is highly dependent on fossil fuels. Its low adaptive 74 INSTITUTE FOR SECURITY STUDIES EFTA01090175 ROSE MWERAZA AND LOUIS J Kant capacity is also attributable to handicaps in social capital, technology and human resources." Constitutional context The Constitution of Eritrea contains a notable enunciation on sustainable development: In the interest of present and future generations, the State shall be re- sponsible for managing all land, water, air and natural resources and for ensuring their management in a balanced and sustainable manner; and for creating the right conditions to secure the participation of the people in safeguarding the environment." The Constitution of Eritrea is yet to be enforced19 and the above constitutional construct is yet to be interpreted by the judiciary. It is not, however, difficult to see that the constitution could potentially be progressively interpreted to attach value to lofty environmental ethics such as sustainable development, intergen- erational equity and public participation in environmental management. Climate change is a sustainable development issue as its impacts are bound to impinge on the environment, natural resources, livelihoods and, indeed, the economy. The above constitutional construct could thus be positively con- strued to serve as a basis for policy and legislative development on adaptation to adverse impacts of climate change in Eritrea. Adaptation policy and legislative context Eritrea acceded to the UNFCCC on 25 March 1995. No policy tool on climate change adaptation has been established in Eritrea to date. Yet some incidental statutory and policy tools to address adaptation issues do exist within the broader policy context, especially in respect of achieving the goals of poverty reduction and sustainable development. Besides, the process of preparing the National Adaptation Programme of Action (NAPA) has helped raise awareness and create the ground- work for future consideration of adaptation in development planning20 This section describes some of the policy and legislative tools in effect in Eritrea that might be of relevance to adaptation." MONOGRAPH 167 75 EFTA01090176 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Adaptation policy and planning There is currently no specific policy or planning tool on adaptation that specifi- cally relates to or deals with the adverse impacts of climate change in Eritrea. There are, however, a number of tools on poverty reduction, sustainable devel- opment and environmental protection and promotion that could be useful for future development of adaptation-related policy and planning instruments. The Interim Poverty Reduction Strategy Paper (PRS) (2004) outlines the country's macro-economic framework and sets out actions to create the con- ditions for resuming rapid economic growth, and policies and programmes for poverty reduction." The Eritrean Macro-Policy (1994) articulates sectoral priorities for the country and underlines that environmental considerations be factored in developmental plans." The National Environmental Management Plan for Eritrea of 1995 (HEMP-E);24 the Eritrean National Code of Conduct for Environmental Security (1995) (ENCCES);" the National Biodiversity Strategy and Action Plan (1998) (NBSAP);" the National Environmental Assessment Procedures and Guidelines (1999) (NEAPG);" the Environmental Assessment Procedures and Guidelines for Agricultural Projects (2005) (EAPGAP);" and the Draft National Coastal Policy (2006);" all articulate the need for sustainable development as a national goal. The National Adaptation Programme of Action (NAPA)" process in Eritrea culminated, in 2007, in a document identifying and prioritising po- tential adaptation projects for each vulnerable sector." The NAPA document also contains a seven-page annex setting out coping strategies and potential adaptation projects identified by stakeholders to the NAPA process (Annex 1) as well as project profiles (Annex II). The NAPA document describes key climatic hazards," vulnerability," national goals, plans and frameworks," and barriers to the implementation of the NAPA results." The latter is especially worth highlighting. The NAPA document sets forth the following as the major barriers to the proper implementation of NAPA results: lack of coordination in the implementation of projects and Multilateral Environmental Agreements (MEAs) (overlaps and duplication in mandates); chronic shortage of human resources and skills essential for the implementation of potential adaptation initiatives; policy gaps (lack of regional and sectoral policies); regulatory voids (absence of umbrella environmental coordination legislation and critical sectoral regulations, for example, on water); and funding (both national and international)." 76 INSTITUTE FOR SECURITY STUDIES EFTA01090177 ROSE MWEBAZA AND LOUIS J KOTZE Despite the existence of a number of tools on sustainable development and environmental conservation, the NAPA document shows that a lot remains to be done in terms of policy and planning for adaptation to adverse impacts of climate change. This is even truer when considering the appraisal in the NAPA policy that the country is extremely vulnerable to climate variability and change." Adaptation sensitive legislation Currently, no legislation that deals with adaptation exists. As with the policy description in the preceding sub-section, there are, however, numerous sectoral statutes in various areas of concern that could be relevant to the future develop- ment of adaptation•related legislation. Proclamation to Determine the Structure, Powers and Functions of the Government of Eritrea (1993); Proclamation To Determine the Powers and Functions of Ministries, Authorities and Offices of the Government of Eritrea (1991); and Proclamation for the Establishment of Regional Administration (1996); all govern the organisation of the government, especially those depart- ments that deal with environmental and developmental issues, such as the Ministry of Environment, Land and Water and the Ministry of Agriculture and Finance. One of the biggest problems in environmental governance in the country in general is the absence of coordination between and among govern- ment agencies. While there are numerous sectoral statutes dealing with natural resources and the environment," there is as yet no Framework Environmental Proclamation or a similar statute in Eritrea that coordinates sectoral activities and initiatives on the environment. This is considered a significant impediment to integrated, coordinated and aligned environmental governance. The latter concern is also considered a significant bottleneck in planning for adaptation to climate change and variability in Eritrea." CHALLENGES AND OPPORTUNITIES Adaptation mainstreaming As identified in the NAPA document'• a major bottleneck in the laws listed above is the absence of coordination. A cursory review of the relevant statutes dealing with government structure, powers and functions in Eritrea,fi reveals that these laws have failed to keep abreast of the myriad institutional changes MONOGRAM 167 77 EFTA01090178 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA that have taken place since the country's formal independence in 1993.42 This, in part, has led to lack of clarity in respect of governance mandates and a result- ant duplication and inefficiency in functions. In practice, a sense of needless competition between some government agencies is also apparent. The absence of an environmental coordination proclamation, also noted in the NAPA docu- ment, is a significant void. Efforts are currently underway to revive the Draft Environmental Proclamation (2002) and it is expected that promulgation of a framework environmental proclamation will address most outstanding issues related to coordination of environmental activities in the country." The need to integrate adaptation into the country's development policy making and planning goals cannot be overemphasised. The fact that climate change issues are gaining visibility should be used not only as an opportunity to coordinate environmental activities, but also to ensure that policy and in- stitutional coordination is done at more powerful organs of state, namely the Office of the President." Application of climate data, scientific tools and methods Science-based adaptation decision-making and proper usage of climate data, tools and methods would arguably help facilitate integration of adaptation in development programmes and minimise the potential for maladaptation. Analysis of data and application of these tools and methods is bound to be technology-intensive and often requires specific application skills." By pre- scribing the requirement of impact assessments in the context of integrated environmental planning and management, NEMPE44 also highlights the need for science-based environmental management. The reality, however, is that the level of science and technology in Eritrea is extremely low. Science and technology policy development should be con- sidered in light of the country's 'institutes for setting standards, for the pro- curement and use of ICT (information and communication technology) ... indigenous ICT production capacity ... Digital telecommunication services ... computer support services, institutes of research and training.'" The country has a very under developed science and technology infrastructure, low internet connectivity, and weak human and institutional resources, which would also include meteorological services. In addition, awareness with regard to climate variability and change and its impacts on Eritrea is low. Against this backdrop, 78 INSTITUTE FOR SECURITY STUDIES EFTA01090179 ROSE ?AWE BAZA AND LOUIS J KOTZE application of some climate tools and accessing and utilisation of climate data for efficient science-based adaptation decision-making will be among some of the most significant challenges for Eritrea. The challenges are even more glaring when the issues of cost for the use of intellectual property connected to the tools applicable for adaptation-related assessments and decision making is taken into account. In this regard, it could be argued that access to tools and methods on adaptation might be linked to national laws on intellectual property protection and transfer of technology matters (for example, through licensing procedures).. The constitution and some policy and regulatory tools do give credence to the need to promote science and technology. A cursory review of the policy and legal instruments reveals that all major national instruments, including the Eritrean constitution," the Macro Policy (1994)," as well as a number of other sectoral laws, provide an enabling environment for promotion, transfer and use of science and technology? Article 9(3) of the Constitution of Eritrea, for example, charges the state with the responsibility to 'promote the development of art, science, tech- nology', further adding that the 'state shall create an enabling environment for individuals to work in an atmosphere of freedom and to manifest their creativity and innovation'." This could be interpreted as an allusion to some normative framework that not only encourages innovations and creations, but also safe- guards the same." Further, the prevalent intellectual property-related stipula- tions" (such as patents, trade secrets, and trademarks) are to be found in other national laws. These indude: the Transitional Civil Code of Eritrea (1960); the Transitional Commercial Code of Eritrea (1960); the Transitional Penal Code of Eritrea (1957); and, to a certain measure, the Investment Proclamation (1994)," as well as the new Labour Code of Eritrea (2000)." Currently, there is no single law specifically dealing with patents in Eritrea." The regulatory framework for industrial property, if at all, could be character- ised as deficient. Special industrial property laws have not been issued and a na- tional industrial property office is yet to be created. Tools that would normally qualify for industrial property protection might therefore not enjoy the same protection under the existing national regime for IPRs. That said, some tools and methods might be subject to protection under copyright laws. In Eritrea, copyright is governed by the Transitional Civil Code of Eritrea (1960) (articles 1647-1674). Under Article 1647 (1), the author of 'a work of the mind'," has an incorporeal right of ownership. Such 'works of the MONOGRAPH 167 79 EFTA01090180 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA mind' are categorised into different groupings, namely: literary works; musical compositions with or without text; works of figurative arts; illustrations, maps and related works. The list is but illustrative and not exhaustive, as could be de- ciphered from the catchall phrase employed in the relevant code stipulation." This is in keeping with the 1886 Berne Convention on Copyrights." The flex- ibility offered by this provision could therefore be invoked to protect some tools and methods (such as software) and databases of climatic information. Implications for other African LDCs A review of NAPA-related documents of African LDCs would reveal that the need for adaptation mainstreaming and capacity building in use and applica- tion of climate data, tools and methods is not unique to Eritrea." Both issues are vital to all African LDCs, given their vulnerability to climate change and variability and low adaptive capacity. As noted earlier, the long-term cooperative action envisaged under the Bali Action Plan (2007)61 in the areas of transfer of technology and finance, offers some hope to adaptation efforts of all LDCs. It is possible that a sound regime for capacity building, technology transfer and financial mechanisms could evolve from the ongoing UNFCCC process and this could positively aid adaptation efforts of all African LDCs. The process, however, has been extremely slow." The same is true with respect to developments in technology transfer schemes and operationalisation of the same." With regard to the latter, it is remarkable that access to relevant climate data" and application of tools and methods are not being properly emphasised, not even as 'soft' technologies, which include 'capacity building, information networks, training and research'." Science- based decision-making in adaptation is arguably the only sound approach to adaptation in Africa." Capacity constraints in the proper use of climate data and the necessary tools could therefore thwart adaptation efforts. African LDCs will likely face overwhelming challenges in pushing forward the UNFCCC agenda on financial mechanisms and technology transfer. Capacity constraints (in terms of negotiation skills and political leverage) will also play an adverse role in this respect. This challenge could, however, be turned into an opportunity. The NAPA process has identified numerous local coping strategies, a reference to indigenous adaptation know-how and a data- base has already been created by the UNFCCC Secretariat for easy access of the 80 INSTITUTE FOR SECURITY STUDIES EFTA01090181 ROSE MWEBAZA AND LOUIS J Kant same. These strategies could be shared and could serve as a base for intra• and interregional cooperation on adaptation. CONCLUSION The Eritrean case study is illustrative of the challenges some African LDCs face in mainstreaming climate change adaptation into their development pro- grammes and planning. The NAPA documents' description of implementation barriers attests to the vital need for effective institutional policy and legal coor- dination. In the Eritrean context, the first order of business should be to review and promulgate the Draft Environmental (coordination) Proclamation, which is already long overdue. The fact that adaptation to climate variability and change issues are gaining visibility at national, regional, national, and even local and city levels, ought to be used as an opportunity to reinvigorate the process and to carefully consider institutional, policy and planning linkages. Given the state of institutional affairs in the country, involvement of the Office of the President and Ministry of Finance is something that ought to be seriously considered. Adaptation mainstreaming will likely be an ongoing process and the use of sci- ence-based decision-making should be given due strategic importance. In this regard, in-depth study of the utility and efficacy, as well as the international and national proprietary regimes on use of the necessary tools and methods will be essential. The latter raises issues that are perhaps pertinent to all African LDCs and efforts should be made to study and constructively engage in the interna- tional UNFCCC process on adaptation financing and technology transfer.° As a parallel effort, significantly more investigations need to be conducted on local coping strategies, including those that have already been identified through the NAPA process, as well as those identified by other LDCs with the view to seeking ways of building synergies. NOTES United Nations Framework Convention on Climate Change, 9 May 1982, 1771 UNTS 107,165; S. Treaty Doc No. 102-38 (1992); UN Doc A/AC.237/18 (Part II)/Add.1; 31 ILM 849 (1992). 2 See IPCC, Summary for policymakers, in the Synthesis Report of the 1PCC Fourth Assessment Report (2007), 14, http:ftwww.ipcc.chtpdf/assessment-report/ar4fsyriar4_syr_spm.pif (acces- sed 7 March 2009). MONOGRAPH 167 81 EFTA01090182 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 3 IPCC, The Fourth Assessment Report of the 1PCC, Climate Change. 2007. 1 See UNFCCC, Background paper on impacts, vulnerability and adaptation to climate change in Africa, African Workshop on Adaptation: Implementation of Decision 1/CP.10 of the UNFCCC Convention, Accra, Ghana, 21-23 September 2006, http://unfccc.int/files/adapta- tion/adverse_effects_and_response_measures_art_18/applicationipdf/200609_background_ african_wkshp.pdf (accessed 12 March 2009). 'The African continent contains the poorest and least developed nations of the world with low per capita GDP and life expectancy and high infant mortality. Literacy is in the bottom quartile globally; there is a high dependence on the natural resource base: weak governance structures: and a low capacity within African govern- ments to respond proactively to changes. Armed conflict and terms of trade and aid depend- ence further complicate matters. Africa has a predominantly tropical. hot and dry climate and most of the population resides in the sub-humid and semi-arid zones.' See ibid. 33. One recent study seeks to demonstrate the effect of a possible 2.5 degrees Celsius warming and its effect on different regions of the world. It notes that Africa will be among the most affected victims. (Eric A Posner and Cass R Sunstein, Climate change justice. Public Law and Legal Theory Working Paper No 177. University of Chicago Law School. Chicago, 2007). Accordingly, 'Damages of a 2.5 C Degree Warming As a Per tentage of GDP' are estimated to be at India 1.93; Africa 3.91; OECD Europe 2.83: High income OPEC 1.95; Eastern Europe 0.71; Japan 0.50; United States OAS; China 0.22; Russia 0.65: http://www.law.uchicago.edu/ Laweconfindex.html (accessed 12 November 2008). 5 For information on past and present work on local coping strategies under the UNFCCC process, as well as a general database on the same, see http:llmaindb.unfccc.intlpublicladapta- tion! (accessed 12 March 2009). 6 Fatima Denton et al, Adapting to climate change in Africa: the role of research and capacity development. 2008. http://wwwl.worldbank.orgiclevoutreach/ (accessed 7 March 2008). 7 Mamadou Moussa Diakhite, Mainstreaming adaptation to climate change into development planning and activities (2007), working paper submitted to the Least Developed Countries Expert Group (LEG) meetings on NAPA preparation and implementation. Bangkok, August 2007. The author submits that climate change issues be linked to government organs in charge of planning and budgeting as opposed to departments dealing with environmental issues only. Page 7: 'In 2005. the OECD conducted a survey on the ministries hosting the UNFCCC national focal points, with a distribution as follows: environment 72%. foreign affairs 11%. meteorology 8%, and other/unknown 6%. These results could be read as the justification of more and more pressing calls to 'get climate change (and other MEA issues) out of the envi- ronment corner' and rise to central ministries to give better opportunities to be considered at the sharing of national budget resources.' Ibid. 8 M T J Kok (MNP). B Metz (MNP). A Verhagen (Plant Research International-Wageningen University and Research Centre) and S N M van Rooijen (MNP/CAP-SD), Integrated de- velopment and climate policies: how to realise benefits at national and international level (Policy Brief) Environmental Assessment Agency (MNP), 2006. 2. The brief states that such 82 INSTITUTE FOR SECURITY STUDIES EFTA01090183 ROSE MWEBAZA AND LOUIS J KOTZE integration would bring along the 'demonstrated' benefits of reduced poverty, more employ- ment. improvements in health. energy and food security and infrastructure as well as climate benefits. Ibid. 9 bowing et al, Adapting to climate change in Africa, Journal of Mitigation and Adaptation Strategies for Global Change, 2(l) (1997) Kluwer Academic Publishers. `The intersection of present vulnerability and the prospect of climate change in Africa warrants proactive action now to reduce risk of large scale, adverse impacts. The process of planning adaptive strategies requires a systematic evaluation of priorities and constraints, and the involvement of stake- holders.' Ibid, I. 10 Methodology/approach is defined as 'a complete framework that prescribes an entire process for the assessment of vulnerability and adaptation and offers a broad strategic approach. An approach in some instances assembles certain methods and toolkits to support this process.' Examples include. IPCC Technical guidelines (1994). NAPAs guidelines (2002), Adaptation Policy Framework (2004). UNFCCC, Compendium on methods and tools to evaluate impacts of and vulnerability and adaptation to, climate change, February 2008, 10, http://unfccc.int/ files/adaptation/nairobi_workprogramme/compendium_onmethodstoolstapplication/ pdf/20080307...compendium_m_t_complete.pdf (accessed 12 March 2008) The compendium is a 228-page document and it contains tables with Description. Appropriate Use, Scope. Key Output, Ease of Use, Training Required, Training Available. Computer Requirements. Documentation. Applications. Contacts for Tools, Documentation. Technical Assistance. Cost and References. II Method is defined as'a set and sequence of steps or tasks that should be followed to accomplish the task that represents a part of large framework. Method can be implemented through using a number of tools. Examples include: methods for development and use of scenario data in the vulnerability and adaptation assessment. e.g. those presented in the UNEP Handbook (1998) and IPCC-TGCI A Guidelines on the Use of Scenario Data for Climate Impact and Adaptation Assessment (1999).' Ibid.. 12 Tool is defined as 'a means or instrument by which a specific task is accomplished. Examples include: RCMs, impact models, decision tools (cost-benefit analysis, MCA. TEAM, ADM. etc.). stakeholder tools (vulnerability indexes. Livelihood Sensitivity Exercise, etc.): Ibid. 13 Id. For a look into some of the tools that are being developed see http:llwww.weadapt.orgl 14 Some of these tools have IPRs attached to them. See supra note 9. IS The Bali Action Plan, adopted by the Conference of the Parties (COP) as decision 1/CP.13, focuses on four 'building blocks: adaptation, mitigation. technology transfer and deployment, financing. For UNFCCC COP 13 Decisions and Resolutions, see http://unfccc.int/meetings/ cop_13fitems/4049.php (accessed 12 March 2009). 16 See ibid. 17 Government of Eritrea (GoE), National Adaptation Programme of Action. April 2007.1-4. MONOGRAPH 167 83 EFTA01090184 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 18 'The Constitution of Eritrea, Art 8/3. 19 Although ratified by a constituent assembly on 23 May 1997. the Constitution of Eritrea has not been enforced in a court of law to date, pending restructuring of all government organs. including the Judiciary. Per Art 19 of the Constitution. a supreme court is to be established whose tasks will include interpretation of the Constitution; Article 49 - The Supreme Court I. The Supreme Court shall be the court of last resort; and shall be presided over by the Chief Justice. 2. The Supreme Court shall have: a) sole jurisdiction of interpreting this Constitution and the constitutionality of any law enacted or any action taken by government; b) sole jurisdiction of hearing and adjudicating upon charges against a President who has been impeached by the National Assembly pursuant to the provisions of Article 1I(6)(a) and (b) hereof: and c) the power of hearing and adjudicating cases appealed from lower courts pursuant to law. 3. The Supreme Court shall determine its internal organisation and operation. 1. The tenure and number of justices of the Supreme Court shall be determined by law. 20 'The experience gathered in developing the NAPA also lays important groundwork for long- term climate change adaptation activities in Eritrea.' Statement by ?doges Wolde-Yohannes, Climate Change Focal Point, Director General. Department of Environment, Ministry of Land, Water and Environment, Asmara, Eritrea. See GoE supra note 17, v. 21 GoE, Eritrea First National Communication Under the United Nations Framework Convention on Climate Change, December 2001, 72-76. 22 Government of Eritrea, Interim Poverty Reduction Strategy Paper (l-PRSP). 2001, http:// www.itacasmara.esteri.ittitacasmaratital ianiside_menuldoc ument if I-PRSP%20Eritrea.pdf (accessed 5 May 2001). Chapter II provides a comprehensive assessment of the poverty situation to gain a clear understanding of the extent. depth and distribution of poverty and the underly- ing causes and sources of vulnerability and the impact of the recent events (drought and border war) on the incidence of poverty. Chapter IV outlines the main elements of Eritrea's Interim Poverty Reduction Strategy, built on four pillars: '(I) Reinvigorating economic growth; (2) Creating income earning opportunities for the poor, (3) Enhancing access to and utilisation of essential services for human development: and (1) Promote active participation of the people in the political. economic and social aspects of nation building by putting in place an enabling environment and strengthening the institutional capacity. Attention is given to supporting poli- cies and priority investment programs and institutional capability designed to directly assist the poor, including meeting targets and MDGs for selected national goals.' See ibid. 23 The Macro Policy requires that 'proper attention"be given to potential environmental conse- quences of investment decisions. I bid, Item 6.10. 84 INSTITUTE FOR SECURITY STUDIES EFTA01090185 ROSE MWERAZA AND LOUIS j KOTZE 21 The NEMP-E addresses major environmental issues and sets out possible policy chokes, alternatives and order of priorities. The plan proposes a specific institutional structure for its implementation. envisaging the creation of an Eritrean Agency for the Environment. On climate change, it mentions that Eritrea intends to do 'everything possible to implement the provisions of the UNFCCC'. On energy, the following policy statements are articulated: 'Fuel wood substitution for domestic energy needs; Encouragement of energy conservation meas- ures; Promotion of alternative transport systems to conserve energy and protect the environ- ment. Encouragement of new and renewable energy systems: Promotion of geothermal energy: Promotion of small scale hydro-systems; Promotion of briquetting and bio-gasification and Capacity building to improve environmental management in the energy sector.' 25 The ENCCES sets out a series of commitments towards sustainable development of natural re- sources, sustainable management of wastes and cooperation on environmental matters, both at the regional and global levels. 26 The NBSAP documents what is currently known about biodiversity distribution at national level (NBSAP: 7-20); gives an overview of the status of legislation and other similar instru- ments dealing with biodiversity (NBSAP: 25-27); furnishes the principal components of the strategy; and describes. among other things, the principal activities which are considered to be essential elements of an effective biodiversity conservation and sustainable use in Eritrea. 27 The NEAPG outline national environmental impact assessment guidelines. 28 The EAPGAP outline specific sectoral environmental impact assessment guidelines. A similar draft also exists for road constructions. 29 The Draft Coastal Policy has the following objectives: a) The sustainable use of the coast for any development including but not limited to housing. tourism, recreation. ocean access. maritime industry, commercial and any other activities in appropriately designated areas; b) The location of coastal facilities and development that takes into account coastal processes including erosion, accretion, storm surge. tides. wave conditions, sea level change and bio- physical criteria: c) The protection of public foreshore areas (setback) and public access to the coast including islands: d) The protection. conservation and enhancement of assets such as landscape, natural resources or indigenous and cultural values (Item 4). 30 See supra note 17 31 Id. Ranked set of adaptation projects in six sectors (22 projects out of 102 adoption projects in 7 sectors) namely Agriculture, Livestock. Forestry. Water Resources. Marine and Coastal Zones, and Public Health were identified. 32 Ibid. 5. 33 Ibid, 5. 34 Ibid. 7-8. 35 Ibid, 9. MONOGRAPH 167 85 EFTA01090186 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 36 See ibid. 37 See supra note 17 and the accompanying text. 38 The Fisheries Proclamation (1998); Tourism Proclamation, Proclamation (2006); Proclamation to Establish the Massawa and Assab Ports Authority (2005); Eritrean Free Zones Proclamation (2001); Revised Proclamation to Govern Petroleum Operations (2000): Revised Proclamation to Provide for the Payment of Income Tax on Petroleum Operations (2000); Electricity Proclamation (2004); Eritrean Electric Corporation Establishment Proclamation (2004); Proclamation to Reform the Land Tenure in Eritrea, to Determine the Manner of Exploiting Land and for Purposes of Development and National Reconstruction and to Determine the Powers and Duties of the Land Commission (1994); Regulations for the Distribution and Administration of Land (1997); Forestry and Wildlife Conservation and Development Proclamation (2006); Regulations for the Issuance of Forestry Permits (2006); and Regulations (or the Issuance of Wildlife Permits (2006). Also important are the Draft Environmental Proclamation of Eritrea (2002): Draft Integrated Coastal Area Proclamation (2007): Draft Proclamation for the Establishment of the Coastal Authority (2007): Draft CITES Implementing Legislation (2005): Draft Integrated Water Resources Management Proclamation (2007). These pieces of legislation are expected to be adopted in the near future. 39 See supra note 36 and the accompanying text. .40 See supra note 17. 41 See supra note 33 and the accompanying text. 42 Eritrea was born as a new state in 1991, with basic departments. Following its formal inde- pendence in 1993 after a UN-Sponsored referendum, various ministries and institutions have been evolving. For relevant legislations on past and present institutional make up of the current government, see Proclamation to Determine the Structure, Powers and Functions of the Government of Eritrea 37 of 1993; Regulations to Determine the Powers and Functions of Ministries, Authorities and Offices of the Government of Eritrea. Legal Notice No. 14 of 1993, and Regulations to Determine the Powers and Functions of Ministries, Authorities and Offices of the Government of Eritrea, Legal Notice No.16 of 1994. 43 See Ibid. 44 See supra note S. Kiribati, often mentioned as a good case study in adaptation mainstream- ing. has elevated the mandate of coordination of adaptation activities(formerly with in the Ministry of Planning and Finance) to the Office of the Prime Minister. 45 See supra notes 9-12 and accompanying text. 46 Ibid. 47 Kifleyesus Andemariam, Information technology policy & management in developing coun- tries: the case of Eritrea, dissertation. University of Groningen, 1999.240. 86 INSTITUTE FOR SECURITY STUDIES EFTA01090187 ROSE MWEBAZA AND LOUIS J KOTZE 18 Art 913 of the Constitution provides that 'The State shall promote the development of the arts, science. technology and sports and shall create an enabling environment for individuals to work in an atmosphere of freedom and to manifest their creativity and innovation; 19 Item 6,t6 Macro Policy of the State of Eritrea (1991). Accordingly one of the main goals of the macro-economy is to 'keep Eritrea abreast of developments in production, transport and service technologies in order to assure an upgraded and modern economic system that is competitive in the world.' The Policy aspires to promote %he transfer of up-to-date technology that would assure competitive edge to Eritrean Produce'. See Id. The development of high-tech telecommunication technologies is also equally accentuated. The document further calls for the establishment of a national institution to gather information about existing and emergent technologies worldwide. evaluate their appropriateness for Eritrean conditions. and make this fund of knowledge available to the public and private sectors. The purpose is to regulate the process of technology transfer and prevent suppliers of technology, be they nations or corpo- rations, from exerting undue influence on the selection of particular technologies imported to Eritrea. Ibid. 50 These include Proclamation to Provide for the Establishment of an Eritrean Information Systems Agency (1994): Communication Proclamation (2000): Eritrean Science and Technology Development Agency Establishment Proclamation (2002): and Eritrea Telecommunication Services Corporation Proclamation (2003). The Transitional Eritrean Civil Code (1960): Transitional Eritrea Penal Code (1957); and the Transitional Eritrean Commercial Code (1960) have some application for sser matters (for example. regulation of intellectual property). 51 Art 9/3 The Constitution of Eritrea (1997). 52 See also Art 21(4), ibid, which charges the state with the task of laying the requisite ground- work for the development of arts. science, technology and sports as well as encouraging popular participation in the same. 53 Industrial property is a term. which covers patents, utility models, industrial designs, trade- marks. service marks, trade names. indication of sources or appellations of origin and the repression of unfair competition. Almost all of the components of industrial property are addressed in a lump sum in the 1960 Eritrean Transitional Commercial Code, but for trade- marks and trade names for which a separate section is devoted. As far as trade secrets are concerned, however, there are no customised provisions addressing the same although. by the power of reasoning, one could make the argument that some provisions of the Transitional Commercial Code are so broad that trade secrets could be read into them. Although a separate patent legislation is envisaged under the Transitional Commercial Code (1960), this has not yet seen the light. 51 The relevant provisions in this proclamation are designed. as a matter of legislative and policy choice, to assure investors that their intellectual property rights will be safeguarded in return for their reciprocal duties of, inter alia. transferring technology. MONOGRAPH 167 87 EFTA01090188 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 55 The relevant provisions in this proclamation are worded to serve in the context of an employ- er-employee relationship to ensure equitability in the apportionment of rights between the two parties to an employment contract. 56 In the past the protection of intellectual property was left for a subsidiary legislation. See Article 14812 of the Transitional Commercial Code of Eritrea (1960) according to which a patent legislation is said to be enacted in a future date. (The intended legislation has not as yet been promulgated.) 57 The Transitional Civil Code of Eritrea (1960) does not use the term 'copyright in the whole body of Title XI of the code in reference to copyrightable works. Yet the term 'works of the mind' appears to be broader than 'copyrights' as the former can represent not only copyright- able works but also other intellectual works such as patents (especially design patents] and trademarks. These other areas of intellectual property might as well overlap with copyrights and this, however unintentional/intentional work of draftsmanship. is arguably praiseworthy especially granted that, as will be indicated later. there is essentially little legal protection in the industrial property rights in the country. Yet thorough reading of the subsequent provi- sions testifies to the fact that as a matter of fact what was intended to be covered is actually copyrightable works. In this connection the heading of the relevant section of the code also reads 'Literary and Artistic Works'. suggesting more emphasis and drafter's intention on copyrightable works in the confined sense of the term. 58 The exact terminology employed by the code reads: 'and any other works created by the intel- ligence of their author and presenting an original character.' See Art 1648 (e) TCCE (1960). 59 Art 2 (1) Berne Convention for the Protection of Literary and Artistic Rights, 9 September 1886. as last revised at Paris, 24 July 1971, 828 U.N.T.S. 221. 60 NAPA project profiles of most all African LDCs state that resource problems will undermine adaptation efforts. e.g. Uganda, Sierra Leone, Lesotho. Central African Republic. The NAPA documents also place importance on adaptation mainstreaming. 61 See supra note 14 and the accompanying text. 62 In Poznan COP 14. the need for making adequate and predictable resources was highlighted. (FCCC/SBI/2008/L.21/Add.1) As it stands, LDC fund is a voluntary arrangement and the amount of contributions thus far made to the fund for implementation of NAPAs is USS172 million (ENB 2008 PP 3 quoting 581 conclusions (FCCC/SBI/2008/1-.21)). Needless to say, this contribution will not meet the cosu of project profiles of African LDCs. By way of illustration, Eritrea has a request for 33 149 000 for implementation of its NAPA-ranked project profiles out of 102 adaptation projects that need to be implemented. The implementation phase of NAPAs has yet to move forward. and ensuring sustainability and adequacy of the fund is something the continent has to persistently fight for within the ongoing UNFCCC process. 63 COP 14 has adopted decisions on capacity building and transfer of technology. With regards to the latter its decision. among other things, has endorsed a 'Poznan strategic programme on technology transfer. See FCCCJSBI/2008/1.82. 88 INSTITUTE FOR SECURITY STUDIES EFTA01090189 ROSE MWERAZA AND LOUIS J Kant 64 It is to be noted that even downscaled climate data on some African regions now exists (see weAdapt.com). Still, this row data has to be interpreted using relevant tools and methods for it to be a wealth of knowledge that could be employed in the design of adaptation pathways. strategies and policies. 65 Cameron Hutchison, Does TRIPS facilitate or impede climate change technology transfer into developing countries? University of Ottawa Law and Technology Journal 3(2) (2006), 520, Note 4. 66 See Stockholm Environment Institute, Policy brief effective use of climate science to improve adaptation in Africa, May 2008. httpdtwikiadapt.orgfindex.php?title.Effective_use_of climate_science_to_improve_adaptation_in_Africa (accessed 5 May 2009). 67 See supra notes 14-15 and the accompanying texts. BIBLIOGRAPHY Andemariam, Kifleyesus. Information technology policy & management in developing countries: the case of Eritrea, dissertataion, University of Groningen. 1999.. Bali Action Plan - UNFCCC COP 13 Decision 1/CP.13, 2007.. Diakhite, Mamadou Moussa. Mainstreaming adaptation to climate change into development planning and activities. 2007. Working paper presented in the Least Developed Countries Expert Group (LEG) meeting on NAPA preparation and implementation, Bangkok. Dowing et al. Adapting to climatechange in Africa. Journal of Mitigation and Adaptation Strategies for Global Change, 2(1) (1997). Kluwer Academic Publishers.. Fatima Denton et al. Adapting to climate change in Africa: the role of research and capacity develop- ment. 2008. Available at http://wwwl.worldbank.org/devoutreach/ (accessed 7 March 2008). GoE, Agricultural Policy Framework and Strategy, 2002. GoE, Eritrea First National Communication under the United Nations Framework Convention on Climate Change. 2001. GoE, Eritrean National Code of Conduct for Environmental Security. 1995. GoE, Interim Report Poverty Reduction Strategy Paper, 2004. GoE, Draft National Coastal Policy. 2006. GoE, Macro Policy of the State of Eritrea, 1994. GoE, Ministry of Agriculture. Draft Environmental Assessment Procedures and Guidelines for Agricultural Projects. 2005. GoE, Ministry of Health. Environmental Health Policy and Guidelines, 1998. GoE, National Adaptation Programme of Action (NAPA), April 2007. MONOGRAPH 167 89 EFTA01090190 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA GoE, National Biodiversity Strategy and Action Plan. 1998. GoE, National Environmental Assessment Procedures and Guidelines. Eritrea, 1999. GoE, National Environmental Plan for Eritrea, 1995. IPCC, The Fourth Assessment Report of the IPCC. Climate Change. 2007. Kok, M T J (MNP). Metz, B (MNP), Verhagen, A (Plant Research International-Wageningen University and Research Centre) and Van Rooijen, S N M (MNP/CAP-SD). Integrated devel- opment and climate policies: how to realise benefits at national and international level (Policy Brief) Environmental Assessment Agency (hi NP), 2006.2. Pozner el al, Climate Change Justice. University of Chicago Law School. Public Law & Legal Theory Working Paper No. 177 lutp://www.law.uchkago.edu/Lawecordindex.html November 2008. Kyoto Protocol to the United Nations Framework Convention on Climate Change, 1997. UNFCCC, Background paper on impacts. vulnerability and adaptation to climate change in Africa, African Workshop on Adaptation: Implementation of Decision 1/CP.10 of the UNFCCC Convention, Accra, Ghana, 21-23 September 2006, http://unfccc.intifiles/ adaptation/adverse effects and response measures art 481application/pdf UNFCCC, Compendium on Tools and Methods. 2008, http:/funfccc.int/files/adaptation/nairobi_work- programme/compendium_on_methods_tools/application/pdf/20080307_compendium_m_t_ complete.pdf/200609_badcground_african_wIcshp.pdf (accessed March 2009). United Nations Framework Convention on Climate Change. 1992. URLs Adaptation http:l/maindb.unfccc.int/publicladaptation/ (accessed March 2009). COP CP/13 http://unfccc.int/meetings/cop_13/items/4049.php (accessed March 2009). Government of Eritrea, Interim Poverty Reduction Strategy Paper (I-PRSP)(2004) See http://www. itacasmara.esterLit/itacasmarafitalian/side_menu/documenti/I-PRSP9620Eritrea.pdf Open-source sample of tools: http://www.weadapt.org/ (accessed March 2008). Table of legislation GoE, The Constitution of Eritrea, 1997. GoE, Draft Environmental Proclamation of Eritrea. 2002. GoE, Draft Integrated Coastal Area Management (ICAM) Proclamation, 2007. GoE, Draft Proclamation to Establish the Eritrean Coastal Authority. 2007. GoE, Draft Water Resources Proclamation, 2007. GoE, Electricity Proclamation: Proclamation No. 141/2004. The Eritrean Electric Corporation Establishment Proclamation: Proclamation No. 142/2004. 90 INSTITUTE FOR SECURITY STUDIES EFTA01090191 ROSE MWEBAZA AND LOUIS J KOTZE GoE, The Eritrean Free Zones Proclamation: No. 11512001. GoE, The Fisheries Proclamation: Proclamation No. 10411998. GoE, Forestry and Wildlife Conservation and Development Proclamation, No 115/2006. GoE, The Land Transfer Proclamation: Proclamation No. 11112000. GoE, Legal Notice No.14/1993. To Determine the Powers and Functions of Ministries. Authorities and Offices of the Government of Eritrea. GoE, Proclamation No. 111991. as amended by Proclamation No. 25/1992 and Proclamation No. 13312003. A Proclamation to Determine the Powers and Functions of the Ministry of Justice and Jurisdiction of the Courts in Eritrea. GoE, Proclamation No. 911991, A Proclamation to Establish the Gazette of Eritrean Law, Vol. 111991 GoE, Proclamation No. 3711993, A Proclamation to Determine the Structure, Powers and Functions of the Government of Eritrea. GoE, Proclamation for the Establishment of Regional Administration. No. 86/1996. GoE, A Proclamation to Establish the Massawa and Assab Ports Authority: Proclamation No. 148/2005. The Eritrean Port Regulations: Legal Notice No. 10312005. GoE, A Proclamation to Provide for the Registration of Land and other Immovable Property: Proclamation No.95/1997. GoE, A Proclamation to Reform the Land Tenure in Eritrea, to Determine the Manner of Exploiting Land and for Purposes of Development and National Reconstruction and to Determine The Powers and Duties of the Land Commission: Proclamation No. 5811994. GoE, Regulations for the Distribution and Administration of Land: Legal Notice No. 317199Z GoE, A Revised Proclamation to Govern Petroleum Operations: Proclamation No. 108/2000; GoE, A Revised Proclamation to Provide for the Payment of Income Tax on Petroleum Operations: Proclamation No. 109/2000. GoE, The Tourism Proclamation: Proclamation No. 152/2006. GoE, Transitional Civil Code of Eritrea, 1960. GoE, Transitional Penal Code of Eritrea, 1960. Regulations for the Issuance of Forestry Permits, Legal Notice 111.2006. Regulations for the Issuance of Wildlife Permits, Legal Notice 112/2006. MONOGRAM lea 91 EFTA01090192 EFTA01090193 Policy, legislative and regulatory challenges in promoting renewable energy in Nigeria MUI JAMMED TAWFIQ_LADAN ABSTRACT Energy is essential for development. No developing society can hope to achieve economic sustainability without adequate energy supplies. Virtually every aspect of economic and social activity demands energy. The unavail- ability of modern forms of energy to some two billion of the world's popula- tion, and inadequate supplies to an estimated additional two billion people, is a major challenge to the achievement of the poverty, gender and health ob- jectives of the United Nations Millennium Development Goals and the Plan of Implementation of the World Summit on Sustainable Development. At the same time, energy generation using fossil fuels is the principal source of green- house gas emissions that cause global warming. The mining and processing of fossil fuels can also endanger the lives of miners, cause severe land disruption and pollute land, air and waters. Furthermore, burning fossil fuels emits ni- trogen and sulphuric oxides that are themselves toxic and are the precursors of urban smog and acid rain, while coal burning power stations are responsible for mercury emissions that bio•accumulate in ecosystems, presenting a threat to human health as well as the environment. Providing the energy essential for MONOGRAPH 167 93 EFTA01090194 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA development while minimising environmental hazards is one of the principal challenges in the 21' century. Energy efficiency offers perhaps the greatest potential to greatly reduce the amount of polluting energy needed to achieve current and future development targets. By eliminating waste, efficiency can often be accomplished at a profit or with a very short payback period of a year or two. Renewable energy, in the form of energy produced from solar, wind, sustainably managed hydro, geothermal and biomass resources, offers the potential to significantly displace the need for polluting fuels. These renew- able resources are emphasised in the Plan of Implementation of the World Summit on Sustainable Development. This chapter therefore contends that, while much has been written about the science, technology and policies for promoting energy efficiency and renewable energy, little has been written about the legislative and regulatory options necessary to implement these technologies and policies that make a reality in practice. By promoting clean and efficient energy use at the legislative and regulatory levels, governments can ensure that all stakeholders have the opportunity and incentives to adopt new practices that will help to mitigate climate change and reduce pollution while keeping on the path of economic and social development. It is against this background that this chapter seeks to realise the following objectives: ■ To underscore the importance of efficient and renewable energy to produce electricity for the mitigation of climate change and sustainable development in Nigeria ■ To provide an overview of the policy, legislative and regulatory measures available to promote energy efficiency and renewable energy in Nigeria ■ To highlight the challenges and strategies to overcome the barriers to use and regulation of renewable and efficient energy for electricity in Nigeria INTRODUCTION Nigeria's indigenous energy resource development reveals that the country's oil reserves (the sixth•largest in the world) were put at 34 billion barrels for 2004 and 40 billion barrels by 2010, resulting in an effective growth rate of 2,746 per cent per annum. At this growth rate, the reserves will reach 68,7 billion barrels by 2030, double the 2004 value. Intense exploration activities are taking place in the offshore fields from the Niger Delta, while the potential of the inland 94 INSTITUTE FOR SECURITY STUDIES EFTA01090195 ROSE ?AWE BAZA AND LOUIS J KOTZE Benue and Chad Basins is yet to be exploited. By 2000, 53,5 per cent of natural gas reserves of 159 trillion square cubic feet (ninth•largest in the world) were associated gas. While the associated gas reserves will increase with oil reserves, there will be increasing activities in exploration for gas only. Corresponding substantial endowments of bitumen (31 billion barrels of oil equivalent and second•largest in the world), coal, hydropower and solar energy, as well as plans for their development, also exist.' Energy is essential for development. No developing society can hope to achieve economic sustainability without adequate energy supplies. •This is so because virtually every aspect of economic and social activity demands energy. The unavailability of modern forms of energy to some two billion of the world's population, and inadequate supplies to an estimated additional two billion people, is a major challenge to the achievement of the poverty, gender and health objectives of the United Nations Millennium Development Goals and the Plan of Implementation of the World Summit on Sustainable Development. At the same time, energy generation using fossil fuels is the principal source of greenhouse gas (GHG) emissions that are causing global warming. The mining and processing of fossil fuels can also endanger the lives of miners, cause severe land disruption and pollute land, air and water. Furthermore, burning fossil fuels emits nitrogen and sulphuric oxides that are themselves toxic and are the precursors to urban smog and acid rain, while coal burning power stations are responsible for mercury emissions that bio accumulate in ecosystems, presenting a threat to human health as well as the environment. Providing the energy essential for development, while minimising environ• mental hazards, is one of the principal challenges in the 21" century. Energy efficiency offers perhaps the greatest potential to greatly reduce the amount of polluting energy needed to achieve current and future development targets. By eliminating waste, efficiency can often be accomplished at a profit or with a very short payback period of a year or two. Renewable energy, in the form of energy produced from solar, wind, sustainable managed hydro, geothermal and biomass resources, offers the potential to significantly displace the need for polluting fuels. •These renewable resources are emphasised in the Plan of Implementation of the World Summit on Sustainable Development. This chapter therefore contends that, while much has been written about the science, technology and policies for promoting energy efficiency and MONOGRAPH 167 95 EFTA01090196 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA renewable energy, little has been written about the legislative and regulatory options necessary to implement these technologies and policies. By promot- ing clean and efficient energy use at the legislative and regulatory levels, gov- ernments can ensure that all stakeholders have the opportunity and incentive to adopt new practices that will help to mitigate climate change' and reduce pollution, while keeping on the path of economic and social development. It is against this background that this chapter seeks to realise the following objectives: ■ To underscore the importance of efficient and renewable energy to produce electricity for the mitigation of climate change and sustainable development in Nigeria' ■ To provide an overview of the policy, legislative and regulatory measures available to promote energy efficiency and renewable energy in Nigeria ■ To highlight the challenges and strategies to overcome the barriers to use and regulation of renewable and efficient energy for electricity in Nigeria THE IMPORTANCE OF EFFICIENT AND RENEWABLE ENERGY IN THE NIGERIAN CONTEXT For Nigerians, the quest for an uninterrupted electric power supply has been a long story of dashed hopes and expectations. Despite the promises made by successive administrations to prioritise the provision of efficient and re- newable energy to produce adequate electricity for sustainable development, Nigerians have continued to experience erratic electric power supply for their different needs.' Energy needs for different economic activities in rural areas of Nigerian The end•use energy requirements for different economic activities in the rural areas of Nigeria are illustrated in Table I.: Table 2 reveals the national energy consumption pattern as reported by a recent National Energy Study for the industrialisation of Nigeria (2006-2030); which took into consideration the thinking of government in terms of the overall economy and the energy sector. 96 INSTITUTE FOR SECURITY STUDIES EFTA01090197 ROSE MWEBAZA AND LOUIS J KOTZE Table 1 Economic activities and energy requirements in the rural areas' S/N ACTIVITY USE IY:i' 1. Agro-processing Flour grinding Oil expelling drying Threshing 1-2 2-5 - - 2. Small-scale industry Saw milling WOW and cotton processing Stone crushing 10-30 5-25 5-25 I. Household Lighting Refrigeration Cooking Water pumping Ironing Radio/TV 0.2 03 OA (heat storage cooker) 0.5-1 0.5 0.1-0.3 Implications of climate change for the energy and industrial sectors of Nigeria' Climate change, and more specifically the carbon emissions from energy produc- tion and use, is one of the most troubling problems facing society today. Climate change engages the energy sector particularly closely because energy is central both to the problem and to its solution. Hydropower generation is the energy source most likely to be affected by climate change. It is sensitive to the amount, timing, and geographical pattern of precipitation, as well as temperature. There is the potential for more intense rainfall events (which would require more con- servative water storage strategies to prevent flood damage), greater probability of drought (less hydroelectric production), and less precipitation (less water avail- able during warm months), all of which point to less hydroelectric capacity at current powerhouses. Two categories of industries were identified as being vulnerable to climate change: (1) industries with activities that are dependent on climate (construc- tion; transportation operations and infrastructure; energy transportation and transmission; offshore oil and gas production; thermal power generation; in- dustries such as paper mills that depend heavily on water; pollution control; coastal-sited industries; and tourism and recreation); and (2), sectors in which MONOGRAPH 167 97 EFTA01090198 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Table 2 Summary of national energy consumption computations for the household sector' Fraction of households with air-conditioning 10,71% Fraction of households with water heater 7,14% (Gas)LPG Kerosene Coal Fuel wood Electricity. %Households using an energy type for cooking 12,50% 76,79% 1,79% 67,86% 7,14% %Household using an energy type for water heating 8,9396 848836 0 66,07% 25,00% to Households using an energy type tor lighting 0 87,50% 0 0 42,86% For cooking (unit/household) 22,06 3479 2275,75 21,27 For water heating (unit/household) 3,47 7,86 785,61 132,66 For lighting (kg/household) 0 52,7 0 291,75 National consumption per yr a wM For coolung (unit') 1,65x10, 6,59x10' 4.31x1C/0 4,03x109 For water heating (unit') Z60x10' 1,49x10' 1,49x1C0 2,51x10I For Lighting (unit') 9,98x10' 0 5,53x10' For A/C (unit') 2,20x109 For Appliances (unit') 2,90x109 Total (unit') 1,91x10° 1,81x10' 2,03x10' 5,80x1010 1,35x10,0 National consumption (TOE) For cooking (TOE) 178,63 548217,3 1.40x100' 4.83x104 89 811.29 560033,5 For water heating (TOE) 28,09 123 860,2 For lighting (TOE) 830358,9 0 1231697 Feral( conditioning (TOE) 0 0 490 974.6 For appl ences (TOE) 645 586.2 Total (TOE) 206,72 1 S02437 1,88x1010 3 018 102 ' National units of the fuels are as follows: gas LPG (kg), kerosene (litre), coal (kg). fuel wood (kg), electricity (KWh). 98 INSTITUTE MR SECURITY STUDIES EFTA01090199 ROSE MWERAZA AND LOUIS J KOTZE economic activity is dependent on climate-sensitive resources (agro-industry, biomass and other renewable energy production). Brief overview of rural applications of efficiency and renewable energy10 Due to a lack of access to modern electricity, rural populations resort to burning large quantities of wood to satisfy their everyday energy needs. For example, much of the cooking in developing countries is done on wood- or coal-burning stoves. Use of wood requires women and children to spend much of their time and energy collecting firewood. Using either wood or coal for cooking in enclosed buildings exposes occupants, particularly women and children, to highly concentrated health-damaging emissions and contributes considerably to carbon dioxide and other pollutant emissions. Wood burning also causes other forms of severe harm to the environment, including rapid deforestation, followed by irreversible biodiversity loss. Alternatives to wood burning for cooking, for example, include: fuel-efficient stoves that reduce wood and coal consumption and polluting emissions; hybrid fuels that incor- porate biomass waste and reduce the harmful effects of coal burning; biogas units that yield gas from waste agricultural materials and improve sanita- tion while providing fuel for cooking and lighting; use of improved build- ing materials and passive solar construction that reduce heating needs; and micro-hydropower and other renewable energy generators that provide clean electricity to rural off-grid communities. Nigerian initiatives in climate change mitigation measures: efficient and renewable energy technologies Climate change mitigation measures National inventories to estimate the annual emissions of GHG have been undertaken in Nigeria for three years (1988, 1990 and 1994) and have been reviewed between 2001-2004," using frameworks provided by the Intergovernmental Panel on Climate Change (IPCC) and other agencies. An emissions profile by sector indicates that CO (carbon dioxide) emissions have been dominated by the energy sector (for which gas-flaring, electricity generation and transport sectors constitute the most significant sources), and MONOGRAPH 167 99 EFTA01090200 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Tab,* 3 Summary of national emissions in Nigeria between 1988 and 1994 Gross emissions M aw Year 1988 CO2 70 311 CH, 2723 N20 6,8 NOx 8965 NMVOC 1511,6 Energy 1990 99 514 567,7 5,8 264,3 887,4 1994 115 109 1463,0 7,5 499,3 1 864,4 Process Industries 1988 1 970 0,1 0,0 5,8 782 1990 2 171 9,6 0,5 134,6 1994 1 761 0,1 0,5 366,8 Solvent Use 1988 0 0,0 go 0,0 40,8 1990 1994 260 0,1 0,5 40 Agriculture 1988 0 506,7 0,0 0,0 0,0 1993 1711,0 12,6 134,9 1994 2344,2 4,1 148,0 LUG 1988 1040 159,2 1,0 18,1 4 011,8 1990 76040 18$ 0,1 4,6 1994 75 542 18,5 0,1 4,6 Waste Management 1988 0 201,2 40 4,0 11,9 1990 425,7 0,0 0,1 1994 1 761 0,1 0,5 458,7 ll Total 1988 73 300 1165,0 7,9 930,3 5698,0 1990 177 730 2733,0 18,6 404,4 1022.0 1994 192485 5930,7 12,0 658,3 2231,5 land•use change (with biomass harvests and forest conversion to managed lands as principal sources, while annual forest growth remains the principal sink or source of carbon removals). 100 INSTITUTE FOR SECURITY STUDIES EFTA01090201 ROSE MWEBAZA AND LOUIS J KOTZE Table 4 Sectoral and gross carbon dioxide-equivalent emissions for the years 1988 to 1994 CO, - Equivalent Emissions (Gg I r Sector Year CO, GWP=1 Clt, GWP=21 Isl, GWP=0270 Total I Energy 1988 70 311 5 719 1 847 77 877 1990 99514 11922 1 569 113 004 1994 115 108 30 723 2 030 147862 Process Industries 1988 1 970 1 0 1 971 1990 2 171 202 0 2373 1994 1 761 1 0 1 762 Solvent Use 1988 0 1990 1994 260 1 0 261 Agriculture 1988 0 10641 0 10 641 1990 0 35 931 3 402 39 333 1994 0 49 228 1 107 50 335 LUG 1988 1040 3 343 270 4653 1990 76040 389 35 76464 1994 75 542 389 35 75 966 Waste Management 1988 0 4 225 0 4225 1990 8940 35 8942 1994 1 761 1 0 11 762 Total 1988 73 300 24465 2 144 99 909 I 1990 177 730 57 393 5009 240132 I 1994 192485 124545 3 227 320 256 The actual results of the analysis of emissions inventories collected (Table 3 below) indicate that between 1988 and 1994 the gross annual emissions were in the range of 178 to 192 Tg-CO, 2,7 to 5,9 Tg-CH , 11,95 to 18,55 Gg N 0, 13,3 NIONOGRAPI1 167 101 EFTA01090202 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA to 17,0 Tg CO, 404,3 to 658,3 Gg NO and to 1,0 to 2,2 Tg NMVOC. Inventories by sector have, in addition, been undertaken in some industrial sub•sectors, including agriculture. Results illustrated in Tables 3 and 4, below, indicate that the energy sector still dominates the other sectors in its contribution to gross national emissions. It is recognised that currently available data have serious gaps and limitations. Initiatives in efficient and renewable energy technologies" Modern and efficient technologies have been used to develop and adopt devices for the utilisation of renewable energy resources by the following Research Centres of the Energy Commission of Nigeria: Centre for Energy Research and Development, Obafemi Awolowo University, Ile-ife, Osun State; Centre for Energy Research and Training, Ahmadu Bello University, Zaria, Kaduna State; National Centre for Energy Research and Development, University of Nigeria, Nsukka, Enugu State; and Sokoto Energy Research Centre, Usman Dan-Fodio University, Sokoto, Sokoto State. The centres at Ile-Ife and Zaria work on peace- ful applications of nuclear science and technology, while those at Nsukka and Sokoto work on solar energy and other renewable energy sources. Raw materials used for some of these devices comprise of more than 90 per cent local contents. Some of these appliances include ■ Solar crop dryers (such as the two-tonne capacity Rice Solar Dryer at Agbani, Enugu State and two-tonne capacity Forage solar dryer at the National Agricultural Production Research Institute, Ahmadu Bello University, Zaria, Kaduna State), which can be used to process agricultural products such as rice, maize, pepper, tomatoes, cocoa, tea and coffee ■ Solar water heaters, for providing hot water in hotels and hospitals for bathing and washing, such the 1 000-litre capacity solar water heater at the maternity ward of Usman Dan•Fodio University Teaching Hospital, Sokoto, Sokoto State ■ Solar PV water pumping for clean potable water, such as the 7,2 kWp solar PV plant at Kwalkwalama in Sokoto, the 2,85 kWp solar PV plant at the centre for mentallrill Destitutes at Itumbuzo in Abia State and the 5 kWp solar PV plant at Comprehensive Health Centre in Laje, Ondo State ■ Biogas plants for cooking gas and biofertiliser, such as the 20 m' biodigest- er at Ifelodun Cooperative Farm at Agege, Lagos State, the 10 m' biogas plant at Achara in Enugu State and the 30 m3 biogas plant at Zaria Prison 102 INSTITUTE FOR SECURITY STUDIES EFTA01090203 ROSE MWEBAZA AND LOUIS J Kant in Kaduna State; and the 5 kWp wind power plant at Sayya Gidan Gada in Sokoto State ■ The Energy Commission of Nigeria, the Power Holding Cooperation of Nigeria and MTN-Nigeria are collaborating with the World Bank on a biofuel for rural electrification project in Nigeria. The biofuel is to be sourced from the Jatropha plant or any economically viable energy crop on a long-term basis. Similarly, the Energy Commission of Nigeria signed another memorandum of understanding with Green Shield of Nigeria (a registered nongovernmental organisation (NGO) with diversified interest in alternative energy sources) to produce biodiesel as a renewable energy for domestic and commercial uses in Nigeria, using the Jatropha plant. OVERVIEW OF THE POLICY, LEGISLATIVE AND REGULATORY MEASURES AVAILABLE TO PROMOTE ENERGY EFFICIENCY AND RENEWABLE ENERGY IN NIGERIA Policy goals for efficiency and renewable energy decision-making What policy goals can guide rural applications of efficiency and renewable energy decision•making in developing countries?" While there is no single logarithm for determining universally applicable policy goals that can guide rural applications of efficiency and renewable energy decision•making, the policy goals need to con- sider the following: ■ Promote rural applications of efficiency and renewable energy in all its ramifications ■ Maintain fair, just and reasonable rates for rural electricity consumption ■ Ensure uninterrupted electricity to rural areas ■ Promote rural energy efficiency ■ Promote technological innovations and transfer of renewable energy tech- nologies to rural communities (and to the people who would directly benefit from their use) ■ Facilitate and encourage effective competition, education, training and public participation ■ Improve people's lives and livelihoods MONOGRAPH 167 103 EFTA01090204 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA ■ Meet goals of sustainable development, including obligations and norms as per multilateral environmental agreements such as those for GHG emission reductions National Electric Power Policy, 200114 The overwhelming objective of the Electric Power Policy Statement is to ensure that Nigeria has an electricity supply industry (ESI) that can meet the needs of its citizens in the 21" century. This will require a fundamental reform at all levels of the industry. A technically and commercially efficient ESI is critical for achieving Nigeria's growth and development goals. Nigerian Electricity Regulatory Commission1s A privatised electricity industry, with competition over monopoly transmission and distribution grids, requires an effective regulatory agency that is independ- ent both of government and of all the companies operating in the industry. This realisation saw the establishment of the Nigeria Electricity Regulatory Commission. The objective of the electricity policy is ultimately to establish a long-term electricity market structure in Nigeria in which multiple operators provide services on a competitive basis to the broadest range of customers. Under such a regime, competitive market forces would be the best determinant of the appropriate and sustainable levels of prices charged by various carriers for their services. The Nigerian electricity fuel mix will, of course, continue to use and expand the use of hydrogeneration and will continue to use some liquid fuels. Nevertheless, natural gas (and the use of currently flared associated gas) repre- sents the major likely fuel for the future expansion of generation. In addition, gas powered electricity generation is the most obvious growth market for the com- mercial development of gas markets and will be explored by the Independent Power Projects (IPPs). National Energy Policy, 200318 The overall energy policy objectives may be summarised as follows: 104 INSTITUTE FOR SECURITY STUDIES EFTA01090205 ROSE MWEBAZA AND LOUIS J KOTZE ■ To ensure the development of the nation's energy resources, with diversi- fied energy resource options, for the achievement of national energy secu- rity and an energy delivery system with an optimal energy resource mix ■ To guarantee increased contribution of the energy sector to national income and to productive activities ■ To guarantee adequate, sustainable and reliable supply of energy at appropri- ate costs and in an environmentally friendly manner to the various sectors of the economy for national development The energy policy further recognises the fact that a substantial per centage of Nigeria's urban poor and rural populace depend on fuel wood for cooking and other domestic uses. The rate of consumption of fuel wood far exceeds the re- plenishing rate, to such an extent that desert encroachment is now a serious problem in the country. Also associated with this is soil erosion and loss of soil fertility. Hence the policy states, among others, that: the nation shall promote the use of alternative energy sources to fuel wood; the use of wood as a fuel shall be de-emphasised in the nation's energy mix; and alternative energy sources to fuel wood must be explored. Nigeria policy goals: renewable and efficient energy/rural electrification In Nigeria, there is no national policy specifically dedicated to energy efficiency and renewable energy or its applications to rural areas. There are, however, other policy instruments on the environment and energy that may be relevant to sup- porting such applications. The Nigerian National Policy on the Environment provides that the goal of the policy is to achieve sustainable development in Nigeria, and in particular to: secure environmental quality adequate for good health and wellbeing; and to conserve and use the environment and natural resources for the benefit of present and future generations. Strategies to achieve this objective include: ■ Implementing a detailed environmental impact assessment (EIA) strategy on all planned energy projects backed by detailed baseline ecological data against which subsequent environmental changes and/or impacts can be measured MONOGRAPH 167 105 EFTA01090206 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA ■ Developing a rational National Energy Utilisation Master-Plan that balances the need for conservation with the utilisation of premium energy resources for premium socioeconomic needs ■ Encouraging the use of energy forms that are environmentally safe and sus- tainable, particularly solar energy ■ Promoting and encouraging research into the development and use of various locally available energy sources, especially non-conventional re- sources such as geothermal, solar, wind and other complex forms of hydro- carbons other than oil and coal On rural electrification, the primary policy objective is to expand access as rapidly as can be afforded in a cost-effective manner." The rural electrification policy includes a full menu of options, namely, grid and off-grid, mini-grid, non thermal and renewables, while ensuring close coordination of rural electrifica- tion expansion with economic development objectives, and encouraging states, local communities as well as the private sector, to develop and contribute finan- cially to rural electrification. Legislative and regulatory framework for rural applications of energy efficiency and renewable energy What legislative measures can best advance rural applications of energy ef- ficiency and renewable energy in developing countries?" The legislative and regulatory provisions for promotion and regulation of energy efficiency and renewable energy for Nigeria are addressed below. The 1999 Constitution of Nigeria" provides the legal basis for off-grid elec- trification in the form of renewable energy in rural areas falling within each state of the federation by empowering the House of Assembly of each state to establish electric power stations within their respective jurisdictions, and to generate and transmit and distribute electricity to areas not covered by the na- tional grid system within that state amongst others "The Nigerian Electricity Act" of 1988 is stated to be: lAin Act to provide for the regulation and control of electricity installations, and of the generation, supply and use of electricity energy:22 Every undertaking in the development of the sub-sector must comply with this act. Section 2 provides as follows: 106 INSTITUTE FOR SECURITY STUDIES EFTA01090207 ROSE MWEBAZA AND LOUIS J KOTZE This Act and the regulation made there under shall apply in respect of any undertaking for the manufacturing, distribution or supply of electricity established by the Government of a State or any of its agencies to the same extent as the Act and regulations apply in respect of any such undertaking established by any other person or authority. The Electric Power Sector Reform Act, 2005 (EPSRA) aims at deregulating the power sector, and developing the capacity to transmit and distribute the envisaged higher level of generation. This required a complete unbundling of the National Electric Power Authority into 18 other independent bodies. The federal government had hoped to generate 10 000 MW by December 2007, a figure that many people thought was too low for a population of 140 million. This conservative figure was not achieved. With respect to hydroelectric power, the Water Resources Act governs water resources development in Nigeria." This Act establishes the legal frame- work for the development of water resources. It places ultimate responsibility for the proper development of the nation's water resources on the Ministry of Water Resources and Rural Development. The Act vests rights to the use and control of water resources in the state." This does not preclude the rights of individuals to take and use water for domestic," or industrial purposes, in- cluding the generation of hydropower." Nevertheless, a license is required for any person to operate any hydraulic work on the waterways or underground." The mode of application is spelled out under section 10 of the act, which re- quires an application for the grant of a license to carry out hydraulic works to be made to the secretary in such form and manner and containing or be accompanied by such information and document as the secretary may from time to time prescribe.' Biofuels in the form of wood, charcoal, and biomass constitute at least 70 per cent of the energy consumed in Nigeria. The demand for wood fuels, for example, is expected to rise by about 350 per cent by 2030 and beyond, while urban consumption is expected to grow by 250 per cent within the same period." The requirements for an environmental impact assessment in respect of any project embarked upon by any private or public authority with likely environmental impact under the Environmental Impact Assessment Act No. 86 1992 all combine to reduce the trend towards massive deforesta- tion in Nigeria.f° MONOGRAPH 167 107 EFTA01090208 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Other renewable energy resources that could, in principle, meet almost all of Nigeria's energy needs, such as solar power, wind power, geothermal energy and wave power, are not given any specific regulatory prominence. Nevertheless, the Energy Commission of Nigeria Act No. 109, Laws of the Federation of Nigeria (LFN) 2004, established the Energy Commission of Nigeria and charged it with responsibility for coordinating and ensuring general surveillance over system- atic development of the various energy resources of Nigeria, including new and renewable energy sources.3' The Jigawa Alternative Energy Trust Fund, in co- operation with the United States Department of Energy, is constructing a solar electric project in Jigawa State. The project is a result of a US$600 000 solar rural electrification and water-pumping project for three villages in Jigawa State." The National Environmental Standards and Regulations Enforcement Agency (Establishment) Act, 2007 Act No. 25, provides, under section 2, that the agency established in terms of this law, shall, subject to the provisions of the act, have responsibility for the protection and development of the environment, biodiversity conservation and sustainable development of Nigeria's natural resources in general, and shall have control over environmental technology, in- cluding coordination and liaison with relevant stakeholders within and outside Nigeria on matters of enforcement of environmental standards, regulations, rules, laws, policies and guidelines. Although existing laws in Nigeria are skewed towards fossil fuels and sec- ondarily hydropower, there is recognition that an appropriate legal framework is a prerequisite for maximising investment opportunities in the renewable energy sector. CHALLENGES AND STRATEGIES RELATING TO CLIMATE CHANGE MITIGATION, USE AND REGULATION OF RENEWABLE AND EFFICIENT ENERGY IN NIGERIA Challenges and barriers to climate change mitigation in Nigeria Substantial data gaps exist in the national database for both the emissions inventories and mitigation analyses considered above." For instance, gaps in the database were observed in all other emissions-relevant sectors, such as the upstream energy sector, industries, agriculture, land-use change and wastes 108 INSTITUTE FOR SECURITY STUDIES EFTA01090209 ROSE NEWEBAZA AND LOUIS J KOTZE management. The back-up statistics, which could have made the estimation of petroleum products consumption in the downstream sectors possible, are also currently weak. There are, for example, no statistics on the total number of ve- hicles in Nigeria from year to year. The data published annually only includes the annual new vehicle registrations. A number of barriers to implementing and/or improving future national mitigation analysis identified in both the energy and forestry sectors include: low literacy level; lack of/low level of awareness of the mitigation technologies and their potential benefits; inefficient energy use; inappropriate energy pricing; financial constraints; low income-level; technological incapability; and pres- sures from population growth. Challenges and barriers to renewable and alternative electricity sources in Nigeria Renewable electricity In accordance with the provision of the EPSRA Act 2005, it is expected that targets on access to electricity will be met through grid-based extension, independent mini- grids for remote areas with concentrated loads where grid service is not economi- cal or will take many years to be established, and stand-alone renewable electricity systems for remote areas with scattered small loads. The interest here is on renewable energy which is defined to include energy from solar, wind, biomass cogeneration and gasification, less intrusive hydro, geothermal and hydrogen sources!' The current total contribution of renewable energy to the energy mix is ap- proximately 35 MW composed of 30 MW small hydropower and 5 MW solar PV's A number of barriers were identified as militating against the development of the renewable electricity industry. These include: ■ Policy and regulatory issues, including guarantees of access to the grid for renewable energy ■ Financial and investment barriers, since renewable energy has high initial costs and Nigeria lacks manufacturing capacity for components of renewable energy. The average electricity tariff in Nigeria is about 6,75 per KW-h (about 5 US cents). The average cost of sources of renewable electricity for mini hydro is 5-10 cents, solar PV is 20-40 cents, biomass power 5-12 cents, and wind power 6-10 cents. Thus, financial incentives for market entry are currently lacking. Incidentally, MONOGRAPH 167 109 EFTA01090210 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA these relatively higher cost initiatives may be needed to satisfy the electricity needs of the poor who cannot afford high tariffs and are not represented in gov- ernment to influence favourable policies for renewable sources of energy ■ Technological barriers of full import-dependent renewable facilities ■ Low public awareness and poor standards and quality control from the regulatory agencies ■ Inadequate assessment of resources ■ Intermittency of resource availability Alternative sources of electricity Even if the country were enabled to generate sufficient electricity for its popula- tion from the thermal, hydro and gas sources, there would still be the need to explore other available options. This is the practice worldwide. Countries the world over are, for example, considering electric power sources that may not only be cheaper, but are also sustainable and environmentally friendly. Coal, solar energy and nuclear energy are for the above reason currently being pro- moted as alternative sources of electricity. CONCLUSION It is evident from the above that the use of renewable energy can lead to the development of rural industries with attendant job opportunities and thus contribute to poverty alleviation. The proper management of renewable energy resources in the rural areas can play an important role in environmental protection:1° As Nigeria's economy improves, its per capita GHG emissions may ap- proach those of developed nations. This combined with continued gas flaring and a large population, will further worsen Nigeria's standing as a key emitter of GHGs globally, with all the attendant consequences on all sectors of the economy, particularly the energy and industrial sectors, as well as the rural populace and urban poor. Although the reforms in the electricity industry are commendable consider- ing the enactment of a new sector law in 2005, the establishment of the regula- tory agency, rule-making and fair management of the sector by the agency, the crisis in the energy sector today justifies the need for the sector to be disciplined by accountability and transparency mechanisms in the management of energy IIO INSTITUTE FOR SECURITY STUDIES EFTA01090211 ROSE MWEBAZA AND LOUIS J KOTZE resources and budgetary allocations for effective separation, transmission and distribution of electricity nationwide. Also, the legislative and regulatory framework for rural applications of ef- ficiency and renewable energy is a combination of policy instruments seeking to set clear goals, legislative requirements and subsidiary instruments that provide legal bases for policy perspectives, as well as institutional mechanisms for policy implementation. An example of the regulatory requirements needed to promote renewable energy may be found in the treatment of small hydro projects. Hydropower for rural electrification can help minimise local, regional and global environ- mental impacts in the long run, while ensuring people's livelihoods. These benefits, not just those pertaining to hydropower, but to all renewable energy resources, can hardly be realised without a coherent and adequate legislative and regulatory framework that sets out the policy and laws, as well as insti- tutional mechanisms for concretising the gains that will flow from rural ap- plications of renewable energy. Furthermore, the sustainability of a national GHG emissions inventory and climate change mitigation measures require, inter alia, the following: ■ The determination of future emissions with the view to establishing the extent of mitigation measures needed to lower emissions without compro- mising sustainable development ■ Provision of local financial resource commitments and budgets for GHG in- ventories and mitigation options assessment by the government to support the activities of institutions working in this field ■ The identification of relevant projects and activities needed in the short to medium-term to improve current national data on emissions inventories and mitigation analysis in Nigeria ■ The use of as many adaptation strategies as possible to mitigate the adverse effects of climate change on, particularly, the energy, industrial and agricul- tural sectors of the Nigerian economy, as well as on the rural populace and urban poor ■ Provision of a creative range or mix of policy instruments to deal effectively with the issues involved in adapting to climate change in Nigeria MONOGRAPH 167 111 EFTA01090212 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA NOTES 1 See A S Sambo et al, Nigeria's experience on the application of IAEA's energy models (MAED and WASP) for national energy planning: A paper presented during the Training Meeting/ Workshop on Exchange of Experience in Using IAEA's Energy Models and Assessment of Further Training Needs, held at the Korea Atomic Energy Research Institute, Daejon. Republic of Korea. 2006, 9. 2 According to President Umaru Musa Yar'adua: Over 30 million out of 140 million Nigerians from variousstates of the federation are threatened by climatechange which leads to increased degradation of the ecosystem. desert encroachment and deepening poverty of the populace. Quoted from Leadership Newspaper. Abuja, Wednesday, 26 March 2008.28. 3 Epileptic electric power supply is crippling Nigerian small-, medium- and large-scale enter- prises in the industrial sector of the economy: Northern Nigerian State Legislative Speakers warned. Quoted in Business Day Newspaper, Abuja, Nigeria, Wednesday, 20 February 2008, 1. 4 See The energy crisis in Nigeria. in News Watch Magazine. 3 March 2008, 1-29. 5 See I H Umar, Keynote address delivered at a one-day workshop on Nigerian urban poor: energy needs and sustainable livelihoods. Lagos, 23 June 2004. 1-13. 6 Ibid. 10. table 5. 7 See A S Sambo et al, Nigeria's experience on the application of IAEA's energy models for na- tional energy planning. 1-32. 8 Ibid. 7. table I. 9 See generally, The Nigeria Environmental Study/Action Team (NEST), Ibadan. Nigeria, and Global Change Strategies International (Gal), Project on Nigeria: climate change. Executive summary, Canada: March 2004, 1-17. 10 See I L Worika. Comparative law evaluations of sustainable energy: the African perspective: a paper delivered at a Colloquium in Shangai on 'The Law of Energy for sustainable develop- ment', November 2003. 11 See generally. NEST, supra note 9. and Review of GHG emissions inventories mitigation as- sessments and the framework for the implementation of a national emissions data system in Nigeria (Synthesis report), 2001-2004, 1-10. 12 See Energy Commission of Nigeria, Brochure on major achievements, 2007. 1-7. 13 See generally, United Nations Environment Programme. Nairobi, Kenya, UNEP Handbook for drafting laws on energy efficiency and renewable energy resources, 2007, 25-105. 14 See section 7. Policies of the Federal Republic of Nigeria. 1999-2007, 207-253. 112 INSTITUTE FOR SECURITY STUDIES EFTA01090213 ROSE MWEBAZA AND LOUIS J KOTZE 15 Ibid. 221-2. 16 See National Energy Policy of Nigeria. 2003, in Policies of the Federal Republic of Nigeria, 1999-2007, section 8, 257-351. 17 On Rural Electrification Policy. see chapter 7 of the National Electric Power Policy 2001.supra note 14, 240-241. 18 See UNEP Handbook, supra note 13. 2007. 106-237. 19 Cap. C.23 Vol.3. Laws of the Federation of Nigeria. 2004. 20 Ibid. section 14 to part II of the Second Schedule to the Constitution. 21 Cap.E7 Vol.5, Laws of the Federation of Nigeria, 2004. 22 Ibid. see the preamble to the Act. 23 Water Resources Act Cap. W2. Vol.15, Laws of the Federation of Nigeria, 2004. 24 Section 1(1) of the Water Resources Act provides: 'The right to the use and control of all surface and groundwater and of all water in any water course affecting more than one state as described in the schedule to this Decree together with the bed and banks thereof, are by virtue of the Decree and without further assurance vested in the Government of the federation. 25 See section 2 of the Water Resources Act. 26 Section 3 of the Act states as follows: 'Any person or any public authority may acquire a right to use or take water from any water-course or any ground water described in the schedule to this Decree for any purpose in accordance with the provisions of the Decree and any regula- tion made pursuant thereto: 27 Ibid. section 9(I). 28 The secretary referred to here is the secretary charged with the responsibility for matters relat- ing to water resources. The federal government. with the Japanese government's technical as- sistance through the Japanese International Co-operation Agency (JICA), prepared a National Water Resources Master Plan, http://www.fao.orgfagiagliaglw/aquastaticountriesiNigerie index.stm (accessed II September 2008). 29 See M Adesanya Olugbenga, Elysian energy for a sustainable Nigeria. URL•http://www. worldenergy.org/wec-geistpublicationsidefaultitech_papers/17thcongress/2_3_03.asp (ac- cessed 20 September 2008). Regulations to stem the tide of dwindling forest resources in size and volume can be traced to the bask norm, 1999 Constitution of Nigeria. which provides in section 20 that: 'it is an obligation of the state to protect and improve the environment and safeguard the water, air and land, forest and wild life of Nigeria'. Under article 24 of the African Charter on Human and Peoples' Rights (Ratification and Enforcement) Act, Cap. 10 L.F.N. 1990. 'All people shall have the right to a general satisfactory environment favourable MONOGRAPH 167 113 EFTA01090214 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA to their development: http://www.nigerialaw.org/African%20Charter%20on%20Human%20 and%20Peoples'%20Rights.html 30 For Nigeria's El A Act No. 86 of 1992, see http://www.elaw.orgiresourcesitextasp?id=2690 31 See section 1(2) of Cap. 109 L.F.N. 1990. See generally http://vrww.nigeria.law.org/LFN-1990.html 32 See ligawa State. Nigeria, Extending opportunities to the edge of the desert. httpilwww.self. orgtnigeria.asp 33 See NEST, supra note II. 34 Defined by the Nigerian Energy Master Plan as small (below 30 mw), mini (below IMW), micro (below 100kw) and peco (below 1 kw). 35 See Federal Ministry of Power and SteelRenewableElectricityPolicy Guideline. December 2006. 36 See M T Ladan, Biodiversity, human rights and access to environmental justice in Nigeria, Zaria: Faith Publishers Ltd, 2007, 15-20. BIBLIOGRAPHY Books, journals, reports, magazines, newspapers Adesanya, Olugbenga M. Elysian energy for a sustainable Nigeria. URL:httpdfwww.worldenergy. org/wec-geis/publicationsidefaullftech_papers/17th_congress/2_3_03.asp Ladan, M T. Biodiversity. human rights and access to environmental justice in Nigeria. Zaria: Faith Publishers Ltd, 2007, 15-20. Leadership Newspaper, Abuja, Wednesday 26 March 2008, 28. News Watch Magazine, Lagos, Nigeria, 3 March 2008, 1-29. Nigeria and Global Change Strategies International (GCSI), Canada, Project on Nigeria: Climate Change. Executive Summary, March 2004,1-17. Renewable Electricity Policy Guideline. December 2006. Review of GHG Emissions Inventories Mitigation Assessments and the Framework for the imple- mentation of a National Emissions Data System in Nigeria (Synthesis Report). 2001-2004.1-10. United Nations Environment Programme, Handbook for Drafting Laws on Energy Efficiency and Renewable Energy Resources, Nairobi: UNEP, 2007, 25-105 Internet sites http://www.elaw.org/resourcesitext.asp?id=2690 http://www.fao.orgtag/agliaglw/aquastaticountriesiNigeria/index.stm. 114 INSTITUTE FOR SECURITY STUDIES EFTA01090215 ROSE MWEBAZA AND LOUIS J KOTZE http://www.nigeria-law.orgafrican%20Charter%20on%20Human%20and%20Peoples'%2ORighis. html. http://www.nigeria-law.orgiLFN-1990.html. http://www.seltorginigeria.asp. http://www.worldenergy.org/wec-geisfpublications/defaultitech_papers/17th_congress/2_3_03.asp. Table of statutes and policies Constitution of Nigeria. 1999, Cap. C.23 Vol.3, Laws of the Federation of Nigeria, 2004. Electric Power Sector Reform Act (EPSRA) 2005 Act. Energy Commission of Nigeria Act No.109. Laws of the Federation of Nigeria (LFN). 2004. Environmental Impact Assessment Act No. 86 1992. Cap. E 12 Vol. 6, Laws of the Federation of Nigeria, 2004. National Environmental Standards and Regulations Enforcement Agency (Establishment) Act. 2007 Act No. 25. Nigerian Electricity Act of 1988, Cap.E7 Vol.S. Laws of the Federation of Nigeria. 2004. Water Resources Act Cap. W2. Vol.15, Laws of the Federation of Nigeria• 2004. National policies National Electric Power Policy, 2001. National Energy Policy, 2003. Renewable Electricity Policy Guideline. December 2006. Table of international instruments African Charter on Human and Peoples' Rights. 1981. MONOGRAPH 167 115 EFTA01090216 EFTA01090217 Biofuels in Tanzania: legal challenges and recommendations for change ELIAMANI LALTAIKA ABSTRACT Inspired by change of policy in favour of 'alternative fuels' in industrialised countries, the bioenergy industry has attracted considerable attention among government leaders, entrepreneurs, and local and foreign investors in many developing countries. This chapter provides a historical account of the rise of biofuels and their current status in Tanzania. Surveying evidence of climate change, rising prices of fossil fuels and the ever-increasing demand for energy, the chapter underscores the importance of investing in alternative fuels in Tanzania. It proceeds to discuss the effects of agrofuels on biodiversity con- servation, food security and land tenure. The author opines that precautionary measures should be adopted (and implemented) to ensure that this propelling industry does not cause more harm than good to the environment. INTRODUCTION The past few years have seen increased attempts by governments to diver- sify their energy sources for industrial, transport and domestic use. The main MONOGRAPH 167 117 EFTA01090218 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA driving force is the realisation that the use of fossil fuels is a leading cause of human-induced climate change'. Other factors include the need for energy security, increased demand for energy due to improved life standards, espe- cially in emerging economies such as China, and ever-increasing prices of fossil fuels.' Governments worldwide are devising policies aimed at exploring and commercialising alternative and renewable sources of energy, notably also in- cluding biofuels.3 The term biofuels refers to the liquid, solid or gas fuel derived from biomass either from recently living organisms or from their metabolic waste.' Common examples of biofuels are ethanol, methanol and biodiese1.3 Ethanol alcohol can be obtained through the fermentation of sugar crops such as sugarcane, sugar beet, and sweet sorghum, or of starchy crops such as corn and cassava' Methanol can be obtained from wood or woody crops by means of a wood gasification process followed by compression and methanol synthe- sis.' Biodiesel fuel, on the other hand, can be obtained from oil crops, such as soy-bean, rapeseed, sunflowers, and palms, by extracting the oil with suitable solvents or through mechanical pressing and then converting the oil into diesel fuel by a transesterification process.° Biofuels, therefore, is a general term used to describe all the above forms of fuels and the plants from which they are obtained? Based on their socio- economic impact, biofuels have been classified into two types: first generation biofuels made from food crop feedstock, and second generation biofuels made from non-food feedstock and agriculture and forestry waste, such as woodchips and straw.10 Research into, production of and markets for biofuels have grown tremendously in the past ten years following industrialised countries' express interest in this type of renewable energy. The US, for example, has indicated that it will support the use of biofuels as one of the principal ways of combat- ing climate change." The EU, likewise, has aimed to replace ten per cent of motor transportation fuel with renewable energy such as biofuel by 2020." As a result of this 'biofuels wind' blowing from the North to the South, develop- ing countries have been inspired to embark on large-scale, commercial biofuels production.'3 Through biofuels production and commercialisation, develop- ing countries expect to see tangible benefits including, among other: creation of employment and diversification of the rural economy, creation of a market for agricultural energy crops, and saving of foreign exchange equal to the value of imports substituted." Although these benefits are welcomed by both developing and developed countries as they are in line with the Millennium 118 INSTITUTE FOR SECURITY STUDIES EFTA01090219 ROSE MWEBAZA AND LOUIS J KOTZE Development Goals" and the Kyoto Protocol," the biofuels industry still poses a myriad of legal, policy and institutional challenges to developing countries. Using Tanzania as a case study, this chapter analyses some of these challenges including, food security, environmental conservation and land tenure security. The chapter is divided into three parts which, respectively: describe the study area and the current status of biofuels in the country; analyse social and envi- ronmental impacts of biofuels; and propose legal and policy recommendations aimed at striking the appropriate balance in this respect. TANZANIA: ECONOMIC GEOGRAPHY, CLIMATE CHANGE AND THE BIOFUELS INDUSTRY Economic geography Tanzania is a sovereign republic situated on the East Coast of Africa. It is bordered by Kenya and Uganda to the north; Rwanda, Burundi and the Democratic Republic of the Congo (DRC) to the west; and Zambia, Malawi and Mozambique to the south. To the east, it borders the Indian Ocean. The country occupies 945 000 km' with a total population of 37 million." Tanzania is a union between Zanzibar (comprising the Islands of Ungula and Pemba) and mainland Tanzania formerly known as Tanganyika?' This chapter focuses on Tanzania mainland. Economically, Tanzania is a poor country with a gross na- tional income (GNI) per capital of only US$280.'1 More than 75 per cent of the population lives in rural areas and agriculture is the mainstay of the economy, providing employment to 80 per cent of the workforce. It also accounts for nearly one-half of gross domestic product (GDP), and provides 85 per cent of exports.30 Climate change Global climate change is no longer a myth. In Tanzania, effects of climate change are so evident that even the staunchest of 'climate deniers' may find it difficult to maintain their denial. The shrinking snow of Mount Kilimanjaro is echoed by many scientific authorities as a major sign of climate change in the country?' As a result of such change, it has been predicted that temperatures will rise by 2-4 degrees Celsius by 2100.12 Rainfall will decrease by 0-20 per cent in MONOGRAPFI 167 119 EFTA01090220 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA the interior part of the country. Moreover, climate change will lead to sea level rise of 0,10-0,90 meters and this will aggravate flooding in the coastal areas." Agriculture, transport and tourism sectors will also be affected and this will in- tensify poverty." It is predicted that Tanzania may lose up to ten per cent of its grain production. Maize, which is the staple food of Tanzanians, will especially be affected. The Tabora•Dodoma region, which is one of the leading maize pro- duction zones, will lose up to 80 per cent of its yield by 2075.25 The flow of many rivers will be reduced and this will affect irrigation, hydroelectric power produc- tion and the economy in general.36 As part of its reporting obligation under the United Nations Framework Convention on Climate Change (UNFCCC), and a strategy to address climate change locally, the government of Tanzania has un- dertaken an in-depth analysis of the impact of climate change on agriculture, health, and water. The analysis is also intended to serve as a technological needs assessment for adaptation and poverty reduction." It is against this background that Tanzania seeks to promote biofuels for, among other benefits, creation of employment and contribution to a cleaner environment through reduction of greenhouse gases (GHGs) and other vehicular emissions." The biofuels industry Tanzania's interest in biofuels has been received with mixed feelings. Some commentators have characterised the biofuels industry as a `mixed blessing'." More critical analysts have likened biofuels production to colonialism.'° The government of Tanzania, on the other hand, has maintained that biofuels offer the country an opportunity to diversify its rural economy and reduce the amount of foreign currency used to import fuels." In 2006, the government established the National Biofuels Taskforce" (NBT) charged with, among other tasks, designing biofuels policies and regulations suitable for Tanzanian conditions." Through the Tanzania Investment Centre (TIC) the government has also ensured an attractive environment for investors in the biofuels sector. This includes exemption from value added tax (VAT) and exemption from import duties for all investors." A German Technical Cooperation (GTZ)- commissioned study identifies 80 per cent of Tanzania's arable land as suitable for bioenergy crop cultivation." Foreign companies already existent in Tanzania to invest in the biofuels sector include PROKON Renewable Energy Solutions and Systems Ltd of Germany, Mitsubishi Corporation of Japan, J&J Group (Pty) 120 INSTITUTE FOR SECURITY STUDIES EFTA01090221 ROSE MWERAZA AND LOUIS J KOTZE Ltd Pretoria, South Africa, and Sun Biofuels of the United Kingdom (UK)." In spite of the absence of a national biofuels policy and any other specific legisla- tion for renewable energy, these companies have acquired land and some have already started with their investment activities. Sun Biofuels, for example, has acquired 8 200 ha from Mtamba Village in Kisarawe, displacing approximately 11 000 people 37 As a consequence, the lack of legal and regulatory mechanisms has led to strong criticism, and even mistrust, of biofuels investors in the country." Nongovernmental organisations (NGOs), human rights activists and other concerned individuals have repeatedly urged the government to consider the adverse effects of biofuels on food security, environmental protection and land security." It is against this background that the two sections below explore these challenges and recommend appropriate legal and policy measures to ameliorate the current situation. EFFECTS OF BIOFUELS Food security Food security exists when all people, at all times, have access to sufficient, safe and nutritious food to meet their dietary needs and food preferences for an active and healthy life'." According to this definition, the two most important factors for food security are accessibility and availability." Food insecurity, therefore, is a result of a lack of either food accessibility, or unavailability, or both. The right to food (which encompasses both availability and accessibility) is recognised as a fundamental human right in international law." The Universal Declaration of Human Rights (UDHR)" and the International Covenant on Economic, Social and Cultural Rights", among other international law instruments, provide for the right to adequate food." According to the African Commission on Human and Peoples Rights (African Commission), state parties must protect access to food from interference by powerful third parties." Some countries have en- trenched the right to food in their constitutions? whereas in others it is inter- preted by the courts as a part of the right to life." The causes of food insecurity can be socioeconomic", ecological50 or political." Although food insecurity predates the advent of biofuels,53 the latter have contributed their fair share in worsening the situation." First generation bio- fuels compete with food directly, whereas second generation biofuels compete MONOGRAPH 167 121 EFTA01090222 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA with it for land, water and other inputs, increasing food prices." The results of legal and scientific enquiries into the matter suggest that there is uncertainty as to whether biofuels and food security can coexist's This was the main theme of the High Level Conference on World Food Security organised by the Food and Agriculture Organization (FAO) of the United Nations (UN) in June 2008.56 Unlike other parts of the world, the direct link between biofuels production and food insecurity is rather difficult to establish in Tanzania. This is so because food insecurity is rather rampant and can reasonably be described as a chronic problem, although there have been improvements in recent years." Generally, many researchers" agree that converting arable land into biofuel farms can be a leading source of food insecurity." Farmers can also be enticed, by the high prices of bioenergy crops, to abandon their traditional crops, consequently re- ducing food production.60 The land question The advent of biofuels and the subsequent 'scramble for land' among multina- tional companies interested in growing biofuels in developing countries, have been perceived as a threat to land tenure security among rural poor." According to the United Nations Permanent Forum on Indigenous Affairs (UNPFIA), 60 million indigenous people may be displaced by biofuels.62 In Tanzania, approxi- mately 11 000 peasants currently face eviction in order to pave the way for a British company, Sun Biofuels, to grow latrophe in an 8 200-ha area of land." Pastoralists and hunter-gatherers, such as the Maasai and Hadzabe in northern Tanzania, are equally in danger. The mere fact that pastoralists' traditional land has not been titled or experienced any permanent construction activity, leads some unscrupulous people, including government leaders, to assume that such areas are 'no-man's land' and could be taken by anybody. Ringo Tenga, a land rights researcher with the University of Dar es Salaam, recounts one incident of land grabbing in the pastoralist district of Monduli in Arusha region, in which prominent businessmen, military leaders and government officials used dubious title deeds to grant themselves thousands of acres of land belonging to pastoralists." The government is also at the forefront of moves to evict pastoralists from their ancestral lands for a myriad of 'projects', ranging from wheat farms to the establishment of national parks. Ironically, the same government which 122 INSTITUTE FOR SECURITY STUDIES EFTA01090223 ROSE ?AWE BAZA AND LOUIS J KOTZE allocates village lands to biofuels investors has insistently announced that more than 80 per cent of the total arable land in the country is unoccupied and forms a part of the 'land bank' ready to be allocated to investors. Such a position then begs the question: why evict local communities if such 'idle land' is available?" Due to a lack of deliberate efforts to protect vulnerable groups, it is widely be. lieved that biofuels will cause more harm than good to local communities unless a clear policy instrument is adopted to protect them. Such a policy should also protect the environment from which these communities eke their living. This chapter now turns to effects of biofuels on the environment. Biofuels and environmental degradation As a result of the biofuels boom, forest clearing has taken place at an unprecedented rate around the world.° This practice goes against the UNFCC's Conference of the Parties (COP) decision to Reduce Emission from Deforestation in Developing Countries (REDD) in particular, and the Clean Development Mechanism (CDM) system in general, which is considered by many to benefit developing countries like Tanzania and local communi- ties which have been custodians of forests for millennia 68 To minimise this problem, it is important that the CDM and REDD programme be imple- mented to bring about tangible benefit. At the moment, the African continent benefits the least from the CDM project.° Forest clearance also contributes to the loss of biodiversity" in general and agrobiodiversity in particular." Large-scale biofuels cultivation reduces both the diversity of biota and man- agement diversity, and may also aggravate food insecurity." The government of Tanzania, therefore, should protect agrobiodiversity, not only because it is part and parcel of biodiversity in general, but also due to the fact that more than 80 per cent of its farming community practices traditional agriculture and depends on the foregoing for food security." Another aspect of environmental degradation that comes to the fore as a result of the agrofuels industry is the uncontrolled introduction of invasive species. An invasive species (also known as exotic or non-native species) is 'an alien species which become established in natural or semi-natural ecosystems or habitat as an agent of change and threatens native biological diversity." These species are intentionally or unintentionally introduced to new areas and they have had widespread ecological and economic effects in MONOGRAPH 167 123 EFTA01090224 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA different parts of the world." Introduced plants, among other types of exotic species, displace and threaten native species and alter fire regimes, nutrient cycling, energy budgets and hydrology!' Tanzania is party to, among other international legal instruments for the control of alien invasive species, the Convention on Biological Diversity, 1992 (CBD)." The country therefore also has various obligations as regards the control of alien invasive species within the context of the biofuels industry. How can these challenges be dealt with without compromising human rights and environmental conservation? This chapter seeks to answer this question in the following section. LEGAL AND POLICY RECOMMENDATIONS The Tanzanian energy sector is in crisis!' Lack of deliberate efforts to address the root cause of the crisis led to the resignation, in February 2008, of the then Prime Minister Edward Ngoyai Lowassa and two cabinet ministers, Ibrahim Msabaha and Nazir Karamagi, after they were implicated in an energy deal scandal." According to a Parliamentary Select Committee (PSC) appointed by the Speaker of the National Assembly, Lowassa had abused his offices to award a contract to a US-based company, Richmond Development Holding, to produce electricity in the country during the 2006 energy crisis. The company was supposed to start producing electricity by using genera- tors in December 2005. However, no generators were bought until the end of 2006, while Richmond was receiving US$100 000 per day in terms of the government contract.6' Although Lowassa's resignation is unquestionably a commendable act of political responsibility, it has done nothing to help the energy sector. To save it from total collapse and to prevent the consequential implications for the national economy, major legal, policy and institutional reforms are needed." There is also a need to diversify sources of energy in general and to promote new and renewable energy in particular. Currently, out of a total of 37 million Tanzanians, 90 per cent depend on biomass (charcoal and wood fuel), 7,5 per cent on oil and gas, and 1-1,5 per cent on coal, solar power and wind." One way of diversifying such energy sources is to invest in the production of biofuels. As already indicated above, there are various socioeconomic and ecological chal- lenges related to growing bioenergy crops. 124 INSTITUTE FOR SECURITY STUDIES EFTA01090225 ROSE MWEBAZA AND LOUIS J KOTZE In view of the foregoing, the following section recommends legal, institu- tional and policy measures to address some of these tensions and challenges. The investigation commences with a review of existing structures, suggesting that they can be used as a stepping stone for these much-needed reforms. Law on biofuels: The Rural Energy Act No 8 of 2005 as a model law Tanzania has no law on biofuels. Enacting a new law is often also a drawn-out and bureaucratic process. In order to save resources and take advantage of the prevailing world struggle for alternative energy, it is recommended that the Rural Energy Act" be amended to cater for the biofuels industry. Save for provi- sions related to biofuels, food security, land acquisition and other challenges il- lustrated above, the relevance of this law to biofuels cannot be overemphasised. It introduces many aspects that could promote a viable biofuels industry in the country. The following are a few of the elements it introduces. Modern energy supply, economic growth and sustainable development in rural areas The Act acknowledges that modern energy supply" 'promotes growth in eco- nomic production and productivity as well as social welfare'.'' It is acknowl- edged that none of the eight Millennium Development Goals (MDGs) can be achieved without an efficient energy supply.8' To achieve universal primary education, for example, energy is needed in the rural areas to attract teachers and relieve especially young females of their traditional role of being required to travel far in search of firewood for cooking and heating." Since the world is strategising to move away from fossil fuels, this principle could be utilised to enact a biofuels law for sustainable rural development in Tanzania." The Rural Energy Board Part three of the Act establishes the Rural Energy Board," whose function it is, among others, to facilitate extended access to modern energy services for eco- nomic uses, health and education." This is a multisectoral board that includes representatives of the civil society and even the donor community. Since the board targets development in rural areas where biofuels companies are looking for land, it is recommended that its mandate be extended to cover the biofuels sector. MONOGRAPH 167 125 EFTA01090226 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA The Rural Energy Fund The Act establishes the Rural Energy Fund, which has as its mandate to provide grants to subsidise the capital cost of projects that are developed by private and public entities, cooperatives, and local community organisations.' The current international climate change law contains flexible mechanisms such as the CDM. It is recommended that this fund be strengthened to reach more people and encourage establishment of as many energy efficiency projects as possible that may attract CDM funds. At the moment there is only one registered CDM project in Tanzania. A biofuels policy for Tanzania A policy on biofuels is very important as a fundamental base for proper legal and regulatory intervention. Such a policy should be crafted to address specific socioeconomic and environmental issues that may not be included in the Act described above. Specifically, it is recommended that the policy should make a clear distinction between first and second generation biofuels. The former should not be allowed because it may aggravate food security issues explained in part three above. More importantly, the policy should provide clear strategies for taking energy to rural areas. This should be so because, in many parts of Africa, rural people produce what they do not consume. The policy should also address blending and standard issues in order to ensure that production does not compromise quality. Some existing policies support this sector, although not expressly. The National Energy Policy of 2003, for example, although it does not specifically mention biofuels, supports use of modern biomass for the pro- vision of reliable, affordable and environmentally friendly energy." However, given the need for a specific policy on biofuels, this chapter recommends a thorough review of the existing policy framework, followed by an `upgrade' of the newly developed Biofuels Guidelines into a policy. The guidelines" provide for, and address, many of the challenges discussed above. These include, among others, the following: Food security: The guidelines acknowledge that production/farming of bio- fuels may result in negative impacts, especially on the availability of food and a rise in food prices." To address this particular concern, the guidelines require biofuel developers to use a portion of land acquired for biofuels production to grow relevant food crops, applying state-of-the-art agricultural techniques. 126 INSTITUTE FOR SECURITY STUDIES EFTA01090227 ROSE PAM BAZA AND LOUIS J KOTZE This could be one of the guiding principles of the proposed biofuels policy. It is in line with both the Tanzania Vision 2025 and the Millennium Development Goals. By improving rural agriculture, Tanzania will simultaneously address food insecurity and poverty. Land acquisition: The guidelines contain commendable provisions on the danger of land conflicts, including displacement in rural areas, posed by the biofuels industry. On this particular issue, which is one of the most controver- sial in Tanzania, the guidelines provide that no displacement of people should be allowed for biofuels development. The guidelines further provide that, due to `controversies around biofuels investments', village authorities must be guided by the biofuels one•stop shop centre (an office created by the guidelines) on all matters concerning land acquisition. If this same spirit is promoted to policy level, and theory is translated into practice, local communities in Tanzania will arguably be relieved of all their concerns that the biofuels industry is another opportunity for land grabbing. Environmental conservation: The guidelines take into consideration en- vironmental threats posed by biofuels, including forest clearing, biosafety and invasive species. It therefore mandates biofuels developers to carry out an environmental impact assessment (EIA) prior to the start of any project." Moreover, the guidelines require biofuel seeds to be produced according to the regulations governing seed production in Tanzania; and they are not to be im- ported or exported without a permit from the ministry responsible for agricul- ture.96 It is recommended that these precautionary measures be incorporated in the biofuels policy and that they are translated into a binding law to save the country from the risk of enormous environmental damage posed by the biofu- els industry, including forest clearance and the introduction of invasive species as illustrated above. CONCLUSION This chapter has shown that biofuels offers various opportunities for Tanzania to improve its energy security while simultaneously addressing climate change and sustainable development. It is also a potential way to increase income of rural farmers and other stakeholders. However, this opportunity is not without its risks. It has been argued that biofuels can cause land conflicts, environmen- tal degradation and food insecurity. It is for the law to see to it that the right MONOGRAPH 167 127 EFTA01090228 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA balance is maintained. The current opposition to biofuel initiatives among environmental activists and local communities is, by and large, due to the lack of clear legal and policy provisions. It is hoped that concerned authorities in Tanzania will play their part in establishing legal and policy instruments needed for the proper regulation of the biofuels industry. NOTES 1 Intergovernmental Panel on Climate Change (IPCC), Climate change 2007: the physical science basics, IPCC. Geneva 2007. 2 D Zillman, C Redgwell, Y Omorogbe et al (eds), Beyond the carbon economy energy law in transition, Oxford: Oxford University Press. 2007.6-7. 3 Relevant European Union Laws on biofuels include the Biofuels Directive 2003/30/EC of 27 May 2007 and the Biofuels Taxation Directive 2003/96/EC of 8 May 2003. 4 Corporate Europe Observatory (CEO). The EU's agrofuel folly: policy capture by corporate interests. Briefing paper. 2007, http://www.corporateeurope.org/agrofuelfolly.htmknote07 (accessed 16 March 2009). 5 Mario Giampierto, Sergio Ulgiati and David Piementel. Feasibility of large-scale biotitel pro- duction: does an enlargement of scale change the picture≥, BioScience 47(9) (1997), 587-600. 6 Giampierto et al. Feasibility of large-scale biofuel production, 587. 7 Giampierto et al. Feasibility of large-scale biofuel production, 587. 8 Giampierto et al. Feasibility of large-scale biofuels production. 587. 9 Many authors use the word 'biofuels' to refer to plants from which bionic] is extracted and the same term to mean by-products, such as ethanol. See. for example, Giampierto et al, 'Feasibility of large-scale biofuel production' compared to the Worldwatch Institute's Biofuels for transport: global potential and implications for energy and agriculture, London: Earthscan. 2006. 10 Inigo Del Guayo, Biofuels: EU law and policy. in Zillman et al (ed) Beyond the carbon economy energy law in transition. Oxford: Oxford University Press, 2007.265-337 11 The Renewable Fuels Standard (RFS), a programme established by the Energy Policy Act of 2005. requires the use of 28.4 billion litres of biofuels in the US by 2012. See new developments at http://www.hrccc.org/images/CRS_report_on_RFS.pdf (accessed 19 March 2009). 12 See Commission of the European Communities. Communication from the European Commission: An EU strategy for biofuels 2006. http://ec.europa.eu/development/icenter/ repositoryibiofuels_2006_02_08commeu_strategy en.pdf (accessed 19 March 2009). See, also, Directive 2003/30IEC of the European Parliament and of the Council of 27 May 2003 on the promotion of biofuels or other renewable fuels for transport• (2003) O1 L123/42. 128 INSTITUTE FOR SECURITY STUDIES EFTA01090229 ROSE MWERAZA AND LOUIS J KOTZE 13 Flagship examples in Africa include Tanzania, Ethiopia and Ghana. See Worldwatch Institute, Biofuels for transport. 336-339. 14 Some of these benefits are enumerated in United Republic of Tanzania (URT), Guidelines (or sustainable development of liquid biofuels and cogeneration in Tanzania. Dar es Salaam: 2008. 15 United Nations. UN Millennium Development Goals (MDGs), httpdAvww.un.orgemil- lenniumgoala, (accessed 16 March 2009). For the relationship between MDGs and energy. see Yinka O Omorogbe. Promoting sustainable development through the use of renewable energy: the role of the law, in D Zillman, C Redgwell Y Omorogbe et al (eds). Beyond the carbon economy energy law in transition, Oxford: Oxford University Press. 2007.39-59. 16 Kyoto Protocol to the Framework Convention on Climate Change. opened for signature March 16.1998, 37ILM 22 (1998) (entered into force 16 February 2005) ((Kyoto Protocol). The Kyoto Protocol requires Annex 1 countries to reduce their GHG emissions. The use of fossil fuels, especially for transportation. accounts for up to 25 per cent of global GHG emissions. 17 For more information on Tanzania, refer to the official government website at www.tan zania. go.tz 18 According to the Constitution of the United Republic of Tanzania of 1977, each part of the republic exercises autonomy over certain issues, referred to as 'non union matters. Environmental management falls under this category. 19 World Bank, Tanzania: quick facts. World Bank development indicators database, April 2009, http://web.worldbank.org/WBSITE/EXTERNAUCOUNTRIES/AFRIC.AEXTITANZANIAE XTNA),.menuPK:287361-pagePK:141132-piPK:141109-theSitePK:258799.00.html (accessed 15 March 2009). 20 Ibid. 21 G Kaser. DR Hardy, T Magi et al, Modern glacier retreat on Kilimanjaro as evidence of climate change: observations and facts. International Journal of Climatology, 24 (2004), 329-339. See also. Organisation for Economic Development and Co-operation (OECD), Development and climate change in Tanzania: focus on Mount Kilimanjaro, Paris: OECD, 2003. 22 M Mwandosya, B Nyenzi and M Luhanga, The assessment of vulnerability and adaptation to climate change impacts in Tanzania, Dar es Salaam: Centre for Energy, Environment. Science and Technology. 1998. 23 Ibid. See also M Hulme. R Doherty R, T Ngara. Global warming and African climate change: a re-assessment. in P S Low (ed) Mime change and Africa, Cambridge: Cambridge University Press. 2005.29-40. 24 Mwandosya el al. The assessment of vulnerability and adaptation to climate change impacts in Tanzania. 25 Ibid. MONOGRAPH 167 129 EFTA01090230 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 26 Mwandosya et al. The assessment of vulnerability and adaptation to climate change impacts in Tanzania. 1-24. 27 See The National Plan of Action (NAPA) 2007. 28 United Republic of Tanzania, Guidelines for sustainable development of liquid biofuels and co-generation in Tanzania, 1. 29 This view is shared by some NGOs engaged in the biofuels business (Godfrey Lelya. Programme Officer, Olkonerei Development Organisation per. corn). 30 See Land Rights Research and Resources Institute (LARRRI) & Joint Livelihood Initiative for Tanzania, Rio-fuel development in Africa: opportunities, threats and challenges for rural small-holders in Tanzania, Report of the Forum held at Land Mark Hotel, Dar es Salaam, 12 January 2008. http//www.hakiardhlorg/HA-Docsibiofuel.pdf (accessed 16 March 2009). 31 Tanzania imports 100 per cent of the oil and gas used for transportation. 32 This is a multisectoral committee composed of members from the following ministries and other stakeholders: Ministry responsible for Planning. Economy and Empowerment; Ministry of Energy and Minerals; Ministry responsible for Agriculture and Food Security Ministry of Labour: Employment and Youth Development; Ministry of Finance; Vice President's Office - Division of Environment Ministry of Water and Irrigation; Ministry of Lands, Housing and Settlement Development: Attorney General's Chambers: Tanzania Investment Center: Tanzania Petroleum Development Corporation; Community Finance Limited; Tanzania Sugar Producers' Association. 33 William M Ngeleja (Minister for Energy and Minerals) Biofuels development in Tanzania. Paper presented at the Third German-African Energy Forum. Berlin. Germany, 23-25 April 2008. 34 United Republic of Tanzania (URT), Procedure for obtaining certificate of incentives, Tanzania Investment Centre TIC, President's Office, 2008. 35 German Technical Cooperation (GTZ). Liquid biofuels for transportation in Tanzania: poten- tial and implications for sustainable agriculture and energy in the 21st Century, 2005. http:// www.gtz.deMeidokumente/en-biofuels-for-transportation-in-tanzania-2005.pdf (accessed 16th March 2009) 36 Ngeleja, Biofuels development in Tanzania. 5. 37 Oxfam, Another inconvenient truth: how biofuel policies are deepening poverty and acceler- ating climate change, Oxfam Briefing Paper, 2008.141. 38 Time to come clean on bio-fuel threat, The Citizen, 24 July 2008, at http://allafrica.comf stories/200807240343.html (accessed 19 March 2009). 39 See Land Rights Research and Resources Institute (LARRRI) & Joint Livelihood Initiative for Tanzania: Bio-fuel development in Africa. 130 INSTITUTE FOR SECURITY STUDIES EFTA01090231 ROSE MWEBAZA AND LOUIS J KOTZE 40 FAO, Rome declaration on World Food Security and World Food Summit Plan of Action. (document W3613/E), Food and Agriculture Organisation of the United Nations, World Food Summit, 13-17 November 1996, Rome, httpilwww.fao.org/docrep1003/w3613e1w3613e00. htm (accessed 12 March 2009). 41 See also the General comment by the Committee on Economic. Social and Cultural Rights on the right to adequate food. Comment No. 12 (1999). 42 This is one of those rights regarded as 'second generation human rights, meaning social-eco- nomic and cultural rights. States are obliged to use 'maximum available resources' to provide their respective subjects with these rights. 43 ILM. see Article 25. 44 ILM see Article 11(1) and (2). 45 Article 6 (the right to life) of the International Covenant on Civil and Political Rights (CCPR) has also been interpreted to impose a duty on states to eliminate malnutrition. 46 Social and Economic Rights Action Centre (SERAC) and the Centre for Economic and Social Rights v Nigeria - Communication 155/96. See also C Mbazira, Reading the right to food into the African Charter on Human and Peoples' Rights, ESR Review 5(1) (2004), 5. 47 See, for example, Article 27(1)(b) of the Constitution of the Republic of South Africa of 19%. 48 India is a flagship example. See Francis Corolie Mullin v The Administrator, Union Territory of Delhi (1981) 2 SCR 516-529. 49 Social-economic disparities in society make it difficult for the poorest of the poor to get suf- ficient access to food, in spite of its availability. See Allan G Smith. Human rights and choice in poverty: food insecurity. dependency and human rights based development aid for she third world rural poor. Westport: Praegar, 1997. 50 Ecological causes of food insecurity are usually related to land degradation. water availability or pests. See Hari C Sharma, Biotechnological approaches for pest management and ecological sustainability. CRC Press, Boca Raton, 2009. 51 Politically-induced food insecurity may involve insufficient attention to the agricultural sector. unequal distribution of food, and economic policies that distort food markets. See Amartya Sen, Poverty and famines: an essay on entitlements and deprivation, Oxford: Clarendon Press. 1982: and Expertise Centrum voor Duurzame Ontwikkeling (ECDO), Size does matter: the possibilities of cultivating Jatropha curcas for biofuel production in Cambodia. Amsterdam: Universiteit van Amsterdam, 2006. 52 Parker Shipton, African famines and food security: anthropological perspectives. Annual Review of Anthropology. 19,353-394. See also H C Srivastava. The history of Indian famines front 1858-1918, Agra: Sri Ram Mehra and Co., 1968. 53 The World Bank estimates that food prices have increased by 83 per cent in the last three years. See World Bank. Rising food prices: policy options and World Bank response, 2008. MONOGRAMS 167 131 EFTA01090232 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA According to Oxfam, 30 per cent of such increases are attributable to biofuels: see Oxfam, Another inconvenient truth, 3. 54 A Dufey. L Peskett, R Slater and C Stevens, Biofuels, agriculture and poverty reduction, London: DFID, 2007, 4. 55 Certainly, not all biofuels are bad. See part four of this chapter on policy recommendations on how to exploit 'the good' of biofuels instead of concentrating only on the 'bad and the ugly. 56 See FAQ Climate change, bioenergy and food security: options for decision makers identified by expert meetings, in Information document for the High-Level Conference on World Food Security: The change of climate change and bioenergy: HLOINFE5, FAO. Rome: 2008. 57 United Republic of Tanzania URT. Follow-up of the implementation of the World Food Summit Plan of Action, Ministry of Agriculture Food Security and Cooperatives. 2006. 58 J Peters and S Thielmann, Promoting biofuels: implications for developing countries. Ruhr Economic Paper No. 38, Essen: RWI Essen. 2008. See also JRC, Biofuels in the European context: facts, uncertainties and recommendations. JRC working paper. 19 December 2007. 59 Oxfam, Another inconvenient truth, 3. 60 This is why it is important for governments to play their regulatory role through sound poli- cies and legislation. Farmers worldwide are 'business intelligent' and may easily be enticed by the 'supply and demand' matrix. 61 One reason attributed to this fear is the government pretext that biofuels crops can be grown in 'marginal lands, the very places occupied by poorest of the poor. such as pastoralists and hunter-gatherers of East Africa. 62 See Orangutan Outreach, Biofuels threaten lands of 60 million tribal people, http://redapes. orgfnews-updatesibiofuels-threaten-lands-of-60-million-tribal-people/ (accessed 6 October 2009). See also Victoria Tauli-Corpuz and Aqqaluk Lynge, Impact of climate change mitiga- tion measures on indigenous peoples and on their territories and lands. Report submitted to the Economic and Social Council, http://shr.aaas.org/www!UNPFII_Report_on_Climate_ Change.pdf (accessed 19 March 2009). 63 Jatropha Curcas Lisa tropical plant. the seeds of which can be pressed to obtain oil used in diesel engines. It is the most common bioenergy plant in Tanzania. 64 Oxfam, Another inconvenient truth. 65 Ringo Tenga Legislating for Pastoral Land Tenure in Tanzania: The Draft Land Bill, Land Rights for the New Millennium, http://www.whoseland.com/ (accessed 1 February 2009). For other examples of foul play in pastoralists' land see also Shivji Issa and Wilbert Kapinga. Mensal Rights in Ngorongoro, Tanzania. London: International Institute for Environment and Development/Hakiardhi, 1998. 66 A newspaper article puts it this way: 'As rightly pointed out recently by Prime Minister Mizengo Pinda, Tanzania has over 44 million hectares of arable land of which only a quarter or about 132 INSTITUTE FOR SECURITY STUDIES EFTA01090233 ROSE ?AWE BAZA AND LOUIS J KOTZE 10.5 million hectares are under cultivation. It appears that we have plenty of land but when we start hearing that villagers are being compensated to give way to these multinationals to culti- vate biofuel plants then we start asking ourselves why? In Kisarawe. Rufiji. Kilwa, Bagamoyo. Handeni and elsewhere talk of villagers being compensated by these multinational renewable energy corporations is rife and in some cases villagers are almost being compensated to give away their ancestral homes, tiny food crop farms and graveyards to give way to these huge in- vestments. Why shouldn't authorities show these multinationals. which have both the capital and expertise. virgin land which is lying idle to do their spadework other than repeating mis- takes which we have committed with the mining sector in the past?' (The Citizen 2008b). 67 E Wakker. Greasy palms: The social and ecological impacts of large-scale oil palm planta- tion development in Southeast Asia. Friends of the Earth (FOE), 2005, http•f/www.foe.co.uk/ resourcereportsigreasy_palnu_impacts.pdf 68 UNFCC Decision 2/CP.13, Reducing Emission from Deforestation in Developing Countries: Approaches to Stimulate Action in Report of the Conference of Parties on its Thirteenth Session. held in Bali, 3-IS December 2007. 69 Iron Fry. Reducing Emission from Deforestation and Forest Degradation:Opportunities and Pitfalls in Developing a New Legal Regime, RECIEL 17(2) 2008. 70 Biodiversity/biological diversity is defined as the variability among living organisms from all sources including. inter alia. terrestrial marine and other aquatic ecosystems and the ecologi- cal complexes of which they are part. It includes diversity within species. between species, and of ecosystems. 71 At its most basic. the term agrobiodiversity refers to the diversity of useful plants in managed ecosystems See Kameri-Mbote Anna Patricia and Phillip Gullet, Agrobiodiversity and inter- national law: a conceptual framework, Journal of Environnzental Law 11(2) (1999). 72 Peter Easton and Margaret Ronald, Seeds of life women and agricultural biodiversity in Africa, Indigenous Knowledge Notes, 23 August 2000. World Bank. Washington DC IUCN- The World Conservation Union, 2000. 73 E I Laltaika, Plant variety protection for food security in Tanzania: the case of plant breeders' rights, LLM Dissertation, Munich Intellectual Property Law Centre. 2007. 74 IUCN-The World Conservation Union, 2000 IUCN Guidelines for the Prevention of Biodiversity Loss Due to Biological Invasion (Approved by the IUCN Council. February 2000). 75 Kideghesho and Hassan, Biodiversity conservation in Tanzania, Paper presented at the Fourth Scientific Conference of the Tanzania Wildlife Research Institute TAWIRI Impala Hotel Arusha, 1-3 December 2003. 76 Ibid. 77 The Relevant Article. Article 8 in-situ conservation, provides that 'Each Party shall, as far as possible and appropriate: (g) Establish or maintain means to regulate, manage or control the MONOGRAPH 167 133 EFTA01090234 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA risks associated with the use and release of living modified organisms resulting from biotech- nology which are likely to have adverse environmental impacts that could affect the conserva- tion and sustainable use of biological diversity, taking also into account the risks to human health; (h) Prevent the introduction of, control or eradicate those alien species which threaten ecosystems. habitats or species! 78 The advent of climate change has seen the decline of the level of water in many rivers and dams previously relied upon for production of hydro-electric power (HEP) causing unprecedented inefficiency in electricity generation in the country. See the 2007/2008 Budget Speech of the then Minister of Energy and Minerals Nazir Karamagi to Parliament, http://www.tanzania. gosz/budgetspeech/2007/pdfinishati.pdf 79 BBC. Tanzanian PM to resign over graft, http:ffnews.bbc.co.ukinhi/africa/7232141.stm 80 Parliament of the United Republic of Tanzania, Executive Summary of the Parliamentary Select Committee's Report on Richmond Development Company LLC 'Mwakyembe Committee Report', Unpublished report presented to Parliament on Wednesday, 6 February 2008. 81 This paper cannot claim to provide all advice needed to achieve this goal, nor is it about the energy sector in its entirety. It is only fair to discuss such a theme, albeit briefly, to place biofu- els policy in context. 82 United Republic of Tanzania, National website, http://www.tanzania.go.tx/energythtml 83 This is an Act to establish the Rural Energy Board, Fund and Agency to be responsible for pro- motion of improved access to modem energy services in the rural areas of Mainland Tanzania and through a fund within the agency board, to provide for grants and subsidies to developers of rural energy projects for related and consequential matters. 84 Modern energy is defined as energy that is based on petroleum, electricity or any other energy forms that have commercialised market channels. a higher heating content value than tradi- tional biomass fuel and which may be easily transported. Biofuels fall under this definition as they are not only easier to transport than. for example, firewood. but also much higher in heating properties. 85 See Part II, Principles of Rural Energy, section 4(a). 86 UNDP, Energizing the Millennium Development Goals: a guide to energy's role in reducing poverty, New York: UNDP/BDP Energy and Environment Group, 2005. 87 Yinka O Omorogbe, Promotingsustainable development through the use of renewable energy. 41. 88 Sustainable development is 'development that meets the needs of the present without compro- mising the ability of future generations to meet their own needs: UN World Commission on Environment and Development (Bmndland Commission), Our common future, New York: UN. 1987, 43. 89 See sections 6-13. 134 INSTITUTE FOR SECURITY STUDIES EFTA01090235 ROSE MWERAZA AND LOUIS J Kant 90 See section 6(1). 91 See section 18(1). 92 United Republic of Tanzania, The National Energy Policy, 2003. 93 United Republic of Tanzania, Guidelines for sustainable development of liquid biofuels and co-generation in Tanzania. See sections 31-38. 91 See section 31 of the guidelines. 95 See section 35 of the guidelines. 96 See section 38(1)43) of the guidelines. BIBLIOGRAPHY Books Dufey. A, Peskett, L, Slater, R and Stevens. C. Biofuels, agriculture and poverty reduction. London: 2007. Intergovernmental Panel on Climate Change (IPCC). Climate change: the physical science basics. Oxford: Oxford University Press. Issa, Shivji and Kapinga, Wilbert. Maasai Rights in Ngorongoro, Tanzania. London: International Institute for Environment and DevelopmentlHakiardhi, 1998. Organisation for Economic Development and Co-operation (OECD).Development and climate change in Tanzania: focus on Mount Kilimanjaro, Paris: 2003. Rutten, hlarceL Setting Wealth to Buy Poverty. The Process of she Individualisation of Land Ownership among the Maasai pastoralists of Kajiado District, Kenya, 7890-1990 Saarbriicken: Verlag fur Entwicklungspolitik Saarbrucken, 1992. Sen, Amartya. Poverty and famines: an essay on entitlements and deprivation. Oxford: Clarendon Press 1992. Sharma, Hari C. Biotechnological approaches for pest management and ecological sustainability. Boca Raton: CRC Press, 2009. Smith, Allan G. Human rights and choice in poverty: food insecurity, dependency and human rights based development aid for the third world rural poor. Westport: Praegar, 1997. UNCTAD. The Emerging Biofuels Market: Regulatory, Trade and Development Implications. New York & Geneva: 2007. World Watch Institute. Biofuels for transport: global potential and implications for energy and agriculture. London: Earthscan, 2006. Zillman, D, Redgwell, C. Omorogbe. Yet al (eds). Beyond she carbon economy energy taw in transi- tion. Oxford: Oxford University Press, 2007. MONOGRAPH 167 135 EFTA01090236 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Book chapters Del Guayo, Ingo. Biofuels: EU law and policy. In D Zillman, C Redgwell, Y Omorogbe et al (eds), Beyond the carbon economy energy law in transition. Oxford: Oxford University Press. 2007. Easton. Peter and Ronald. Margaret. Seeds of life: women and agricultural biodiversity in World Bank Africa. In Indigenous Knowledge Notes Washington DC: World Bank. IUCN-The World Conservation Union, 2000. Hulme, M. Doherty R, Ngara, T. Global warming and African climate change a re-assessment. In P S Low (ed) Climate change and Africa. Cambridge: Cambridge University Press, 2005. Journal articles Fry, Iron. Reducing emission from deforestation and forest degradation: opportunities and pitfalls in developing a new legal regime. RECIEL 17(2) (2008). Giampierto, Mario, Ulgiati, Sergio and Piementel, David. Feasibility of large-scale biofuel produc- tion: does an enlargement of scale change the picture? BioScience 47(9) (1997). 587-600. Kaser, G. Hardy, DR, Mgt', T et al. Modern glacier retreat on Kilimanjaro as evidence of climate change: observations and facts. International Journal of Climatology. 24 (2004).329-339. Patricia. Kameri-Mbote Anna and Collet, Phillip. Agrobiodiversity and international law: a con- ceptual framework. Journal of Environmental Law 11(2) (1999). Peters, J and Thielmann. S. Promoting biofuels: implications for developing countries. Ruhr Economic Paper No.38. Essen: RW1 Essen, 2008. Shipton. Parker. African famines and food security: anthropological perspectives. Annual Review of Anthropology. 19, 353-394. Dissertations Laltaika. E I. Plant variety protection for food security in Tanzania: the case of plant breeders' rights. LLM Dissertation. Munich Intellectual Property Law Centre. 2007. Other publications available from sashes Corporate Europe Observatory (CEO). The EU's agrofuel folly: policy capture by corporate in- terests. Briefing paper, 2007. Available at hitp://www.corporateeurope.orgfagrofuelfolly. htmlanote07 (accessed 19 March 2009). Development Institute (OD1). Food and Natural Resources Policy Analysis Network (FANRPAN). http://www.sarpn.org.zaidocumentsid0001701/Food-security_paper_Oct2005.pdf Tauli-Corpuz. Victoria and Lynge. Aqqualuk. Impact of climate change mitigation measures on indigenous peoples and on their territories and lands. Report submitted to the Economic and Social Council. Available at http://shr.aaas.orgewww/UNPFII_Report_on_Climate_Change. pdf 136 INSTITUTE FOR SECURITY STUDIES EFTA01090237 ROSE MWEBAZA. AND LOUIS J KOTZE Tanga, Ringo. Legislating for pastoral land tenure in Tanzania: The Draft Land Bill. Land Rights for the New Millennium. Available at http://www.whoseland.com/ (accessed 1 February 2009). Wakker. E. Greasy palms: the social and ecological impacts of large-scale oil palm plantation de- velopment in Southeast Asia. Friends of the Earth (FOE), 2005. Available at http://www.foe. co.uklresourcelreports/greasy_palms_impacts.pdf Working papers Expertise Cent rum voor Duurzame Ontwikkeling (ECDO). Size does matter: the possibilities of cultivating Jatropha curcas for biofuel production in Cambodia. Amsterdam: Universiteit van Amsterdam, 2006. Oxfam. Another inconvenient truth: how biofuel policies are deepening poverty and accelerating climate change. Ozfam Briefing Paper, 2008. 141. Government documents Parliament of the United Republic of Tanzania. Executive Summary of the Parliamentary Select Committee's Report on Richmond Development Company LW Wwakyenibe Committee Report'. Unpublished report presented to Parliament on Wednesday 6 February 2008. United Republic of Tanzania URT. Follow-up of the implementation of the World Food Summit Plan of Action. Ministry of Agriculture Food Security and Cooperatives. 2006. United Republic of Tanzania. Guidelines for sustainable development of liquid biofuels and co- generation in Tanzania Ministry of Energy and Minerals. 2008. International law Instruments Kyoto Protocol to the Framework Convention on Climate Change. Opened for signature 16 March 1998.37 ILNI 22 (1998) (Entered into force 16 February 2005). The Rome Declaration on World Food Security and World Food Summit Plan of Action, (docu- ment W3613/E). Food and Agriculture Organisation of the United Nations. Unpublished documents German Technical Cooperation (GTZ). Liquid biofuels for transportation in Tanzania: potential and implications for sustainable agriculture and energy in the 21st century, 2005. Available at http://www.gtz.de/deMokumentefen-biofuels-for-transportation-in-tanzania-2005.pdf (ac- cessed 16 March 2009). IUCN-lhe World Conservation Union. 2000 IUCN Guidelines for the Prevention of Biodiversity Loss Due to Biological Invasion (Approved by the IUCN Council. February 2000). Kideghesho and Hassan. Biodiversity conservation in Tanzania. Paper presented at the Fourth Scientific Conference of the Tanzania Wildlife Research Institute (TAWIRI), Impala Hotel Arusha 1-3 December 2003. MONOGRAPH 167 137 EFTA01090238 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Mwandosya. M. Nyenzi. B and Luhanga, M. The assessment of vulnerability and adaptation to climate change impacts in Tanzania. Dar es Salaam: Centre for Energy, Environment, Science and Technology, 1998. 138 INSTITUTE FOR SECURITY STUDIES EFTA01090239 PART 4 The Clean Development Mechanism EFTA01090240 EFTA01090241 Towards sustainable development An African perspective on reforming the Clean Development Mechanism PHILLIPA NILAND, OLIVIA RUMBLE AND MICHAELA LAU ABSTRACT The idea behind the Clean Development Mechanism (CDM), one of the three flexible mechanisms created by the Kyoto Protocol to the United Nations Framework Convention on Climate Change (UNFCCC), is that developing nations will benefit from sustainable development in the form of `climate- friendly' projects that reduce emissions of greenhouse gases while developed nations receive Certified Emissions Reduction (CERs) credits that may be used for compliance purposes. However, since its inception, a number of problems have arisen with the CDM. This chapter critically analyses the problems inherent in the formula- tion and implementation of the current CDM from an African perspective. It considers an array of possible solutions to these shortcomings with a view to informing the possible reform of the CDM in the Copenhagen Protocol, which will replace the Kyoto Protocol at the end of the first commitment period in 2012. Included, within this discussion is an analysis of options for scaling up the CDM to promote more active participation of African nations in the post- 2012 climate regime. MONOGRAPH 167 141 EFTA01090242 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA INTRODUCTION With the Kyoto Protocol nearing the end of its 2008-2012 compliance period, the dust has not yet settled on the issue of how a post-Kyoto framework will be structured to address climate change.' Although there is clear consensus that climate change is a critical problem with greenhouse gas (GHG) emissions having risen by 24 per cent globally since 1990,2 the current legal framework is unlikely to be sufficiently comprehensive to address the magnitude of the problem. Without adequate policies and measures to address this increase, emissions are projected to increase at least 25 per cent, and as much as 90 per cent by 2030.3 Therefore, much hangs upon the Copenhagen negotiations in December 2009, where a post-Kyoto agreement will be fashioned. The Kyoto Protocol can be described as revolutionary in the international collaboration to address climate change because it puts into place a framework for legally binding reductions of GHGs by 38 leading industrialised countries, each of which agreed to reach a specific reduction target during the period 2008-2012. A key achievement of the protocol was the establishment of three market mechanisms designed to help developed countries achieve their Kyoto commitments. One of these, the Clean Development Mechanism (CDM), was created as a means through which developed countries could reach their GHG reduction targets in a cost-effective manner, whilst at the same time contribut- ing to the sustainable development priorities of developing countries. As such, the CDM was envisioned, and has indeed become, the primary avenue through which developing countries can participate in the protocol. At its inception, it was hoped by developing states that the CDM would be a means whereby technology would be able to leapfrog across borders and continents, as well as a mechanism under which they could achieve their devel- opment objectives whilst simultaneously preparing for the anticipated carbon constrained economy of the future.' The practical application of the CDM thus far has, however, resulted in a mixed picture. While there are stories of success, the CDM has also, on the other hand, failed to live up to the expectations for all developing parties. Much therefore hangs upon the ensuing Copenhagen negotiations with respect to its future shape and form. The CDM necessitates reform for two important reasons. First, it should be reformed precisely because it has been such an astounding success for some parties. In 2008, there were 3 967 projects in the CDM pipeline, with 1 170 142 INSTITUTE FOR SECURITY STUDIES EFTA01090243 ROSE MWERAZA AND LOUIS J Kant projects having been registered.s Similarly, the primary and secondary CDM market in 2007 was worth nearly US$13 billion, a USS7 billion increase from 2006.6 In addition, over 15 new countries have now entered the project pipe- line for the first time, many of them in sub-Saharan Africa and Central Asia.' Second, given the scientific evidence available today, the need for scaled-up action on climate change is becoming more and more apparent. The CDM, in a reformed and scaled-up version, presents an opportunity to promote greater involvement by developing nations in the immediate future whilst still allowing them an opportunity to develop without binding emissions limitations. Thus, in order to continue the CDM success story and to promote greater participation by developing nations in the climate change regime, the failures and shortcom- ings of the CDM must be considered and addressed by the post-Kyoto regime. Criticism of the CDM has been considerable. For instance, the early crop of CDM projects was faulted for failing to adequately contribute to the environmental, social and economic development priorities of host countries .° Instead, the trend has been for investment to follow projects that have clear reductions and simple additionality. The type of projects easily meeting these criteria, such as those that reduce the release of Islioand methane, are perceived as providing only a modest 'development dividend' for their host communities and therefore they have often failed to provide the sustainable development dividend that was envisioned with the CDM? There have also been observations that the flow of investment from the CDM is skewed toward a small sub-set of developing countries with the ironic result of the CDM bypassing those least-developed countries, particularly in Africa, that are most in need of it.'° Concerns have also been expressed over the environmental integrity of the CDM, especially with respect to additionality and supplementarity. Further criticisms have been levelled at the CDM's institutional structures, in par- ticular concerning institutional inefficiency, prohibitive costs, capacity constraints, a lack of resources and extensive delays." There has also been a lack of assistance to those states, amongst which African states are prominent, struggling to access the CDM bureaucracy due to capacity and awareness constraints. Lastly, the Adaptation Fund, the subsidiary fund of the CDM, has also been target of several criticisms, not least of which has been concern over the inequitable or inadequate distribution of funds to finance adaptation in developing countries!' This chapter thus serves as an attempt to provide some creative and comprehen- sive suggestions to the challenges highlighted above and it is hoped that it may draw attention to some useful solutions to the crisis at hand. To this end, the chapter MONOGRAPH 167 143 EFTA01090244 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA will address the current constraints of the CDM and propose areas of reform with respect to its scope, criteria and verification procedures, and institutional structure, as well as its funding mechanism. The proposals have been shaped in a way that at- tempts to preserve the present institutional framework whilst introducing changes that are realistic but at the same time sufficiently far-reaching to address the magni- tude of the challenge ahead. THE CLEAN DEVELOPMENT MECHANISM IN A NUTSHELL The CDM was created with the dual purpose of assisting Annex I States (devel- oped nations) in achieving compliance with their quantified emission limita- tion and reduction commitments, and to assist parties not included in Annex I to achieve sustainable development.'' As such, at the most basic level, it permits countries and companies to invest in sustainable GHG-reduction projects in non-Annex I States. The emissions reductions achieved by the individual projects are translated into Certified Emissions Reductions (CERs), credits equal to the equivalent of one metric ton of CO2, that may be used by the Annex I State to meet its Kyoto target." In order for an activity to qualify as a CDM project, the activity must comply with certain substantive, as well as procedural, requirements which are laid down by Article 12 of the Kyoto Protocol, read with the Marrakech Accords of 2001 which provide modalities for the functioning of the mechanism" An exposition of the precise processes to be followed and in-depth analyses of the substantive requirements can be found in various scholarly papers and will therefore not be undertaken here." The current contribution aims, instead, to focus on the problem areas of the requirements and procedures, and possible solutions to these problems. THE APPLICATION OF THE CLEAN DEVELOPMENT MECHANISM Developing and developed country participation In order to stabilise GHG emissions at levels that avoid dangerous anthropo- genic interference with the global climate, it will be necessary for key developing 144 INSTITUTE FOR SECURITY STUDIES EFTA01090245 ROSE MWEBAZA AND LOUIS J KOTZE countries with rapidly growing economies to take on increasingly meaningful roles in reducing global emissions. Unfortunately, however, developing countries have consistently proved to be unwilling to have imposed, what is perceived to be, any form of cap on their emissions and, in consequence, on their economic growth.'7 Perhaps, however, the political climate has changed and the time may be ripe to reintroduce the so-called 'evolution' mechanism that proved to be so contentious in the run-up negotiations to the Kyoto Protocol." The application of such a mechanism, which envisages eventual binding commitments for all parties, could, for example, be based on various objective factors such as a country's capacity-responsibility index, defined as the sum of emissions per capita and gross domestic product (GDP) per capita, the Human Development Index, a governance index, historic responsibility based on a weighted average of past CO2 levels, as well as institutional affiliation." Moreover, developing countries could be incentivised to agree to such a proposal if newly graduating countries had relatively softer targets which, for example, could be based on intensity levels," or action targets," instead of ab- solute emissions targets." The feasibility of such a proposal is also bolstered by the fact that there are some signs that a few larger developing countries have already started to consider climate mitigation in their domestic frameworks." Similarly, relatively large emitting countries, such as South Africa, have also shown a willingness to set limits on their emissions." However, this said and taking into account the objective factors listed above, the reality remains that many African states will not face binding targets in the upcoming protocol. Yet those states' need for sustainable development, as well as adaptation to the effects of climate change, which are expected to hit the poorest countries the hardest, and particularly those in Africa, remains a pressing concern." A reshaping and expansion of the CDM is thus of utmost importance to these states. The following sections shortly outline the major problems encountered with the CDM and propose solutions to these challenges. INCREASING THE SCOPE OF THE CLEAN DEVELOPMENT MECHANISM In order to adequately address the issue of climate change, not only will devel- oped nations need to take on greater emissions cuts, but the need for developing MONOGRAPFI 167 145 EFTA01090246 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA nations to realign themselves to a cleaner growth path will also increase. To stabilise global emissions in 2030 back at today's levels, a UNFCCC study has suggested that the additional Investment and Financial Flows (I&FF) required needed in 2030 will be approximately USS180-225 billion." These additional l&FF amounts are comparably large in relation to the current funds within the UNFCCC and the Kyoto Protocol, but are relatively small in comparison with the estimated global GDP (0.3.0.5 per cent) and global investment (1,1.1,7 per cent) in 2030." Special attention will also have to be paid to developing coun- tries which will require a large share of this I&FF because of their expected rapid growth rate." If significantly expanded, the carbon market, which is already playing an important role in shifting private investment flows, offers the potential to address the need for additional l&FF. After a thorough survey of the various proposals put forward, both at the negotiating tables and by academics alike, it is the authors' opinion that the most advantageous and feasible approach would be to expand the manner in which projects are grouped so as to include the sectoral CDM and ultimately sector no-lose targets. Similarly, our analysis suggests that the type of eligible projects should be expanded to include Reducing Emissions from Deforestation and Degradation (REDD), the restoration of wetlands, as well as sustainable forest management so as to both scale up the carbon market and also reduce the inequity of the distribution of CDM projects, The sectoral Clean Developed Mechanism The sectoral CDM would involve the expansion of the CDM from current project-based and programmatic activities to activities based upon whole sectors, such as transport, energy and forestry, and would result in the credit- ing of emission reductions below a baseline determined for an entire sector." The baseline would be determined by the government of a developing country and activities under the CDM would be shifted to the government level." As a result, developing country governments would be responsible for coordinating actions within sectors and would receive credits directly." The sectoral CDM holds the potential for GHG mitigation on a scale that far outpaces the current project-based and programmatic CDM." This is so because the sectoral CDM approach could channel investment to entire sectors of the economy, thus allowing for the much-needed restructuring and 146 INSTITUTE FOR SECURITY STUDIES EFTA01090247 ROSE MWEBAZA AND LOUIS J KOTZE `decarbonisation of these sectors." It would allow project boundaries that have both high and low abatement costs to be drawn, hence making the overall CER price competitive by allowing projects within that sector to benefit from econo- mies of scale. Thus, unlike under the current CDM, the sectoral CDM envisages that different types of activities, that would ordinarily have to be registered as individual projects, be grouped together, allowing those kinds of activities with low abatement costs to 'subsidise' those activities currently overlooked due to high abatement costs. In other words, activities which have a beneficial devel- opment aspect but that are on their own not sufficiently cost-effective for the CDM, would be encouraged. In consequence, it is hoped that the introduction of the sectoral CDM will encourage developing countries to enact ambitious climate policies, since a reward for such a poliry•decision would be found in the creation of and receipt of CERs for successful sectoral activities." Furthermore, the sectoral CDM holds the potential for encouraging those kinds of projects currently overlooked. Sector no-lose targets The sectoral approach could furthermore be complemented by the adoption of sector no•lose targets (SNLTs) for certain identified industries, a tool which may offer a means of reducing emissions from large international industrial emitters on a broader scale, whilst having the advantage of being free of the additionality requirement, as well as general procedural CDM requirements." Under a SNLT approach, governments would negotiate emission caps for identified sectors in industrialised countries and SNLTs in developing countries where emission reductions below the baseline, as internationally agreed upon, would be able to generate credits for developing countries. Hence, SNLTs would be part of the negotiation in which overall quantitative outcomes are agreed." The key feature of such targets is that whilst developed states would be penalised for emissions above their targets, developing countries would not be penalised in accordance with the `no-lose feature of the proposal. However, SNLTs are only feasible for certain types of industries and projects and thus have been proposed as a separate but complementary mechanism to the CDM. For example, electricity generation, cement, aluminium or steel pro- duction, as well as `upstream' emissions of oil and gas production, such as gas flaring, would all be feasible since they reflect smaller numbers of large sources MONOGRAM 167 147 EFTA01090248 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA and thus baselines are easier to determine?' On the other hand, a SNLT ap- proach for sectors such as buildings and transport, which tend to have large numbers of small sources, would create significant challenges." Increasing the variety of eligible Clean Development Mechanism projects As already suggested, allowing for additional mitigation options would enable countries to reach more ambitious reduction targets at little or no extra cost and would hopefully result in more inclusive participation in the future climate change regime. Another way of achieving this end would be to allow for avoided deforestation, referred to in the negotiations as REDD. Since Montreal, many countries and observers have developed positions on this issue in response to the formal proposal put forward by Papua New Guinea and the Coalition for Rainforest Nations." In this proposal, it was suggested that countries which lowered their rate of deforestation below a historical base- line should be compensated with financial incentives, like CERs." The proposal suggested that baselines be determined at a national level, overcoming issues like carbon leakage, one of the barriers for an earlier inclusion of forest con- servation:" Momentum in the debate to include this type of CDM project has since increased due to growing scientific evidence drawing attention to the fact that deforestation contributes between 15 and 20 per cent to global total GHG emissions and is the largest source of emissions from developing countries.42 Additionally, REDD projects offer a substantial amount of potential co-benefits, such as biodiversity, watershed, and soil conservation, and direct attention to important issues in rural development." Despite the difficulties in measuring such projects, it is suggested that devel- oping countries continue to push the agenda of REDD at the forthcoming ne- gotiations because of the inclusive participation and sustainable benefit advan- tages it offers. This is particularly true in the African context, where farming is the predominant livelihood of most populations." An increase in agriculture to feed the ever-growing populations on this continent is the easiest way to ensure food security. Such action will, however, lead to further deforestation and soil exhaustion, which is likely to be further exacerbated by the use of biomass fuels for cooking and other household activities. Thus, the expansion of the CDM to include REDD activities that prevent deforestation and destruction of 148 INSTITUTE FOR SECURITY STUDIES EFTA01090249 ROSE MWEBAZA AND LOUIS J KOTZE remaining forests holds huge potential for Africa, both from a purely participa- tory, as well as from a sustainable development, perspective. In lobbying for REDD, a way to mitigate against the present bias against such projects would be for developing countries to establish buffer zones that could serve as a form of insurance where under the host state would assume liability for the reversal of any removal or degradation to the forest!' Similarly, such projects should, like other land use, land-use change and forestry (LULUCF) projects, be awarded only temporary credits!' Lastly, it is suggested that not only forests but other land-use practices become eligible project types. Within this category, for example, the restoration of wetlands, as well as sustainable forest management and other sustainable land management activities, could all present themselves as feasible and effective project activity types for developing countries!' CORRECTING DISTRIBUTIONAL IMBALANCES AND IMBALANCES IN PROJECT TYPES Although the CDM has proven effective in engaging East Asian countries in mitigation efforts,1" it has been less successful in engaging other regions, in par- ticular Africa which accounts for only two per cent of CERs generated:19 h com- parison, it is estimated that three countries alone, i.e. China, India and Brazil, will account for more than 70 per cent of the abatement from CDM projects by 2012.10 It has been suggested that part of the reason for this imbalance is the lack of capacity to perform these projects." Similarly, it has been suggested that the imbalance may be caused by the fact that the use of energy within Africa is comparatively low. What little energy is used tends to be biomass or hydro- power collected by households." As a result, Africa has not been an ideal host for CDM projects because it lacks both the institutional framework to support the CDM as well as the high-emitting pre-existent technologies which result in higher levels of CERs under the CDM baseline rules than would occur if clean technologies were in place." The Chinese example illustrates how the early adoption of approved hydrofluorocarbon (HFC) methodologies, as well as a large number of pre-existing high-emitting HFC industries, were both signifi- cant factors in making China the largest producer of CERs by volume." The illustration above highlights not only the geographic imbalance in project distribution, but also the imbalance of project types within the CDM MONOGRAPFI 167 149 EFTA01090250 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA pipeline. To date, most projects have tended to be projects with low abatement costs that generate significant amounts of CERs, such as N2O and landfill gas projects, whilst projects such as LULUCF, solar and residential energy efficiency projects, which have longer term sustainable development benefits, tend to be less desirable.' To counteract both these tendencies, it is suggested that the Conference of the Parties, serving as the Meeting of the Parties (COP/MOP) should create a list of priority projects and another list of priority states. Projects which do not qualify as priority projects or which do not take place in priority states, would have a proportion of the value of each CER that it is estimated to generate, dis- counted. A priority project or a project in a priority state would thus be able to generate a higher value of CERs than non-priority projects." It is hoped that with this simple tool, some of the investment flows within the CDM can be redi- rected towards Least Developed Countries (LDCs), particularly on the African continent, by creating an incentive for investors to invest in CDM projects in those states and in those project types that are mostly being overlooked under the current CDM regime. REFORM OF THE VERIFICATION AND CERTIFICATION CRITERIA As stated above, a reform of the CDM should not only focus on broadening participation across all developing nations, but must instead also focus on rectifying problems inherent in the make-up of the mechanism. Although the scaling-up, expansion and redistribution measures discussed thus far will go a long way towards ensuring more sustainable development opportunities for Africa, any reform of the CDM must also preserve and promote the 'moral' and environmental integrity of the mechanism because without such integrity, the ultimate purpose of the mechanism, i.e. to combat climate change, will be un- dermined and this may prove to bring about devastating consequences. One criticism that has been levelled against the current CDM is that activi- ties are not geared towards altering the energy pathways of developing states, (there is insufficient focus on the attainment of sustainable development), despite the fact that this is one of the dual aims of the mechanism" As such, this criticism is levelled in the first instance against the moral integrity of the mechanism but ultimately also undermines the environmental integrity of the 150 INSTITUTE FOR SECURITY STUDIES EFTA01090251 ROSE MWEBAZA AND LOUIS J KOTZE mechanism and the climate regime as a whole. The root of this shortcoming in the CDM is to be found in two important factors. First, as was stated above already, those kinds of projects with high development linkages, such as energy or transport projects, are being overlooked because activities in such areas are often of a dispersed nature, have relatively high transaction costs, and yield relatively low CER volumes compared to other projects." Second, a cause that is pertinent in the African context, the assessment of a project's contribution to sustainable development of the host nation, is left entirely up to that state.59 The reality, however, is that many African states simply lack the capacity to assess this matter, and it appears that a project may be approved simply because it provides investment.60 A further point of concern is the extent to which environmental integrity of the CDM has been upheld. This concern is a complex and intricate one that is linked to both the substantive criteria as well as the processes of the CDM. In particular, the problem is linked to the requirement of additionality, the consequent setting of baselines and the monitoring of actual emissions reduc- tions achieved by the project based on this baseline and the methodologies used to measure reductions. The additionality requirement means that 'business as usual' activities are not to be credited with CERs. Instead, only activities that reduce emissions of GHGs below those that would have occurred in the absence of the CDM project can create CERs." Determining additionality, however, is a complex procedure which involves the assessment of a hypothetical future sce- nario. Several commentators have, in particular, noted that a significant number of projects register as 'false positives'," with recent estimates suggesting that additionality is questionable in up to 40 per cent of registered projects." This implies that a carbon leakage on a scale that has the potential to undermine the efficacy of the entire climate regime may be under way. Furthermore, it is not only the concept of additionality itself that is based on a hypothetical scenario, but also the implementation of the concept in practice." In essence, it is logically impossible to accurately assess the amount of CERs generated by a project, as such assessments will always be based on hypothetical projections of future emissions without the project in place. As a result, much emphasis has been placed on the integrity of methodologies used to measure GHG reductions. Because of this emphasis, the existing bottom-up develop- ment of methodologies by project participants has proven to be both lengthy and cumbersome and has hampered the implementation of many projects." MONOGRAPH 167 151 EFTA01090252 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Lastly, the criterion that the CDM must be supplementary to the domestic mitigation action of Annex I States has given rise to debates because there is neither clear definition of supplementarity in Article 12, nor in the modalities governing the CDM." The benefit of defining supplementarity is that it will provide a more precise understanding of the extent to which developed states must quantify their actions and to what extent they have acted domestically. Sustainable development In order to ensure that the CDM attains both of its stated goals, it will be neces- sary to provide guidance on the concept of sustainable development so as to ensure its environmental integrity. In this regard, it appears that one of the major obstacles has been a lack of objective criteria against which host states can measure projects. It is therefore proposed that, as part of the solution to this problem, a broad definition of the concept should be established by the Executive Board (EB) and approved by the COP/MOP. In this way, host states are provided with an objective list of factors with which to assess the develop- ment linkage of the project.° It is further recommended that developing states wishing to participate in the CDM be required to lodge a sustainable development policy with the COP/ MOP. Such a policy will have to be in line with the broad outline of sustainable development as defined by the EB and the COP/MOP, but should also take into consideration the specific circumstances of each country. This approach would arguably ensure that sustainable development is afforded greater priority in the new regime, while still giving primacy to national sovereignty.66 Additionality and baselines One way of mitigating the effects of the additionality problem would be to require a certain per centage of all CERs generated be retired. As an incentive to adopt the 'CDM Gold Standard', a WWF initiative providing for a more strin- gent set of CDM criteria, projects of this nature will not be required to discount any CERs." Because additionality has been difficult and costly to prove, particularly in countries with low institutional capacities, it will be necessary to address further reform in a way that protects the environmental integrity of the project 152 INSTITUTE FOR SECURITY STUDIES EFTA01090253 ROSE MWEBAZA AND LOUIS J KOTZE whilst taking into account the African reality of severe capacity constraints. One way of achieving this may be by shifting methodologies for baseline devel- opment and additionality testing from a bottom-up to a top-down approach in specific sectors, based on objective criteria such as technology penetration rates or sectoral benchmarks, where possible?The additionality testing procedure may also be further streamlined if the EB, together with the COP/MOP, chose to identify certain projects as per se additional where, for instance, certain es- tablished technologies such as wind power are used. Although these lists and benchmarks may require some time to agree on and may be data intensive, the long-term costs of the system would most certainly decrease" Supplementarity To reiterate, it is not clear to what extent Annex I States are entitled to rely on the emission reductions created by CDM projects in order to reach their emissions targets. Providing a clearer definition of supplementarity will help to delineate the obligations of developed states domestically and it will therefore safeguard the ultimately required global transformation towards low carbon economies. As a result, it is important that this criterion becomes clearly incorporated into Article 12, with the COP/MOP being given the authority to provide guidelines and criteria for its quantification. Double-counting With regards to the proposed expanded CDM approach, particular attention may need to be paid to a clear definition of sectors so as to avoid double- counting.' This is due to the fact that individual project-based and sectoral CDM activities may run concurrently.' This may be avoided by requiring that individual projects are identified as falling within a particular sectoral activ- ity or not. The relevant state's Designated National Authority (DNA) would be required to assess not only sustainable development criteria, but would also have to determine whether an individual project falls within a sectoral CDM project?' CERs will have to be divided accordingly between government initi- ated sectoral projects and individual activities.75 Individual actors who wish to institute CDM projects would thus be required to undertake the additional step of consulting with the relevant DNA so as to prevent double-counting. MONOGRAPH 167 153 EFTA01090254 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA INSTITUTIONAL REFORM The institutional framework of the Kyoto Protocol is currently made up of the COP/MOP, with the EB in a core role and with board-accredited Designated Operational Entities (DOEs), private entities chosen by the project participants, which validate the project itself, as well as the emission reductions of the project. There are also nationally appointed DNAs which function as project approvers for nationally determined criteria which, among others, include the sustainable development criteria. The EB accredits DOEs and it also registers projects based on DOE validations, and issues CERs and governs the CER registry. It further- more exercises a quasi-judicial function by reviewing DOE assessments of the eligibility of a project before registration?' While the governance system and the processes to be followed in the CDM pipeline are elaborate, once again, there has been a plethora of criticism. As stated previously, this criticism is focused on various aspects, including institutional inefficiency, prohibitive costs, capac- ity constraints, a lack of resources and extensive delays. First, at present the EB is not subject to the normal political and legal controls ordinarily applicable to a national regulatory agency and, as such, its decision-making practice has been criticised as inefficient, inconsistent and unpredictable." Similarly, the EB has been criticised because members are not professionals or hired on a full-time basis, but rather tend to be government employees with a background in negotiations rather than market regulation." As a result, changes to the EB should be centred on professionalisation and promoting the permanence of staff members. This would also simultaneously address the loss of institutional memory. Second, criticism of the EB is also centred on the activities taking place within the system.' The double-checking of the DOE's responsibilities by the EB has tended to be a time-consuming activity and the bottom-up development of meth- odologies, requiring approval by the Ell, has further intensified this time lag." The problem is even further compounded by the EB's lack of resources, which has prevented it from meeting on a regular basis. As a result, a 'bottleneck' situation, which has barred the timely registration of projects, has been created." Thus, a second aim for a reformed institutional structure should be to focus on increasing funding for the governance system and streamlining the CDM process. Third, the relationship between the EB and DOEs has been criticised. In particular, there are concerns regarding the independence of these DOEs from 154 INSTITUTE FOR SECURITY STUDIES EFTA01090255 ROSE MWERAZA AND LOUIS J KOTZP project participants." To counteract these concerns, the EB has been involved in double-checking the work of DOEs, which, as already stated, has contributed to the time lag in the registration process. The proposal presented here is, there- fore, also geared towards a de•coupling of DOEs and the project participants. Fourth, amendments to the governance structure and processes of the CDM must also reflect the scaling•up of the CDM to the sectoral approach and must focus on assisting DNAs in building capacity and expertise in assessing the sus- tainability of CDM projects." Implementing reforms In order to address these challenges the following amendments to the CDM governance system are proposed: A central EB should be maintained so as to continue to oversee project•based CDM activities. In addition, sectoral EBs should be established with members being drawn from the central EB, as well as from experts in each of the relevant sectors for which sectoral CDM activities are envisaged.** In following much the same approach as the central EB, the sectoral EBs should be responsible for dealing with the intricate concerns associated with implementing sectoral CDM projects, such as additionality and baseline concerns." Sectoral EBs and the central EB would also establish methodologies for application within the various sectors to overcome concerns surrounding the bottom•up development of methodologies. This would make it easier for DOEs to validate projects and easier for the EB to assess the work of the DOEs. It is furthermore proposed that the EBs should develop these methodologies in conjunction with a Business Advisory Committee which would allow the EB to draw on the expertise avail- able in the private market. The EBs will also identify activities which may be considered to be per se additional, subject to approval by the COP/MOP." Additional, mandatory funding from Anna I States should be required as a necessary contribution in order to increase the staff of the EB, to create sectoral EBs, and to contribute towards the establishment and maintenance of the overall institutional framework by ensuring greater permanence of staff members." The EBs should concentrate on monitoring the independence and imparti- ality of DOEs, as well as whether DOEs have adequately followed the validation protocol." To ensure that the work done by DOEs continues to meet standards of environmental integrity, the EB should conduct periodical reviews of DOE MONOGRAPH 167 155 EFTA01090256 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA activities. It is recommended further that project developers should have a right of appeal against the rejection of projects from DOE decisions and that DOES should, in future, be appointed by EBs, rather than by the project participants themselves to prevent any conflict of interest by DOE staff. Under the proposed CDM model, the role of DNAs would remain much the same. However, some reforms in this respect will be necessary to assist those states, many of which are African states, which do not yet have DNAs, or only have inexperienced DNAs. In order to facilitate capacity-building, training and education at the DNA level, capacity-building facilitators should implement training programmes. Thus, an acceptable and standardised level of work will be promoted and maintained and the concerns around approval of unsustain- able projects may be averted? It may be arguable that the introduction of additional bodies such as sectoral EBs and the advisory committee to the present framework will create unneces- sary complexity within the structure. There is, however, a marked trend in inter- national law towards more complex institutions which is, to some extent, justi- fied by the need to address the ever-increasing complexity of environmental law problems and the society it aims to govern. The CDM is a complex and nuanced mechanism which requires the consideration of many factors and interests. It is hoped that the changes suggested here will facilitate this, and may even do so in a way that substantially streamlines the validation and compliance process. REFORM OF THE ADAPTATION FUND No proposed amendment of the CDM would be complete without a review of the Adaptation Fund (AF), the precious child of the CDM, financed by a two per cent levy upon all CDM transactions? The fund is, in effect, a private sector tax and has proven to be unique amongst climate-change funds because of the scale of its revenues. Indeed, the revenue generated from the CDM levy until 2012 alone is projected to be between US$160 million and US$950 million, while the funding presently given to, or pledged by donor countries to, the other two cli- mate-change funds created by the UNFCCC, is only around US$170 million?' It will thus provide a vital source for adaptation funding. In order to adequately manage and disburse the AF funds, the following sug- gestions are made on improving the governance structure of the AF, as well as the scope of its funding activities: 156 INSTITUTE FOR SECURITY STUDIES EFTA01090257 ROSE MWERAZA AND LOUIS J KOTM The Global Environmental Facility and governance of the Adaptation Fund The structure and governance of the AF need to be reviewed, currently they are not adequately addressing the needs of adaptation in developing countries. First, most funding from the Global Environmental Facility (GEF) for adapta- tion has taken place only to the point of enabling activities known as Stage I and II activities, such as vulnerability and adaptation studies to support na- tional communications." Stage III adaptation activities, activities that facilitate adequate adaptation, including insurance and other adaptation measures as envisaged by Article 4(I)(b) and Article 4(4)," have not been funded by the GEF in the climate change focal area, other than on a pilot basis." Second, the funding has primarily been directed towards larger developing countries that are best able to penetrate the GEF bureaucracy to access fund- ing.93 Furthermore, access to AF funding has proven to be prohibitive for de- veloping countries because of the difficulty in proving 'incremental costs' and 'global environmental benefits' in the context of adaptation." Third, it appears that, despite there being 'direct authority' of the COP/MOP over the GEF's management of the AF, as opposed to mere 'guidance', this has not had any substantial effect on the structure of authority within the GEF.97 Additionally, despite voting within the GEF now being subject to 'one country, one vote', it is still possible that divergent interests may affect the vote. As a result, predominately financial or Official Development Assistance concerns continue to take precedence over environmental concerns" It is unlikely that the GEF or any other host institution would accept the COP/ MOP as a full replacement for the GEF assembly or its respective decision-making body." Furthermore, it would be unwise to remove the financial and develop- ment expertise offered by the GEF from a decision-making body.1" It appears, however, that there is a need to ensure that the theoretical authority granted to the COP/MOP is translated into reality. An ideal amendment would thus be to integrate COP/MOP interests into the executive decisions of the AF by delegat- ing a number of interest group representatives from the COP/MOP to participate in the decision-making process. In order to do so, a new COP/MOP Adaptation Fund Committee (AFC) should be created to represent these interests.1" Under this new structure, an Adaptation Fund Executive Council (AFEC) would serve as the governing body of the AF. This body would be representative MONOGRAPH 167 157 EFTA01090258 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA of two separate bodies acting together. The first would be the AFC which, upon determination of the COP/MOP, would either be made up of Kyoto Protocol Parties chosen to represent certain COP/MOP constituencies, or of individu- als chosen for their expertise which would represent the COP/MOP as a whole with a decision-making status equal to all other members, if any, of the AFEC. The second body would be created by the host institution executive body which would act jointly with the AFC. They would thus meet and take decisions jointly as the AFEC. In order to safeguard against 'backroom deals' by the representatives of powerful countries beyond the control of the weaker constituents, it is also proposed that initiatives and referenda for members of the COP/MOP be intro- duced.N2 COP/MOP parties will thus have both the right to vote on AF issues as well as the right to table motions for the AFEC and to force a ballot whether or not they are members of the AFEC.IW Extending the range of the Adaptation Fund To address the lack of funding for adaptation while at the same time recognising the difficulty in realising national financial commitments, it is recommended that the future AF be expanded. This could be achieved by broadening the scope of the two per cent levy so as to apply it to the other two flexible mechanisms, i.e. Joint Implementation and Emissions Trading. Further methods of enhancing funding for adaptation could also include increased funding from public expenditures and development bank loans and tax incentives that would attract more foreign direct investment in terms of capital, technology and skills, and which would enhance domestic abilities to mitigate and adapt to climate change. The additional funds that would be available to the AF, if the funding sources were to be expanded, could be used not only to fund adaptation activities, but also to address capacity-constraint issues. This could be done by financing developing countries that are unable to fund the creation of their framework sustainable development policy under the protocol as well as to support sus- tainable development projects that fall outside of the CDM. It would also serve as a resource to finance capacity-building facilitators. As a way of encouraging sustainable development policies and measures (SDPAMs) outside of the CDM, the funds could also give preferential access to those countries who have dem- onstrated efforts to implement SDPAMS. 158 INSTITUTE FOR SECURITY STUDIES EFTA01090259 ROSE MWEBAZA AND LOUIS J KOTZE CONCLUSION Institutional capacity and expanded opportunities are the bottom line for im- plementing the CDM in Africa. The proposals made in this chapter were there- fore focused on improving capacity and expanding the CDM to provide this opportunity for the African continent. However, given the need for emboldened action on climate change and the many other issues that have hampered the realisation of the goals of the CDM, this contribution has also aimed to provide suggestions with the view to improving and streamlining the CDM process and institutional structures, and has sought to address funding constraints and problems arising out of the nature of the CDM as a market mechanism. Regardless of whether any of the proposals made in this chapter would in- fluence the structure of a post•Kyoto framework or merely open policymakers, legislators, or negotiators' eyes to new solutions and perspectives, our ultimate goal remains to find a comprehensive solution to the climate crisis. Given the statistics and scientific information on climate change and the potentially dev- astating threats it poses to humanity, to the very survival of our species and that of many other species sharing the ecological space with us, the urgency with which such a solution must be crafted calls for innovative and courageous new ideas. In this endeavour, the role of Africa cannot be overlooked. It is our sincere hope that some of the suggestions made herein will find their way into the future protocol and that they may go a long way towards crafting a protocol for sustainable development in Africa and, ultimately, secure the sustainability of humanity's impact on the planet. NOTES Kyoto Protocol to the United Nations Framework Convention on Climate Change, II December 1997, UN Doc. FCCCJCP/1997a.7/Add.1 (entered into force 16 Feb 2005), reprinted in 37 ILM 22. 2 B Metz, O Davidson, P Bosch. R Dave and L Meyer. Climate Change 2007: Mitigation, 2007. published for the Intergovernmental Panel on Climate Change. http://www.ipcc.ch/ipccrep- ortstard.wg3.htm, (accessed 10 December 2008). This increase is based on the global warming potential of the gases controlled under the Kyoto Protocol. and does not include ozone de- pleting substances regulated under the Montreal Protocol. Id. Ozone-depleting substances also contribute to global warming. By reducing emissions of those substances. the Montreal MONOGRAPH 167 159 EFTA01090260 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Protocol has already had a much larger impact on climate change mitigation than the Kyoto Protocol is likely to achieve. 3 Metz et al, Climate change 2007: mitigation, III. 1 A Cosbey. I Parry, J Browne, Y Bab% P Bhandari, J Drexhage and D Murphy, Realizing the devel. opment dividend: making the CDM work for developing countries phase 1 report, International Institute for Sustainable Development. 2005. httpd/www.iisd.org (accessed 23 November 2008). 5 The World Bank. State and trends of the carbon market 2008. May 2008. httpd/siteresources. worldbank.orENEWS/Resources/State&Trendsformatted06Mayl0pm.pdf (accessed 26 Novem- ber 2008); IETA, State of the CDM 2008: facilitating a smooth transition into a mature environ- mental financing mechanism, International Emissions Trading Association. 2008.7. 6 Ibid. 7 Ibid. 8 A Cosbey et al, Realizing the development dividend, 2: P Nelson. An African dimension to the Clean Development Mechanism: finding a path to sustainable development in the energy sector, Denver Journal of International Law and Policy. 32(4) (2003-2004). 615-652. 615; C Figueres, Sectoral CDM: opening the yet unrealized goal of sustainable development. McGill International Journal of Sustainable Development Law and Polity 2 (2006). 5. 7-12: W Sterk and B Wittneben, Enhancing the Clean Development Mechanism through sectoral approaches: definitions, appli- cations and ways forward. International Environmental Agreements 6 (2006), 271.276-278. 9 Ibid. 10 D Murphy. A Cosbey and J Drexhage. Market mechanisms for sustainable development in a post-2012 climate regime, in K Olsen and J Fenhann (eds), A reformed CDM - including new mechanisms for sustainable development, UNEP Perspectives Series (2008). 9, 9-13. 11 M Nigoir, The Clean Development Mechanism: does the current structure facilitate Kyoto Protocol compliance. The Georgetown International Environmental Law Review 18 (2005- 2006), 249, 258: Sterk and Wittneben. Enhancing the Clean Development Mechanism through sectoral approaches: definitions. applications and ways forward, 275. 12 ICF Consulting.Third overall performance study of the GEF, final report. 30 lune 2005, httpdi www.iwleam.nettpublications/mne/ops/Publications-OPS3_complete_report.pdf, 13. 13 Art 12 Kyoto Protocol. 14 Art 12 (2) Kyoto Protocol: For an elementary explanation of the CDM and its processes also see Nigoti, The Clean Development Mechanism; C Carr and F Rosembuj, Flexible mechanisms for climate change compliance: emission offset purchases under the Clean Development Mechanism, N.Y. U. Environmental Law Journal 16 (2007), 43, 45. 15 UN Framework Convention on Climate Change, Report of the Conference of the Parties on its Seventh Session, held at Marrakech from 29 Oct to 10 Nov 2001, Add. Decision 17/CP.7, UN Doc. FCCC/CP/2001,113/Add.2 (21 Jan 2002). 160 INSTITUTE FOR SECURITY STUDIES EFTA01090261 ROSE MWEBAZA AND LOUIS j KOTZE 16 Nigoff. The Clean Development Mechanism; Carr and Rosembuj, Flexible mechanisms for climate change compliance; I Estapa, Flexibility Mechanisms in the Kyoto Protocol: consti- tutive elements and challenges ahead, Revue Generale de Droit 32 (2001), 107; C Hart, The Clean Development Mechanism: considerations (or investors and policymakers, Sustainable Development Law and Policy 7 (2006-2007),11. 17 The G77/China has often, for example. expressed the view that quantified, binding commit- ments would be inappropriate (or them given the need for urgent social and economic devel- opment. and rapid population growth. See, for instance, the UN Framework Convention on Climate Change meeting of Subsidiary Bodies in Bonn 2007. where 'voluntary commitments (or developing countries were proposed. See also the discussions on item 10 in the run-up to the formation of the Kyoto Protocol. J Depledge, Tracing the origins of the Kyoto Protocol: an article-by-article textual history, Technical paper, FCCOTP/200012, 25 November 2000. http://unfccc.int/resource/docutp/tp0200.pdf (accessed 23 November 2008). 18 Ibid, para 177. 19 The suggestions of these various (actors constitute an amalgamation of the proposals submit- ted in the numerous literary analyses on the subject. A Torvanger, G Bang, H Kolshus. and J Vevatne. Broadening the climate regime: design and feasibility of multi-stage climate agree- ments, CICERO Report, 2005, http://www.cicero.uio.no/publications/detail.asepublication_ id=36048dang=en, (accessed 26 November 2008), 2; Swedish Environmental Protection Agency. Kyoto and beyond: issues and options in the global responses to climate change. 2002: J Gupta, Engaging developing countries in climate change: kiss and wake-up!. in D Michel (ed), Climate policy for the 21st century: meeting the long-term challenge of global warming, Washington, D.C: Centre for Transatlantic Relations, 2004.233-264. 20 Intensity levels would mean measuring emissions as a per centage (instead of an absolute amount) of below an anticipated 'business as usual' baseline. 21 Action targets would require reductions equal to an agreed per centage of emissions of actual rather than projected emissions. The reduction requirement is based on actual rather than projected emissions. 22 This is similar to the proposal of Torvanger et al, Broadening the climate regime: design and feasibility of multi-stage climate agreements. 23 For example, at the 2007 Thirteenth Conference of the Parties to the UNFCCC, developing countries (or the first time committed to taking 'nationally appropriate mitigation actions' to address climate change, provided that they receive sufficient financial, technical, and capacity- building support to do so. Both the mitigation actions and the provision of support would be 'measurable, reportable and verifiable'. This marks an important evolution of thinking among the G-77 and China. See the Bali Action Plan, para (1)(b)(i). Decision 1/CP.13. UN Doc. FCCC1 CP/2007/6/Add.1 (March 2008). 21 Carbon Positive, South Africa sets emissions limits, http://www.carbonpositive.netkiewarti- cle.aspx?artidelD=1176 (accessed 20 January 2009). MONOGRAPH 167 161 EFTA01090262 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 25 Stern Review. The Economics of Climate Change, Executive Luminary. 2006. vii http://www. hm-treasury.gov.uldmedia/8A8/O/Summary Condusions.pdf (accessed II May 2008). 26 See UNFCCC. Investment and financial flows to address climate change: an update, 2008. (FCCC/TP/2008/7), http://unfccc.int/fileacooperation_and_supporUfinancial_mechanism/ applicationipdf/adaptation.pdf (accessed 10 December 2008). 27 Ibid; M Ward, C Streck, H Winkler, M lung. M Hagemann, N Hohne, R O'Sullivan, The role of Sector No-Lose Targets in scaling up finance for mitigation activities in developing countries. UK DEFRA, (2008), 18. 28 Ibid. 29 M Bosi and J Ellis, Exploring options for sectoral crediting mechanisms, OECD Environmental Directorate and International Energy Agency (2005). I. 30 W Sterk and B Wittneben. Addressing opportunities and challenges of a sectoral approach to the Clean Development Mechanism, JIKO Policy Paper, Wuppertal Institute (2005). 5. 31 M Ward et al, The role of Sector No-Lose Targets in scaling up finance for mitigation activities in developing countries. 27. 32 Ibid. 33 J Lewis and E Diringer, Policy-based commitments in a post-2012 climate framework - A working paper. Pew Centre on Global Climate Change, (May 2007).13; Figueres, Sectoral CDM: opening the yet unrealized goal of sustainable development. 14-16. 34 Sterk and Wittneben. Addressing opportunities and challenges of a sectoral approach to the Clean Development Mechanism. 12-13. 35 The main difference between sectoral CDM and SNLTs is that the technicalities referring to baselines. monitoring and verification, as well as the supervision and approval by the CDM Executive Board. would be maintained under a sectoral CDM. while the national sector base- line for a SNLT would be negotiated at the COP/MOP level. 36 See generally Bosi and Ellis, Exploring options for sectoral crediting mechanisms: 2.1 Ward. A new scaling up mechanism for developing countries in K Olsen and l Fenhann (eds).A reformed CDAf - including new mechanisms for sustainable development. UNEP Perspectives Series (2008), 147. 37 Ward et al. The role of sector no-lose targets in scaling up finance for mitigation activities in developing countries, 28. 38 Ibid. 39 Sterk and Wittneben, Enhancing the Clean Development Mechanism through sectoral ap- proaches:, 93. 40 Ibid. C Okereke, P Mann. H Osbahr. B Muller and J Ebeling. Assessment of key negotiation issues at Nairobi climate COP/MOP and what it means for the future climate regime, Tyndall Centre for Climate Research, Working Paper 106. June 2007, 20. 162 INSTITUTE FOR SECURITY STUDIES EFTA01090263 ROSE MWEBAZA AND LOUIS J KOTZE 41 Ibid. 42 P Cutlet and P Kameri-Mbote. Joint implementation and forestry projects, International Affairs 74 (1998). 393, 399. 43 C Okereke et al, Assessment of key negotiation issues at Nairobi climate COP/MOP and what it means for the future climate regime, 20. 44 P Nelson, An African dimension to the Clean Development Mechanism. 629. 45 M Rocha, LULUCF under CDM: is there a role or even a future in a post-2012 regime, in K Olsen and J Fenhann (eds). A reformed CDM - including new mechanisms for sustainable development, UNEP Perspectives Series (2008). 173.173. 46 Ibid. 47 See, for example. Emissions trading and the Project Based Mechanisms, 2008. UNFCCC FCCOKP/AWG/2008/1..12. 48 UNEP Risoe Centre, CDM pipeline overview. 2007, http://cdmpipeline.orgipublicationsi CDMpipeline.xls. (accessed 5 December 2008). 49 C Hart, K Watanbe, K Joon Song and X Li. East Asia Clean Development Mechanism: en- gaging East Asian countries in sustainable development and climate regulation through the CDM, Georgetown International Environmental Law Review 20 (2008), 645, 645. 50 Murphy et al, Markel mechanisms for sustainable development in a post-2012 climate regime. 13. SI Hart et al. East Asia Clean Development Mechanism: engaging East Asian countries in sus- tainable development and climate regulation through the CDM. 645. 52 Ibid. 53 Ibid. 54 Ibid. 55 Cosbey el al, Realizing the development dividend, 13, 40. 56 For example, a priority project in a priority state could generate I CER per tCO' reduced whilst a priority project in a non-priority state could generate 0.9 CERs per tCO' reduced. Consequently, a non-priority project in a non-priority state would only generate 0.8 CERs per tCCI2 reduced. 57 W Sterk, From Clean Development Mechanism to sectoral crediting approaches- way forward or wrong turn, JIKO Policy Paper, Wuppertal Institute, (2008), 8. 58 Ibid. 6. 59 Ibid. 8. 60 Ibid: M Nigoff, The Clean Development Mechanism, 256; Sterk and Wittneben, Enhancing the Clean Development Mechanism through sectoral approaches, 276. MONOGRAPH 167 163 EFTA01090264 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 61 FCCOKP/CMP/2005,81Add.1 par 43. 62 See the commentators listed in G Elabed and B Leguet. A reformed CDM to increase supply: room for action, in K Olsen and f Fenhann (ads), A reformed CDM - including new mechanisms for sustainable development, UNEP Perspectives Series (2008).73.80. 63 W Sterk, From Clean Development Mechanism to sectoral crediting approaches. 7; L Schneider, Is the CDM fulfilling its environmental and sustainable development objective? An evaluation of the CDM and options for improvement, Berlin: Oka-Institut (2007), 40-44. 64 Stark, From Clean Development Mechanism to sectoral crediting approaches. 7. 65 Stark and Wittneben, Enhancing the Clean Development Mechanism through sectoral ap- proaches. 275. 66 Article 12(3)(b) Kyoto Protocol; T Langrock and W Stark. The supplementary challenge: CDM, J1 and EU Emissions Trading. WO Policy Paper, Wuppertal Institute. (2004), 7; Sterk and Wittneben, Enhancing the Clean Development Mechanism through sectoral ap- proaches. 280. 67 It is recognised that developing countries thus far have been emphatic about having the sover- eign determination over what constitutes sustainable development. However. it is submitted that the risk to environmental integrity of the process is too great to allow these sovereignty concerns to take precedence. To some extent perhaps a compromise could be reached by providing for a collaborative process whereunder the ER's would determine together with discussions with parties as to how these guidelines would apply and perhaps be tailored to meet the needs of individual states. Sustainable development could be defined along the following broad criteria: income generation, environmental sustainability.employment generation, capacity building and technological development. C Figueres, Sectoral CDM: opening the yet unrealized goal of sus- tainable development. 10-11. and A Cosbey et al. Realizing the development dividend: making the CDM work for developing countries phase 1 Report. 15. set out a possible list of criteria that could be used to assess sustainability. 68 A Cosbey et al, Realizing the development dividend, 44. 69 Ibid. 40. 70 Elabed and Leguet. A reformed CDM to increase supply, 80. 71 Ibid. 72 Sterk and Wittneben, Enhancing the Clean Development Mechanism through sectoral ap- proaches. 283. 73 W Sterk, From Clean Development Mechanism to sectoral crediting approaches, 17. 74 Bosi and Ellis, Exploring options for sectoral crediting mechanisms, 9: Sterk and Wittneben. Addressing opportunities and challenges of a sectoral approach to the Clean Development Mechanism, 9-10: For a more detailed discussion on double counting see S Bygrave and M 164 INSTITUTE FOR SECURITY STUDIES EFTA01090265 ROSE MWEBAZA AND LOUIS J KOTZE Bosi, Linking project-based mechanisms with domestic greenhouse gas emissions trading schemes, OECD/IEA information paper. 2004. 75 This is similar to the 'nested approach' as identified by Ward et al. The role of sector no-lose targets in scaling up finance for mitigation activities in developing countries. 69. 76 For a detailed exposition of the actors and processes of the CDM seem Nigoff, The Clean Development Mechanism. 77 C Streck and J Lin, Making markets work a review of CDM performance and the need for reform, European Journal of International Law 409 at 410, 2008. 78 Ibid at 424. 79 Elabed and Leguet. A reformed CDM to increase supply. 78. 80 Sterk and Wittneben, Enhancing the Clean Development Mechanism through sectoral ap- proaches. 275: Nigoff, The Clean Development Mechanism, 257. 81 Nigoff. The Clean Development Mechanism, 258; Sterk and Wittneben, Enhancing the Clean Development Mechanism through sectoral approaches. 275. 82 1 Schneider, Is the CDM fulfilling its environmental and sustainable development objective?, 20. 83 For more information on the distribution of DNAs within Africa, see D Lesolle, Perspectives from Africa on a reformed CDM, in K Olsen and J Fenhann (eds), A reformed CDM - indud- Mg new mechanisms for sustainable development, UNEP Perspectives Series (2008), 35. 84 A Cosbey et al, Realizing the development dividend. 45. 85 Sterk and Wittneben, Enhancing the Clean Development Mechanism through sectoral ap- proaches. 281-284. 86 Policies could be considered additional by virtue of their decided GHG-reduction effect. Individual activities under such policies would then also not have to be submitted to any other additionality test. Figueres, Sectoral CDM. 22. 87 Nigoff, The Clean Development Mechanism, 272; Cosbey et al, Realizing the development dividend, 29. 88 Elabed and Leguet. A reformed CDM to increase supply. 81. 89 Ibid. 90 Art 12 (8), Kyoto Protocol. 91 B Muller, Nairobi 2006: trust and the future of adaptation funding. Oxford Institute for Energy Studies (2007), 3. 92 See the Report on the Assessment of Funding Necessary to Assist Developing Countries in Fulfilling their Commitments under the Convention Prepared in the Context of the MONOGRAPH 167 165 EFTA01090266 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Memorandum of Understanding between the Conference of the Parties and the Council of the Global Environment Facility (FCCGSBU2004/18.21 October 2004), 9. 93 M Mace, Funding for adaptation to climate change: UNFCCC and GEF developments since COP-7, Review of European Conununityand International Environmental Law 14(3) (2005), 225, 232; Report of the Conference of the Parties on its First Session, held at Berlin from 28 Mardi to 7 April 1995 (FCCCJCP/1995/7/Ad4.1,6 June 1995): see, specifically. Initial Guidance on Policies, Programme Priorities and Eligibility Criteria to the Operating Entity or Entities of the Financial Mechanism (Decision 11/CP.1, 1995). 94 Mace, Funding for Adaptation to Climate Change: UNFCCC and GEF Developments since COP-7, 232. 95 Third overall performance study of the GEE Final report, httpJ/www.iwlearn.netlpublications/ mne/ops/Publications-OPS3_complete_report.pdf, (ICF Consulting. 30 June 2005), 13. 96 Mace. Funding for adaptation to climate change. 2311be incremental cost concept is problem- atic in the context of adaptation, as most adaptation projects are adopted for their local benefits. rather than their 'global environmental benefits'. 97 B Muller. Nairobi 2006,21. 98 Ibid, 16. Official development assistance (ODA) is a category of development aid. The term applies to aid from the members of Development Assistance Committee of the OECD to devel- oping countries. 99 'bid, 23. 100 Ibid, 3. 101 In line with the 'management committee envisaged in the G77 and China questionnaire. 102 B Muller. Nairobi 2006.5. 103 Ibid. For the current practice, see OECD Meeting: ODA eligibility issues for expenditures under the Clean Development Mechanism, DAC/CHAIR(2004)4/FINAL 30 April 2004, http•Il wwin.oecd org/dataoeed/12/47/33657913.pdf (accessed 10 December 2008): Mace, Funding for Adaptation to Climate Change. 242. BIBLIOGRAPHY Conventions and official documents Kyoto Protocol to the United Nations Framework Convention on Climate Change, 11 December 1997, UN Doc. FCCCJCP/1997/L.7/Add.1 (entered into force 16 Feb 2005), reprinted in 37 I.L.M. 22. 166 INSTITUTE roa SECURITY STUDIES EFTA01090267 ROSE ?AWE GAZA AND LOUIS J KOTZE UN Framework Convention on Climate Change. Report of the Conference of the Parties on its Seventh Session, held at Marrakech from 29 Oct to 10 Nov 2001, Add., Decision 17/CP.7, UN Doc. FCCOCP/2001/13/Add.2 (21 January 2002). Bali Action Plan Decision 1/CP.13, U.N. Doc. FCCCJCP/2007/6/Addi Emissions Trading and the Project Based Mechanisms (2008) UNFCCC FCCCJKWAWG/2008/1.12 Report of the Conference of the Parties on its First Session, held at Berlin from 28 March to 7 April 1995 (FCCC/CP/1995/7/Add.l. 6 June 1995). Books Gupta, 1. Engaging developing countries in climate change: kiss and wake-up! In D Michel (ed), Climate policy for the 21st century: meeting the long-term challenge of global warming. Washington, DC: Centre for Transatlantic Relations, 2004. Journals and articles Bosi, M and Ellis, J. Exploring options for sec toral crediting mechanisms. In OECD Environmental Directorate and International Energy Agency(2005). Bygrave. S and Bosi, M. Linking project-based mechanisms with domestic greenhouse gas emis- sions trading schemes. OECD/IEA Information paper. Paris: 2004. Carbon Positive. South Africa sets emissions limits. Carbon Positive. Available at http://www. carbonpositive.netiviewarticle.aspearlidelD=1176 (accessed 20 January 2009). Carr, C and Rosembuj. F. Flexible mechanisms for climate change compliance: emission onset pur- chases under the Clean Development Mechanism, NYU Environmental Law Journal 16(1) (2007). Cosbey, A. Parry, J. Browne, J, Babu, Y, Bhandari, P, Drexhage. J. and Murphy. D. Realizing the development dividend: making the CDM work for developing countries phase 1 report. International Institute for Sustainable Development. Available at http://www.iisd.org (accessed 23 November 2008). Cutlet. P and Kameri-Mbote, P. Joint implementation and forestry projects. International Affairs 74(2)(1998). Depledge. J. Tracing the origins of the Kyoto Protocol: an article-by-article textual: FCCCITPI2000/2 (25 November 2000). Available at http://unfcccint/resource/docsitp/tp0200.pdf (accessed 23 November 2008). Elabed. G and Leguet. B. A reformed CDM to increase supply: room for action. In K Olsen and J Fenhann (eds). A reformed CDM - including new mechanisms for sustainable development, UNEP Perspectives Series, 2008. Estapa. J. Flexibility mechanisms in the Kyoto Protocol: constitutive elements and challenges ahead. Revue Generale de Droit 34 (2004). MONOGRAPH 167 167 EFTA01090268 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Figueres. C. Sectoral CDM: opening the yet unrealized goal of sustainable development. McGill International Journal of Sustainable Development Law and Policy 20) (2006). Hart, C. The Clean Development Mechanism: considerations for investors and policymakers. Sustainable Development Law and Policy 7(3) (2007). Hart, C, Watanbe, K, Joon Song, K, and Li, X. East Asia Clean Development Mechanism: engaging East Asian countries in sustainable development and climate regulation through the CDM. Georgetown International Environmental Law Review 20 (2008). IETA. State of the CDM 2008: facilitating a smooth transition into a mature environmental fi- nancing mechanism. International Emissions Trading Association. 2008. Langrock. T and Sterk. W. The supplementary challenge: CDM, J1 and EU emissions trading. JIKO Policy Paper. Wuppertal Institute. 2004. Lesolle. D. Perspectives from Africa on a reformed CDM. In K Olsen and' Fenhann (eds),A reformed CDM- including new mechanisms for sustainable development. UNEP Perspectives Series. 2008. Lewis, J and Diringer. E. Policy-based commitments in a post-2012 climate framework: a working paper. Pew Centre on Global Climate Change. 2007. Mace, M. Funding for adaptation to climate change: UNFCCC and GEF Developments since COP-7, Review of European Community and International Environmental Law 14(3) (2005). Metz, B, Davidson, O. Bosch, P, Dave, IL and Meyer. L. Climate change 2007: mitigation. Published for the Intergovernmental Panel on Climate Change, 2007. Available at http://www.ipcc.chi ipccreportslard.wg3.htm (accessed 10 December 2008). Muller, B. Trust and the future of adaptation funding. Oxford Institute for Energy Studies, 2006. Murphy. D. Costley. A. and Drexhage. J. Market mechanisms for sustainable development in a post 2012 climate regime. In K Olsen and J Fenhann (eds). A reformed CDM- including new mechanisms for sustainable development. UNEP Perspectives Series. 2008. Nelson. P. An African dimension to the Clean Development Mechanism: finding a path to sustain- able development in the energy sector. Denver Journal of International Law and Policy32 (2004). Nigoff. M. The Clean Development Mechanism: does the current structure facilitate Kyoto Protocol compliance? The Georgetown International Environmental Law Review 210) (2006). OECD Meeting:ODA eligibility issues for expenditures under the Clean Development Mechanism (DAC/CHAIR(2004)4/FINAL, 30 April 2004). Okereke, C, Mann, P, Osbahr, H. Muller. B. and Ebeling. J. Assessment of key negotiation issues at Nairobi climate COP/MOP and what it means for the future climate regime. Tyndall Centre for Climate Research. 2007. Rocha, M. LULUCF Under CDM: Is there a role or even a future in a post-2012 regime? In K Olsen and J Fenhann (eds), A reformed CDM - including new mechanisms for sustainable develop- ment. UNEP Perspectives Series. 2008. 168 INSTITUTE FOR SECURITY STUDIES EFTA01090269 ROSE MWEBAZA AND LOUIS J KOTZE Schneider. L. Is the CDM fulfilling its environmental and sustainable development objective? An evaluation of the CDM and options for improvement. Berlin: Oku-Institut. 2007. Sterk W and Wittneben, B. Addressing opportunities and challenges of a sectoral approach to the Clean Development Mechanism. JIKO Policy Paper. Wuppertal Institute. 2005. Sterk W and Wittneben, B. Enhancing the Clean Development Mechanism through sectoral ap- proaches: definitions, applications and ways forward. International Environmental Agreements: Politics, Law and Eatnontics6 (2006). Sterk B. From Clean Development Mechanism to sectoral crediting approaches- way forward or wrong turn? JIKO Policy Paper. Wuppertal Institute. 2008. Stem Review. The economies of climate change. Executive summary. 2006. Available at http://www. hm-treasury.gov.uk/medial8A8/CUSummary_of Conclusions.pdf (accessed 11 May 2008). Streck, C and Lin, J. Making markets work: a review of CDM performance and the need for Reform. European Journal of International Law 19(2) (2008). Swedish Environmental Protection Agency. Kyoto and beyond: issues and options in the global responses to climate change, 2002. Torvanger. A. Bang. C, KoLshus.H and Vevatne. J. Broadening the climate regime: design and feasibil- ity of multi-stage climate agreements. CICERO Report 2 (2005). Available at http://www.cicero.uio. nolpublicationsidetaiLasp?publication_id=36042clang=en (accessed 26 November 2008). UNEP Risoe Centre. CDM pipeline overview. 2007. Available at http://cdmpipeline.orgipublica- tionstCDNIpipeline.xls (accessed 5 December 2008). UNFCCC. Investment and financial flows to address dimate change: an update, 2008 (FCCCA TP/2008/7). Available at http:Bunfccc.int/filesicooperation_and_supportifinancial_mecha- nisnitapplicationiptif/adaptation.pdf (accessed 10 December 2008). Ward, M. A new scaling up mechanism for developing countries. In K Olsen and J Fenhann (eds), A reformed CDM - including new mechanisms for sustainable development. UNEP Perspectives Series, 2008. Ward, M, Streck, C. Winkler, H, Jung. M. Hagemann, M. Hohne, N, O'Sullivan, R. The role of Sector No-Lose Targets in scaling up finance for mitigation activities in developing countries. UK DEFRA, 2008. World Bank. State and trends of the carbon market, 2008. Available at hitp://siteresources.worldbank. org/NEWS/ResourcesiState&Trendsformatted06Mayl0pm.pdf (accessed 26 November 2008). MONOGRAPH 167 169 EFTA01090270 EFTA01090271 The clean development mechanism and forestry projects in Cameroon The case of forestry projects in Cameroon CHRISTOPER F TAMASANG ABSTRACT This chapter examines the potential which the Clean Development Mechanism (CDM) offers for the reduction of carbon dioxide emissions in Africa. In doing so, the paper investigates the CDM's conditionality drawn from the provisions of the Kyoto Protocol itself, literature on the subject, and certain decisions of the Conference of the Parties (COP) to the protocol. This conditionality is ex- amined within the context of African forest projects in general, and Cameroon forest projects in particular. The chapter condudes that there are a number of legal concerns under the protocol which require review if the objectives of the CDM are to be achieved, and proposes that a better option to climate change governance mechanism would consist of complementing project development with litigation. INTRODUCTION One of the most serious environmental and development challenges of this millennium is undoubtedly a change in the climate systems of the world. MONOGRAPH 167 171 EFTA01090272 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Consequently, climate change has suddenly vaulted to the top of the global agenda. This is traceable to global initiatives intended to address the climate change phenomenon, its causes and adverse effects on common concerns of hu- mankind. One such leading global agreement is the United Nations Framework Convention on Climate Change (UNFCCC) signed in 1992 as one of the out- comes of the Rio Conference on Environment and Development. To ensure the observance and enforcement of the UNFCCC, the international community converged in Kyoto and, with the exception of some major industrialised world powers, adopted the Kyoto Protocol. The principal focus of the Kyoto Protocol is climate change. Climate change refers to the potential response of the earth's climate system to altered concen- trations of greenhouse gases (GHGs) in the atmosphere.' There is consensus among scientists that the balance of evidence suggests that there is a discernible human influence on global climate change.2 The principal anthropogenic GHG responsible for climate change is carbon dioxide (CO2) from fossil-fuel based economies and deforestation from developing countries, including African countries.' The result is that these and other emissions pose a threat to hu- mankind and environmental resources in equal measure. The Kyoto Protocol attempts to address the global overall emission of GHGs through a number of provisions on mitigation. This is, inter cilia, through the Clean Development Mechanism (CDM) which is one of the three flexible mechanisms under that protocol.' The protocol, through its CDM, makes provision for investment by developed countries and their industrial legal entities in projects related to carbon emission reduction and carbon sequestration in developing countries, which would include Africa.5 While these projects will enable developed coun- tries (the so-called Annex 1 countries) to meet Kyoto emission reduction and quantified emission limitation targets, they should contribute to sustainable development in developing countries (so-called non-Annex 1 countries)! The CDM, therefore, possesses some potential for climate change mitiga- tion in Africa. Referring to African forestry projects in general, and Cameroon forestry projects in particular, this chapter commences with an investigation into legal conditionality or requirements under the Kyoto Protocol for the CDM mechanism, and attempts to assess the extent to which African forestry projects in general, and Cameroon forestry projects in particular, could play a role in the CDM context. The chapter then proceeds to examine the challenges to the attainment of the CDM conditionality provisions, and explores some 172 INSTITUTE FOR SECURITY STUDIES EFTA01090273 ROSE MWEBAZA AND LOUIS J KOTZE opportunities and benefits that may arise from an effective implementation of the CDM conditionality. The chapter suggests that, to reap such benefits, the continent must harness some legal responses that may enhance progress in the direction of the implementation of CDM forestry projects. THE CLEAN DEVELOPMENT MECHANISM REQUIREMENTS OR CONDITIONALITY The CDM and the other flexible mechanisms are market•based mechanisms that allow countries to buy and sell allowances of carbon credits created through emission reduction projects. Prior to the issuance of certified emission reduc- tions by the CDM Executive Board, CDM projects must meet a certain number of conditions. These conditions or requirements are contained in the protocol itself,' in subsequent Decisions* arrived at during the Conference and Meeting of Parties and in some analytical and critical climate change literature on modalities and procedure.9 The current CDM requirements may be subsumed under the following headings: eligibility or fitness, additionality or added value, acceptability, externalities and certification. In fact, these are the conditions under which all projects qualify as CDM projects in developing countries. It is these conditions that are examined seriatim in the sections below by drawing examples from forestry projects in Africa and Cameroon. CLEAN DEVELOPMENT MECHANISM REQUIREMENTS FOR FORESTRY PROJECTS Eligibility or fitness Two dimensions of issues relating to land eligible for CDM projects in Africa are discernible, namely: the suitability of the forest within the definition of `forest' provided by the host country as required by the Conference of the Parties,10 and the type of forestry activity." The suitability of the forest With regard to the suitability of the forest, the Conference of the Parties, through their Decisions (11/CP.7 and 19/CP.9), require countries to define and choose ranges for national threshold values of crown cover, tree height and MONOGRAPH 167 173 EFTA01090274 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA minimum land area. It is further required that these values be determined and communicated to the executive board of CDM by the Designated National Authority (DNA) of the host country. The Forestry Law' of Cameroon, for in- stance, defines forest as: Vijny land covered by vegetation with a predominance of trees, shrubs and other species capable of providing products other than agricultural produce.'" In spite of the fact that the conception of this defini- tion by the Cameroonian forestry legislator came at a time when negotiations leading to the Kyoto Protocol were only just commencing, it must be noted that today this definition does not consider issues like crown cover, tree height and minimum land area as required by the CDM fitness criterion. In addition, the requirement of choosing single values each for crown cover calls for empirical and mathematical formulae entailing meticulous data analysis of CO2 seques- tration potential of various forest types for African countries." This complicates the definition of 'forest' within the CDM rules and forces many countries's out of the eligibility requirement. To meet this arm of the eligibility requirement, Cameroon is therefore still required to clarify and communicate the definition of 'forest' to the executive board of the CDM. Type of forestry activity The second dimension of the eligibility criterion turns on the type of forestry ac- tivity. For this, the categories are closed, at least for the first commitment period of the Kyoto Protocol. They indude afforestation and reforestation (AIR) activi- ties.16 These activities have been considered the dominant mitigation options" by the Kyoto Regime. Afforestation under the CDM rules would mean planting trees on land that has been below all the threshold values, including crown cover, tree height and minimum land area of the host country's definition, for a period of at least 50 years." Reforestation by the same rules entails planting on land that has been below the threshold value since 31 December 198929 Some authors have forcefully argued that afforestation and reforestation projects (or sink projects) make sense in Africa in the light of the sometimes severe land degradation that occurs, and because of the heavy dependence on wood resources for people's livelihoods.10 While this argument may be tenable, it is unfortunate that many African countries have not or are unlikely to regard the argument in a similar light. Perhaps, for purposes of meeting the CDM eligibility requirement, these countries must rethink their position. For this to happen, however, countries must also surrender heavy reliance on external 174 INSTITUTE FOR SECURITY STUDIES EFTA01090275 ROSE MW BAZA AND LOUIS J KOTZE funding for AIR projects. Fortunately, the Conference of the Parties, in Decision No 14/CP.I0 and Decision No I9/CP.9, have simplified the modalities to what is now known as small-scale afforestation and reforestation projects intended to facilitate implementation. For these projects to qualify, therefore, the host country needs to approve that the project developers are low-income communi- ties or individuals. This is a clear indication that the CDM requirements are framed basically for micro-level projects which, of course, is a potential which should be exploited by African countries. Most forestry projects operating in African countries in the recent past have been structured around community participation in forest management for sustainability,21 resulting from various national laws on procedure of acquisition and management. In fact, the community forestry project in Cameroon may to an extent be identified with the CDM project, as it is acquired and managed by village communities living on less than half a dollar a day and who are involved in small AIR projects in their compartment programs within their community forestry management plan as required by law." The government has, however, not clearly determined the criteria that would define such a community as required by Decision I4/CP.10. It simply states that a community should be a village community neighbouring the forest." Again, within the context of the Decision above, individuals involved in private forestry projects envisaged by the Cameroon Forestry Law" could also qualify under this CDM conditional- ity. They are, in addition, people living on less than half a dollar a day. In any case, for such small-scale AIR to qualify for CDM, they must result in net GHG removal by sinks of less than eight kilotonnes of CO, per year during the credit- ing period. Additionality or added value Under this head, emission reduction or sequestration must be 'additional' to any that would occur in the absence of the proposed projects in accordance with the CDM modalities and procedure." Considered otherwise, additionality means that projects must result in a net storage of carbon and thus a net removal of carbon from the atmosphere.36 Additionality may take various dimensions. Programme additionality, for instance, may imply that emissions reduction is additional to emissions stipulated by law in the host country. Additionality may also be investment in nature, whereas a project might justify added value MONOGRAPH 167 175 EFTA01090276 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA by showing that the creation of carbon offsets will entail cost that would not be incurred in the `business as usual' opportunity. However, this may not be considered as a requirement per se. Finally, financial additionality requires that funding for the implementation of projects must not come from overseas devel- opment or funds from environmental assistance. Throughout Africa, and in Cameroon in particular, legal issues that are likely to influence additionality as a CDM requirement could be articulated around land tenure policies, forest resource rights, and risk management regulations. Land tenure policies Land tenure reforms in most African countries after independence have led to much confusion. In Cameroon, for example, land tenure legislation" provides that land belongs to the state. Yet in terms of customary law, local communi- ties own land and the generalised nature of ownership in this respect is that of collective land ownership. The result is that, as the government grants titles as evidence of ownership, the local traditional chiefs, who today in Cameroon wield political powers in addition to their natural ritual powers, may also establish elements of sovereignty over land ownership and management. A natural result is that some people may hide behind the state ownership provi- sion to access and enjoy land at the local level, thereby ignoring the authority of local chiefs. Some authors have argued that this kind of confusion arising from national and local level overlaps may not favour carbon project uptake and management.28 Forest resources rights and risk management regulations To meet the additionality requirement, rights to forest products must be clearly defined by law. If communities can clearly determine their entitle- ments or benefits to carbon, this will encourage proper investment and commitment to increase carbon sinks and sequestration. Generally, African forestry projects involving communities have hardly stipulated clear and precise provisions on benefits to local communities from forest management. In Cameroon, for example, the forest does not stride scum belong to the communities, but communities are entitled to forest products resulting from their activities as provided for by the 1994 Forestry Law. The latter law also provides that forest products of all kinds resulting from the management of community forests shall belong solely to the village communities concerned." 176 INSTITUTE FOR SECURITY STUDIES EFTA01090277 ROSE MWEBAZA AND LOUIS J KOTZE A prima facie reading of this provision gives one the impression that even carbon sequestration belongs to the communities involved in AIR projects. Unfortunately, the same law provides that forest products comprise mainly wood and non-wood products as well as wildlife and fishery resources derived from the forest.J0 The law further lists certain forest products, and concludes by stating that the list of special forest products shall be fixed, as and when necessary, by the competent ministry." This may be problematic since the list of special products is not closed and can be extended at the discretion of the minister concerned; it implies that carbon services could be included into the list of special products. Should this happen in the community forest or CDM projects, communities would be frustrated. Consequently, it is unlikely that they would risk investment for carbon sequestration, more so because they are unlikely to bring an action against the state in any court in such circum- stances, as this would be substantially and procedurally very difficult." Worse still, the minister reserves a right to suspend or terminate the community's forest management agreement." The investment risk is accordingly multiplied in this case. A crucial question, then, is what becomes of the certified emission process in any of the cases above? The foregoing analysis notwithstanding, it can be submitted that, in any event, the provisions of the law are so clear, i.e. 'forest products of all kind' that a subsequent ministerial decision should not prevail over the law. This suggestion is predicated on the fact that, according to the hierarchy of legal norms, such a ministerial decision would not over- ride the provisions of the law. CDM projects involve investment by developed countries or their legal enti- ties in projects in developing countries. However, a lot of caution needs to be exercised in terms of resource risk minimisation. Forest fires have always been the principal cause of African forest destruction and pose several risks to po- tential CDM projects." Forest fires are often caused by communities as they use them as a clearing technique for subsistence agriculture, provoking fresh grass growth for cattle, and hunting, especially in the mountainous forest regions of Africa." As a matter of fact, community crops and forests are usually exten- sively destroyed by fire. Consequently, there is need for harmonised policies and strategies" to address problems caused by fire because, if not, a difference in fire-fighting techniques would have far-reaching implications for carbon for- estry projects, as this may discourage investors' confidence in carbon forestry in the host country. MONOGRAPH 167 177 EFTA01090278 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA Acceptability For carbon emission reduction projects in developing countries to qualify as CDM projects, a number of criteria must be fulfilled. They include sustainable development, consistency and conformity with international legal instruments. There must also be an evaluation of the AIR CDM projects in connection with risks associated with the use of potentially invasive alien species or genetically modified organisms (GMOs). These criteria are considered below. Sustainable development considerations The Kyoto Protocol is firm on the sustainable development criterion." The Conference of the Parties" also reiterates the fulfilment of this criterion for projects to be acceptable under the CDM. In this respect, therefore, African countries in general, and Cameroon in particular, must have clearly articulated criteria for sustainable development if the objective is to have forestry projects fall under the CDM regime. Of course, the fulfilment of this criterion may not be easy given the sustainable development problematique debate which pitches the concept as a goal, an objective; a process against rules, principles, procedures, and an emerging umbrella of environmental and related rights." Furthermore, sustainable development considerations have posed numerous problems, and some writers have taken the view that it is a paradox as it requires bringing together irreconcilable ecocentric and anthropocentric principles.* This notwithstanding, Cameroon has defined sustainable development cri- teria for project assessment under the CDM." Unfortunately, these criteria have not yet been tested on any carbon forestry project. Therefore, the challenges in this respect that projects that are approved actually contribute to sustainable development, are significant. It has been argued that the indicators are not suf- ficiently tight and, in some cases, are even redundant." Drawing examples from some community forestry projects, the community forestry legal framework stipulates some requirements that are intended to enhance sustainable manage- ment of forests. This would include a demonstration that all villagers participate in decision-making to create a community forest; that inventories are carried out; management plans are produced; forest boundaries are clearly demarcated; and benefit-sharing mechanisms are clearly set out. Although in Cameroon all approved community forests today could be said to have fulfilled these conditions, more than half of the communities are not 178 INSTITUTE FOR SECURITY STUDIES EFTA01090279 ROSE ?AWE BAZA AND LOUIS J KOTZE respecting their management plans, especially those in the southern part of the country, where timber is the main forest product and attracts many timber exploiters for immediate financial gains!' How, then, will sustainable develop- ment be enhanced in these circumstances? It is proposed that, within a small- scale of CDM projects with simplified procedures, carbon funds could be more beneficial and could enhance a scenario where carbon forestry projects would replace illegal logging and the so•called 'sale of standing volume' as the former contributes to sustainable development in the country. In sum, proper mitiga- tion of climate change through carbon forestry projects offsets and sustainable development considerations are mutually reinforcing." Consistency and conformity with international law Projects vying to qualify as CDM projects within the ambit of the acceptabil- ity requirement must be consistent and comply with other international legal instruments. This would entail that African forestry projects in general, and Cameroon forestry projects in particular, must clearly demonstrate that they are not repugnant to the spirit of other international agreements and guide- lines pursuing similar or related objectives. Therefore, any forestry project should demonstrate consistency and conformity with, for example, Agenda 21. Cameroon, like many other African countries, has signed and/or ratified most of these international natural resource management agreements and must therefore consider the provisions of the international law regime when crafting CDM forestry projects. Regulatory framework for potentially invasive species and GMOs Forestry projects that use invasive or potentially invasive species and GMOs are at risk of being successfully executed. For instance, the daisies have been iden- tified as invasive species with enormous threat to forest margins, commercial forest plantations and others in the Southern part of Africa". To ensure that this kind of risk is assessed and sufficiently controlled by countries undertaking forestry projects, the CDM cautions that such countries should provide regula- tory frameworks which address such risks. Fortunately, some countries of the Southern African region, South Africa, for example, has legislation on the control, cultivation and trade of invasive species". However, non-registration of a forestry project, for instance, will not be justified in the absence of regulations for potentially invasive species and GMOs, especially where there is little risk MONOGRAPH 167 179 EFTA01090280 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA for this affecting the project. It may nevertheless be important for sustainable management of ecosystems as a whole.' In the case of Cameroon, there is no clear regulatory framework for such a cautionary approach, but a casual and somewhat indirect reference is made in Decree No 95.531-PM of 23 August 1995 as per the following phrase: `IT) he conditions organising the prevention and control of diseases and insects threatening forest plantations and species shall be determined by order of the Minister in charge of forestry.'" Unfortunately, as is the case with other incor- rectly drafted and postponing provisions of this nature in forestry legislation, such a ministerial order is still awaited. Externalities The following sections examine two phases of externalities, namely impact as- sessment and leakage. Impact assessment For forestry projects to meet this requirement there must be a clear demonstra- tion of a strategy to deal with impacts or effects that are likely to ensue from project implementation. Such impacts may be positive or negative in an eco- nomic, sociocultural and environmental sense. In fact, a majority of African countries have now crafted impact assessment policies for project initiation and implementation. In the case of Cameroon, there exists an arsenal of legislative instruments" for impact assessment of projects. It means, therefore, that in the case of CDM projects, the DNA would only approve forestry projects that take impact analysis into consideration. Cameroon, like many African countries, is most likely to meet this arm of externalities since it has various impact assess- ment policies and laws already in place. Leakage It is increasingly acknowledged that leakage is an important aspect of externali- ties in CDM projects. Leakage is the unplanned emission that may occur outside the frontiers of a project as a consequence of activities within the project. In for- estry projects, for example, a conservation measure intended to increase carbon reservoirs or sinks within the forest may lead communities depending on such a forest to recover lost opportunities by increasing pressure on neighbouring 180 INSTITUTE FOR SECURITY STUDIES EFTA01090281 ROSE MWERAZA AND LOUIS J KOTZE forests. Consequently, the carbon sinks or reservoirs envisaged within the project may be offset by carbon emissions in the adjoining forest." Ordinarily, leakage should not invalidate a project unless, of course, it clearly emerges that projections of emissions are sufficiently substantial to negate estimated carbon offsets. This notwithstanding, project analysis should show how such eventuali- ties will be minimised. Certification Certification is the last stage before emission reduction certification is issued by the CDM executive board. It deals with the review and approval of project procedure. Prior to this, the CDM rules require that the measurements, reality or concreteness of the project and its long term characteristics be verified inde- pendently by a designated operational entity (DOE), a third party accredited by the CDM executive board. The CDM project phase must pass three tests. These are discussed below. The validation stage This stage involves the process of independent evaluation of the proposed project as evidenced in the project designed document and as required by the CDM. The end result of this stage is the registration of the project which is the formal acceptance by the executive board of the validated project." In fact, reg- istration is the prerequisite for verification, certification and issuance of certi- fied emission reductions relating to the project activity. The verification stage This is a crucial and complicated stage as it entails an independent review process of monitoring reduction or sequestration that has occurred since the registration of the project activity. It has to be done within a timeline and after project implementation has started. The objective is to actually assess the extent to which carbon offsets have been attained. Certification stage The certification stage is where the DOE gives a written confirmation of the emis- sion reduction or sequestration achieved by the project during a specific period. The outcome is the issuance of certified emission reduction. Thus, to meet the CDM MONOGRAPH 167 181 EFTA01090282 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA requirement of certification under the Kyoto Protocol, all African countries must go through the review and approval procedures. In Cameroon, for instance, the review and approval procedures for CDM projects are contained in a Ministerial Decision.' The review and approval procedures are done by the DNA, i.e. Comite National MDP Cameroun. The ministry has reviewed and approved more than 300 community forestry applications based on the regulatory framework," although, in some instances, with difficulty." As the government is currently reviewing and updating the community forestry regulatory framework, this may eventually fa- cilitate review and approval processes, and the DNA could learn some lessons to eventually use in reviewing and approving CDM forestry projects. TRENDS, CHALLENGES AND OPPORTUNITIES RELATED TO THE ATTAINMENT OF CDM REQUIREMENTS IN AFRICAN FORESTRY PROJECTS Trends The Kyoto Protocol, through its CDM, offers potential for the development of carbon forestry projects in Africa. Unfortunately, the CDM's potential for carbon forestry development sometimes appears too difficult for African countries to realise. This view has also been taken by other writers stating that trends in African participation in CDM projects are especially grim." This may explain why, to date, only one of about 30 CDM forestry projects has been approved.66 There is concern that Africa may lose out on opportuni- ties. However, there are quite a number of CDM energy projects in Africa. The crucial question is: why are carbon projects not being mounted in Africa and in Cameroon despite the potential from CDM? Put another way, what are the opportunities for and constraints or challenges facing effective uptake of CDM forestry projects in Cameroon? Challenges Non-consideration of local realities The African continent, particularly Cameroon, is characterised by various indigenous and traditional realities. These realities range from knowledge in- stitutions, customs, forest types and policy frameworks, to name but a few. The 182 INSTITUTE FOR SECURITY STUDIES EFTA01090283 ROSE MWERAZA AND LOUIS J KOTZE challenge is greater for Africa when we adopt a uniform solution to the world's problems, for instance the modalities for CDM forestry projects. Therefore, in- digenous and traditional knowledge institutions of the people, the forest types, and the type of national policy orientation are tremendous challenges which ought to have been addressed in the Kyoto Protocol and should be addressed in future agreements. Community forestry reforms As already demonstrated above, there is a paucity of CDM forestry projects in Africa and in Cameroon. Why is this so? Perhaps there is a need to encourage community forestry projects through legal and institutional frameworks at na- tional level that simplify the procedures, application, registration and approv- al." There is a need to re-orientate community forestry applications towards those that prioritise afforestation and reforestation programmes because the technology to grow trees in such programmes is simple and therefore facilitates access to the resource.9 In fact, emphasis on community forestry projects is explained by the fact that the CDM is basically a bottom-up process? i.e. initi- ated and implemented at the local community level. Nongovernmental organisation involvement NGOs have been involved in various forest projects involving local people in African countries. They are inevitable partners in this process, providing ex- pertise and, in some cases, financial assistance to local people.6° However, their involvement has always lacked legal legitimacy, especially in Cameroon forestry projects, where legislation does not spell out the terms of their responsibilities. Therefore, to tap the CDM potential, better NGO involvement in carbon for- estry project requires a legal tone which of course also would be contingent on the government's political will to facilitate a strong partnership between NGOs and local communities. Capacity building The designation and uptake of CDM projects requires finances, skills and data on forests. A major challenge for African countries in general and Cameroon in particular, is to build the capacity of persons to research and reinforce skills necessary for the process. Fortunately, various efforts are already underway in Cameroon in this respect, for example, the increased involvement of government MONOGRAPH 167 183 EFTA01090284 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA in capacity-building programs for the initiation of CDM project and mobilisation of funds through the Special Forestry Development Fund. Creation of the Designated National Authority (DNA) The DNA required by the Kyoto Protocol is the national structure in charge of CDM activities at national level which should ensure a link between the host country and the CDM process at the international level. It is still a constraint in CDM projects, as many African countries have not yet established these structures. Stehr,6' for example, reports that only 26 African countries have DNAs. This may be a significant constraint in efforts to fully realise the CDM potential. Benefits CDM forestry projects could import the following advantageous and beneficial results. Carbon forestry benefit rights A clear definition of ownership and access rights to land and forest resources will trigger interest of communities in initiating and implementing CDM projects. Local communities will be curious to ascertain their benefits from involvement in carbon forestry projects, whether under the current community forestry project, its review, or again in an entirely new CDM dispensation. This issue revolves around the question on how the emerging paradigm-payment for environmental services (PES) would be used to compensate land and resource users contributing to environmental services.62 Once communities are guaran- teed of their carbon rights and how the same would be equitably distributed, this would arguably constitute an incentive for long-term investment in carbon sequestration projects such as CDM forestry projects. Sustainable development benefits Besides the mandatory provisions on sustainable development enumerated in Article 12 (2) of the Kyoto Protocol, CDM projects, if properly implemented, should lead to sustainable livelihoods and the socioeconomic development of the host country. Local communities are aptly placed to realise the ideals of sus- tainable development since they are actively involved in social, economic and 184 INSTITUTE FOR SECURITY STUDIES EFTA01090285 ROSE MWEBAZA AND LOUIS J KOTZE conservation activities. Moreover, CDM projects which are properly executed should increase the chances of achieving these objectives. LEGAL RESPONSES AND PROGRESS MECHANISMS Given the trends and challenges of CDM forestry projects in Africa discussed above, what then would be the appropriate legal responses and progress mecha- nisms to address, especially, the challenges associated with the CDM and for- estry projects? The appropriate response to the Kyoto regime for African countries would be to create an enabling environment for CDM project initiation and continu- ance in their respective countries. It is true that there are various CDM projects across Africa," but few forestry projects, which are important as they have high capacity to reduce CO2 emissions. What this means is that African countries should embed the Kyoto CDM-related provisions at the national level through a deliberate policy approach which is proactive in nature. This will entail a holistic approach involving but not limited to: creation of a DNA, provision of financial assistance to design CDM forestry projects; clarification of sustainable develop- ment criteria; clarification and communication to the executive board of the CDM of the definition of forest; and enhancing integrated land-use planning. At regional level, one important response and progress mechanism would be the creation of a continental network that could constitute inter alio, a think tank with the sole mission of identifying and cataloguing difficulties encoun- tered in initiation and implementation of CDM projects in general, and forestry projects in particular, so that they could be presented to the Conference of the Parties. There are likely to be some particularities, as the continent is diverse. There would, however, also be numerous commonalities. It is expected that similar developments will be discussed en bloc" at future climate change meet- ings aimed at redesigning a post-2012 legal framework that encapsulates all these concerns. At the global level, the Conference of the Parties may also have to review a number of issues. Under the Kyoto Protocol, only afforestation and reforestation projects are eligible for the CDM forestry projects. This is an extremely limited view. The reason is that tropical deforestation accounts for 20-25 per cent of annual global CO2 emissions." The Kyoto Protocol ignores these statistics, which is evident in its exclusion from eligibility of tropical forest conservation MONOGRAM 167 185 EFTA01090286 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA and prevention of deforestation as an action for mitigating climate change. The bulk of African forest is of a tropical nature and is found in Central Africa and in countries such as Cameroon." These tropical forests are, however, disappearing at an alarming rate. There is need for compliance and enforcement mechanisms as these tropical forests are important not only for climate change mitigation but for various other ecological reasons? It has, for example, been demonstrat- ed that reducing tropical deforestation can make substantial contributions to CO2 emission reduction." For the above reasons, forest conservation should be included in the Kyoto Protocol and future mechanisms. It should accordingly be one of the primary issues for inclusion in a post-2012 legal framework? Another important consideration would also be for the post-2012 regime to provide opportunities for financial support that would enable low income countries, such as Cameroon, to meet the financial additionality criterion for CDM forestry projects. One principal problem which has been identified as a challenge to the CDM is the lack of participation of African delegates in climate change negotiations. The Kyoto Protocol bears testimony to this fact." A broader representation and active participation will enable delegates to sell African local realities and provide a place for these in final binding documents." Such a broad-spectrum approach and active participation may also facilitate the crafting of commit- ments that are environmentally effective, cost-effective, equitable and institu- tionally feasible." CONCLUSION This chapter has principally focused on the potential which international binding agreements have in respect to governing climate change at the local level. It has been demonstrated that the Kyoto Protocol, as an international legal governance instrument, has, inter alia, provided CDM mechanisms that enhance partner- ships between Annex 1 and non-Annex 1 countries as defined under the protocol. The initiation and management of CDM forestry projects in Africa in general, and in Cameroon in particular, is low compared to Asia and Latin America. Some constraints or challenges in this respect have been explored in this chapter and the question now is whether the CDM is the panacea for addressing climate change challenges. In other words, what other governance mechanisms could be employed to add to CDM forestry projects in Africa? 186 INSTITUTE FOR SECURITY STUDIES EFTA01090287 ROSE MWEBAZA AND LOUIS j KOTZE The promotion and enforcement of human rights has emerged as one govern- ance mechanism for addressing climate change systems in different countries across the world. Another is climate change litigation. Climate change litigation is now increasingly based on the grounds that the negative impact of climate change, usually from poor governance, affects human rights." African coun- tries, Cameroon inclusive, are caught up in the tenuous web of poor governance and it seems that litigation may provide an answer to this challenge. Of course, the basic question remains that of locus standi. Therefore, Cameroon and many African countries must soften locus standi requirements to allow climate change litigation in this regard." Potential plaintiffs would include individuals, groups, environment and social responsibility groups (NGOs), governments, foresters and biofuel producers in the case of significant land-use changes." The motivat- ing factors to the litigation mechanism of addressing climate change are based on increasing scientific certainty, emerging legal precedent and growing public awareness of climate change, its causes and impacts. Cumulatively, these and the other proposals suggested above, may work in tandem to ameliorate the current dire situation caused by climate change in Africa. NOTES 1 See D Hunter, J Salzman and D Zaelke. International environmental law and policy, New York: Foundation Press, 1998, 69. 2 See IPCC Report, IPCC-XXJDoc.1, 2000. 3 P Sands, Principles of inteniationalenvirotitnentallaw(2nd ed), Cambridge: Cambridge University Press, 2003, 358. 1 The other two mechanisms are Emission Trading and Joint Implementation. For more. see Art. 12 (1-10) of the Kyoto Protocol. 6 See in particular, Art. 12(2) of the protocol. 7 See for instance, Art.3(3) and (4), 6 and 12. 8 Such decisions include mainly Decision 11/CP.7- FCCC/CP2001/13/Add.1 on Land Use, Land Use Change and Forestry: Decision 14/CP.10-FCCC7CP2001/13/Add.2 on Small Scale Afforestation and reforestation projects; Decision 17/CP.7-FCCOCP2001/13/Add.2 pare 7 on Modalities and Procedures for the CDM as defined in An. 12 of the protocol. Decision 19/ CP.9, FCCC/CP2003/6/Add.2 on Modalities and procedure for smallscale afforestation and MONOGRAPH 167 187 EFTA01090288 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA reforestation projects. and the Marrakech Accords. The latter are a package of measures that enable the Kyoto Protocol to start operations and contain 262 pages and 39 decisions. They were formally adopted by the CONMOPlin Montreal in December 2005, providing the much-needed framework of Guidelines. Modalities and Rules for moving forward with the implementation of the protocol. 9 See, generally, P V Desanker. The Kyoto Protocol and CDM in Africa. A good idea but ... http://www.fao.org/docrepf009/a04Be/a0413E05.htm; Sedjo et al, Renting carbon offsets: the question of permanence. (http:/www.weathervane.ritorg/pdffiles/roger3.pdf 10 See, in particular. Decision 11/CP.7 Annex on Definitions, modalities, rules and guidelines relating to land use. land use change and forestry activities under the Kyoto Protocol, 58, and Decision 19/CP.9. Annex on Modalities and procedure for afforestation and reforestation project activities under the Clean Development Mechanisms, 16. 11 See Art. 3.3 of the Kyoto Protocol. 12 Law No 94101 of 20 January 1994, called 'the new forestry law. 13 See Forestry Law, s.2 14 Cameroon, for instance, is comprised of six agro-ecological zones that span from the dense. humid tropical forests in the southern parts. through the savannah type vegetation in the middle. to the Sahelian type vegetation in the northern parts. It is partly for this reason that the country has been termed 'Africa in miniature'. 15 See, generally, L V Verschot et al, Implications of country-level decision on the specifications of crown cover in the definition of forests for land area eligible for afforestation and reforesta- tion in the CDM, Joanneaum research, Graz, Austria, 2005. 16 See FCCOCP/2003/6/Add.1, Decision 19/CP.9 on Modalities and procedures for afforestation and reforestation project activities under the CDM. 17 See. G J Nabuurs. O Masera, K Andrasko et al, Forestry. in B Metz, O R Davidson, P R Bosch et al (eds). Climate change 2007: mitigation. contribution of Working Group HI to the Fourth Assessment Report of the IPCC. Cambridge and New York: Cambridge University Press and York Press, 2007.565-66. 18 See in particular. s 1(b) of the annex to Decision 11/CP.7 19 Sees 1(c) annex to Decision II/CP.7 20 See Nabuurs, G P. Forestry. See also P.V. Desanker., The Kyoto protocol and CDM in Africa. 21 See, generally.0 F. Tamasang. Community forest management entities as effective tools for local-lev- el participation under Cameroonian law: a case study of/alum/I/an mountain forest (Unpublished Ph.D. dissertation. Facuhy of Laws and Political Science. University of Yaounde II). 2008. 22 See Decree No 95-531-PM of 23 August 1995 to determine the conditions of implementation of Forestry Regulations, s. 29 (2)(b). 188 INSTITUTE FOR SECURITY STUDIES EFTA01090289 ROSE MWERAZA AND LOUIS J KOTZE 23 It implies that any other entity that acquires and manages the forest other than the local communities will not qualify for CDM. In Cameroon. there are what we call disguised community forest projects where wealthy elites have funded community forestry projects under the name of a community and reaping the benefits of exploitation but without the community having been the initiators nor have any benefits in terms of carbon rights as the forest is immediately exploited for commercial ends. 24 See s 39. 25 See in particular paragraphs 43-52. 26 For details, see Decision 19/CP.9. paragraphs 18-22. 27 See generally the 1974 Land Tenure Ordinances, Ordinances No 7411, 74/2,74/3, July 6 1974 on land tenure and state lands as modified by Ordinance No77/1 and 77/2, January 10, 1977. 28 Notably P. A. Minang, H. TA. A. Bressers, M.M. Skutch dal, National forest policy as a platform for biosphere carbon management: the case of community forestry in Cameroon,Enviromnental Science and Policy 10(3). (2007)..204-218. 29 Sees. 37(5). 30 Sees. 9(1) 31 See s. 9(2) 32 See Tamasang. Community forest management entities, 321-324 33 See Tamasang. Community forest management entities, 228 34 Ibid. 35 Ibid. 36 See Decree No95-531-PM, ss 6-8 on the role of ministry of forestry staff to determine modalities for safe and control fire, and ministry of territorial administration and decentralisation to issue permits to start fires after consultation with local forestry stag 37 See in particular, articles 2.1 and 12.2. 38 See Decision No 19/CP.9 39 For more on the sustainable development, see C F Tamasang. Sustainable development: some reflections with regard to the new constitutional dispensation in Cameroon, The African Law Review. 5(I) (2008), 145-165. 40 See H Barton, Sustainable communities: the potential for eco-neighbourhoods. London: Earthscan Publication. 2000.7. But seethe argument and position taken by C F Tamasang, Community forest management entities, 7-8 41 For details, see Annex 1 of Decision No 00008/NIINEP/CAB of January 2006 which spells out 11 criteria with 26 indicators overall. An interesting thing to note is that the criteria all span through the three pillars of sustainable development (social, economic and environmental pillars) although not equally distributed. MONOGRAPH 167 189 EFTA01090290 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 42 P A Minang. H T A Bressers, M M Skutch et al, National forest policy as a platform, 214 13 T Fomete, La Fiscalite Forestidre et Implications des Communautes locales a la Galion Forestiare au Cameroun, Overseas Development Institute, (2001), 11-21 44 Fore more. see ) Sathaye, A Najam, C Cocklin et al, Sustainable development and mitigation, in B Metz, O R Davidson, P R Bosch et al (eds), Climate change 2007. mitigation, contribution of Working Group 111 to the Fourth Assessment Report of the IPCC. New York: Cambridge University Press. 2007,696. 45 Sabonet news. Invasive alien plants: Asteraceae, The Southern African Botanical Diversity Network, 70) (2002). 32-33. 46 See the Conservation of Agricultural Resources Act, Act 43, 1983 as amended in 2001. 17 See, generally. the Ecosystem Assessment Report (2005). 18 See s.16. 19 See the 1995 Forestry Decree prescribing impact assessment, Art. 110(1): Decree No 2005- 0577-PM of 23 February 2005 laying down modalities for realising impact assessment. and Aral& No 0070/MINEP du 22 Avril 2005 laying down the different categories of operation requiring impact assessment. 50 K M Chomitz. Baseline leakage and measurement issues: how do forestry and energy projects compare?, Climate Policy, 2 (2002).35-49 51 See, in particular, Part G. paragraphs Hof the annex to Decision 19/CP.9 52 See Ministerial Decision No 0008/1MINEP/CAB of January 2006, Annex 2. 53 The Manual of procedure and norms for the attribution and management of community forests 54 See Tamasang. Community forest management entities, 174-187. 55 See Desanker, The Kyoto Protocol and CDM in Africa. 2. 56 PA Minang. Implementing global environmental policy at local level: community carbon for- estry perspectives in Cameroon, Unpublished PhD thesis, University of Thente, Maastricht, 2007.4-5. 57 For more on this. see Tamasang, Community forest management entities, 371 et seq. 58 See Desenker. The Kyoto Protocol and CDM in Africa. 59 See H I Stehr. The clean development mechanism: evolving to meet dimate and development chal- lenges, in Climate Action, London: Sustainable Development International and UNEP. 2007.109. 60 See, generally. F Ekoko. Balancing politics, economics. and conservation: the case of the Cameroon forestry law reforms, Development and Change, 2000. 61 H I Stehr. The Clean Development Mechanism, 110. 190 INSTITUTE FOR SECURITY STUDIES EFTA01090291 ROSE ?AWE BAL. AND LOUIS J KOTZE 62 Other environmental services from which payment may be expected to compensate land users for environmental services and which give market reasons for actors to consider such services in decision-making processes include water protection, biodiversity protection, and beauty and esthetical view. An additional reason for PES relates to environmental justice, e.g. industrial- ised polluting countries make compensation to non-polluting countries for the impacts of their pollution-polluter pay principle. 63 Solar thermal plant in Botswana: hydro in Congo: natural gas cogeneration in Egypt; land- fill gas to electricity, palm oil biomass, and aerobic digestion in Ghana: hydro CCGT in Mozambique; and solar water heaters, and industrial energy efficiency landfill gas to electricity in South Africa. For more, see B Kinkead, Undertaking CDM projects in Africa - challenges. trends and opportunities, DNA forum, Addis Ababa: Eco-securities, 2007. 64 See, generally, D Kaniaru, International environmental negotiation blocs, International Environmental law-making and Diplomacy Review, University of Joensuu - UNEP Course series 4, University of Joensuu, (2006), 3-15. 65 IPCC report (2000). 66 See generally C F Tamasang, Legislation for sustainable forest management in the Central African sub-region: what prospects for effective implementation, paper presented at the 4th Colloquium of IUCN Academy of Environmental law, NY. (2006). forthcoming. New York: Edward Elgar Publishers. 67 Tamasang. Legislation for sustainable forest management. 13. 68 M Santilli, P Moutinho, S Schwartzmans. S Nepstad et al. Tropical deforestation and Kyoto Protocol, Climate Change, 71(3) (2005). 274. 69 P Moutinho. M Santilli, S Schwartzmans. L Rodrigues. Why ignore tropical deforestation? A proposal for including forest conservation in the Kyoto Protocol, http•1/www.fao.org/doc- rep/009/a0413etoa413EO5.htm 70 See D Hunter. J Salzman and D Zaelke, International environment law and policy. 645-648. 71 See, generally. UNEP, University of Joensuu, and Canada], Multilateral environmental agreements: negotiators handbook, UNEP CourseSeries 5, (2sed). Finland: University of Joensuu, 2007. 72 For more, see S Gupta. D A Tirpak, N Burger et al, Policies instruments and cooperative ar- rangements. in B Metz. O R Davidson, P R Bosch et al (eds) Climate change 2007: mitigation, contribution of Working Group III to the Fourth Assessment Report of the IPCC, 2007,790. 73 These include express rights to decent or healthy environment, to life. liberty, and to prop- erty enshrined in various international legal instruments on environment and others and retaken in Constitutions of many African countries. For more on this. see generally Tamasang, Sustainable development (2008). 74 There are already successful litigation claims on climate change in the USA. Australia. New Zealand and Nigeria. MONOGRAPH 167 191 EFTA01090292 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA 75 P Taylor, Climate change litigation: a catalyst for corporate response (2007), in: SDI and UNEP, (2007), 103-106. BIBLIOGRAPHY Books Barton. H. Sustainable communities: the Potential for eco.neighbourhoods. London: Earthscan. 2000. Hans, J S. The Clean Development Mechanism: evolving to meet climate and development Challenges. In Climate Action, London: SDI and UNEP. 2007. Hunter. D, Salzman, J and Zaelke. D. International environmental law and policy. New York: Foundation Press, 1998. Gupta, 5, Tirpak D A, Burger. Net al. Policies. instruments and cooperative arrangements. in Metz, B, Davidson. O R, Bosch, P R et al (eds). Climate change 2007: mitigation. Contribution of Working Group III to the Fourth Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge: Cambridge University Press, 2007. Kaniaru. D. International negotiation blocs. In International environmental law-making and diplo- macy review. UNEP course series 4. Joensuu: UNEP and University of Joensuu, 2006. Minang. P A. Implementingglobal environmental policyatlocal:ever: communitycarbon forestry per- spectives in Cameroon. Published PhD thesis. Maastricht: University of Science and Technology, Twente, 2007. Nabuurs, G J, Masera. O, Andrasko K et aL Forestry. In B Metz, O R Davidson, P R Bosch (eds), Climate change mitigation. Contribution of Working Group III to the Fourth Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge: Cambridge University Press, 2007. Sathaye, I A. Najam. A, Cocklin C et al. Sustainable development and mitigation. In B Metz, O R Davidson, P R Bosch (eds), Climate change: mitigation. Contribution of Working Group III to the Fourth Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge. Cambridge University Press, 2007. Taylor, P. Climate change litigation: A catalyst for corporate responses. In Climate Action. London: SDI and UNEP, 2007. Verschot, L Vet al. Implications of country-level decision on the specification of crown cover in the definition of forests for land area eligible for afforestation and reforestation in the CDM. Graz: Joannum Research, 2005. UNEP Joensuu and Canada. Multilateral environmental agreement: negotiator's handbook. Joensuu- UNEP course series 5. (2^I ed). Joensuu: University of Joensuu Press, 2007. Journal articles, conference presentations, and others Desanker. P V. The Kyoto Protocol and CDM in Africa: a good idea but... Unasylva 222 (2005), 24-25. 192 INSTITUTE FOR SECURITY STUDIES EFTA01090293 ROSE MWEBAZA AND LOUIS I KOTZE Jinda. R B. Swallow and Kerr, J. Status of carbon sequestration projects in Africa: potential benefits and challenges to scaling up. Working paper No. 26. Nairobi: World Agro Forestry Centre, 2006. Minang PA, Bressers. Th A. Skutch. M M. McCall, M IC National forest policy as a platform for bio- sphere carbon management: the case of community forestry in Cameroon. Environmental Science and Fblicy10(3) 204-218. Moutinho, P, Santilli, M. Schwartzman, S and Rodriguez, L. Why ignore tropical deforestation? A proposal for including forest conservation in the Kyoto protocol. Available at http://www.fao. org/doc-rep/009/30413e/ao413e/ao413EO5/htm (accessed 12 March 2005). Santilli, M. Moutinho. P. Schwartzmans, Nepstad S et al. Tropical deforestation and Kyoto protocol. Climate Change 200S 71(3). Available at http://www.fao.org/doc-rep/009/30413e/ oa413E0S/htm (accessed 10 March 2009). Smith, J and Scharr, S Forest carbon and local livelihood& assessment of opportunities and policy recommendations. Occasional paper No.37. CIFOR, Jakarta, 2002. Tamasang. C F. Sustainable development: some reflections with regard to the new constitutional dispensation in Cameroon. The African Law Review 5(0 (2008). Tamasang. C F. Legislation for sustainable forest management in Central African Region: what prospects for effective implementation. Proceedings of Fourth Colloquium of 1UCN Academy of Environmental Law, 2006. New York. now under publication by Edward Edgar Publishers, NY. Kinhead, B. Undertaking CDM projects in Africa: challenges. trends and opportunities. DNA forum, Eco-securities. Addis Ababa, 2007. Sabonet News. A newsletter of the Southern African Botanical Diversity Network, 7(1)2002. Reports Arvidson, A. CDM Projects in Africa. Stockholm: Stockholm Environment Institute, 2007. IPCC. Annual Assessment ReportGeneva: IPCC Secretariat, 2005. Mimeographs and thesis MINEF. Manual of procedure and norms for the attribution and management of community forest. Government of Cameroon Yaounde. 1998. Tamasang. C F. Community forest management: entities as effective tools for local level participa- tion under Cameroonian law: a case study of Kilum/Ijim mountain forest. Faculty of Laws and Political Science. University of Yaounde II, Soa, 2008. Table of statutes National statutes Law to lay down forestry. wildlife and fisheries regulation: N°94/001, Yaounde, NA. 20 January 1994. MONOGRAPH 167 193 EFTA01090294 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA The Environmental Management Code: Law N°96/006 to lay down Regulations for Environmental Management, Yaounde. NA. 18 January 1996. Land Tenure Ordinance N°7411, 7412, and 74/3 of 6 July 1974, relating to land tenure and slate lands as modified by Ordinance N°7711 and 77/2, Yaounde, PR, 1977. Enabling Statute to the Forestry Law: Decree 14'95/531, to determine the conditions for implemen- tation of forestry regulations, Yaounde. PM, 23 August 1995. Enabling Statute to the Environmental Management Code N°96/012, Yaounde, PM. 5 August 1996. Enabling Statutes to the Forestry Law: Decree N°961237. to define conditions for the functioning of Special Forestry Fund. Yaounde, PM. 10 April 19%. Enabling Statutes to Land Tenure Legislation: Decree W2005/481, to modify and complete some provision of decree N'761165, to lay down the conditions of obtaining a Land title, Yaounde, PR. 16 December 2005. Enabling statutes to Environmental Management Code of 1996: Decree N°2005-0577, to lay down modalities to realise impact assessment. Yaounde, PM. 23 February 2005. Enabling Statutes to Environmental Management Code: Arrete N°0070/MINEP to lay down the different categories of operation requiring impact assessment. Yaounde, MIN, 22 April 2005. Manual of Procedures for the Attribution and Norms for the management of Community Forests: Order 02521A/C.AB/MINEF, Yaounde. MINEF, 20 April 1998. Decision to spell out criteria and indicators for sustainable development N°00008/MINEP/CAB Yaounde, MINEP, January 2006. Table of international legal Instruments United Nations Framework Convention on Climate Change: UN Doc. United Nations Convention on Biological Diversity: UN Doc. United Nations Convention to fight Desertification and Areas Seriously Threatened by Drought: UN Doc Agenda 21 Program of Action of the United Nations: UN Doc. The Rio Declaration on Environment and Development: UN Doc. The Kyoto Protocol to Enforce the UN Framework Convention on Climate Change: UN Doc. Decision 11/CP.7-FCCOCP/2001/13/Add.1 on Land Use. Land Use Change and Forestry. Decision 14/CP1O-FCCOCP/2004/10/Add.2 on Simplified modalities and procedures for small scale afforestation and reforestation project activities under the clean development mechanism on first commitment period of the Kyoto Protocol and measures to facilitate their implementation. Decision 17/CP.7-FCCOCP/2003/Add.2 on Arrangement for the First Session of the Parties serving as the meeting of the Parties to the Kyoto Protocol. 194 INSTITUTE FOR SECURITY STUDIES EFTA01090295 ROSE MWERAZA AND LOUIS J KOTZE Decision 19/CP.9-FCCOCP/2003/6/Add.2 on Modalities and Procedures for afforestation project activities under the CDM in the First Commitment Period of the Kyoto Protocol. The Marrakech Accords, FCCOCONMOP. Montreal. 2005. MONOGRAPH 167 195 EFTA01090296 EFTA01090297 Regulatory Mechanisms for Implementing Renewable Energy Projects in Uganda EMMANUEL KASIMBAZI ABSTRACT The purpose of this chapter is to review the national regulatory mechanisms for implementing renewable energy Clean Development Mechanism (CDM) projects in Uganda. It assesses the potential and the challenges of the regula- tory framework. It is divided into seven sections. The first section provides the introduction. The second section examines Uganda's renewable energy re- sources. The third section provides an overview of the concept of CDM, while the fourth section identifies the CDM projects implemented in Uganda under the renewable energy resources sub-sector. The fifth section includes a review of the national policy and legal framework regulating the CDM projects in the renewable energy sub-sector. It is argued in this chapter that the success of CDM projects in the renewable energy sub-sector largely depends on the existence of an adequate regulatory framework. An examination of Uganda's policy and legal framework reveals that, to a large extent, it is adequate to im- plement renewable energy CDM projects. However, there are other non-legal limitations that have an impact on the effective operation of the regulatory framework. Some of these limitations are identified in the sixth section, in MONOGRAPH 167 197 EFTA01090298 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA which it is proposed that if these limitations are not addressed, the developed regulatory framework and the initiated CDM projects are likely to fail to achieve their objective. To address these limitations, section seven sets out recommendations which may assist in overcoming current deficiencies in this respect, to the appropriate authorities. INTRODUCTION The energy sector in Uganda relies on various renewable and nonrenewable energy resources. Renewable energy resources are those resources that are re- plenished continuously by natural processes.' These include, among others, solar energy, hydropower, biomass, wind and geothermal power. Uganda has devel- oped some of these resources under the framework of the Clean Development Mechanism (CDM). However, the success of these projects depends on the ex- istence of an effective regulatory framework for their sustainability. The purpose of this chapter is to review the national regulatory mechanisms for implementing renewable energy CDM projects in Uganda. To this end, the central research question addressed in this chapter is: how effective is Uganda's regulatory framework for CDM projects in the renewable energy sub-sector? To answer this question, the chapter provides a brief outline of the background to Uganda's renewable energy resources and the CDM projects implemented under this sub-sector. It then reviews Uganda's policy and legal framework with special emphasis on its efficacy in regulating renewable CDM projects, and its key limitations. The chapter, finally, proposes recommendations to address these limitations. POTENTIAL FOR RENEWABLE ENERGY RESOURCES IN UGANDA Uganda is richly endowed with a variety of renewable energy resources which include plentiful woody and nonwoody biomass, solar, wind, geothermal power, and hydrological resources. Presently, with the exception of biomass, only a meagre fraction of the country's renewable energy potential is exploited. It is estimated that other renewable sources of energy, excluding large hydro- power resources, contribute less than two per cent of Uganda's total energy consumption.' 198 INSTITUTE FOR SECURITY STUDIES EFTA01090299 ROSE MWEBAZA AND LOUIS J KOTZE Biomass (firewood, charcoal and crop residues) plays a significant role in Uganda's energy supply. It constitutes over 90 per cent of total energy consump- tion in the country. It provides almost all the energy used to meet the basic needs of cooking and water heating in rural and most urban households and institutions.3 Biomass is the main source of energy for rural industries. Trading in biomass energy, especially charcoal, contributes to the economy in terms of rural income, tax revenue and employment. It saves foreign exchange, employs 20 000 people and generates UShs 36 billion (approximately USS20 million) per year in rural income.° Fuel wood requirements have, however, contributed to the degradation of forests as wood reserves are being depleted at a rapid rate in many regions. Charcoal consumption also increases at a rate close to that of the urban population (six per cent per annum)? This places additional pressure on forest resources in Uganda. Uganda is also endowed with an abundance of sunshine, providing solar ra- diation of about 4-5 kWh/m2/day. This level of insolation is quite favourable for all solar technology applications. Solar energy applications in Uganda include solar photovoltaic (PV), water heating, cooling and crop drying. PV systems are generally required for applications where modest power needs exist in areas that are not served by the national power grid. These provide power for lighting, tel- ecommunications, vaccine and blood refrigeration, and for operating radio and television services in such areas. PV technology has also proven to be successful in providing energy services to inaccessible areas such as islands and mountain- ous areas where the national power grid cannot be expected to extend its services in the foreseeable future. Further, Uganda has the potential for wind energy with a speed of about 3 m/s. In flat areas, especially around Lake Victoria and the Karamoja region, as well as in hilly areas, the speed even reaches 6 m/s and above.6 These conditions are considered adequate to support wind technology ap- plications in the country. It must, however, be noted that these wind speeds have been recorded at low heights for the sole purpose of predicting weather. No measurements have been taken at appropriate heights (over 10 m) for wind turbine design! Although geothermal energy exploitation has not been established in Uganda, there is evidence that the resource exists. Potential geothermal re- sources are estimated at about 450 MW in the Ugandan Rift Valley System. Apart from basic studies on the geological and geo•chemical characteristics of MONOGRAM 167 199 EFTA01090300 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA several thermal anomalies, no detailed studies have been carried out to estab- lish the economic potential of this resource? All these renewable energy resources need to be developed in order to achieve economic development and environmental sustainability. Renewable energy resources are viable options for Uganda for the following reasons. First, the increasing cost of fossil fuels renders the latter too expensive for Uganda. Experts show that if the world continues to consume energy at the current rate, nonrenewable sources will be exhausted in the near future, Oil is expected to last for only 40 years.10 Natural gas will be available for the next 70 years and coal may be available for the next 280 years." Second, emissions from coal and fossil fuels are responsible for global warming and climate change.' Renewable energy resources are more environmentally friendly and proper emphasis should be put on developing these resources and avoiding the chal- lenges associated with nonrenewable energy resources. However, since Uganda has limited financial capacity to develop these resources, the benefits could be achieved if it participates fully in the CDM that will enhance technological transfer and financial assistance from developed countries. IMPLEMENTATION OF CDM PROJECTS IN THE RENEWABLE ENERGY SUB-SECTOR The CDM is one of the flexible mechanisms provided by the Kyoto Protocol to assist developing countries in benefiting from the climate law framework.!; It is an important element in international climate policy because it provides a cost-effective means of complying with the requirements of the Kyoto Protocol. Defined in Article 12 of the Kyoto Protocol, the CDM provides for Annex I Parties to implement project activities that reduce emission of greenhouse gases (GHGs) in non-Annex I Parties, in return for certified emis- sion reductions (CERs).14 The CERs generated by such project activities can be used by Annex I Parties to help meet their own emissions targets under the protocol. It is therefore mutually-beneficial. Article 12 also stresses that CDM projects should assist the developing country host parties (non-Annex I Parties) in achieving sustainable development and in contributing to the ultimate objective of the United Nations Framework Convention on Climate Change (UNFCCC).15 200 INSTITUTE FOR SECURITY STUDIES EFTA01090301 ROSE MWERAZA AND LOUIS J KOTZE CDM, therefore, is not only an innovative mechanism that builds a bridge over the 'North/ South' gap in the Kyoto scheme, it also brings together private economic interests and public climate policy by helping to channel private sector investment towards climate-friendly projects that otherwise might not be real- ised.16 A CDM project attracts substantial transfers in financial and technological services to developing countries while promoting climate protection." However, it is important to note that the technology thus transferred must be environmen- tally safe and sound." A CDM project must result in real, measurable and long-term benefits related to the mitigation of climate change, and it must contribute to reductions in emission that are additional to any that could occur in the absence of the certified project activity.19 Such projects may be implemented under the renew- able energy resources sub-sector. Uganda is a party to both the UNFCCC and the Kyoto Protocol.2° It there- fore has an obligation as a non-Annex I party to cooperate with Annex I coun- tries in the implementation of CDM projects. Uganda has undertaken a number of CDM projects under the renewable energy resources sub-sector. This section discusses some of these projects. Uganda is pioneering the West Nile Electrification Project (WNEP). The project is part of the Ugandan government's Energy for Rural Transformation (ERT) Scheme, which is supported by the World Bank and various bilateral partners.21 Engineers working on the WNEP have constructed a 3,5 MW hy- dropower plant on the banks of the White Nile (a tributary of the main river Nile) which flows from Lake Victoria.22 It is envisaged that the project will cut demand for diesel and thermal power as well as kerosene and paraffin. It will also avoid transport emissions from fuel trucics.23 It is hoped that this will miti- gate climate change in terms of emission reduction. Bakojja New Wood Country Forest Plantation Co. Ltd. is currently im- plementing the Industrial Wood Plantation of Pine and Mixed Hardwood Species Project located in Kagoma parish, Buwekula, Mubende District. The total investment in this project is US$4 062 486 (equity: US$888 570) and the total expected volume of credits is 104 000 in 25 years and 206 500 in 50 years. Another project is the Mityana Fruit Forest Initiative located in Ssekanyonyi parish, Mityana, Mubende District. This project involves growing fruit trees that will contribute to economic development and environmental sustainability. The MONOGRAPH 167 201 EFTA01090302 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA total investment in this project is US$3 000 000 and the total expected volume of credits is 44 000 in 25 years and 58 000 in 50 years. The Solar PV-based Rural Electrification Project aims to abate/reduce accu- mulation of carbon dioxide in the atmosphere. It is administered from Kampala City, with upcountry branch outlets at: Arua, Mbale, Bushenyi, Soroti, Masaka, Lira and Rukungiri. The total investment in this project is US$2 800 000 and the total expected volume of credits is 320 000 in 20 years. Most significantly, the Kampala Landfill to Energy Project is based at a landfill located 10 km from Kampala, Uganda. The objective of this project is to capture the landfill gas currently being emitted from the Kampala City landfill, thereby reducing the risk of methane combustion to nearby squatters, and to utilise the methane to generate electricity which can then be used to supply the grid.2d The electricity will also be able to provide the city with an additional source of revenue for a facility that is currently a net liability. The total investment in this project is US$1 890 000 and the total expected volume of credits for a period of 14 years is 690 270. Another reforestation project being implemented is the UWA-Face Project in the Mount Elgon National Park and the Kibale National Park. The UWA- Face Project is a joint venture between Uganda National Parks and the Face Foundation of Holland. Under the above project, Face Foundation is funding a substantial part of the project and, in return, it obtains carbon dioxide sequestration and offset in the contract areas of Mount Elgon and Kibale National Parks during a period of 99 years (1994-2093).25 The emissions from 27,000 hectares of regenerated forest in Kibale and Mount Elgon national parks amount to 1,500,000 tonnes of carbon dioxide worth US$45 million. Further, the emissions from 7,100 hectares in Bukabaleba forests and the adjoining Norwegian-managed forest amount to four million tons of carbon dioxide worth about US$12 million.26 Under this project, the Face Foundation owns the carbon dioxide credits, while the trees and all other proceeds belong to UWA. Other CDM projects in the renewable energy resources sub-sector include the Busoga Kingdom Forestry Project, located in Jinja Eastern Uganda and administered by the Ecological Christian Organisation. This project has at- tracted €6,6 million and the total expected volume of credits is 350 000 in 20 years. Another is Micro-hydropower for Rural Electrification project, admin- istered in Sironko district, Eastern Uganda. This project has attracted total 202 INSTITUTE FOR SECURITY STUDIES EFTA01090303 ROSE MWEBAZA AND LOUIS J KOTZE investment of US$1 153 227 and the total expected volume of credits is 6 500 in 20 years. THE REGULATORY FRAMEWORK FOR CLEAN DEVELOPMENT MECHANISM UNDER THE RENEWABLE ENERGY SUB-SECTOR The energy sector has more significant environmental impact than most other economic sectors. Hence, energy investments must be subjected to a regulatory framework that ensures sustainable development. A sustainable energy regula- tory framework is one which integrates economic, social and environmental objectives in a way that improves the wellbeing of the current generation whilst safeguarding the wellbeing of future generations.' Since participation in CDM projects is voluntary,28 it is up to individual countries to create policy and legal frameworks depending on whether they consider such CDM projects to be ben- eficial. It can, on the other hand, be argued that designing an effective policy and legal framework for the implementation of CDM is mandatory once the country undertakes the CDM projects. This is so because the UNFCCC requires state parties to undertake policy and legislative measures for the mitigation of climate change.29 Uganda, as a country undertaking CDM projects in the renewable energy resources sub-sector, has developed a fairly comprehensive legal and policy framework for the regulation of these projects. The following sections analyse these policies and laws. Review of the policy framework regulating renewable energy Clean Development Mechanism projects The Energy Policy for Ugandai0 This policy provides the government's vision for increased and improved modern energy supply for sustainable economic development as well as improving the quality of lives of the Ugandan population. The goal of this policy is to meet the energy needs of Uganda's population for social and economic development in an environmentally sustainable manner.31 In relation to the renewable energy sub-sector, its objective is to develop the use of renewable energy resources for both small and large-scale applications.32 MONOGRAPH 167 203 EFTA01090304 ENVIRONMENTAL GOVERNANCE AND CLIMATE CHANGE IN AFRICA The policy identifies key sub-sector issues for new and renewable sources of energy as including: inefficient production and use of biomass energy that results in adverse effects on the environment and the health of biomass energy users, especially in rural households; underdeveloped markets in Renewable Energy Technologies (RETs) equipment and services because of high initial investment costs and lack of financial capacity to cover the initial investment; lack of mecha- nisms to monitor standards and ensure quality control of RETs; and inadequate available data on the potential of indigenous renewable energy sources.' The policy suggests a number of strategies to rectify these problems. These include: supporting the dissemination of biomass and other RETs to increase their positive impact on the energy balance and the environment; ensuring that RET producers and importers ascribe to certified performance and technical standards; supporting efforts to develop biomass res [truncated]