Strengthening the resilience of ecosystems and populations in four regional hubs in northern Mauritania
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Mauritania UNEP
24 June 2019 Strengthening the resilience of ecosystems and populations in four Project/Programme Title: regional hubs in northern Mauritania
Country(ies): Mauritania
National Designated Ministry of Environment and Sustainable Development Authority(ies) (NDA):
Accredited Entity(ies) (AE): United Nations Environment Programme
Date of first submission/ 2019-06-24 [v1] version number:
Date of current submission/ 2019-06-24 [v1] version number
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Notes • The maximum number of pages should not exceed 12 pages, excluding annexes. Proposals exceeding the prescribed length will not be assessed within the indicative service standard time of 30 days. • As per the Information Disclosure Policy, the concept note, and additional documents provided to the Secretariat can be disclosed unless marked by the Accredited Entity(ies) (or NDAs) as confidential. • The relevant National Designated Authority(ies) will be informed by the Secretariat of the concept note upon receipt. • NDA can also submit the concept note directly with or without an identified accredited entity at this stage. In this case, they can leave blank the section related to the accredited entity. The Secretariat will inform the accredited entity(ies) nominated by the NDA, if any. • Accredited Entities and/or NDAs are encouraged to submit a Concept Note before making a request for project preparation support from the Project Preparation Facility (PPF). • Further information on GCF concept note preparation can be found on GCF website Funding Projects Fine Print.
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A. Project / Programme Information (max. 1 page) ☒ Public ☒ Project A.2. Public or sector A.1. Project or programme ☐ Programme private sector ☐ Private sector Yes ☐ No ☒ A.3. Is the CN submitted in ☐ Confidential If yes, specify the RFP: A.4. Confidentiality1 Response to an RFP? ☒ Not confidential ______
Mitigation: Reduced emissions from:
☐ Energy access and power generation
☐ Low emission transport
☐ Buildings, cities and industries and appliances A.5. Indicate the result ☐ Forestry and land use areas for the Adaptation: Increased resilience of: project/programme ☒ Most vulnerable people and communities
☐ Health and well-being, and food and water security
☐ Infrastructure and built environment
☒ Ecosystem and ecosystem services A.7. Estimated 204,171 direct A.6. Estimated mitigation adaptation impact beneficiaries; 4.7 impact (tCO2eq over (number of direct per cent of the lifespan) beneficiaries and % of country’s population) population A.8. Indicative total project Amount: USD 22.5 million A.9. Indicative GCF Amount: USD 20 cost (GCF + co-finance) funding requested million A.10. Mark the type of financial instrument ☒Grant ☐ Reimbursable grant ☐ Guarantees ☐ Equity requested for the GCF ☐ Subordinated loan ☐ Senior Loan ☐ Other: specify______funding This refers to the A.12. Estimated total period over A.11. Estimated duration 72 months project/ Programme which the of project/ programme: lifespan investment is effective. A.13. Is funding from the Yes ☒ No ☐ ☐ A or I-1x Project Preparation Other support received ☐ If so, by A.14. ESS category3 ☒ B or I-2 Facility requested?2 who: ☐ C or I-3 A.15. Is the CN aligned A.16. Has the CN been Yes ☒ with your accreditation Yes ☒ No ☐ shared with the NDA? ☐ standard? No
Yes ☒ No ☐ A.18. Is the CN A.17. AMA signed (if Yes ☒ If no, specify the status of AMA included in the Entity submitted by AE) ☐ negotiations and expected date of Work Programme? No signing:
A.19. Project/Programme Observed climate changes are resulting in an intense process of desertification in rationale, objectives and Mauritania, putting additional pressure in the extremely fragile oases of the Sahara approach of and moving the desert conditions further south, threatening the country’s very fragile programme/project (max and most fertile and populated lands in the Sahelian region. The climate-change 100 words) induced desertification process is taken place in a robust and not well-managed urbanisation context. Driven by a complex set of factors, this is expanding regional
1 Concept notes (or sections of) not marked as confidential may be published in accordance with the Information Disclosure Policy (Decision B.12/35) and the Review of the Initial Proposal Approval Process (Decision B.17/18). 2 See here for access to project preparation support request template and guidelines 3 Refer to the Fund’s environmental and social safeguards (Decision B.07/02)
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hubs, which are becoming complex rural-urban hybrids with very vulnerable populations to climate change.
This project focuses on four regional hubs or poles along the strip or band of the country where the desertification process is more severe and stopping it more strategic. In particular, from north to south and from west to east, the project focuses on Aoujeft, in the province of Adrar; Rachid, in the province of Tagant; Tamchekett, in the province of Hodh el Gharbi; and Nema, in the province of Hodh El Chargui.
The proposed project aims to increase the resilience to the current and projected impacts of climate change of the populations living in these hubs, contributing at the same time to stop desertification moving further south. In this sense, it seeks to ensure that awareness and knowledge on the impacts, risks and vulnerability to climate change are strategically mainstreamed in participatory development planning and implementation at meso and micro levels and that, on that basis, substantive investment are made in a systemic way on the ground to increase resilience, including land rehabilitation, water infrastructure and management, and adapted and diversified livelihoods. To facilitate this, the project also seeks to strengthen the enabling environment for mainstreaming climate change in key national policies, strategies and guidelines.
B. Project / Programme details (max. 8 pages) B.1. Context and baseline (max. 2 pages)
Basic country information
Mauritania is a coastal country in north-western Africa. It is located between the 15° and 27° northern latitudes and the 5° and 17° western longitudes and has a total land surface of 1,030,700 km2. It has borders with four countries: Morocco to the northwest, Algeria to the northeast, Mali to the east and southeast, and Senegal to the southwest.
The population of Mauritania was estimated at 3,458,990 inhabitants in 2013 with an annual population growth of 2.71%. In 2015, Mauritania’s Human Development Index (HDI) score was 0.51, ranking it 157 out of 187 countries. While poverty declined significantly since 2008, in 2014, 31% of the population lived below the national poverty line and 5.6% of the population lived below the international absolute extreme poverty line of USD 1.90 (purchasing power parity).
Introduction and justification of the project area
Four broad zones define Mauritania’s geography, namely: i) the Sahara, in the north and east of the country, mostly desert, with a network of extremely fragile oases in the north (with less than 150 mm of annual rainfall); ii) the Sahelian region in the south, more fertile, but still very fragile (with between 150 and 400 mm annual rainfall); iii) the valley of the Senegal river; and iv) the Atlantic coastal zone, cooler thanks to marine breeze. Most of the population of Mauritania lives in the cities of Nouakchott and Nouadhibou, in the Atlantic coastal zone, and along the Senegal River in the southern part of the country, which includes the majority of Mauritania’s irrigable land. The population in the north concentrates in the oases. Approximately three-fourths of Mauritania is desert or semi desert.
Mauritania belongs to the Sahel zone most affected by recurring droughts since 1968. It is one of the most water deficit countries with only 0.5% of the total surface considered arable. An estimated 60% is considered as severely or very severely degraded, this being caused by a combination of natural and anthropogenic factors. The major environmental problem the country is currently facing is the temporally and spatially erratic character of rainfall, frequently leading to general or local droughts since the late-1960s with subsequent increase of human pressure on the natural resource base and degradation.
More frequent, long and severe droughts are contributing to an intense process of desertification, putting additional pressure in the extremely fragile oases of the Sahara and moving the desert conditions further south, threatening the country’s very fragile and most fertile lands in the Sahelian region and the Senegal river. A 2016 United States Geological Survey (USGS) Earth Resources Observation and Science (EROS) Center study on land use and land cover in West Africa4 demonstrated a strong desertification process in Mauritania between 1975 and 2013. In that period, the two most widespread natural vegetation cover types and important pasture grounds, steppe and Sahelian
4 United States Geological Survey (USGS) Earth Resources Observation and Science (EROS) Center (2016): Landscapes of West Africa. A window on a changing world. For Mauritania: https://eros.usgs.gov/westafrica/land-cover/land-use-land- cover-and-trends-mauritania
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 4 OF 4 short grass savannah, were affected by the largest losses in terms of area. Almost 19,000 km2 of steppe were lost between 1975 and 2000, and over 15,000 km2 between 2000 and 2013. For Sahelian short grass savannah, these figures amount to over 12,000 km2 from 1975 to 2000 and almost 11,000 km2 from 2000 to 2013. Steppe gave way to large swaths of sandy areas — an expression of the classic picture of desertification, where productive and stabilizing vegetation cover is lost and sandy substrate mobilized, giving the impression of an encroaching desert. Sahelian shortgrass savannahs were replaced by steppe, and to a much lesser extent by sandy area. These changes point to a progressive aridification and subsequent southward shift of the major vegetation cover types in southern Mauritania. This is consistent with data from the European Space Agency5, which also shows a southward expansion of the Sahara in the country since the 1960s. As the USGB figures above show, the desertification rate has increased in the period. The overall rate of change in land use and land cover accelerated from 0.4 per cent per year between 1975 and 2000 to 0.7 per cent per year between 2000 and 2013. As a result of this, in 2013 less than 1 per cent of the country was agricultural land. This makes Mauritania the least cultivated country of the 17 West African countries. Likewise, other “bio productive” land cover types — forest, gallery forest and swamp forest — make up only tiny fractions of the land area.
This project focuses on four regional hubs or poles6 along the strip or band of the country where the desertification process is more severe and stopping it more strategic. In particular, from north to south and from west to east, the project focuses on Aoujeft, in the province of Adrar; Rachid, in the province of Tagant; Tamchekett, in the province of Hodh el Gharbi; and Nema, in the province of Hodh El Chargui7. Map 1 presents the location of the four target hubs. Annex 1 contains the map of the Districts in each Pole.
In each of these hubs the project considers the urban and rural areas, focusing mostly on the latter. In Aoujeft the project covers 6 communes and an area of 80 km2, with an estimated population of 35,643 inhabitants in 20178. In Rachid, it covers 3 communes and an area of 80 km2, with an estimated population of 25,626 in 2017 9 . In Tamchekett, it covers 5 communes and an area of 85 km2, with an estimated population of 43,282 inhabitants in 201710. In Nema, it covers 10 communes and an area of 80 km2, with an estimated population of 99,620 inhabitants in 201711. Table 1 summarizes this information.
Table 1. Geographic and demographic information of the target area
Orthocentre of the Radius of the hub Number of Population hub (km2) communes 2013 Census 2017 Estimate Aoujeft 80 6 12,997 35,643 Rachid 80 3 25,180 25,626 Tamchekett 85 5 39,013 43,282 Nema 80 10 87,048 99,620 Total 245km2 24 164,238 204,171
Sources: for population RGPH for 2013 and ONS for 2017
5 https://earth.esa.int/web/guest/featured-image/-/article/world-day-to-combat-desertification-and-drought 6 Mauritania is administratively organized in five levels: country, wilaya (region), moughataa (department), district and commune, in decreasing order of hierarchy. By hub or pole this concept note understands a conglomerate of communes linked by functional links, including rural and urban areas. Despite these functional links, these hubs do not currently have an administrative correspondence: they are smaller than regions, departments and districts and bigger than communes. The concept of hub or pole is common in regional development planning, acknowledging that, due to scale and agglomeration economies, human activities are not uniformly distributed over land but clustered instead around a hub or pole, sharing an ecosystem. Geographic and demographic information on the target hubs is provided in table 1 below. 7 Aoujeft is in the Southern limit of the Sahara, while Rachid, Tamchekett and Nema are in the Northern limit of the Sahel region. These four hubs are in the same desert ecosystem. 8 The communes are Aoujeft, Maeden, N’Teirguent, El Medah and Tenmewend. 9 The communes are El Wahat, Tidjikja and Tensigh. 10 The communes are Tamchekett, El Mabrouk, Radhi, Gueate Teidoume and Sava. 11 The communes are Nema, Achemim, Jreif, Banguou, Hassi Etila, Oum Avnadech, El Mabrouk, Beribavat, Noual and Agoueinit.
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Map 1. Location of the four target hubs
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Climate trends and projections
Specific climate information is available for these four hubs12. Between 1940 and 2010, minimum temperatures increased between 1 and 1.5 °C there, while average annual precipitation decreased between 55 and 82%. The frequency and intensity of droughts and heavy rains also increased in the period13. The number of droughts in that period ranged between 8 in Nema and 12 in Rachid. Different models indicate a harsher climate by 2050 in the four hubs. The HADCM3 model and the ECHAM4 model predict a 1.7 – 2.3 °C increase in temperature and a decrease in precipitation, with differences between the models and the hubs - severity of temperature increases moving south; the contrary for precipitation14. The frequency and intensity of droughts and heavy rains is also predicted to increase. Details are provided in Table 2. Annexes 2-5 provide diagrams showing these trends and projections.
Table 2. Climate information on the target areas
12 Information provided by the Government of Mauritania in 2018. 13 At the national level, between 1961 and 1990, precipitation reduced by 0.5–2 mm per year with a parallel increase in the length of drought periods of 10–15 days per decade; ii) average annual temperature increased 0.9°C; and iii) the frequency of extreme weather events such as strong wind, heavy rain and hail increased. In addition, significant sea level rise has been documented. Islamic Republic of Mauritania (2014): Third national communication to the UNFCCC. 14 By 2050, climate scenarios predict a further increase of 2.1°C in the mean annual temperature, increasing further to 4.5°C in 2100. Over the same period (1990 – 2100), a decrease in annual rainfall from 20 – 70% (30% on average) has been modelled, depending on the region. Islamic Republic of Mauritania (2014): Third national communication to the UNFCCC.
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Target area Normal climate Observed climate change Projected climate change (by 2050) (1940 -2010) HADCM3 Model ECHAM4 Model Province Name of main Average Minimum Average Temperatur Precipitation Temperature Precipitation municipality Annual Temperatur Annual e (against the (against the Precipitation e Change Precipitation 1961-1990 1961-1990 (1981-2010) Change normal) normal) Adrar Aoujeft 68 mm/year +1.5 °C - 54 mm (80%) 1.7 - 2°C - 12 to -15% +2.2 to 2.3°C -28 to -33%
Tagant Rachid 90 mm/year +1.3 °C - 50 mm (56%) 2°C - 13 to -16% +2.2 to 2.3°C -28 to -33%
Hodh El Gharbi Tamchekett 110 mm/year +1.2 °C - 90 mm (82%) 1.7 - 2°C - 8 to -12% +2.2 to 2.3°C -20 to -25%
Hodh El Chargui Nema 200 mm/year +1°C -110 mm (55%) 1.7 - 2°C -3 to -6% +2.2 to 2.3°C -10 to -20%
Source: ENS, 2018
Climate change impacts in the four hubs
Observed changes Coupled with increased evaporation due to increased temperatures, observed decreased rainfall and more frequent and long droughts are reducing water availability in the four hubs, affecting the availability of water for human consumption, crops, trees and animals15. Nema has groundwater at 25 km, but the other three target hubs do not have underground reserves, and rely on surface water often from remote places. Sand movements are also a concern. A 2017 study on Tamchekett16 indicates that this hub relies on winter water coming from 80 km away, which feeds a number of water bodies, including a pond very important in terms of biodiversity (the area is a Paleartic bird migration path and stopover and the habitat of West African crocodiles in danger of extinction). The study shows that the accumulation of sand coming from the desert is silting watercourses, reducing their storage capacity, with a huge impact in terms of resilience – in some areas water remains only between 3 and 6 months. The decreased water availability also affects the four hubs indirectly, through reduced generation of hydro-electricity from dams such as the Manantali dam in Mali, which is key for energy provision in Mauritania, including the four target hubs. At the same time, increased heavy rains, even far from the target hubs, have resulted in increased runoff and soil erosion and more frequent and devastating flash floods, destroying houses and other infrastructure in the poles. Significant floods have already been experienced in Tintane (not far from Tamchekett) and in Aoujeft due to water run-off from more than 100 km far.
In the agricultural sector, observed climate change is resulting in: i) increased changes in crop growth cycles; ii) reduced viability of rain-fed crops (e.g. dates, millet, sorghum, rice, corn); iii) increased soil-water evaporation and plant transpiration; iv) increased soil erosion; and v) increased incidence of diseases and pests. The 2017 Tamchekett study notes that agriculture is basically of subsistence type, covering the food needs only between six and eight months – during the remaining months households sell livestock, get loans…
Furthermore, observed climate change is affecting livestock husbandry through: i) decreased quantity and quality of pasture, in part due to the increased frequency and intensity of bushfires as a result of prolonged drought17; ii) reduction in the number and volume of water points; and iii) increased incidence of diseases and pests (e.g. dermatose nodilere has already become epidemic resulting in mortality, while Rift fever has moved Southwards). Animal mortality in the first quarter of 2018 were already as high as those experienced during the severe drought of 1973 (ME, 2018). Shortage fo pasture results in social conflicts and to security problems as it leads to transhumance to Mali18.
Moreover, forests are suffering from increased temperatures and a decrease in annual rainfall, as well as from the increased frequency and intensity of bushfires as a result of prolonged drought. In the four hubs, Tamchekett has a protected forest of 1,650 ha. According to the 2017 study mentioned above, local trees (Acacia Nilotica, Ziziphus mauritiana) in this forest are old and very vulnerable to the impacts of climate change, compromising the provision
15 The analysis of impacts is based on the Third National Communication of the country of 2014, the INDC and the interviews conducted during the country visit in 2018. 16 Islamic Republic of Mauritania (2017): Management Plan for a resilient development of Tamchekett and its ecosystems 17 According to the GoM (2015), since 2007, on average 131 bushfires (with a burn area greater to 1 km2) take place each year in Mauritania, affecting 336,900 ha (that is, 3,369 km2) in the seven agro-sylvo-pastoral Wilayas of the country, which include Hodh El Gharbi and Hodh el Chargui. This has an estimated economic cost of around MRO 7.86 m in livestock food. Source: Government of Mauritania (2015): Joint communication of Council of Ministries regarding the national campaign for the protection of pastures against bushfires 2015-2016. 18 Ibidem and Islamic Republic of Mauritania (2017): Management Plan for a resilient development of Tamchekett and its ecosystems.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 7 OF 4 of goods (food, medicine, wood) and biodiversity (see above)19. Confirmed by the apparition of desert flora new to the area, such as Stipagrostis pungens, Calotropis procera and Acacia tortilis, desertification is affecting the forest.
Besides, in the health sector climate change has resulted in i) increased incidence of malnutrition in both humans and livestock; ii) increased occurrence of water-borne diseases such as cholera, typhoid and diarrhoea; and iii) larger distribution of vector-borne diseases such as malaria and leishmaniasis. Heat waves have also had adverse impact in the denser areas of the hubs.
Globally these impacts have resulted in increased water and food insecurity, increased poverty and decreased income security, and increased social conflicts over the use of natural resources, resulting in turn in increased human pressure on already degraded natural resources, in a vicious cycle, as argued in the 2017 Tamchekett study. They have also resulted in negative impacts on gender equality, as women tend to focus on agriculture, livestock and craftsmanship.
Projected risks The climate change projections presented above suggest that impacts could potentially aggravate in the near future, including the following20: • An overall decrease in water resource availability by 10 to 15%, leading to: i) an increase in evapotranspiration and a decrease in water quality; ii) saltwater intrusion in groundwater resources on coastal zones; iii) warmer surface water • Increase land degradation and erosion • The move of arid land southward of the country, further reducing the availability of producing land, the length of the production period and the agriculture yields • The decrease of rangeland and pastoral land availability for livestock • Reduction in food availability, leading to further food insecurity
The available information on the projected risks of climate change in Mauritania is, however, quite thin.
Figure 1 summarizes the complex relationships that have been synthesized by sector in the text and highlights what the literature suggests is the case about projected climate change and weather events impacts on natural and human systems.
Figure 1. Climate and weather events and impacts on natural and human systems
19 According to the National Biodiversity Strategy and Action Plan 2011-2020, in 2010 Mauritania had around 30 protected forests, amounting around 48,000 ha. USGS (2016) shows that in Mauritania as a whole the already small but ecologically important areas covered by forest and gallery forest have been reduced by 44 per cent and 30 per cent, respectively, between 1975 and 2013 due to drought and agricultural pressure. The disappearance of forests is concerning, because they constitute hotspots of biodiversity in this predominantly arid country and offer important habitat for wildlife, including migratory birds, as well as repositories of medicinal plant. 20 Mauritania Third National Communication to the UNFCCC, 2014
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Non- climate change related threats
In addition to climate change current and projected impacts, the country is facing a number of non-climate change related threats.
Removal of vegetation for the expansion of agricultural and pastoral land given the low agricultural and livestock productivity
As mentioned above, population in the peri-urban areas mainly depends upon threatened natural resources. Agricultural and livestock productivity is low. In this context, increased production is often linked to an expansion of agricultural and pastoral land, removing critical vegetation. This is particularly important given that the population of the targeted hubs is rapidly growing. Removal of vegetation results in increased soil erosion and reduced water infiltration. These non-climate drivers interact with climate change in several ways. Reduced vegetation cover exposes soil to the impact of raindrops. On bare soil, the impact of raindrops causes splash erosion thereby detaching soil particles and altering soil structure, resulting in formation of a crust at the soil surface. Degradation of surface soils results in a reduced rate of rainwater infiltration. Consequently, surface run-off of rainwater increases, which further exacerbates soil erosion and increases the intensity of flooding during the rainy season.
Preferred solution
Direct strategies to address the mentioned climate change and non-climate drivers include: • implementation of strategic and integrated land rehabilitation activities and dune fixation, including fencing and stabilizing soils through dikes, cordons and half-moons and plantation of local tree species playing the role of greenbelts, addressing dune mobility and encroachment; • sustainable and integrated water resources management, to reduce the vulnerability to droughts and heavy rains and decrease impacts on human health, crops, livestock and infrastructure;
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• increasing the resilience of key livelihoods, including increasing the productivity of agriculture and livestock, for instance through more resilient crop and trees species to deal with pests and diseases, and diversifying livelihoods, to increase income security and reduce poverty.
Exploitation of rural-urban linkages can help address the abovementioned impacts. Among other things, proper management of rural areas around urban areas provides ecosystem services key for adaptation, such as food provision, water regulation and purification and climate regulation. On the other hand, urban areas themselves include open spaces that can be used by rural populations for agriculture or livestock, contributing to food security. Moreover, urban areas can help with income diversification and access to public services that are key for adaptation, from information and knowledge to infrastructure such as water and sanitation and health services.
Overall, these strategies contribute to reduce impacts on health and gender equality. The strategies mentioned above require adequate political and social engagement and climate information, planning, institutional and technical capacities, which are cross-cutting. In this sense, the theory of change provided above is based on the following assumptions: i) the project will be able to build adequate political and social engagement and climate information, planning, institutional and technical capacities; ii) these will support the implementation of the ecosystem-based adaptation measures, such as the land rehabilitation activities; and iii) an improvement of ecosystems management will contribute to more productive livelihoods.
Progress on climate change adaptation and mitigation
Mauritania recognizes its vulnerability and has made some progress to increase its resilience to abovementioned climate change impacts, at the same time it tries to contribute to mitigate climate change. The country is Party to various multilateral environmental agreements, including the United Nations Framework Convention on Climate Change (UNFCCC) (1994), the Convention on Biological Diversity (CBD) and the Convention to Combat Desertification (CCD) (1996) and to several of its Protocols and sub-agreements, such as the Kyoto, Nagoya or Montreal Protocols and the Paris Agreement. Nationally, at the policy level, the country’s 2011-2016 planning framework (CSLPII, 2011-2016) included a vision on climate change with a plan of action considering the risks of climate change and a monitoring system (SEPANE 2)21. More recently, the Sector Environment and Sustainable Development Strategy, 2017-2021 (SNEDD by its initials in French, 2017) provides a strategic background for integrating environmental, climate change and sustainable development goals into other sectoral policy frameworks. The country’s National Development Strategy (SCAPP by its initials in French, 2016 – 2030, adopted in 2018) guides this integration with more focus in the Nationally Determined Contribution (NDC, 2015). More specifically, Mauritania has also developed a National Adaptation Programme of Action (NAPA) (2004) and a NAPA projects profile (2014). In September 2015 Mauritania submitted its Intended Nationally Determined Contribution (INDC) for the Paris Climate Agreement. Furthermore, in July 2018 the GCF approved supporting Mauritania on developing a National Adaptation Plan (NAP) – the inception workshop for the NAP process is scheduled in April 2019. Section B3 (subsection on country ownership) indicates explicitly how the project fits in with these country priorities.
At institutional level, Mauritania developed a climate change coordination unit (CCPNCC by its initials in French) in 2009 piloted within the Ministry of Environment and Sustainable Development (MEDD by its initials in French). In 2015, the MEDD launched a coordination network on climate change by creating sectoral focal points in key ministries, promoting a multi-sectoral approach to medium- and long-term adaptation to climate change. On this basis, Mauritania has implemented and is implementing several projects with support from development partners, including several UN agencies, as mentioned in the UNDAF.
Analysis of barriers to implementing the preferred solution
Despite these important efforts, there are barriers for adaptation at the national level. While SNEDD 2017-2021 provides a strategic background for integrating environmental, climate change and sustainable development goals into other sectoral policy frameworks, there is room for improvement in mainstreaming climate change into spatial planning and natural resources (water, pasture and forest) management national policies, strategies and guidelines.
The progress on resilience to climate change in the four target hubs has been limited, making them extremely vulnerable to the impacts of climate change mentioned above, also for other reasons. While some projects have taken place in some of the target provinces, such as Enhancing Resilience of Communities to the Adverse Effects of Climate Change on Food Security in Mauritania (PARSACC by its initials in French)22, the Oases Development
21 Système de Suivi-Evaluation du Plan d’Action National pour l’Environnement 22 “Project d’amélioration de la résilience de population aux changements climatiques” in French. It is implemented by the World Food Programme and executed by the MEDD with a USD 7.8 m grant from the Adaptation Fund. The timeframe is 2015– 2019. Their 8 provinces include Hob El Gharbi (15 villages), Hob el Chargui (10 villages) and Tagant (7 villages) but not Adrar. Their activities include dune fixation and land rehabilitation, more resilient livelihoods and some water infrastructure.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 10 OF 4 project (PDDO by its initials in French)23, the Great Green Wall and the Global Climate Change Alliance (GCCA) project24, these are mostly an exception. Indeed, most of the projects in the country have focused since 1970s on the south, without realizing that the effectiveness of targeted resilience is largely dependent on the effectiveness of efforts to stop the desertification process intensified by climate change up north – past and existing investments in the south will only make a difference if desertification is stopped up north25.
Moreover, while existing projects have so far worked in rural production systems and ecosystem-based adaptation, they have not considered the key rural-urban linkages in the urbanization process taking place in the country, overlooking the synergies for resilience mentioned above, and with scattered approaches with high costs. For example, the mid-term review (MTR) of PARSACC, conducted in March 2017 found that the design had diluted the intervention, recommending to narrow it down as much as possible to avoid the scattering of resources and maximize the impact of the project’s results.
Some projects, such as PARSACC, have promoted integrated landscape approaches, approaches that consider the different elements of a landscape, such as forest, farmland, rangeland, wetland and the build environment, in an integrated way. They also use collaborative, place-based planning, instead of specific natural-resource and sectoral based planning, to shape development projects26. However, most of existing projects in the target provinces have not promoted these approaches. Indeed, the GCCA’s MTR of December 2016 argues that the project didn’t follow an integrated approach, considering the watershed dynamics, micro-projects representing more punctual than systemic adjustments.
In this general context, substantive activities to increase resilience have not been implemented on the ground in the four target hubs, at least in three fronts. First, efforts to combat desertification and land degradation are scarce and isolated. While some work on dune fixation has been conducted in the four target hubs, this has been at very small scale, and has not been properly integrated in comprehensive plans – it has not been strategic and consistent, and complementary with other dune fixation and non-dune fixation interventions have not been exploited. As a result of this, the effectiveness of these interventions to really stop the desertification process, blocking winds from the Sahara (North and East) and stabilizing soils, has been weak. While efforts to reduce bushfires have been important in the country as a whole27, there are important gaps in this regard in the target hubs.
Second, strategic interventions have not been put in place to deal with the impacts of climate change in water availability. There are few wells and some of them are no longer deep enough to provide water, given the effects of climate change on the availability of groundwater, according to the Ministry of Hydrology. Moreover, as in other areas of the country28, new wells have sometimes been dug without studies factoring in climate change projections and complementing them with strategies to help recharge the phreatic nap. In this sense, there is limited infrastructure to harvest rainfall during regular and heavy rains, store it and distribute it during dry spells and droughts, to cope with decreasing rainfall and increasing rainfall variability. Indeed, there has been limited investment in water speed deceleration infrastructures that increase infiltration, as well as in dams, reservoirs and other type of water harvesting and storage infrastructures. A significant amount of precious water runs off with considerable soil erosion and a great risk of flash floods.
Several barriers explain this:
Barrier 1: Limited awareness and knowledge on the impacts, risks and vulnerability to climate change
To start with, the information, planning and institutional environment is not conductive to climate change resilience. There are crucial information and planning gaps, at both meso and micro levels. There is limited awareness and knowledge on the impacts, risks and vulnerability to climate change. In this sense, an informed common vision on
23 PDDO is supported by the Global Environment Facility (GEF) and the International Fund for Agriculture Development (IFAD). 24 The GCCA project has a Euro 2.6 m budget, and 2014-2018 timeframe. It is implemented in Tagant. It focuses on food security. Activities include capacity building on agro-meteorology and climate change planning, as well as activities in on agriculture. 25 These projects have avoided to invest up north with the pretext of a low investment return rate, but this will actually be the case in the medium and long term interventions are not put in place in the short term up north preventing the desertification process moving further south. As noted above, the main impact of climate change in Mauritania is the intensification of the desertification process, with the impacts on sectors mentioned above. 26 See for example the White Paper “Landscape Partnerships for Sustainable Development: Achieving the Sustainable Development Goals through Integrated Landscape Management”, published in December 2015 with the participation of UN Environment. 27 Through awareness raising campaigns, construction of firewalls of at least 9 m and extinction work, in 2014 the GoM reduced the number of bushfires to 44 against an average of 131 bushfires annually since 2007, and the burnt area to 469 km2 against an average of 3,369 km2 annually, since 2007 saving around MRO 7,328 m in livestock food27. Government of Mauritania (2015): Joint communication of Council of Ministries regarding the national campaign for the protection of pastures against bushfires 2015-2016. 28 See the evaluation reports of PDDO and GCCA.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 11 OF 4 these aspects in the form of a clear assessment of impacts and vulnerabilities has not been yet built in these four hubs. Information on loss and damage is not available. PARSACC conducted detailed and participatory climate change vulnerability assessments in remote villages, but not in the target areas29.
Barrier 2: Limited integration of CCA into development and land use planning
Urban plans have been recently developed in Nema and Rachid30, but while they include some risk reduction activities, climate change adaptation and mitigation have not been mainstreamed in these plans. The Second National Report on Sustainable Development explicitly claims that Nema’s urban plan did not strategically consider environmental issues. Urban plans do not exist in Aoujeft and Tamchekett. In this context, location decisions are not often informed. For instance, in Aoujeft houses are built in low areas because they are fresher, disregarding the fact that those areas are highly prone to flooding. By the same token, the 2017 study on Tamchekett highlights that new neighbourhoods have been recently created along water bodies with great risk of flooding in case of heavy rains, which are likely to become more frequent and intense, with impacts as well on biodiversity (particularly on West African crocodiles in this hub). Moreover, existing urban plans do not consider the urban-rural linkages that, as explained above, are important from a climate change adaptation perspective. Existing plans have not involved either a robust participatory process, engaging all relevant stakeholders, including municipalities, the Associations for the Participatory Management of Oases (AGPO by its initials in French) and the populations, which have limited awareness. In this framework, there is little coordination between those working in climate change related activities in each of the four target hubs.
There is room for improvement in mainstreaming climate change into spatial planning and natural resources (water, pasture and forest) management national policies, strategies and guidelines. Water management plans are rather rare, whereas pasture and forest management plans factoring in climate change do not exist in the target hubs. Use conflicts between livestock and agriculture, and between tribes have not been managed through participatory small- scale resource management plans.
Despite increased human pressure due to natural growth and rural-urban migration, including the settlement of nomads31, strategies for the sustainable use of natural resources have not been widely designed and implemented to conserve the extremely fragile ecosystems of the four target hubs considering the additional stress caused by climate change.
Barrier 3: Limited institutional capacities
In addition to the information and planning deficits, and related to them, interviews reveal that climate change adaptation in the four hubs is also beset by limited institutional capacities32. Government officers at provincial and local levels struggle to fully understand the impacts of climate change and effective strategies to build resilience. Staff from key sectoral organisations at local level, such as the managers of water services33, has also limited technical capacity.
Climate change knowledge has not been institutionalized in the country. Studies have not been conducted in the four target hubs to assess the economic value of ecosystem services and natural resources, and innovative payment for ecosystem services mechanisms have not been used, despite having proved useful in other areas of the country34.
Ecological conduct codes are also absent to stimulate a sustainable use of natural resources. Complementary strategies to protect forests have not received great attention in the target areas. In the absence of general climate change assessments and planning, environmental impact assessments factoring in climate change are not conducted for infrastructure projects in the target hubs.
29 While those assessments will be used when conducting the assessment in the target areas, they are likely to provide relatively distinct results given the different nature of the areas (isolated villages versus a conglomerate of communes). 30 Specifically in Rachid an urbanization plan was developed, while in Nema a restructuration plan was designed. 31 Some of the inhabitants of the four target hubs used to be nomads, allowing ecosystems to regenerate after their use. 32 The mid-term reviews of PARSACC and GCCA confirm this constraint in other areas of the country. 33 In rural areas, the National Office for Water Services in Rural Areas (ONSER by its initials in French); in urban areas, the National Water Society. 34 South of Timbédra, in the arid transboundary area of Mauritania near the Mali border, a Sahelian Testing Exclosure World Bank programme supported the establishment of a system in which herders pay farmers living around grassland in exchange for protecting grasses from bushfires or arbitrary wandering livestock. This system of conditional payments to voluntary providers of environmental services, which was later formalized as payment for ecosystem services (PES), has increased resilience and reduced conflicts over uses of land. The same system was later introduced by IFAD in Kayes (Mali), in the border with Mauritania.
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Barrier 4: Limited knowledge on integrated land rehabilitation, integrated water resources management, resilient crop and tree species and livestock breeds, and feasible non-traditional sources of income
There is limited knowledge on cost-effective adaptation measures, including integrated land rehabilitation, integrated water resource management, resilient crop and tree species and livestock breeds and feasible non-traditional sources of income, as economic appraisal of adaptation options has not been conducted in the country and the four target hubs. For instance, there is limited clarity on which strategies could be more efficient in increasing the availability of water in each case given the specific climate projections35.
Barrier 5: Limited financial resources
As explained above and below, the government of Mauritania has limited financial resources. This reduces the capacity of the country to invest in studies and planning exercises, but above all in long-lasting activities on the ground, including land rehabilitation, water infrastructure, more resistant crop and tree species and livestock breeds, and non-traditional income generating activities. Moreover, the country has not been able to mobilize substantive private sector investment in adaptation through attractive business plans involving adaptation activities.
Figure 2 presents graphically the causal chain from threats and root causes to the barriers for implementing the preferred solution.
Figure 2. Causal chain from threats and root causes to the barriers for implementing the preferred solution
B.2. Project/programme description (max. 3 pages)
35 The effectiveness of reservoirs is limited by evaporation.
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In the following section we outline the proposed project framework based on best available information. During the project formulation phase, the following information will be needed to firm up the project framework:
1. Improved information on the causal linkages between climate and non-climate drivers and climate impacts; 2. Information on the economic impacts of climate change and an economic appraisal of the possible solutions to address the problem; 3. An assessment of good practice that could be scaled up for adaptation benefits; 4. A comprehensive strategy to meet the Fund’s investment criteria relating to paradigm shift, contribution to sustainable development, and efficiency and effectiveness.
Objective of the project
The proposed project aims to increase the resilience to the current and projected impacts of climate change of the populations living in the growing regional rural-urban hubs of Aoujeft, Rachid, Tamchekett and Nema along the most vulnerable strip of Mauritania (the southern border of the Sahara - the Northern border of the Sahel), contributing at the same time to stop desertification moving further south and affecting the country’s very fragile and most fertile lands and largest investments36.
Outcomes, outputs, activities
Taking into account the preferred solution and the barriers for implementation mentioned above, the project is organized in 3 outcomes and 7 outputs. Figure 3 presents graphically this structure.
36 This text uses the resilience and adaptation definitions of the latest (2014) report by the Intergovernmental Panel on Climate Change (IPCC). In this sense, by increasing resilience it means increasing the capacity of social, economic and ecological systems in the four target hubs and Mauritania more broadly to cope with actual and expected climate stimuli and their impacts, responding or reorganizing to moderate or avoid harm or exploit beneficial opportunities in ways that maintain their essential function, identity and structure. https://www.ipcc.ch/pdf/assessment- report/ar5/syr/AR5_SYR_FINAL_Glossary.pdf
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Figure 3. Structure of outcomes and outputs
Outcome 1 (The enabling environment in the four target hubs has been strengthened), seeks to make the enabling environment in the four target hubs more conductive to climate change resilience by mainstreaming climate change in local plans and strategies. This includes two main outputs. Output 1.1 aims at mainstreaming climate change in plans and strategies at the meso or hub level37. The preparation of the full-size project document will include the development of a detailed climate change risk and vulnerability assessment and will propose detailed adaptation actions for each of the four target hubs. These exercises will cover rural and urban areas, considering their functional links (watershed dynamics will be factored in) and prioritizing EBA approaches38. This exercise will use existing information, including the urban plans of Nema and Rachid, and will provide insights on land use mainstreaming climate resilience. The development exercise will gather inputs from different stakeholders. Based on this, and building on activities 1.2.2, 1.2.3 and 1.4.339 of the NAP process, the project will provide training on the specific impacts of climate and adaptation actions in the four target hubs. This will involve government officers at regional, provincial and municipal level in a number of relevant sectors (environment, agriculture, livestock, infrastructure), as well as of other relevant stakeholders, including managers of natural resources, non-governmental organisations, community-based organisations and individuals. Capacity building will involve not only in-person training sessions at particular moments in time, but also the development of training packages that can be used any time by existing or new staff. In addition, based on the studies conducted during the preparation of the full-size project, and building on activity 1.4.3 and 1.4.440 of the NAP process, the project will mainstream climate change adaptation into regional and Wilaya level. The process will be highly participatory, involving a number of workshops and engaging all relevant stakeholders
Coordinating platforms will be created at hub level. These will be co-chaired by the regional environment offices (DREDD by its initials in French) and by a high-level representative of the newly (2018) created local government at the regional level, which is composed of an elected Regional Council chaired by an elected body41. In addition to representatives of the DREDD and political representatives of the regional government, these coordinating platforms
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 15 OF 4 will involve technical staff of the regional administration as well as representatives of the Wilayas. The structure will be defined in more detail during the preparation of the full-size project document.
Output 1.2 seeks to mainstream climate change in plans and strategies at micro or natural resource level42. The project will develop participatory adaptation plans linking urban and rural areas in the four target hubs. Adaptation measures would like include interventions to fight against bushfires, such as the maintenance of fire breaks and corridors and the establishment and training of bush fire committees...
Outcome 2 (The resilience of the population and the ecosystems of the four target hubs is strengthened) seeks to increase resilience of people and land-based ecosystems through specific interventions on the ground that are aligned with the adaptation action plans developed in Output 1.1 and the management plans developed in Output 1.243. Output 2.1 (desertification front deterred) seeks to combat desertification and land degradation that are intensified by climate change. Based on the developed adaptation action plan with its corresponding land use indications, the project will carry out dune fixation and land rehabilitation activities in strategic locations and in a coordinated, consistent and integrated manner, in rural, peri-urban and urban areas to be determined by the studies to be conducted. Building on the knowledge existing in the country, this will involve fencing, including rangeland exclosure, and stabilizing soils through dikes, cordons and half-moons and local tree species (Prosopis juliflora, Leptadenia Pyrotechnica, acacia, Balanites, Ziziphus mauritiana, and Panicum turgidum).
Output 2.2 (duration of water stress period per year is reduced) seeks to increase the efficient use of scarce and valuable water resources, decreasing the vulnerability to droughts and heavy rains resulting in flash floods. The preparation of the full-size project document will involve conducting a study in each target hub on current and projected water availability in a climate change context, and the strategies that could be more efficient in increasing the availability of water in each case in that context. Based on those studies, to cope with decreasing rainfall and increasing rainfall variability, the project will build infrastructure to harvest rainfall during regular and heavy rains, store it and distribute it during dry spells and droughts to address water needs. This could include water speed deceleration infrastructures, dams, reservoirs and other type of water harvesting and storage infrastructures, as well as wells, if recommended by the studies. Solar energy pumps could also be promoted. The project will build on efforts conducted in other areas of the country, learning from its lessons to ensure effectiveness 44 . These infrastructures will also contribute to reduce run off and soil erosion and to stop desertification.
Output 2.3 (local population with increased access to resilient livelihoods) seeks to increase the resilience of livelihoods that, as explained in B.1, are highly vulnerable to climate change. To that end the project will promote resilient crop and tree species, including to increased diseases and pests, as well as, potentially, improved livestock breeds. Moreover, the project will promote diversification and value addition, exploiting the economic opportunities
37 As noted in footnote number 9, by hub or pole this concept note understands a conglomerate of communes linked by functional links, including rural and urban areas, which do not currently have an administrative correspondence: they are smaller than regions, departments and districts and bigger than communes. 38 The urban rural linkages will be further analyzed during the preparation of the full-size project document. 39 These activities are i) building capacity of policy-makers and relevant staff from relevant government institutions (1.2.2); ii) building capacity of vulnerable groups in collaboration with key ministries (1.2.3); and iii) developing and implementing at least one awareness-raising campaign in each Wilaya for local authorities, CSOs and local communities on: a) the national priorities for climate change adaptation; b) climate scenarios; and c) opportunities for integrating climate change adaptation into local development planning processes” (1.4.3). 40 This activity corresponds to developing “step-by-step procedures or a training manual, as appropriate, for integrating adaptation priorities into local development planning. Disseminate the procedure or manual to local stakeholders including Wilaya and Moughataa officers, and CSOs”. 41 The Organic Law No. 2018-010 revised the status of the Region as a local government enjoying moral personality and financial autonomy, while Decree 2018-143 Bis organized its administration. 42 This will be conducted at natural resource level (e.g. a forest, a wetland), with a smaller scale than the hub level. The scope will be determined by the natural resource and will not be determined by an administrative boundary. The scale of planning will not be the municipality or the commune, but the natural resource, which could involve one or more municipalities and/or communes in a particular hub. 43 The development of the full-size project document will involve direct interaction with local stakeholders and site visits to further detail the activities to be conducted in Outputs 2.1, 2.2 and 2.3. 44 In 2016 a number of development partners funded a guide on Improving Access to Water and Sanitation in Mauritania, strengthening the governmental guide of 2015 based on water and sanitation projects in the wilayas of Brakna, Trarza, Gorgol and Guidimakha. The guide covers planning, construction and management of these services in rural and semi-urban areas. The guide was developed by two French NGOs (Grdr and Gret) and was funded by the EU, the French Development Agency, the Water Agency of Loire Bretagne, the Centre Val-de-Loire Region and beneficiary communities. Among other aspects, the projects demonstrated the feasibility of solar water pumps, given their low investment and maintenance costs, the technical expertise currently available in the country, their energy-wise ecological advantages and their contribution to water management (they can be used only for around 6 hours a day – the maximum daily capacity of solar water pumps in Mauritania was 75 m3/day in 2014). PARSACC’s MTR found that solar water pumps are effective in Mauritania. PDDO’s terminal evaluation report of 2016 found that the infrastructure investments, mainly water speed deceleration infrastructures, worked well in settings similar to the target hubs.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 16 OF 4 provided by the proximity to urban areas, which will be combined a clear consideration of market system development, promoting the mobilization of investment of private sectors in the value chain of the products. To that end, building on activities 1.4.1 and 3.3.5 of the NAP process45, business plans will be developed. The feasibility study to be conducted during the design of the full project document will provide insights on the specific livelihood opportunities, but these will be defined in more detail during the climate-informed participatory processes of developing the local adaptation action plans. Potentially, the project could promote beekeeping, aviculture, non- timber forest products, oil from balanitès aegyptiaca, Arabica gum and fruits, particularly mango, moringa and lemon. The project will learn from other areas in the country. The Mid Term Review of PARSACC found that new income generating activities, such as poultry farming, beekeeping, market gardening and fruit plantations, were not only successful in increasing household’s revenues, but did also indirectly contribute to reduce the pressure on sensitive natural resources and develop the spirit of protection among users. In this sense, in addition to increasing income and making it more resilient to the impacts of climate change, this output will contribute to preserve and improve natural resources and therefore to stop desertification. Importantly, activities on output 2.1 and to a lesser extent output 2.2 will use in some cases a “cash for work” approach, increasing household’s incomes. While this will be used with caution to avoid creating unwanted dependencies, as explained in more detail below, studies have shown that this approach is highly efficient46.
Finally, Outcome 3 (the enabling environment at the national level has been strengthened) seeks to make the enabling environment at the national level more conductive to climate change resilience by mainstreaming climate change into some key national policies, strategies, for example, responses to climate change risks to ground water, flooding and desertification. Building on activity 1.3.3 of the NAP process47, Output 3.1 seeks to mainstream climate change adaptation into national policies, strategies and guidelines regarding spatial planning and natural resource management, namely water, pastures and forests. Building on activity 2.2.1 of the NAP process48, Output 3.2 seeks to economic valuation assessments of the value of ecosystem services and natural resources, and examine as the basis to identifying innovative payment for ecosystem services mechanisms as well as ecological conduct codes. Output 3.3 will develop normative guidance on monitoring frameworks for EbA based on findings from Outcome 1 and Outcome 3 economic valuation assessments. This will feed also into future iterations of the NAP.
In addition, building on activity 4.4.2 of the NAP process49, policy and lessons learned briefing notes will be developed to inform other adaptation planning efforts. In this sense, it will effectively bring together knowledge management by supporting the collection, analysis and diffusion of major lessons learned and best practices observed during the implementation of the project in the four target hubs. Activities will include: i) conducting a sound and comprehensive baseline in the four hubs on the impacts, risks and vulnerability to climate change for monitoring purposes; ii) documentation of good practices on climate change planning, natural resources management plans, payment for ecosystem services mechanisms, fight against desertification and land rehabilitation, coping with water scarcity conditions and resilient livelihoods in rural-urban hybrids in semi-desert areas; and iii) lessons sharing and learning events, for the dissemination of the lessons of the project, and the incorporation of lessons from other projects.
Figure 4 presents illustrates how the outputs contribute to outcomes and how these will result in a high-level, long- term impact through a number of drivers (i.e. adequate political and social engagement and commitment, adequate promotion and buy-in of climate information, technologies and practices, adequate planning tools at meso and micro levels, adequate institutionalization of knowledge on climate resilience, and adequate financial resources), assuming continued international support to scale up pilot initiatives and security threats are managed in the country.
Figure 4. Theory of change
45 NAP activity 1.4.1 refers to “Raise awareness of the private sector on national priorities in terms of climate change adaptation and investment opportunities to increase the resilience of businesses to climate change”. NAP activity 3.3.5 refers to “Develop business plans and financial models, working closely with the private sector, to demonstrate the financial value of ecosystem goods and services to local communities and different sectors. 46 OXFAM (2012): Cost-benefit analysis of a “cash for work” intervention in the early response to food crisis in the Sahel. Mauritania case study. 47 “Develop and implement a strategy for the periodic review of sectoral and cross-sectoral policies, strategies and plans, including the integration, in an iterative manner, of: i) updated climate information; ii) lessons learned from prior integration of climate change into these strategies and plans; iii) lessons learned from the prior implementation of these policies, strategies and plans; and iv) knowledge generated through the long-term research and study programmes…”, 48 “ Adapt existing cost-benefit analysis (CBA) system to the Mauritanian context. Use CBA system to revise the adaptation options in the NAPA and NDC by considering the long-term perspective as well as economic, ecosystem and social costs and benefits for unintended impacts of adaptation interventions in Mauritania” 49 “Conduct technical training of relevant government institutions’ staff (including Wilaya and Moughataa and officers) on undertaking the monitoring and reviewing activities of the NAP process. This activity will target staff from MEDD and CCPNCC, and other thematic lead ministries and departments”.
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UN Environment Programme’s comparative advantage
The project builds on UN Environment Programme’s (UN Environment) comparative advantage in promoting resilience in both rural and urban areas, through ecosystem-based adaptation (EBA) approaches50. It also builds on UN Environment’s long experience in Mauritania. Since 1997, UN Environment has been supporting the country in GEF enabling activities, including the NAPA, national communications, biannual updating reports. It is also expected to support the process of the National Adaptation Plan in the near future. Furthermore, UN Environment has supported the implementation of several projects in Mauritania supported by international climate change funds, such as the project Enhancing Capacity, Knowledge and Technology Support to Build Climate Resilience of Vulnerable Developing Countries. In addition, it has supported the integration of poverty and environment, in two phases. Furthermore, it is supporting the implementation of the GEF-funded adaptation to climate change project (DIMS). This started in May 2018 in Nema and will work in Tamchakett on soil restoration through dune fixation and tree planting. This project will build on the activities developed by DIMS, ensuring synergies and avoiding duplication.
Implementation arrangements
UN Environment is the Accredited Entity/Delivery Partner. It will be responsible for the overall management of the project as well as for the financial monitoring and reporting aspects of project activities. Throughout the implementation of the project, UN Environment will act as a technical assistance and capacity building provider. UN Environment’s operating policies and procedures will follow the UN Environment’s programme manual. As the DP for this project, UN Environment through its regional office for Africa will be responsible for overseeing the
50 For instance, with funds from the GEF, UN Environment is currently implementing two projects focusing on EBA in urban areas, one in Asia-Pacific (in Bhutan, Cambodia, Lao and Myanmar) and one in Latin America (in El Salvador, Jamaica and Mexico). The title of the projects is Building climate resilience of urban systems through Ecosystem-based Adaptation (EbA) in the Asia-Pacific region, and in Latin America and the Caribbean, respectively.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 18 OF 4 implementation and evaluation of the project in coordination with the Project Steering Committee (PSC) and the Project Management Unit (PMU), including inter alia M&E reports, a Mid-term Review and a Terminal Evaluation. A UN Environment Programme Officer (PO) will be responsible for project supervision to ensure consistency with GCF and UN Environment policies and procedures. The PO will formally participate in the following: a) Annual Project Steering Committee (PSC) meetings; b) facilitating the mid-term and final evaluations; c) the clearance of periodic Progress Reports and Project Implementation Reviews; and d) the technical review of project deliverables e) providing input to periodic readiness portfolio reporting to GCF; f) preparing requests for disbursements, etc.
The Ministry of Environment and Sustainable Development is Mauritania’s NDA. It will act as the focal point of contact with the GCF within the government. The MEDD will be responsible for providing strategic oversight of the country priorities, convening stakeholders, and providing a non-objection letter for the proposal. MEDD will also act as the main Executing Entity. In this sense, it will be in charge of executing eligible activities in collaboration with relevant stakeholders.
To ensure that the project remains in line with national policies, MEDD and UN Environment will establish a Project Steering Committee. This will be composed by the MEDD, the Ministry of Agriculture; the Ministry of Livestock Farming; the Ministry of Water and Sanitation; and the Ministry of Housing, Urbanism and Regional Planning. The PSC will have a decision-making capacity and will primarily serve to provide project oversight and advisory support, including: a) overseeing project implementation; and b) reviewing annual budget and workplans. The PSC will meet at least twice a year (once per semester) – with ad hoc meetings held as and when necessary to deal with emerging issues – to discuss the project's main performance indicators and provide strategic guidance. A representative of UN Environment will also sit in the PSC.
In addition to this, a Technical Committee will be constituted under the chairmanship of the Ministry of Environment to provide technical guidance and ensure ownership, communication and reporting on the project with national adaptation communities. This will involve the Ministry of Economic Affairs, Development and Finance; the Ministry of Interior and Decentralization; the Ministry of Transportation and Infrastructure; the Ministry of Petroleum, Energy and Mines; the Ministry of Social Affairs, Children and Family; the Ministry of Higher Education and Scientific Research; and the National Bureau of Statistics. The Technical Committee will also punctually invite other stakeholders to provide specific technical support. This will include higher education institutions in Mauritania, such as the Nouakchott University El Asriya (UNEA), Ecole Normale Supérieure (ENS), Scientific Institute for Technology Education (ISET) or the Mauritanian Institute for Scientific Research (IMRS), national NGOs and private sector associations, where relevant. Potential international project partners that will be asked to cooperate include amongst others: UNDP Country Office, UNOPS, IFAD, FAO, World Bank, AfDB, AFD, GIZ, CIDA and IUCN. The Technical Committee will meet at least twice a year (once per semester), with ad hoc meetings held as and when necessary to deal with emerging issues.
In order to ensure effective coordination of project implementation, a Project Management Unit (PMU) will be established within MEDD. The PMU will be responsible for the day to day implementation of the various components of the project, as well as for organizing and reporting on quarterly project management meetings. The PMU will consist at least of a national Project Coordinator (PC) and a Finance and Administrative Officer.
Risk Analysis
A preliminary risk assessment is provided in the table below but a more in-depth risk analysis will be conducted at full proposal stage.
Risk Level Mitigation Measure Increased occurrence of extreme L This will be mitigated by supporting the weather events which may affect crop implementation of climate change resilient land use and livestock cycles and increase planning as well as practices in the land rehabilitation, food/nutritional insecurity water management, agriculture and livestock sectors based on climate change projection and risks assessments. Limited coordination between ministries L This will be mitigated by two institutional provisions: (i) the current regional administrative structures (regional delegations or directions) are all under Wali’s line hierarchy; and (ii) the creation of a PSC and a Technical Committee, which will ensure effective communication and coordination between the various
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actors involved in project implementation. The PMU will also contribute to coordination. Moreover, the project coordinator will participate in the national coordination platforms. Furthermore, representatives of relevant ministries will participate in the hub level coordination platforms created as part of output 1.1. Frequent change in government L Even with frequent personnel changes in ministries, impacting on the implementation the project will be broadly anchored to the Wali and approach the Region (a decentralized local government) with links to multiple ministries, community organizations and the private sector so as to ensure its continuity without major interruptions. The integrated approach to project implementation also aims for strong involvement of stakeholder groups and collaborative engagement of various administrative entities, also ensuring good public visibility and recognition to support its viability. Moreover, building on lessons from PARSACC, capacity building will involve not only in person training sessions at particular moments in time, but also the development of training packages or manuals that can be used any time by existing or new staff. Reluctance to endorse and participate L This will be mitigated through engagement of local in the project activities by stakeholders governments from the onset of the project, and by and reluctance/ slowness of local providing training and conducting awareness raising institutions to agree on project activities campaigns. In this sense, the first activity will be the participatory development of the vulnerability assessments and the adaptation plans of action. Lack of commitment from local L Targeted communities will be identified based on local community and local governance consultations, stakeholder analyses and structures in adopting and demonstrated willingness and a history of mainstreaming the ILM approach engagement in similar activities. Awareness and capacity development will encourage participation in project activities, and proof of concept and lessons learned will lay the foundation for broad adoption as well as further replication of the project approach and activities. Achievements on the ground that bring benefits to local producers will be demonstrated during the project to overcome skepticism. Limited sustainability of investments M The terminal evaluation of PDDO found that the maintenance of hydraulic infrastructures was limited. The tariff structures that were used on the water management committees did not cover the even regular maintenance costs. The MTRs of PARSACC and GCCA also show concerns on this. Building on those lessons, this project will establish tariff structures that being equitable allow the adequate maintenance and renovation of each of the funded infrastructures. This will be facilitated by more resilient livelihoods and increased revenues, exploiting the rural-urban synergies, and by awareness raising activities.
B.3. Expected project results aligned with the GCF investment criteria (max. 3 pages)
Impact potential
Directly, the project aims to increase the resilience to the current and projected impacts of climate change of around 204,171 very vulnerable individuals living in the growing regional rural-urban hubs of Aoujeft, Rachid, Tamchekett and Nema along the most vulnerable strip of Mauritania. Indirectly, the project will also benefit the country’s very
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 20 OF 4 fragile and most fertile and populated lands in South, by stopping desertification moving south. The project will therefore directly and indirectly contribute to the achievement of the GCF’s objectives in terms of adaptation.
In particular, the project will contribute to the achievement of the GCF’s results area “most vulnerable people and communities” since it focuses on the desert are of the country, which, as explained in B1, is particularly vulnerable to the impacts of climate change. The project will also target the most vulnerable people within the communities by paying a special attention to women and young people. The project will ensure they participate in component 1, informing the planning exercise, at the same time it ensures that activities conducted on the ground benefit them in terms of land rehabilitation, access to water and livelihood improvement and diversification.
The project will contribute to the result area “ecosystem and ecosystem services” by promoting a sustainable management of natural resources, including pastures, water bodies and forests, through the participatory development of strategic management plans, which will be informed by rigorous assessments of the impacts and vulnerabilities to climate change. In addition to improving planning and management, the project will also involve specific activities on land rehabilitation and reducing land degradation such as dune fixation and the introduction of agriculture and livestock practices that help retain soil. Forest fires will also be prevented.
Paradigm shift
The proposed project contributes to a shift from a highly vulnerable to climate change development path to a more resilient one in the four target regional hubs, in line with the Fund’s goals and objectives, supporting Mauritania moving forward to a more sustainable and adaptive pathway. In this sense, the project contributes to a shift from a situation where development and physical planning is weak and not informed by sound knowledge on the impacts, risks, and vulnerability to climate change and investments made on the ground are scarce, isolated and vulnerable, to a situation where development and physical planning is done using a participatory approach informed by sound and exhaustive knowledge on climate change and local development issues and barriers and substantive investments are made leading to land rehabilitation, improved integrated water management and adapted and diversified livelihoods, including agriculture, resulting in increased resilience to the impacts of climate change.
The project achieves this change by addressing the key barriers for implementing the preferred solution in a strategic, integrated and sustainable way, the different components, outcomes and outputs of the project complementing each other to put in place a systemic change. This is done at four levels. First, the project is comprehensive and integrated in terms of dimensions: component 1 strengthens the enabling environment at the sub-national level in terms of information, planning and institutions, including testing payment for ecosystem services type of mechanisms, which is complemented by strengthening the enabling environment at the national level through component 3 while Component 2 implements adaptation measures in four urban-rural hubs which seek to establish a positive ecosystem management model that assures adaptation resilience. Second, the project is comprehensive and integrated in spatial terms: it considers the links between rural and urban areas and their potential for landscape and migration benefits that would increase people’s adaptive capacity and reduced vulnerability to climate change. Third, as explained below, the project will involve all relevant stakeholders, including a wide range of them, from different scales and sectors of government to the beneficiaries, via the civil society, including NGOs and the private sector, favouring the relevant engagement of women. Importantly, while the project clearly focuses on four regional hubs or poles, it is strategic to stop the desertification process moving further south, protecting the more fertile and densely populated regions of the country, bringing therefore a systemic understanding of climate change impacts and ecosystem dynamics. Furthermore, the project will build evidence on the impacts, risks and vulnerability to climate change and document and disseminate lessons on adaptation strategies, contributing to knowledge on climate change in the four target hubs and more broadly in Mauritania and links to the NAP process.
The development of the full proposal will be the opportunity to further finetune the direct contribution of the project (in particular through actions under component 1 and 3 and investment under component 2) to the paradigm shift from a highly vulnerable to climate change development path to a more resilient one in the four target regional hubs. A detailed technical and financial feasibility study will be conducted along with the development of the full proposal.
Potential for scaling up and replication
The project will test, validate and promote local knowledge-based approaches, practices and technologies on climate change – land rehabilitation, water management, agriculture, livestock and forestry sectors to increase resilience. Approaches, practices and technologies will be introduced based on participatory requests and will only include sustainable climate smart approaches, practices and technologies that also meet social acceptance and that are environmentally sound. By seeking social acceptance and by aiming to respond to the needs to the local population, the climate-smart approaches, practices and technologies promoted by the project have a large potential for scaling up and replication throughout Mauritania and Northern Africa. Indeed, not only the target hubs are representative of important ecosystems in these areas, but the desertification process is also bringing these conditions to other areas. Moreover, the participatory approaches of component 1 would be applicable to different types of ecosystems. In this framework, the project will be particularly careful to analyse what works well and not that well, and draw strategic
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 21 OF 4 lesson for the scaling up and/or replication of the project. The economic appraisal to be conducted in component 3 will facilitate this. Mainstreaming of climate change adaptation into key national policies, strategies and guidelines will also contribute to scaling up and replication at the national level. Scaling-up and replication approaches will be clarified during the full proposal development stage.
Potential for knowledge and learning
Building on the country-wide work conducted as part of the NAP process, Component 1 will raise awareness and increase knowledge on the impacts of and vulnerabilities to climate change and potential adaptation strategies as the basis for developing local adaptation plans of action in the target hubs. This will include a coordination platform in output 1.1 and participatory management processes of natural resources in output 1.2. It will also provide training. In addition, component 2 will allow stakeholders to strengthen their awareness and knowledge through the implementation of climate-resilient approaches, practices and technologies, learning by doing. Component 3 will provide useful economic information and improve key national policies, strategies and guidelines. Through different mechanisms and activities, project management will ensure that all the knowledge generated by the project and all experiences will systematically be consolidated and shared. This will facilitate the integration of the lessons learned from the proposed project into future projects. The contribution of this project is in this sense very relevant, as it will generate evidence on the effectiveness of ecosystem management for building climate resilience in rural-urban hybrids in areas that are prone to desertification. In parallel, the project is informed by lessons from other projects. As explained below, the design of the concept note already factors in lessons from other projects. Baseline studies to be conducted during the design of the full-size project document will further document lessons, using them in the design. This will include national and relevant regional projects (for instance, best practices from the project Strengthening community resilience and human security of vulnerable communities in urban areas in Nouakchott51 and in developing eco-friendly human settlements in a desert area of Algeria). Moreover, the implementation arrangements will ensure that lessons from other projects are considered during the implementation of this project, for instance by participating in coordination platforms. Ownership of MEDD, which coordinates all climate change- related projects in the country, ensures lessons are drawn and used.
Contribution to the creation of an enabling environment and the mainstreaming of climate change into the regulatory framework
The project will contribute to the creation of an enabling environment where project results are likely to be continued beyond the completion of the intervention. Through component 1, the project will develop local adaptation plans of action in four hubs, with insights on land use plans, ensuring that climate change adaptation remains part of the hubs’ priorities in long term, on which the local governments will have to deliver. Moreover, the project will implement natural resources management plans, involving resource-users in sustainable management. Through component 3, the project will mainstream climate change adaptation into national policies, strategies and guidelines regarding spatial planning and natural resources management. Furthermore, building on the NAP process, the project will strengthen the technical capacity of government staff at different levels. In addition, through learning by doing beneficiaries will have better understanding of climate resilient approaches, practices and technologies.
Innovation
While, as noted in B1, some work has been and is being conducted in the north of the country in rural production systems and ecosystem-based adaptation, this is rather rare, despite the vulnerability of the population and the importance of stopping desertification moving further south. Moreover, rural-urban linkages have been overlooked, disregarding the urbanization process and reducing the resilience impacts. Furthermore, while some, such as PARSACC, have done it, most of existing projects in the target provinces have not promoted either integrated landscape approaches, working at the same time on forests, farmland, rangeland, wetlands and their interaction with the built environment. This project is highly innovative in that i) it focuses on the north, where few project are working; ii) tries to exploit the rural-urban linkages to increase the resilience of the urbanization process; and iii) it promotes a comprehensive and systemic landscape approach integrating forests, farmland, rangeland, wetlands and the built environment. The project will also be innovative in terms of the practices and technologies it promotes. While some of them may not be considered innovative in more advanced economies, they are still in their infancy in Mauritania. The specific practices and technologies will identified during the preparation of the full project document and with more detail during the participatory implementation of component 1. At this stage, these practices and technologies will include dune fixation, water retention infrastructure, conservation agriculture, and community based pasture and forest management, amongst others. The adoption of these practices and technologies will contribute to avoiding the technological and behavioural “lock-in” identified by the Fund as a potential difficulty to be overcome in order to achieve its objective.
51 Since 2016, together with the government of Mauritania, the United Nations International Strategy for Disaster Reduction (UNISDR) and UNDP are implementing this project, which has a component in Mauritania (in Nouakchott) and a component in Tunisia. The terminal evaluation of the project was being procured in the second quarter of 2019.
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Sustainable development
There is very little information available on economic benefits of ecosystem-based adaptation. Output 3.1 intends to address the evidential deficit. General understanding of the estimated co-benefits of the project include: A) Economic co-benefits: The project will protect and restore ecosystems, which will result in increased ecosystem provision services, with direct economic benefits given an increase in production. Diversification will also increase the GDP. Moreover, the protection and restoration of ecosystem will result in increased regulation services, which will increase resilience, thus reducing losses related to climate variability and change.
This will create jobs, both directly, through increased sustainable use of ecosystems, and indirectly, through demand for technical experts on climate change adaptation and sustainable land management that can provide technical advice.
Moreover, this will improve government’s budget. On the one hand, the government will increase its collection of taxes, given economic growth. On the other hand, it will be more resilient to shocks, that is, less vulnerable to climate variability and change, which often result in emergency assistance. B) Social co –benefits: The project will raise awareness and strengthen capacities of a wide range of stakeholders through different approaches, from training workshops to radio programmes.
The project will also contribute to improve safety and health. The protection and restoration of ecosystems will enhance their regulation services. These imply increased resilience to droughts and heavy rains (which can result in floods). Increased regulation ecosystem services also contributes to improved health, given that ecosystems contribute to purify the soil, water and air, regulate the climate (i.e. reducing heat stress), and help control diseases. Increased availability of diverse food and of water will also contribute to a better nutrition and therefore health. Potentially, increased availability of medicinal plants would also have a positive impact on health.
Furthermore, the protection and restoration of ecosystems achieved by the project will promote the cultural services provided by them. In this sense, the protection and restoration of oasis will preserve the population’s attachment to their land. Moreover, the participatory management of natural resources will help reduce conflicts and maintain social cohesion. C) Environmental co-benefits: By protecting and restoring ecosystems through dune fixation and an integrated approach the project will prevent soil erosion and improve its quality, control water flow and purify it, and improve local air quality. Although in a small scale, the project will also decrease GHG emission by reducing deforestation and increasing carbon sequestration. Moreover, the project will contribute to protect and enhance biodiversity. D) Gender sensitive development impact: Diversification will create formal and informal jobs within rural communities, benefiting women in particular. The project will be particularly careful to ensure the participation of women in all planning exercises. This together with the project’s contribution to decrease poverty and increase water and food security will contribute to gender equality.
Needs of recipients
Mauritania is classified as an LDC. In 2015, the country’s Human Development Index (HDI) score was 0.51, ranking it 157 out of 187 countries. While poverty declined significantly since 2008, in 2014, 31% of the population lived below the national poverty line and 5.6% of the population lived below the international absolute extreme poverty line of USD 1.90 (purchasing power parity). Household whose heads worked in agriculture and livestock were particularly poor, with 59.6% and 41.8% of them being poor, respectively, in 2014. Mauritania is particularly vulnerable to climate change. The country ranks 154th out of 181 countries in the ND-GAIN vulnerability to climate change index52. This project focuses on the strip of the country most affected by climate change. Section B1 presents in depth the climate change trends and projections, as well as a vulnerability assessment, explaining in detail the barriers for climate compatible development in the project area. As explained in detail in sections B2 above by mainstreaming climate change in local and regional development and strategic planning and implementing priority adaptation strategies on the ground on land rehabilitation, water and livelihoods, the project will respond to the need of addressing poverty and vulnerability in these particular hubs. Importantly, the project contributes to the country’s goal of slowing down southbound desertification. Section C.2 below presents the financial difficulties of the country to fund the urgent adaptation interventions, and the justification of the request for support from the GCF.
52 https://gain.nd.edu/our-work/country-index/rankings/
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Country ownership
The project is in tune with the country’s national climate strategies and priorities. Mauritania’s INDC (2015) refers to series of 19 ambitions (for 2030) of which five are directly in line with the project’s objectives. In particular, the project is congruous with the following of Mauritania’s climate ambitions: i) The restoration of natural grasslands; ii) The realisation of water resources availability analysis; iii) Strengthening of ecosystem resilience towards climate change; iv) Strengthening of vulnerable populations, especially in rural areas; and v) Strengthening of institutional and technical capacities of national and local structures with regards to planning, financing, and implementation of adaptation measures. Besides, depending on the decisions made at the meso and micro level, the project is likely to contribute to four additional ambitions.
In addition, the project is consistent with the National Adaptation Programme for Action to Climate Change (NAPA) (2004), which following a sectoral approach defined Priority Adaptation Measures (PAM), mainly technical and environmental interventions. Out of 27 PAMs, eight are likely to be implemented under output 3.1 (land rehabilitation and fight against desertification), seven under output 3.2 (efficient water use) and four under output 3.3 (resilience for livelihoods), for a total of 19 out of 27. The high priority PAMs to which the project will contribute directly are: i) Better knowledge of the cycle of the surface waters; ii) Construction of flooding breakdown dikes in pluvial and oasis zones; iii) Promotion of water-saving techniques in oasis zones; iv) Participatory reforestation for energy and agroforestry in agricultural zones; and v) Reorganisation of the communities adversely affected by climate change.
The project is complementary to the country’s NAP process. Building the evidence base on climate risks and vulnerability and economic impacts and benefits that will be generated during the Funding Proposal formulation phase will be useful to Component 2 of the NAP on “Climate change knowledge and information management”. The project will build on NAP activities i) building capacity of policy-makers and relevant staff from relevant government institutions (1.2.2); ii) building capacity of vulnerable groups in collaboration with key ministries (1.2.3); and iii) developing and implementing at least one awareness-raising campaign in each Wilaya for local authorities, CSOs and local communities Building on the NAP activities, the proposed project will further raise awareness of the need for adaptation and build capacities for adaptation planning and implementation in the target hubs via training and learning by doing, which will provide additional political drivers for engagement and leadership in subsequent iterations of the NAP. Building on the awareness raised and using the tools developed by the NAP process, the proposed project will support the target hubs integrate adaptation priorities into local adaptation planning.
Furthermore, the project is coherent with Mauritania’s spatial planning strategy, which is promoting regrouping and resettlement of villages towards an oasis-centered administrative structure. This strategy is also a priority in Mauritania’s INDC (2015), as reflected by the high volume of requested funding. Mauritania’s GEF program also supports this intention. Indeed, in an area of Aoujeft (Tewemend) the government is grouping several villages, including building water and sanitation and energy infrastructure and health and education facilities.
The project will contribute to the Sendai Framework for Disaster Risk Reduction 2015-2030 through the implementation of component 1, and specifically through the strengthening of local capacities of assessing climate risks and planning interventions at community, commune and hub levels.
Efficiency and effectiveness
During the development of this concept note, a significant effort was made to ensure that the project is effective and additional to existing initiatives, addressing the key barriers for climate resilience in the targeted hubs and exploiting complementarities between outcomes, outputs and activities. Moreover, a comprehensive analysis of the most important past and ongoing projects and programmes avoided thematic and geographical overlap and allowed to identify valuable insights and potential synergies. These complementarities and synergies will be further assessed during the full proposal development stage.
To increase efficiency, the project taps into these insights, adapting them to its specific context and goals. For instance, this project builds on the Oasis Sustainable Development Programme implemented by IFAD (PDDO by its initials in French), which registered good results with regards to the improvement of palm date yields, the design of water-efficient irrigation techniques, the deceleration of desertification, the improvement of the quality of life for oasis inhabitants and the use of microfinance so that the AGPO are capable to self-financing53. Similarly the project builds on the programme on Enhancing Resilience of Communities to the Adverse Effects of Climate Change on Food Security in Mauritania (PARSACC by its initials in French), which succeeded in building capacity and set up interesting participatory dynamics, including community user groups, but, as noted above, suffered from lack of effectiveness due to the selection of dispersed and remote areas54, unlike this project which deploys a hub approach along a particular strip of the country (the most vulnerable). This project is also informed by lessons from PARSACC
53 PDDO terminal evaluation. 54 PARSACC MTR.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 24 OF 4 in linking from the beginning with the Ministry of Water and Sanitation. Moreover, the project uses insights from the Global Alliance against Climate Change with regards to the use of vulnerability mapping and studies for baseline establishment and site selection, while, in contrast with it55, having a truly integrated approach. In addition, the project builds on the Great Green Wall initiative, the Sahel and Sahara Office experiences in the arid areas and the GEF funded Mauritania Sustainable Landscape Management Project (MSLMP), bringing a more strategic and integrated approach. This project will additionally build on the GEF Small Grant Programme via a partnership to execute small- scale high labour intensity community based-activities through NGOs and will use the generalized know-how in dune fixation techniques of decentralized structures of MEDD. As also mentioned, the project builds as well on good practices in the country on payment for ecosystem services56. Moreover, the project builds on the GoM’s campaign against bushfires, which, as mentioned earlier, has achieved significant results 57. While in another area of the country, a cost-benefit analysis on cash for work for the construction of estimated 2,65 E of benefits per each euro invested58. Economic benefits were positive even in a pessimistic scenario, and even disregarding some positive benefits that could not be quantified. In addition, the project will be informed by lessons from UN Environment’s work on EbA on urban systems in Asia-Pacific and Latin America and the Caribbean and by lessons from the project “Strengthening community resilience and human security of vulnerable communities in urban areas”, implemented in Nouakchott. The preparation of the fund proposal will draw lessons from these projects and factor them in the final design59.
During implementation, the project will be coordinated closely with other relevant on-going initiatives implemented in the country, such as the NAP process, as mentioned above. The project will also seek synergies and complementarities with emerging initiatives and programs pursuing similar objectives. In this sense, the project will benefit, in a costs effective manner, from the climate change adaptation and mitigation capacities built by previous or ongoing projects in Mauritania while ensuring the complementarity and effectiveness of its own intervention.
Cost-effectiveness will also be achieved through knowledge management as part of project management. Previous knowledge on climate change threats and mitigation practices and strategies does exist both at grass-roots and institutional levels, but it is poorly systematized, shared and disseminated. Project management will contribute to a systematic compilation and sharing of knowledge, lessons learned and experiences generated by the project to inform future project in a cost-effective manner, feeding the NAP process.
Importantly, while the climate resilient practices promoted by the project will be innovative, the changes introduced by the project will be developed in a participatory manner and will respect local needs, local resources and local capacity. This will not only contribute to sustainability, but will also ensure that existing knowledge is use and the project is efficient and effective.
During the full proposal development stage, a detailed technical and economic feasibility will be conducted, further assessing the cost-effectiveness of the proposed actions and investments.
B.4. Engagement among the NDA, AE, and/or other relevant stakeholders in the country (max ½ page)
A consultation workshop was conducted in August 2017 in Nouakchott, gathering 37 key stakeholders, including sectoral climate focal points, regional civil servants, development partners, including national and international NGOs, technical experts and representatives of the target communities. A consultation mission was conducted in March 2018 for the design of this concept note. This mission involved meetings with a large number of stakeholders
55 GCCA MTR. The GCCA’s MTR argues that the project didn’t follow an integrated approach, considering the watershed dynamics, micro-projects representing more punctual than systemic adjustments. 56 South of Timbédra, in the arid transboundary area of Mauritania near the Mali border, a Sahelian Testing Exclosure World Bank programme supported the establishment of a system in which herders pay farmers living around grassland in exchange for protecting grasses from bushfires or arbitrary wandering livestock. This system of conditional payments to voluntary providers of environmental services, which was later formalized as payment for ecosystem services (PES), has increased resilience and reduced conflicts over uses of land. The same system was later introduced by IFAD in Kayes (Mali), in the border with Mauritania. 57 Through awareness raising campaigns, construction of firewalls of at least 9 m and extinction work, in 2014 the GoM reduced the number of bushfires to 44 against an average of 131 bushfires annually since 2007, and the burnt area to 469 km2 against an average of 3,369 km2 annually, since 2007 saving around MRO 7,328 m in livestock food57. Government of Mauritania (2015): Joint communication of Council of Ministries regarding the national campaign for the protection of pastures against bushfires 2015-2016. 58 OXFAM (2012): Cost-benefit analysis of a “cash for work” intervention in the early response to food crisis in the Sahel. Mauritania case study. The intervention was conducted in 20 villages of the wilayas of Brakna and Gorgol. The cash benefit is short term, but the benefits of the work (building trenches) are more long term (2 years in this study). 59 Evaluation reports of these projects are not yet available. Mid-term evaluation reports of the two UN Environment projects and the terminal evaluation reports of the UNISDR project should be available by the time the development of the full-size project document starts.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 25 OF 4 from government ministries and agencies at the national level to international development partners (UN agencies and international NGOs), including meetings with teams implementing GEF and Adaptation Fund-funded projects.
The design of the full project document will be highly participatory. The baseline studies will comprise a number of consultation workshops, focus group discussions and interviews, with a particular focus on more vulnerable populations in the four target hubs. Specific efforts will be made to engage women.
As noted in the implementation arrangements section, during implementation, the project will closely involve the Ministry of Agriculture; the Ministry of Livestock Farming; the Ministry of Water and Sanitation; and the Ministry of Housing, Urbanism and Regional Planning. Furthermore, the project will work tightly with government political and technical staff at the sub-national level, including the regions, Wilayas, municipalities and communes. This will be particularly the case with officers in charge of planning, environment, agriculture and livestock, water and infrastructure, including extension services. The project will also involve communities throughout implementation. They will be engaged in the planning exercises, including the local adaptation action plans and land use plans. In addition, they will have a leading role in the selection and implementation of new approaches, practices and technologies for resilience.
C. Indicative Financing/Cost Information (max. 3 pages) C.1. Financing by components (max ½ page) Please provide an estimate of the total cost per component/output and disaggregate by source of financing. Component/Outp Indicative cost GCF financing Co-financing ut (USD) Amount Financial Amount Financial Name of (USD) Instrument (USD) Instrument Institutions Outcome 1: The 1,650,000 1000000 Grant enabling environment in the 650 000 In-Kind MEDD four target hubs has been strengthened Outcome 2: The 18,200,000 17,000,000 Grant resilience of the population and the 1 200 000 In-Kind 4 Regions ecosystems of the four target hubs is strengthened Outcome 3: The 2,650,000 1,500,000 Grant enabling environment at the 650 000 In-Kind MEDD national level has been strengthened Indicative total 22,500,000 20,000,000 2,500,000 cost (USD)
For private sector proposal, provide an overview (diagram) of the proposed financing structure.
C.2. Justification of GCF funding request (max. 1 page) As explained in detail in section B1, northern Mauritania is extremely vulnerable to climate variability and change. T his project systemically addresses the barriers preventing adaptation there, contributing to shifting towards a paradi gm conductive to climate change resilience60. In particular, through an integrated approach this project helps increa se the resilience to the current and projected impacts of climate change of around 204,171 very vulnerable individu als living in the growing regional rural-urban hubs of Aoujeft, Rachid, Tamchekett and Nema along the most vulner able strip of Mauritania. Importantly, the project critically contributes at the same time to stop desertification moving further south and affecting the country’s very fragile and most fertile and populated lands. At the global level the pr
60 The project is also structured in order to address the specific barriers that prevent climate change adaptation in the target area – the project components and activities described in section B.2 address the specific barriers presented in section B.1.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 26 OF 4 oject contributes to the achievement of the Sustainable Development Goals, the Paris Agreement and the Sendai F ramework.
Despite the importance of the activities to be conducted through this project, and the efforts made to design them as cost-efficiently as possible, local governments in the four hubs do not have the financial resources to implement them. The Government of Mauritania does not have either the required resources. With a high public debt (99% of its GDP in 2016), the country has limited financial capacity. It also relies on volatile exports. Besides it has key development needs, with 31% of the population living below the national poverty line and 6% living below the international absolute extreme poverty line of USD 1.90 (purchasing power parity) in 2014. Private sector investment is indeed scarce given poverty (slow payback is an additional barrier for private investment in adaptation). In this sense, the project focuses on highly vulnerable populations that are unable to access markets and mainstream financial channels. In 2015, Mauritania’s Human Development Index (HDI) score was 0.51, ranking it 157 out of 187 countries. Mauritania is in this sense a LDC.
In this context, climate change adaptation and mitigation constitute an additional burden for the country’s already constrained budget. Mauritania’s Intended Nationally Determined Contribution (INDC) to the UNFCCC claimed that making significant effort on adaptation would require USD 9,377 m between 2015 and 203061. Furthermore, in the same international communication Mauritania proposed to reduce by 22,3 per cent its projected emissions for 203062, which would require USD 9.3 m between 2020 and 2030.
Mauritania is certainly trying to mainstream climate change into its development policies. It has also invested significantly on climate change adaptation. As noted in its INDC, the GoM spent around USD 335 m in assisting populations affected by droughts between 2011 and 2015. The country also invested USD 330 m in poverty reduction with focus on agro-pastoral areas between 2006 and 2010 and a huge amount as well on habitat, urbanism and land management.
However, despite its best efforts and those of development partners, as for other aspects and in other areas of the country, the investment needed to cope in the target area with a change in climate to which the country has minimally contributed relies almost entirely on external assistance, from both bilateral development partners and multilateral players, especially from international climate change funds, such as the GCF, which is particularly committed to promote adaptation in LDCs. In this sense, the proposed outcomes and activities are fully in line with the objectives of the GCF (GCF national readiness programme). Technical support from UN Environment will also add value.
In short, without GCF’s support Mauritania would not be able to implement this transformative and cost-effective project, keeping the population of the targeted regions highly vulnerable to climate change. In this sense, while the project builds on the efforts of Mauritania and other development partners, seizing every opportunity to exploit synergies, these efforts alone, without the support of the GCF to implement this project would not be enough to make a significant change in the vulnerability of targeted populations. In this sense, the GCF support would help fill a critical gap, and would not displace or substitute investments that would otherwise have occurred, either concessional or commercial financing sources. Importantly, as noted, the grant focuses on the incremental or additional costs of adaptation.
C.3. Sustainability and replicability of the project (exit strategy) (max. 1 page)
The project is designed to ensure long term sustainability. This will be promoted by mainstreaming climate change adaptation into local and meso-level plans and strategies, including budget allocations, based on more detailed climate risk and vulnerability assessments to be conducted during the preparation of the full-size project document and participatory processes. These medium and long-term plans will ensure that land degradation and water concerns will be taken into account in future investments. Furthermore, building on the NAP process, the project will raise awareness and strengthen the managerial and technical capacity of provincial, district and local stakeholders to better assess and address the impacts of climate change. The arrangements in output 1.2, including testing payment for ecosystem services type of mechanisms, will create structures that can be sustained over time. This combination of sensitivity and capacity towards climate-related issues is almost non-existent in rural-urban hybrid regions and will remain in the country after the end of the GCF support, allowing Mauritanians to implement, replicate or scale-up this know-how to comparable regions in the country.
Secondly, sustainability will be ensured by promoting local ownership and building capacity through a learning by doing approach. At institutional level, as noted in the implementation arrangements section, key regional and local institutions will play a key role in the delivery of the activities (component 2), as well as their monitoring and
61 Habitat, urbanism and land management would require USD 5,000 m; fisheries, USD 1,644 m; water and sanitation, USD 1,500 m; agriculture, USD 843 m; health, USD 221 m; ecosystem conservation, USD 133 m; and livestock, USD 36.4 m. 62 This would imply avoiding the emission of 33,56 Mt eq-CO2 in the period 2020-2030.
PROJECT / PROGRAMME CONCEPT NOTE Template V.2.1 GREEN CLIMATE FUND | PAGE 27 OF 4 evaluation. Moreover, as noted above, management groups will be created or strengthened for water and land resources at community level. As a result of this approach, key stakeholders will have the awareness and technical capacity to sustain the results of the project when it finishes. At the local level, by showcasing climate resilient approaches, practices and technologies adapted to the needs and means of the local population, the project will ensure that communities build ownership over these approaches, practices and technologies and adopt them in the long term, therefore contributing to a paradigm shift towards more resilient livelihoods that will be pursued after the project. Moreover, exploiting rural-urban linkages and with a clear consideration of market system development, the project will promote livelihoods that can be sustained and can mobilize investment of private sectors in the value chain of the products. In this sense, building on activities 1.4.1 and 3.3.5 of the NAP process, business plans will be developed.
Component 3 on strengthening the enabling environment at the national level will also contribute to sustainability of the project results, as climate change adaptation will be mainstreamed into some key national policies, strategies and guidelines and useful economic information on the effectiveness of adaptation strategies will be available.
In addition, project management will ensure that the main results, knowledge and lessons generated with the GCF support are all consolidated and will remain available for future interventions from the national governments, local authorities, civil society or other relevant stakeholders. This will include good practices on climate change planning, natural resources management, payment for ecosystem services mechanisms, fight against desertification and resilient livelihoods in rural-urban hybrids in semi-desert areas.
D. Supporting documents submitted (OPTIONAL) ☒ Map indicating the location of the project/programme ☒ Diagram of the theory of change ☐ Economic and financial model with key assumptions and potential stressed scenarios ☐ Pre-feasibility study ☐ Evaluation report of previous project ☒ Results of environmental and social risk screening
Self-awareness check boxes Are you aware that the full Funding Proposal and Annexes will require these documents? Yes ☒ No ☐
• Feasibility Study • Environmental and social impact assessment or environmental and social management framework • Stakeholder consultations at national and project level implementation including with indigenous people if relevant • Gender assessment and action plan • Operations and maintenance plan if relevant • Loan or grant operation manual as appropriate • Co-financing commitment letters Are you aware that a funding proposal from an accredited entity without a signed AMA will be reviewed but not sent to the Board for consideration? Yes ☐ x No ☐
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ANNEXES Annex 1. Maps
Map 2. Aoujeft map
Map 3. Rachid map
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Map 3: Tamchekett map
Map 4: Nema map
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Annex 2: Observed precipitation in the project areas
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Annex 3: Number of annual days with at least six consecutive days where TN< 10e percentil
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Annex 4: Number of annual days with at least 6 consecutive days where TX> 90e percentil
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Annex 5: Climate projections for the project areas to 2050
A-Temperature: A1- HadCM3 A2 – ECHAM 4
B- Precipitation: B1- HadCM3 B2 – ECHAM