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REDD Plus Governance Needs a Driver and More Fuel. the Case of Quintana Roo, Mexico

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REDD Plus Governance Needs a Driver and More Fuel. the Case of Quintana Roo, Mexico REDD plus governance needs a driver and more fuel. The case of Quintana Roo, Mexico by Lissel Hernandez-Gongora A Thesis presented to The University of Guelph In partial fulfilment of requirements for the degree of Doctor of Philosophy in Rural Studies Guelph, Ontario, Canada © Lissel Hernandez-Gongora, January, 2020 ABSTRACT REDD+ GOVERNANCE NEEDS A DRIVER AND MORE FUEL THE CASE OF QUINTANA ROO, MEXICO Lissel Hernandez Gongora Advisor: University of Guelph, 2020 Dr. John Devlin REDD+ (Reducing Emissions from Deforestation and Forest Degradation) is a mechanism to reduce greenhouse gas emissions from the forest sector in developing countries. REDD+ has evolved from an original market approach that focused on buyers, sellers and a marketplace for carbon credits to a mechanism that also seeks to achieve non-carbon benefits such as biodiversity conservation and creation of socio-economic benefits. The sources of REDD+ financing have been public from both international donors and domestic sources. REDD+ now encourages land-use policies for addressing the underlying causes of deforestation external to the forest sector. REDD+ includes three phases: 1) readiness, during which national strategies are developed, forest reference levels are measured, and monitoring and safeguard systems are created; 2) early implementation, during which pilot activities are implemented to reduce deforestation at sub-national level and 3) results-based payments, which will provide financial compensation for verifiable results measured against forest reference levels. REDD+ governance involves actors at multiple government levels and from multiple sectors. Using an evaluation framework derived from the polycentric governance model, this thesis assesses the quality of governance in REDD+ in Quintana Roo, Mexico in terms of actors’ influence in decision-making, information sharing, knowledge exchange, financial coordination, conflict resolution, and creation of trust. The researcher conducted 23 semi-structured interviews with members of the REDD+ Work Group (government officers), the REDD+ Advisory Council (sector representatives) and ejidos (property regime where communities own collectively land and resources). The data were collected from July to December 2018. This research concludes that REDD+ governance in Quintana Roo needs a driver and more fuel. The driver will be one or a few specific actors who will direct the decision-making and implementation processes while promoting actors’ influence in decision-making, information sharing, knowledge exchange, financial coordination, conflict resolution and creation of trust. REDD+ early implementation (phase 2) also needs more fuel. In other words, more financial resources should be invested in activities to achieve significant results in reduction of deforestation and generating socio-economic benefits so the potential benefits of forest management can be more convincingly demonstrated. ACKNOWLEDGEMENTS I would like to thank the participants in this study for dedicating time out of their regular activities to talk to me and share their wonderful insights on how to work together to conserve the valuable resource which is the Selva Maya (Mayan tropical forest) of Quintana Roo, Mexico. I am grateful to the Mexican government who financed my doctoral program and made it possible for me to spend four amazing years studying and living in Guelph. I am also grateful to my advisor and the members of my committee for their patience and support in overcoming the obstacles I have faced through my research. I would like to thank my fellow doctoral students, the staff at SEDRD and, in general, all the staff at the University of Guelph that have made my years as a PhD student a lifetime experience. Last but not the least, I would like to thank my family for supporting me spiritually throughout writing this thesis and my life in general. iv TABLE OF CONTENT Abstract………………………………………………………………….. ii Acknowledgments …....……………………………………………….. iv List of tables ……………………………………………………………. vi List of figures …………………………………………………………... vii Introduction ...................................................................................... 1 Chapter 1. Climate change and REDD+ governance ......................... 10 o What is governance? ............................................................................. 10 o Climate Change governance ................................................................. 11 o The REDD+ mechanism ........................................................................ 16 o Multi-level and multi-sectoral approach in governance .......................... 29 o The governance assessment framework ............................................... 40 o Mexico’s forest sector and REDD+ policies ........................................... 45 Chapter 2. Using the assessment framework in REDD+ governance cases ............................................................................................. 57 o Quality of REDD+ Governance in Brazil ................................................ 59 o Quality of REDD+ Governance in Indonesia ......................................... 62 o Quality of REDD+ Governance in Nepal ................................................ 64 o Quality of REDD+ Governance in Peru ................................................. 66 o Quality of REDD+ Governance in Tanzania .......................................... 69 o Quality of REDD+ Governance in Vietnam ............................................ 71 Chapter 3. Methodology ................................................................ 78 o Study area ............................................................................................. 79 o Case Study design, data collection and data analysis ........................... 88 Chapter 4. Achievement of REDD+ goals in Quintana Roo ........... 95 o Reduction of Deforestation .................................................................... 95 v o Socio-economic benefits ...................................................................... 102 Chapter 5. Quality of REDD+ Governance in Quintana Roo ........ 114 o Quality of Governance in the REDD+ Work Group .............................. 114 o Quality of Governance in the REDD+ Advisory Council ...................... 133 o REDD+ in the Ejidos ............................................................................ 156 Chapter 6. Discussion and Conclusion ........................................ 179 o Explaining the performance of REDD+ in Quintana Roo ..................... 179 o Policy recommendations for REDD+ implementation in Quintana Roo and Mexico .......................................................................................... 189 o Contributions to the literature ............................................................... 191 o Limitations of the research ................................................................... 194 o Future research ................................................................................... 196 References .................................................................................. 197 LIST OF TABLES Table 1.1 Conference of Parties ....................................................................... 14 Table 1.2. Safeguard defined in the 2010 COP 16 .......................................... 21 Table 1.3. Top five fund recipient from FCPF, UN-REDD and FIP (2008-2019) ......................................................................................................................... 27 Table 1.4. Functions of polycentric governance .............................................. 41 Table 2.1(a) Quality of REDD+ governance in analyzed countries .................. 75 Table 2.1(b) Quality of REDD+ governance in analyzed countries. ................ 76 Table 3.1. REDD+ Work Group Members ....................................................... 84 Table 3.2. Sector represented at the REDD+ Advisory Council ...................... 86 Table 3.3. Specific research questions and Indicators .................................... 89 Table 3.4 Interview summary .......................................................................... 91 Table 4.1. Quintana Roo's Tree Cover Loss and Deforestation ...................... 96 Table 4.2. Drivers of gross global tree cover ................................................... 97 Table 4.3. Tree Cover Loss for Mexico and Quintana Roo ...... 98 vi Table 4.4. Absolute and relative tree cover loss in REDD+ and non-REDD+ municipalities ................................................................................................. 102 Table 4.5. People with less income than the minimum required to buy the basic food basket in Quintana Roo ......................................................................... 103 Table 4.6. Percentage of population with less income than required to buy the Basic Food Basket and percentage of population with no access to food per municipality .................................................................................................... 104 Table 4.7.Financial Resources from the Peninsula de Yucatan Special Program ....................................................................................................................... 107 Table 4.8. Agroforestry projects supported by the REDD+ Special Program 109 Table 4.9. Degree of Social Lag in Quintana Roo and REDD+ municipalities 111 Table 4.10. Education and access to health services Quintana Roo and REDD+ municipalities in 2015
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