Stocktaking Report for the NAP process in NIGER
Acknowledgements
This Stocktaking Report was made possible through the support and guidance of Kamayé Maâzou, Gousmane Moussa and the team of the Climate Change Unit of the National Council on Environment for Sustainable Development of Niger. The UNDP NAP-GSP mission team would also like to thank interviewees from the key ministries and technical and financial partners for their availability and openness to share views and documents during the mission to Niger in 2014.
The UNDP Niger Country Office, especially Mansour Ndiaye, Laoualy Ada and Mahamane Lawali, provided invaluable support by sharing technical insights, relevant information and helping organise the mission.
Julie Teng compiled and wrote this report. It is also available in French, with translation provided by Clotilde Goeman.
This report is part of a series of Country Stocktaking Reports prepared by the joint UNDP / UN Environment NAP-GSP team. These reports are prepared under the oversight of Rohini Kohli with the editorial process managed by Esther Lake.
The mission team included Rohini Kohli and Julie Teng, UNDP, Jerry Husch, consultant to the United Nations Institute for Training and Research (UNITAR), Armand Houanye and Tiemtoré Mahamadou of the Global Water Partnership (GWP).
Disclaimer
The designations employed and the presentations of this paper do not imply the expression of any opinion whatsoever on the part of UNDP, UN Environment, the GEF, or any other United Nations or contributory organisations, editors or publishers concerning the legal status of any country, territory, city or area or its authority.
Mention of a commercial company or a product in this paper does not imply endorsement by UNDP, UN Environment, the GEF, or any other United Nations or contributory organisations.
The use of information from this paper concerning proprietary products for publicity or advertising is not permitted. This paper has not been formally copy edited.
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Table of contents
Acknowledgements ...... 1 Disclaimer ...... 1 Acronyms and abbreviations ...... 4 Introduction ...... 6 National context ...... 9 Capacity assessment ...... 18 SWOT analysis for national capacity needs ...... 21 Skills assessment ...... 26 Recommendations for skills development ...... 30 Private sector engagement ...... 33 Strategic ...... 34 Strategic areas ...... 34 Bibliography ...... 42 Annex 1: List of ministries, departments and institutions consulted ...... 43
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List of figures
Figure 1: Institutional levels for capacity development 18 Figure 2: Entry points and components for the nap process in Niger 36
List of tables
Table 1: NAP-related initiatives 13 Table 2: Recommended competencies for National Adaptation Planning 20 Table 3: SWOT analysis of the NAP 22 Table 4: Climate mainstreaming 23 Table 5: Skills assessment 27 Table 6: Entry points for national skills development for NAPs in Niger 32 Table 7: NAP workstreams and recommended actions 37
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Acronyms and abbreviations
AfDB African Development Bank CAADP Comprehensive Africa Agricultural Development Programme CBA cost-benefit analysis CCA Climate Change Adaptation CNEDD National Council on Environment for Sustainable Development Conseil National de l’Environnement pour un Développement Durable CR-CAP Community Action Project for Climate Resilience DMN National Meteorological Directorate Direction de la Météorologie Nationale DNPGCCA National Mechanism for Disaster and Food Crises Prevention and Management Dispositif National de Prevention et de Gestion des Catastrophes et Crises Alimentaires DRM disaster risk management DRR disaster risk reduction EMIG School of Mines, Industry and Geology Ecole des Mines, de l’Industrie et de la Géologie ENAM National School of Administration and Justice Ecole Nationale de l’Administration et de la Magistrature EWS early warning system FAO United Nations Food and Agricultural Organization GCCA Global Climate Change Alliance GEF Global Environment Facility GEF-LDCF Global Environment Facility – Least Developed Countries Fund GSI geographic information systems GIZ German international development agency Deutsche Gesellschaft für Internationale Zusammenarbeit GWP Global Water Partnership I3N Nigeriens Nourish the Nigeriens Initiative Initiative les Nigériens Nourissent les Nigériens IBRD International Bank for Reconstruction and Development IFC International Finance Corporation IT Information technology JICA Japan International Cooperation Agency LDC Least Developed Country LEG Least Developed Countries Expert Group MESU/DD Ministry of Environment, Urban Hygiene and Sustainable Development Ministère de l’Environnement, de la Salubrité Urbaine et du Développement Durable MP/AT/DC Ministry of Planning, Spatial Planning and Community Development Ministère du Plan, de l’Aménagement du Territoire et du Développement Communautaire NAP National Adaptation Plan NAP-GSP National Adaptation Plan – Global Support Programme NGO non-governmental organisation Stocktaking Report for the NAP Process in NIGER 4
PARC-DAD Project to support climate resilience for sustainable agriculture development Projet d’appui à la resilience climatique pour le devéloppement de l’agriculture durable PPCR Pilot Program for Climate Resilience PDES Economic and Social Development Plan Plan de Développement Économique et Social PNC National Climate Change Policy Politique Nationale en Matière de Changements Climatiques PNEDD National Plan on Environment for Sustainable Development Plan National de l’Environnement pour le Développement Durable SDDCI Sustainable Development and Inclusive Growth Strategy Stratégie de Développement Durable et de Croissance Inclusive SE/CNEDD Executive Secretariat of the National Council on Environment for Sustainable Development Secrétariat Exécutif du Conseil National de l’Environnement pour un Développement Durable SPNA/CVC Climate Change and Variability Strategy and Action Plan Stratégie et Plan d’Action sur les Changements et la Variabilité Climatiques SWOT Strengths – Weaknesses - Opportunities – Threats UNCC : learn One UN Climate Change Learning Partnership UNDP United Nations Development Programme UN Environnent United Nations Environment Programme UNFCCC United Nations Framework Convention for Climate Change UNITAR United Nations Research and Training Institute V&A (climate change) vulnerability and adaptation WB World Bank
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Executive
Summary
Niger is a landlocked country in the eastern The government ratified the United Nations part of West Africa, of around 1.3 million Framework Convention on Climate Change square kilometres and with a population of (UNFCCC) in 1995, the Kyoto Protocol in 2007 around 17 million as of 2012. The climate is and the Paris Agreement in September 2016. mostly hot and dry, with most of the country in Established in 1996, the climate change policy the semi-arid Sahel belt, and the north falls under the institutional framework of the reaching into the Sahara Desert. The former National Environment Council for Sustainable French colony is classified as a low-income Development (Conseil National de economy and a member of the Least l’Environnement pour un Développement Developed Countries group by the United Durable, or CNEDD). Nations.
The Government of Niger has composed The rural sector (agriculture, livestock, forests several strategic documents relating to climate and fishing) accounts for 44 percent of gross change. These include three National domestic product, and is the main employment Communications to the UNFCCC, a National for 90 percent of the working population. Action Programme for Adaptation (Programme Agriculture is dependent on the limited, d’Action National pour l’Adaptation aux seasonal rains, leaving the sector particularly changements climatiques, or PANA), and a vulnerable to climate change. The population National Climate Change Strategy and Action growth rate of 3.9 percent per year is one of the Plan (Stratégie Nationale et le Plan d’Action en highest in the world, and annual per capita matière de Changements et Variabilité 1 income is estimated at $ 427. Climatiques, or SNPA/CVC).
The 2006 PANA has until now been the main framework to address the country's climate vulnerability, and is focused on immediate
1 UNdata, The World Statistics Pocketbook, Online: http://data.un.org/CountryProfile.aspx?crName=niger (2016).
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needs. The National Adaptation Plan (NAP) invasions by locusts. Insufficient drinking water process will integrate climate change into more supplies are under increasing pressure from medium- and long-term development planning the depletion of ponds and natural lakes, the and budgeting, in line with the country's '2035 reduced flow of the Niger River and Vision'. sedimentation of surface water sources. A decline in the livestock and crop sectors would
lead to drastic impacts on the economy of In 2014, an initial assessment of Niger's Niger, potentially leading to widespread food institutions and capacities relevant to the NAP insecurity, an exacerbation of rural migration, process was conducted by the National and an upsurge in diseases such as malaria, Adaptation Plan Global Support Programme meningitis and measles. (NAP-GSP), led jointly by the United Nations
Development Programme (UNDP) and United Challenges Nations Environment Programme, together with partners including the United Nations Several challenges required additional support, Research and Training Institute (UNITAR) and including: the Global Water Partnership (GWP).
❖ Limited institutional, functional and
The team took stock of relevant initiatives on technical capacity. Climate change is climate mainstreaming, and identified not indicated in the national budget potential next steps and strategic areas of process. There is no clearly defined interventions to advance the NAP process in strategy for CCA education and training, Niger. These are detailed in this report. and the national NGO sector is weak. Comprehensive frameworks about Vulnerability climate change social impact are underused. Climate change is already impacting Niger's agriculture and welfare. There have been three ❖ Constrained financial, human and major droughts in the last decade, leading to material resources. There is only a food shortages that have aggravated existing small pool of qualified personnel, with food insecurity and acute malnutrition among poorly defined and weakly supported the mostly rural population with high poverty work roles. Cross-practice levels. management structures to define authorities, responsibilities and roles Projected climate-related risks include are minimal, and the understanding of recurring droughts, increasingly erratic rainfalls collaborative management is limited. and floods, violent sand storms and destructive
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There is a lack of experience in training opportunities in national and sector strategies for team-building. and programmes.
❖ Limited synergies and coordination The NAP process will also support the among climate adaptation initiatives. prioritization of activities to prevent negative There are very limited collaboration climate impacts on development at the mechanisms within and between CCA subnational level. In addition, the NAP process efforts at all levels, with different teams will provide the opportunity to enhance working each in their own 'silo'. This institutional capacity for climate change leads to limited teamwork and coordination at the national and subnational knowledge/skills sharing. levels.
❖ Weak monitoring and evaluation (M&E) A strength in Niger is the high level of mechanisms. There are no specific awareness of climate change risks at the accountability strategies in place to national level. Various initiatives and monitor CCA in sector implementation interventions have already supported activities. Modalities for determining substantial adaptation actions, contributing to relevance and impact of training laying the groundwork for the NAP process. interventions are limited. Despite progress, national capacity constraints ❖ Insufficient data availability, reliability remain. Overcoming these constraints is an and management. Processes for important step in the NAP process. stakeholder input to climate change sectoral plans are unclear. There is Next steps only limited analysis of CCA and social policy implementation impacts on A national vision and mandate are important populations, and no baseline of current steps towards Niger's NAP process. The abilities of personnel. Government of Niger is developing a roadmap to advance the NAP process. Interventions Opportunities focus on enhancing coordination, skills development and institutional capacity building, Niger has prepared a medium-term building an effective information platform, and development strategy, the ‘Sustainable mainstreaming climate change into the ‘2035 Development and Inclusive Growth Strategy Vision’ local governance. The roadmap also (2035)' or ‘2035 Vision’. The NAP process will highlights the requirement to develop climate build on the adaptation aspect of this by information systems and improved data supporting the integration of climate risk and collection and management, as well as the
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need to coordinate, monitor and review the NAP process. WORKSTREAM 3: Reporting, monitoring, NAP roadmap and workstreams review and outreach
❖ Short-term, this will set up mechanisms to The roadmap is divided into three workstreams monitor and review CCA and the NAP to be implemented in parallel over three process, as well as conduct outreach timeframes: the short-term and medium-term, initiatives. In the medium term, it will covering the period up until 2020, and a third promote coordination with other countries timescale for the years 2021 and beyond. in the region and other environmental
agreements. In the long term, it will review WORKSTREAM 1: Launching and steering the NAP process and update future the NAP process iterations of the NAP. ❖ In the short term this will consist of designating an NAP coordination
mechanism, consulting stakeholders and The final objective is to strengthen on-going drafting and communicating Niger's NAP CCA processes through cross-sectoral internationally, including to the UNFCCC. programming and implementation at national In the medium term, this workstream will and sub-national levels. Detailed planning and see a second NAP workshop with all lessons learnt from implementation could stakeholders. demonstrate the need to modify the roadmap during the implementation phase WORKSTREAM 2: Integrating climate change adaptation into national, sectoral and local planning
❖ In the short-term integration consists of building up adaptation capacity, integrating/mainstreaming CCA into planning and budgeting, and conducting studies to support the NAP document. In the medium and longer term, this mainstreaming will be expanded to ensure climate change is a priority in long-term development plans.
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Introduction
The climate change agenda is now more than an environmental issue; it is a humanitarian NAP Process and development one. The Sustainable Development Goals, UNDP’s Strategic Plan The NAP process should: 2014-2017 and the current initiatives related to ❖ Follow a country-driven, fully transparent the NAP-GSP related initiatives are a few approach; examples of activities designed to assist ❖ Be based on and guided by the best countries in making evidence-based decisions available science and, as appropriate, about risk, sustainable design solutions and traditional and indigenous knowledge; effective implementation of projects on the ❖ Not be prescriptive, nor result in the ground. duplication of efforts undertaken in- country, but rather facilitate country- The introduction of National Adaptation Plans owned, country-driven action; and (NAPs) in 2012 is part of that new focus. As the ❖ Be iterative and inclusive. LEG Guidelines observe, the NAP process is designed to enable countries to adopt The NAP process promotes more systematic comprehensive risk management approaches. approaches for addressing climate risk in the How to design, coordinate and monitor national medium term. It also promotes a more holistic efforts in climate change adaptation, disaster architecture for attracting climate finance for management and risk reduction is increasingly medium-term needs, including from domestic part of national agendas. Given the multi- public sources, and from external sources faceted and complex nature of climate change covering the range of multilateral, bilateral, impacts, clear, evidence-based NAPs, as part public and private finance. of national and sectoral strategic planning, policy and budgeting, will offer guidance for internal and donor-supported development resourcing, monitoring and assistance. within, or aligned with, current development The goal of the NAP-GSP is to strengthen the planning and budgeting processes. national institutional and technical capacities of LDCs as they begin to integrate medium-to Niger, one of the world’s poorest countries, has long-term climate change adaptation planning been significantly affected by climate change,
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particularly with regards to food security, as country's National Adaptation Plans process demonstrated by three major food shortages in and to suggest next steps and actions. the last 10 years. The biggest impact of climate change in Niger include an increase in the The mission met with approximately 70 frequency of droughts, resulting in a decrease stakeholders and conducted 25 interviews and in agricultural production, an associated meetings. The mission also built on Niger’s increase in grazing pressure on pastoral participation in the French-speaking workshop ecosystems, and consequent soil erosion on a on the NAP process organised in April 2014 in mass scale. Addis Ababa. During the workshop, the Niger representatives identified crucial support Reduced food supply and income from needed for the NAP, mostly regarding capacity agriculture as a result of climate change will building of institutions and their staff. The joint increase the incidence of malnutrition and mission to Niger allowed for an assessment of famine across the country. Additional socio- the institutional framework and capacities economic impacts of reduced agricultural relevant to the NAP process through qualitative yields as a result of climate change include interviews and an extensive desk review, reduction in income, exacerbation of land resulting in a proposed roadmap to advance conflicts and the deepening of rural poverty.2 the NAP process in Niger.
In March 2013, the Government of Niger The climate change agenda is now more than requested support on the NAP process. It was an environmental issue: it is a humanitarian one of the first countries targeted after the and development matter. The Sustainable NAP-GSP became operational in September. Development Goals, UNDP’s Strategic Plan In November, Kamayé Maâzou, the UNFCCC 2014-2017 and the current initiatives related to focal point for Niger and Executive Secretary of the NAP-GSP related initiatives are a few the National Council on Environment for examples of activities designed to assist Sustainable Development, met the UNDP-GEF countries in making evidence-based decisions unit, along with the UNDP Niger Country about risk, sustainable design solutions and Officer, to define Niger’s needs for the NAP effective implementation of projects on the process. ground.
A joint mission with UNDP, UNITAR and GWP The introduction of National Adaptation Plans took place in June 2014. Its objectives were to (NAPs) in 2012 is part of that new focus. As the take stock of Niger's relevant initiatives on LEG Guidelines observe, the NAP process mainstreaming climate change, to support the enables countries to adopt comprehensive risk
2 Government of Niger, ‘National Climate Change Policy’ (2013).
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management approaches. How to design, NAPs, as part of national and sectoral strategic coordinate and monitor national efforts in planning, policy and budgeting, will offer climate change adaptation, disaster guidance for internal and donor-supported management and risk reduction is increasingly development resourcing, monitoring and part of national agendas. assistance.
Given the multi-faceted and complex nature of climate change impacts, clear, evidence-based
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National context
Policy and strategy framework President. The initiative is coordinated by a specially created High Commission (HN3N). The 2012-2015 Economic and Social The I3N is integrated into the PDES as the third Development Plan (Plan de Développement priority/axis. Its objective is to build national Économique et Social, or PDES) was adopted capacities on food production and supply, and in August 2012 by the Council of Ministers of resilience to food crises and disasters. Niger Niger. It followed the country’s Poverty has earmarked 25 percent of its budget for the Reduction Strategy and the Accelerated US$2.6bn programme. The initiative includes Poverty Reduction Strategy and aims to be the five priorities and 12 key programmes that seek framework for all development strategies in to diversify agricultural, livestock and forestry Niger. It lists five priorities: strengthening the production to increase yields, irrigate more rule of law; sustainable and inclusive land, enhance market supplies, improve development; food security; economic response to crises and disasters, and eradicate diversification; and social development. It aims malnutrition. In Niger, climate change is a to achieve annual average economic growth of major threat to food security. 8 percent and to ensure that the general public can truly share in the benefits of growth. It is meant to encompass all priority development The PDES and the I3N are part of the issues in Niger, and identifies climate change government’s attempt to enhance as a major challenge, which it seeks to address development planning. A more comprehensive in priority/axis 2, which aims at ensuring and long-term strategy is under development, environment resources are preserved and the 2020-2035 Sustainable Development and managed in a sustainable manner, and partly Inclusive Growth Strategy (Stratégie de in priority/axis 3, which deals with food security. développement durable et de croissance inclusive, or SDDCI). This aims at proposing a long-term overall strategy that would integrate The Government of Niger launched the environmental issues in a systematic manner. Nigeriens Nourish the Nigeriens Initiative (Les The SDDCI involves prospective studies led by Nigériens Nourissent les Nigériens, or I3N) in groups of selected experts from different fields, 2011, and a strategy was adopted in April 2012 and consultation of all major stakeholders in as part of the ‘Renaissance’ programme of the
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the country. The 2016-2020 PDES is based on A National Climate Policy was drafted in 2012 the SDDCI. and is pending adoption by the Government. It will be used to revise the SNPA/CVC. The
2014-2023 Plan on Sustainable Consumption Besides these broader strategic documents, and Production adopted in July 2013 is also a specific plans and strategies exist in the response to climate change and to sustainable sustainable development, environmental and development challenges in general. It analyses climate change sectors. One of the the main constraints and key priority sectors. It underpinning documents is the National Plan outlines general measures which aim at on Environment for Sustainable Development promoting sustainable consumption and (Plan national de l’Environnement pour le production, and which encompass a broad développement durable, or PNEDD) adopted range of sectors and activities but do not by decree in April 2000. It constitutes Niger’s clearly define what “sustainable” entails contribution to the Agenda 21 action plan, formulated at the Earth Summit in Rio de Institutions – existing coordination Janeiro in 1992. The PNEDD encompasses six mechanisms and key actors priority programmes to implement the Rio Following the ratification of the three Rio Conventions. They deal with climate change, Conventions and Agenda 21, the National energy, biodiversity, desertification and natural Council on Environment for Sustainable resources management, human and urban Development (Conseil National de environment, and water. l’Environnement pour un Développement Durable, or CNEDD) was created by decree 96-004/PM in September 1996, amended in The Climate Change and Variability Strategy 2000 and 2011. It is a cross-cutting and Action Plan (Stratégie et Plan d’Action sur coordinating body for environment and les Changements et la Variabilité Climatiques, sustainable development issues, and is under or SNPA/CVC) were adopted in 2003. Two the supervision of the Prime Minister’s Office. national communications were submitted to the It is composed of representatives from various UNFCCC in 2000 and 2009, and the third is ministries, academic and research institutions being drafted for submission in 2015. The and civil society, including the private sector. National Adaptation Programme of Action (NAPA) was developed in 2006 and identified
14 urgent priority areas of intervention, An executive secretariat monitors and especially in the water, agricultural/livestock implements the PNEDD and the decisions of and health sectors, of which 13 have started to the CNEDD, as well as all matters related to the be addressed through pilot projects, which three Rio Conventions. It also coordinates the need to be scaled up. work of technical commissions such as the Commission on Climate Change and Climate
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Variability, chaired by the Meteorological Office The Office of the Prime Minister, in addition to but is not currently functioning. These the CNEDD and Government coordination, commissions are chaired by different directly supervises the National Mechanism for governmental agencies in cooperation with Crisis and Natural Disaster Prevention and civil society. The executive secretariat is also Management (Dispositif National de in charge of implementing projects related to Prevention et de Gestion des Catastrophes et climate change. Crises Alimentaires, or DNPGCCA), composed of the early warning system
(système d’alerte précoce, or SAP) and the The Ministry of Environment, Urban Hygiene food crisis and disaster management unit and Sustainable Development also plays a key (cellule crise alimentaire et gestion des role as it prepares and implements the policies, catastrophes; or CCA/GC). The DNPGCCA plans, programmes and projects related to often cooperates with the CNEDD on matters environment protection and natural resources related to climate-related natural hazards such management. The Ministry’s new mandate as floods and droughts, constituting most since 2013 also includes responsibility for natural hazards in Niger. sustainable development coordination. It is a central member of the CNEDD and chairs the commissions on biological diversity, the fight The Ministry of Planning, Regional against desertification, and sustainable Development and Community Development development. (Ministère du Plan, de l’Aménagement du Territoire et du Développement
Communautaire, or MP/AT/DC) is in charge of The Office of the Presidency is another development coordination, planning and important actor as it coordinates important monitoring in the short and medium term. It cross-cutting initiatives such as the I3N whose drafts the five-year plans as well as the long- coordinating body is under the supervision of term development strategies, such as the the President’s Office. Advisers are also SDDCI. The Ministry of Finance cooperates appointed by the President and take part in the with the Ministry of Planning to draft the CNEDD commissions and committees. The Finance Bill, based on input from sectoral High Commission for the 3N Initiative has a ministries. clear mandate to monitor all initiatives which contribute to food security in the country, including many climate change adaptation The National Directorate for Meteorology projects. (Direction de la Météorologie Nationale, or DMN) is part of the Ministry of Transport and
provides meteorological data. Several programmes, have been developed and
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implemented but the DMN lacks the resources and capacities to fully play its role in providing climate data to inform long-term adaptation decision-making.
Activities - Adaptation initiatives of relevance to NAP
Many actors intervene in the field of climate change in Niger, due to the impact of the issue on food security and the overall development of the country. Building synergies, improving coordination and mainstreaming climate change are considered crucial, and different initiatives have attempted and started to lay the ground for a successful NAP process.
Table 1 below provides an overview of climate- related programmes and projects of relevance to the NAP process. These programmes and projects could be linked to achieve better integration of climate change into development planning and budgeting.
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Table 1: NAP-related initiatives
NAME/LEAD BASIC INFORMATION RELEVANCE TO THE NAP OPPORTUNTIES INSTITUTION/DONOR/BUDGET
Ongoing or upcoming initiatives
Global Climate Change The project aims at building capacities of The activities at central level are❖ The NAP process should help Alliance (GCCA) – Project to actors at several levels to manage food and particularly relevant for the NAP link the climate information support climate resilience for nutritive security in a more integrated, more as they aim to strengthen platform under development by sustainable agricultural sustainable and more resilient manner in the coordination mechanisms and CNEDD with the upcoming development in Niger (PARC- face of climate change and related risks. It capacities, build synergies and M&E activities, especially since DAD). will intervene at subnational and local levels foster climate mainstreaming into the CNEDD is in charge of both in Dosso and Zinder with concrete agro- sectoral policies. The project projects. The NAP process sylvo-pastoral activities, and at central level might also help increase the could seek complementary Institution responsible: by supporting a M&E system at CNEDD and awareness of climate related activities with regards to I3N Ministry of Finance strengthening the I3N M&E system, issues within the Ministry of M&E, implementation and Executing entities: Ministry of implementation and governance Finance. governance capacity building Environment, Regions of mechanisms. activities, which aim at Dosso and Zinder, HC3N, strengthening its coordination CNEDD role and which could serve as a Budget: €11m ($12.3m) good basis for climate Donor: EU adaptation mainstreaming. The UNDP Country Office is Dates: 2015 - 2019 mentioned as one of the members of the steering committee and, as such, could identify synergies between the project and the NAP process.
African Climate Adaptation This regional UNDP project is implemented It focuses on building capacities,❖ The NAP process should and Food Security (ACAFS) in six countries, including Niger. It builds on especially with regards to climate ensure the information platform the Africa Adaptation Programme (AAP) information systems and under development is implemented in 2010-2012 in 20 African awareness raising, which are operational, used as a basis for Institution responsible: UNDP countries. It aims to enhance the adaptive considered key for the NAP upcoming systems under
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Executing entities: Executive capacities of African governments, process in the UNFCCC/LEG development (e.g. the Secretariat of the National communities and other subnational Guidelines. Particularly relevant DNPGCCA) and integrated with Council on Environment for institutions to address climate change is its work on revising the other systems (I3N, PDES). Sustainable Development impacts on food security and other National Climate Strategy and (Secrétariat exécutif du development priorities through: 1) the integrating DRR, and Conseil national de enhancement of climate information systems strengthening the country's ability l’environnement pour un for informed and integrated decision-making; to access climate finance and to développement durable, or and 2) testing and scaling-up of selected help direct investment flow SE/CNEDD) climate adaptation and risk management towards adaptation activities. The Budget: $610,000 measures, including weather index information platform it seeks to insurance. develop will also be a good tool Donor: Japan to build on for a comprehensive Dates: 2015 - 2019 information system on climate change. It also organises trainings to raise awareness among decision makers on climate change.
Implementation of NAPA The project focuses on activities at local Through the project, stakeholders❖ The project is part of the priority interventions to build level, where it has played a key role in eight have been trained on climate UNDP-Canada Climate resilience and adaptive communes in eight different regions of Niger change at local level, and the Change Adaptation Facility, capacity of the agriculture in raising awareness of climate change and capacities of the municipalities’ which collects and analyses sector in Niger in enhancing resilience through income- authorities have been built with information, experiences, and generating activities (IGA) and more resilient regards to climate change and lessons learned emanating Institution responsible: UNDP agricultural techniques in particular. The new general management. The local from the projects to produce phase of the project, under Canadian development plans have been Executing entities: and disseminate knowledge funding, focuses on further strengthening the revised to mainstream climate SE/CNEDD, municipalities, that can be shared among the livelihoods of local population and on change, using the guide and Ministry of Agriculture, project countries and usefully disseminating best practices. methodology developed by the Ministry of Water applied in other contexts. The CNEDD. Facility also helps to broadly Budget: $8.1m inform climate and sustainable Donors: Global Environment development policies at the Facility – Least Developed local, national and global Countries Fund (GEF-LDCF), levels, while promoting a global Canada, UNDP, Government
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Dates: 2010 – 2015 exchange of information, experiences, and lessons learned. This project could provide entry points for scaling up opportunities under the NAP process.
Community Action Project for The project is part of the $110m PPCR of Activities of relevance to the NAP The NAP process could Climate Resilience (CAP-CR) Niger and is the only one that has started. A process are: support the implementation of – Pilot Programme for Climate significant part of its activities are operational the climate mainstreamed • Mainstreaming of climate change Resilience (PPCR) actions to enhance climate resilience in the health, water and transport in the SDDCI as well as in local 38 municipalities, especially through plans. It could create links with development plans in the 38 agricultural production. the work at local level in the 38 Institution responsible: communes of intervention. municipalities. Ministry of Planning, Spatial • Develop guidelines and help Planning and Community mainstream climate change in Development (MP/AT) the health, water and transport Executing entities: Ministry of sectors. Agriculture, SE/CNEDD, MP/AT, Ministry of Water An important number of studies Budget: $63m ($28m loan, will be conducted to support $35m grant) climate resilient policy development Donors: International Bank for Reconstruction and Development (IBRD), African Development Bank (AfDB), International Finance Corporation (IFC) Dates: 2012 - 2017 Climate Information The project is also part of the PPCR and will Climate information quality and The NAP process should Development and Forecasting aim at: (a) improving the quality of climate availability are crucial in the NAP ensure integration of these Project (PDIPC) - Pilot information and products; (b) improving process. This project focuses on activities and the information Programme for Climate climate modelling and predictions and the building capacities of the National produced with the climate Resilience (PPCR) dissemination of the information that exists Meteorological office, which plays information platform under to the main users, i.e. farmers and a central role in providing climate development, the DNPGCCA
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Project under development pastoralists, in a way they can easily information such as climate data, and the M&E systems of I3N understand information; and c) strengthening and producing vulnerability and PDES. It could create links Institution responsible: the SAP (early warning system) and the assessments and scenarios. with regards to the Ministry of Planning, Spatial development of an electronic platform for development of local early Planning and Community weather information sharing and analysis. warning systems. Development (MP/AT) Executing entity: National Meteorological Directorate (DMN/Min of Transport)
Budget: $15m ($11m loan, $4m grant) Donors: AfDB, IFC Dates: Project under development
Enhancing Resilience of The main objective of the project is to One of its specific objectives is to❖ The fully developed project Agriculture to Climate Change enhance resilience of agriculture to climate enhance stakeholders’ capacity proposal still needs to be to Support Food Security in change to support food security in Niger, on developed and submitted. The Niger, through Modern through promotion of modern irrigation climate-resilient irrigation NAP process could ensure Irrigation Techniques techniques. systems. It will seek to support synergies with regards to
the preparation of detailed stakeholders’ capacity-building Institution responsible: adaptation plans, including plans activities. Ministry of Agriculture for harmonised use of livestock, land, water management and Budget: $9.91m overall natural resources. These Donors: AfDB, Adaptation plans will be integrated into local Fund development plans. Dates: Project under development Past Initiatives African Adaptation The programme was implemented in 20 African Through the Niger component, a The studies conducted under Programme (AAP), Niger countries and aimed at integrating climate series of studies and trainings the AAP constitute a good component were conducted. Climate change information basis for the NAP
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(2008-2012) change in key sectors and in development mainstreaming into key sectors process. Numerous trainings at Institution responsible: processes in Niger. was partially started, especially different levels were conducted SE/CNEDD through an ad hoc adaptation unit and a capacity-building Executing entity: SE/CNEDD composed of representatives of programme should build on key ministries. A national climate their outcomes. Budget: $3.16 m change policy was also drafted. Donors: Japan, UNDP
Initiatives focused on operational activities Scaling-up Community-based Adaptation in the Maradi Region Responsible institution: UNDP Executing entity: SE/CNEDD Budget: $4.9m. Donors: UNDP, GEF-LDCF, Government Dates: 2014-2017
Project for the Mobilisation and Development of Water Resources (PROMOVARE) - Pilot Programme for Climate Resilience (PPCR) Responsible institution: Ministry of Planning, Spatial Planning and Community Development (MP/AT) Executing entity: National Meteorological Directorate (DMN)/Min of Transport Budget: $25m ($15m loan, $10m grant) Donors: AfDB, IFC. Dates: Project under development
Community-based Adaptation in Dakoro (Adaptation Learning Mechanism) Responsible institution: Care International Budget: $1.1m Donors: UK Department for International Development (DFID), the Danish International Development Agency (DANIDA), and the Ministry for Foreign Affairs of Finland (FORMIN) Dates: 2010-2013
Building resilience and adaptation to climate extremes and disasters programme (BRACED) Responsible Institution: Care International
Scaling up resilience to climate extremes for 1 million people in the Niger river basin of Niger, Burkina Faso, and Mali Responsible Institution: Catholic Relief Services (CRS)
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Capacity assessment
Methodology A joint NAP-GSP assessment took place in
Niamey, Niger during 14-24 May 2014, and was comprised of five members from three The latter includes the political, social, economic, organisations: UNDP, UNITAR and GWP. Prior policy, legal and regulatory systems within which to in-country interviews, preliminary data was organisations and individuals operate. It collected from several sources. The team distinguishes between functional capacities, consulted strategy documents, existing study which relate to the core functions necessary to reports, websites and experienced personnel. implement any activities, and technical Additionally, stakeholders completed a pre- capacities, which are specific to the sector or review questionnaire (See Annex 3). area.
3 FIGURE 1: INSTITUTIONAL LEVELS FOR CAPACITY DEVELOPMENT
The capacity development approach is based on the three-level institutional structure drawn from the recognised UNDP capacity development framework (Figure 1). The framework, prepared by United Nations Institute for Training and Research (UNITAR) based on UNDP’s supporting capacity development approach (2009), identifies three levels of capacity: the individual, the organisation, and the enabling environment (or “system level”).
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The in-country assessment was carried out through a series of interviews focused on the relationship between institutional capacities and related individual skills, in particular regarding how that relationship affects national abilities to engage in NAP processes. A generalised competency framework for NAPs (UNITAR, 2013) was used as a reference point and structure for the data collection process (Table 2).
The middle column in Table 2 sets out an idealised set of institutional functions and capacities that a country that has successfully designed and implemented a NAP could be expected to have in place.
The right-hand column provides a standardised set of individual skills likely to be needed in order to support these institutional capacities. This include, for example, operating NAP- coordinating mechanisms, carrying out analytical studies, or mainstreaming adaptation into policies and plans. The framework recognises the need both for technical skills (numbered as T1) and for management skills (M1).
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Table 2: Recommended competencies for National Adaptation Planning
INTERVENTION LEVELS INSTITUTIONAL CAPACITIES INDIVIDUAL SKILLS
Macro: Policy The macro level relates to Is there a clear national mandate for Technical national beliefs, governance climate change adaptation in place? T1. Climate change adaptation policy ideals, government and Is climate change adaptation and science other organiSational integrated into national development visions, goals and priorities. plans? T2. Climate change and education Is climate change adaptation sector policy integrated into key sector strategies T3. Climate change mainstreaming and plans? (national and sectoral) Is adaptation recognised within the budget allocation policy of the T4. Legal drafting and review country? T5. Economics of climate change Have the costs of climate change adaptation adaptation been assessed nationally? Management M1. Leadership M2. Communication and advocacy
Mid: Organisational The mid-level relates to Are functioning mechanisms for Technical how people, groups and climate change coordination in place? T6. Public financial management and organisations function, as Do key sectors have climate change the budget process well as what systems and adaptation focal points in place? structures are in place to Is the role of NGOs, academia and the T7. Training content development and manage partnerships, private sector in adaptation planning delivery cooperative actions, shared clearly defined? programs and Is climate change adaptation visibly communication. integrated into budget management systems? Management Does a climate change financing M3. Team building, and coordination framework for adaptation exist (public and private)? M4. Participatory planning and decision- Is there a national climate change making adaptation monitoring framework in M5. Resource mobilization place? Are there national training institutions in place with the capacity to design and deliver courses on CCA? Micro: Implementation
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The micro level relates to Are sectors able to apply analytical Technical actual activities, tasks and tools for adaptation to planning, for T8. Application of V&A approaches and work being implemented, example vulnerability and adaptation tools including project (V&A), scenarios, cost-benefit analyses administration, knowledge (CBA), or mainstreaming? T9. Climate change modelling and sharing, evaluating scenarios experience and skills T10. Investment appraisal for climate development work. change adaptation options. T11. Information technology (IT), geographic information systems (GIS) and data integration T12. National curriculum design
Management M6. Monitoring and evaluation M7. Administrative and financial management M8. Results-based management M9. Human resource (HR) and other resource management
SWOT analysis for national capacity needs
Based on the three levels described in the consultations with national stakeholders. Based preceding section, the assessment team on these consultations, the analysis below conducted an analysis evaluating strengths, (Table 3) provides indications for areas of weaknesses and threats (SWOT) through support under the NAP process.
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Table 3: SWOT analysis of the NAP
Strengths (internal origin) Weaknesses (internal origin) Macro level Macro level • A five-year national development plan is being written, • Climate change not indicated in the national budget process and awareness of the importance of climate chance exists • Processes for stakeholder input to climate change sectoral among top-level decision makers plans unclear • A national climate change policy has been drafted. • No specific accountability strategies in place to monitor CCA • Sectoral strategic plans are being written in sector implementation activities • Coordination structures exist at national level – CNEDD, • Limited analysis of CCA and social policy implementation I3N among others impacts on populations • There is increased CCA programme support in energy, • Lack of a clearly defined strategy for CCA education and infrastructure, agriculture and water management training stemming from climate change discussions • Weak national NGO sector • Donor support exists Mid-level Mid-level • Limited current collaboration mechanisms within and • CCA is integrated into new national programs e.g., I3N between CCA efforts at all levels of national government • New CCA programs are being discussed in a variety of (silos) national organizations • Minimal formal cross-practice management structures that • Established cross practice coordination mechanisms exist define authorities, responsibilities and roles in a few sectors, e.g. health • Limited understanding of collaborative management • Donors are actively involved with national CCA projects. • Lack of partnership building and collaborative decision- • Well established climate change-related institutions are making processes present, e.g. CNEDD • Limited use of comprehensive frameworks about climate change social impact Micro level • Allocations for training are made in annual budgets Micro level • Government staff is attending climate change specialised • Lack of clarity in the role of human resource policies and trainings regulations • Primary and secondary school curricula are being revised • Limited qualified personnel to include climate change • Poorly defined and weakly supported work roles . • Lack of modalities for determining relevance and impact of training interventions • No baseline of current abilities • Lack of up-to-date job descriptions • Limited teamwork and knowledge/skills sharing • Minimal experience in team-building training and facilitation .
Opportunities (external origin) Threats (external origin) Macro level Macro level • Developing cross-sector strategic approaches for more • High rate of demographic growth efficient use of financial and social resources • Political instability • Donor interest in addressing climate change in the Sahel • Climate change is still an emerging issue understood by only region a small section of population
Mid-level Mid-level • Formulating of multi-sector training plan • Government of Niger may lack required personnel (numbers • Already implemented training interventions and expertise) to meet its objectives • Government-sponsored or donor-supported trained • Challenges in retaining trained personnel personnel • Limited human resource records
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Micro level • Uncertainties in determining if current performance and • Possibility to upgrade previously implemented training productivity issues are training-related or influenced by interventions other factors • Possible use of government-sponsored or donor- • Limited national financial resources supported trained personnel as trainers • Strong desire to strengthen monitoring systems Micro level • Strong need to harmonise techniques for data collection, • Education and training designed in response to donor analysis and documentation recommendations and on an ad hoc funding basis. • Interest in reviewing existing staff structures • Difficult to establish how many staff members have been • Recognition of need for performance management trained and on what subject matters system • Uncertainties in determining if current performance and • Support of mentoring, career development and skill productivity issues are training related or influenced by utilization across government and stakeholders other factors
Extent of climate mainstreaming in ongoing The table below presents the results of this planning and budgeting processes assessment, which focuses on key sectors and identifies opportunities for climate change The mission team assessed the extent climate mainstreaming. change is integrated into the planning and budgeting processes of the country.
Table 4: Climate mainstreaming
SECTOR/AREA LEAD STATUS OF CLIMAT CHANGE OPPORTUNITIES INSTITUTION MAINSTREAMING PDES Ministry of Climate change is mentioned as a key challenge The PDES is meant to be the key Planning, Spatial to food security and for environmental document from which all other Planning and sustainability. However, it is only addressed in plans (annual and sectoral) derive. Community axis 2 output 3 (on environmental sustainability), The next PDES will be drafted and Development and partly in axis 3, output 3 on food security adopted during the second half of and resilience. There are no clear climate 2015 after the SDDCI is approved. adaptation indicators, but there are two Comprehensive mainstreaming of mitigation indicators. climate issues into the PDES could have a significant impact on sectoral mainstreaming and budget allocations. I3N High It identifies climate change as a major challenge The I3N is a high-level initiative Commission of to food security in Niger. However, it seems to supported by the President. It has a the 3N Initiative focus primarily on disaster risk reduction than on lot of visibility and its cross-sectoral long-term adaptation and climate change issues, nature would also constitute a good and medium and longer term impacts are only entry point for climate partially addressed. mainstreaming, especially as food security and climate change are closely linked in Niger. Climate change should be addressed in one of the working groups. A focus could ensure that climate change
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activities are monitored through its M&E system, currently under development. Finance Law Ministry of The Ministry of Finance has the responsibility to Ensuring that the macroeconomic Finance draft the finance bill that will eventually be framing note integrates climate voted on by the National Assembly to become change and gives clear directions Ministry of law. It prepares the functioning budget of the would improve budgeting for Planning, Spatial state, and coordinates with the Ministry of climate change at the sector level. Planning and Planning, which prepares the investment budget The Ministry of Finance and Community based on submissions by the Ministries. The Ministry of Planning could also be Development budgets are supposed to be based on a strengthened in their arbitration macroeconomic framing note, which itself role. Building climate skills among Sectoral should be based on the PDES. However, there is their key staff could contribute to ministries currently no mechanism to ensure the proposed better climate mainstreaming into budget integrates climate change measures. finance legislation. Sectoral National ministries play a key role as they Assembly submit draft budgets. The National Assembly could also be targeted with regards to climate sensitisation, as it discusses and votes on financial legislation. Decentralisatio Ministry of Regional Development Plans have not been Mainstreaming climate change into n Planning, Spatial targeted for climate mainstreaming so far. Local regional and local development Planning and Development Plans of the eight municipalities of plans can ensure than concrete Community the NAPA Resilience Project (UNDP-GEF LDCF) actions are taken at subnational Development have been mainstreamed, six more are planned levels. Synergies at local level can be to be revised, and 38 are targeted by the CR – more fostered through municipal Governorate of CAP (The World Bank (WB) – PPCR). A guide on councils and municipal Regions climate mainstreaming into local development communities, which gather plans exists. stakeholders and decentralised Local technical services. Moreover, Governments decentralisation is a key priority of (Municipalities) the government. DRR/DRM National The strategy for disaster risk prevention and The DNPGCCA and the CNEDD are Mechanism for management is under development. Although both under the Prime Minister’s Disaster and some work has been done by various actors Office, which enhances the Food Crises (AAP project, NGOs at local level), climate opportunity to facilitate synergies. Prevention and change is still not entirely taken into account, The DNPGCCA is developing a Management although it is recognised as a major challenge. database which could be linked to (DNPGCCA)/Pri the climate information platform as me Minister’s there are some overlaps in data Office collection and management. Climate change mainstreaming could also intervene at local level with closer relations between DRR/DRM mechanisms and CCA activities, especially with regards to information management and early warning systems. Agriculture and Ministry of Agriculture and livestock are two of the most At local level, opportunities to Livestock Agriculture vulnerable sectors identified by the 2006 NAPA. mainstream CCA into these sectors
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The 2012-2035 Livestock Sustainable are numerous through individual Ministry of Development Strategy mentions climate change projects and initiatives, but good Livestock as a cross-cutting principle, but measures to practices should be scaled up for effectively address climate change are more effective impact. The impacts somewhat lacking in the document. The two of such activities are usually very sectors are often at the centre of climate change visible and constitute a powerful activities in Niger, but consistent illustration of the need to tackle agricultural/livestock policies addressing climate climate change. change have not been developed. Health Ministry of Through the CR – CAP (WB – PPCR), a health and The implementation of the strategy Health climate change strategy has been developed. could be supported as concrete actions have already been identified and political support exists within the Ministry. Water Ministry of Water is one of the main vulnerable sectors There is a functioning dialogue Water and identified in the 2006 NAPA. The 2011-2015 framework between the Sanitation National Programme on Access to Water and government and donors on water Sanitation mentions climate change as a issues, which could be a good entry challenge to infrastructures. The CR-CAP (WB- point to build synergies and PPCR) targeted it as one of the sectors where integrate climate change into sector the relevant documents should be revised to policy. A UNDP project is being integrate climate change. developed on climate adaptation and water and should be linked to the CR-CAP, which aims at revising policy document in the sector. Transport Ministry of The CR – CAP (WB – PPCR) has targeted roads as Links could be made between the Transport a key sector in which climate change should be NAP and the CR-CAP project, addressed. especially as the CNEDD is in charge of the climate mainstreaming component of the programme. As with the health sector, support for the implementation of the strategy could be a possibility. Mining/oil Ministry of Representatives of the sector (the Ministry and Mining and oil bring a significant Mining and Oil the national mining company) have shown an contribution to Niger’s gross interest in climate change issues and have domestic product (GDP). Work to attended UNFCCC COPs. The 2011 study on make the sectors more capacity-building needs identified this sector as economically sustainable is being a key one to target, but not much has been undertaken by various actors, achieved to date. The 2008-2012 Mining including with UNDP support. Links Development Strategy does not mention climate could be made with these initiatives change. to integrate climate change, especially with regards to updating the strategies.
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Skills assessment
This section draws on interviews with stakeholders summarising their individual skills, according to the competencies presented in Table 2 above. The findings are structured according to the three intervention levels (policy, organisational and implementation) and cover technical and management skills.
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Table 5: Skills assessment
LEVEL TECHNICAL SKILLS Macro: Policy Climate change adaptation policy and science (T1)
There is knowledge and skill on policy development for several sectors, including health, The macro level water, food security, geology and mineral mining. There is less evidence of ability to assess relates to national the policy implications of climate change within these sectors, or across sectors. There is no beliefs, governance dedicated skills development programme, as well as a continuing lack of clarity on ideals, government departmental mandates for climate change adaptation. and other organisational visions, Climate change and education sector policy (T2) goals and priorities. The Department of Geography of the University of Niamey has been seeking to integrate CCA within its degree courses, with a focus on practical tools that can be used in Niger’s context, such as CCA modelling and vulnerability assessment.
The School of Mines, Industry and Geology (Ecole des Mines, de l’Industrie et de la Géologie, or EMIG) is carrying out climate-related research on the impacts of wind patterns on human settlements. However, most of its training capacity is focused on mining.
The National School of Administration and Justice (Ecole Nationale d’Administration et de Magistrature, or ENAM) provides an introductory module on CCA planning as part of a broader curriculum on sustainable development and environment, taught by CNEDD. Climate change mainstreaming (T3)
CCA is in the early stages of mainstreaming into other national and sector policy, while the individual skills needed to support this work are also at a nascent stage. Several sectors (agriculture, water resources, health) are aware of the need for integrating CCA actions within their respective planning, programming and monitoring procedures, but lack necessary understanding, tools and know-how. CNEDD has a mandate to provide this support, but has insufficient skills itself to help sectors to plan and implement CCA actions. There is a need to train trainers at CNEDD to fill this gap.
Economics of climate change (T5)
There is potential for environmental impact assessment policies, procedures and studies to be re-framed to fit with new climate change economic assessment tools. A related programme of skills development for all staff involved in the budget process is also recommended.
Mid: Organisational Public financial management and the budget process (T6)
The mid-level relates Sector experts preparing submissions to the Ministry of Finance have started to be trained to to how people, groups deal with issues of sustainability and are now beginning to consider how to also reflect CCA and organisations within these submissions. Benefits-based budgeting provides one area for potential function, as well as development, whereby sectors can strengthen the quality of their budget submissions by what systems and including estimates of the likely return on investment in CCA.
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structures are in place Training content development and delivery (T7) to manage partnerships, cooperative actions, The mission was not able to make a detailed assessment of the quality of learning and shared programmes instructional design methodologies being applied within national education and training and communication. institutions. It is likely that there is a need to strengthen aptitudes in this area, to ensure that future trainings secure an effective progression from needs assessment, to the establishment of learning objectives, to course design and delivery, and finally to evaluation. Micro: Implementation Application of V&A approaches and tools (T8)
Climate vulnerability and adaptation assessment is not currently used to inform sectoral and The micro level national planning decisions in a systematic way. The University of Niamey, which has plans to relates to actual provide modules on V&A within its degree courses, would benefit from collaboration with activities, tasks and existing centres of excellence within the region that currently offer skills development in this work being area. implemented, including project Climate change modelling and scenarios (T9) administration, knowledge sharing, Such climate modelling and scenarios as exist are not sufficient to inform sectoral and national evaluating experience planning. The ones used are often those developed by regional centres such as the and skills AGRHYMET (a specialised regional institution on AGRiculture, HYdrology and METeorology, development work. established by the Permanent Interstates Committee for Drought Control in the Sahel - Comité permanent Inter-Etats de Lutte contre la Sécheresse dans le Sahel, or CILSS) or the African Centre of Meteorological Application for Development (ACMAD), and downscaled for the Niger context. Current skills available in this area are project-based and are not generally retained once projects end. The Department of Geography of the University of Niamey is planning to develop practical courses in this area and would benefit from collaboration with existing regional training institutions.
Investment appraisal for CCA options (T10)
Economic assessment and decision support tools, such as cost-benefit analysis and benefits- based budgeting, provide ways for sectors to translate CCA needs into the necessary language to be able to engage effectively both with the Ministry of Finance and external climate financing sources. There is a clear need for skills development in this area at both technical and management levels.
IT, GIS and data integration (T11)
There is a need to improve harmonisation and standardisation of CCA data and develop an integrated national CCA platform. The latter would support the organisation, management and provision of ready access to data, as well as the alignment with other existing or upcoming systems in other sectors. Achieving this requires IT and content management skills to structure and maintain the platform. Advanced management skills to develop data management protocols across all sectors would be needed. National curriculum design (T12)
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There is strong interest in further developing higher-level courses focused on CCA, potentially in partnership with other universities. It was also acknowledged that Niger needs to strengthen its English language skills if the country is to be an effective party to international negotiation, knowledge sharing and skills development in CCA. MANAGEMENT SKILLS Macro: Policy Leadership (M1)
There is a cultural norm of participation and discussion, with subordinates free to express The macro level ideas and to contribute. Policy and planning decision making and the allocation of relates to national responsibilities for implementation is less visible. beliefs, governance ideals, government Communication and advocacy (M2) and other organisational vision, The ability to advocate needs from the sector perspective could be an area for skills goals and priorities. development. This would require a better understanding of climate change adaptation fundamentals (the basic facts, causes, consequences and solutions), together with training in presentational skills and communicating complex ideas.
Care International Niger is working at community level to strengthen understanding of climate vulnerability and risk through the establishment of local networks for communicating knowledge on drought management, food security and dealing with extreme winds.
Mid: Organisational Team building and coordination (M3)
The mid-level relates Collaboration and coordination were referred to during virtually all conversations on skills to how people, groups development. It appears that no formal cross-practice or collaborative management models and organisations are currently in place in any of the institutions represented in the interviews. Skills promoting function, as well as improved coordination include: team building, joint objective setting, prioritisation and agenda what systems and setting, participatory decision making, work-plan development, and data harmonisation and structures are in place sharing. to manage partnerships, Participatory planning and decision making (M4) cooperative actions, shared programs and communication. Within the government there is a consensus-based approach to organissation and staff management. More formalised mechanisms and procedures for participatory decision making, sharing influence and control, and promoting ownership are less visible.
Resource mobilisation (M5)
Accessing climate finance remains a critical area for skills development in Niger. Understanding what sources of financing exist, which ones are most suited to the Niger context, and how to adhere as closely as possible to international financing standards have been tabled with donors. At present, these issues are understood by a relatively small number of individuals within CNEDD and there is recognition of the need for this knowledge to be updated and shared more widely within climate change-affected sectors, especially planning and finance.
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Micro: Implementation Monitoring and evaluation (M6)
Monitoring efforts in government departments are generally viewed as a combination of The micro level “monitoring AND evaluation”, although monitoring conventionally plays a substantially different relates to actual role in organisational management. The availability of up-to-date and quality data upon which activities, tasks and to base decisions, for example on prioritisation or on decisions regarding training needs, has work being a significant impact on CCA management effectiveness. At present, there is no centralised implemented, record of what training has already been delivered on climate change. A harmonised data including project collection and distribution platform on CCA is essential, and staff positions and related skills administration, to support this work need to be defined. knowledge sharing, evaluating past Human resource and other resource management (M9) experience and skills There are staffing needs both in terms of absolute numbers in key departments of the development work government and in terms of levels of expertise. This critique relates as much to core functions
as to climate change personnel and skills. Retaining personnel who have previously been trained on climate change remains a further challenge. Building a systematic and recurrent approach to training delivery provides the most effective response to this, which implies shifting towards a wholesale approach based on capacity development for national education and training institutions.
Recommendations for skills development government, from participatory decision making, to communication and advocacy, meeting Building up a cross-government cohort of staff facilitation, team building and managing for ready to assume technical and managerial roles results. in implementing climate change adaptation policy is essential for Niger. These skills need to Skills development needs for CCA are framed be strengthened across sectors at national and within a broader context of systemic challenges sub-national levels in a systematic and a over the recruitment, human resource recurrent manner. management, retention and professional advancement of public-sector staff. These There is a need to improve technical knowledge complexities will affect the success of a national and skills gaps in fundamental principles of CCA skills development program for Niger. A climate change adaptation science including strong result-based focus in training delivery is assessment and planning; applied and analytical recommended. skills linked to the understanding of uncertainty and risk; selection and prioritisation of options; Several national education and training and integration into planning and budgeting. institutions with the capacity and intent to act as future training service providers for the public Additionally, there is a need to strengthen core sector, and for wider society were interviews on leadership and management skills across
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the development of a national curriculum. These with national education and training institutions, institutions constitute a cornerstone in any future designed to shift skills delivery from ad hoc skills development programme for CCA. approaches towards more systematic approaches linked to the achievement of A more detailed workflow analysis of current national goals and priorities. CCA training activities would now help to locate skill development needs in each department, and would support drafting of time-bound staffing plans and training schedules.
Table 5 provides some practical entry points for national skills development for NAPs in Niger, building on the analysis provided in previous sections. These are organised over an initial three-year timeframe, combining short-term, non-formal training events with longer-term formal education initiatives.
The table also identifies several enabling measures, for example through engagement
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Table 6: Entry points for national skills development for NAPs in Niger TECHNICAL SKILLS MANAGEMENT SKILLS Immediate measures: Year 1
Climate change fundamentals for technical staff and Leadership, negotiation and conflict management policy makers (basic science, policy, planning, and skills for policy makers. economic analysis). Participatory decision-making for managers and policy Introduction to climate change financing, sources, makers. modalities, access requirements and alignment needs. Communication and advocacy for climate change Budgeting for climate change adaptation through a adaptation. benefits-based approach.
ENABLERS
Detailed workflow analysis, time-bound staffing plans and training schedules.
Capacity development for national training institutions in learning methods and instructional design.
‘Train the trainer’ programme in climate change fundamentals, for national training institutions, CNEDD and selected sector staff.
Mid-term measures: Years 2-3
Coordination and collaboration skills for policy makers Implementation of CCA policies and strategies at sub- and managers. national and local levels. Results-based management theory and practice for National curriculum development for climate change managers. adaptation at Bachelor’s degree level, to increase and sustain professional intake across all government Decision making for complex management issues and sectors. uncertainty.
Skills development for journalists and the media, to Climate change diplomacy for senior managers and improve reporting skills and public outreach on CCA policy makers. and national development.
Integration of CCA into primary and secondary school curricula and teacher-training programmes4.
ENABLERS
Advanced techniques in data collection, analysis, documentation and utilization processes. Partnership development with international institutions and networks for national education and training institutions.
4 Niger has made a formal request through CNEDD to become a UNCC: Learn partner country.
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Private sector engagement Cooperation Agency (JICA), and NGOs, such as the Dutch organization SNV, that are involved The mission noted the existence in Niger of with agricultural and private investment private educational and training organizations for strategies. finance (banking and accounting) was well as for Niger participates in the Comprehensive Africa office management. From a review of strategic Agricultural Development Programme (CAADP), documents, there appear to be opportunities for which is a strategic plan being advanced by the private sector investment in the provision of African Union within its programme New climate change adaptation services. Agricultural Partnership for Africa’s Development (NEPAD), development offers one specific avenue, to guide agricultural development on the recognised and promoted as a critical pillar in the continent. Housed in the NEPAD Planning and overall economic development of the continent, Coordination Agency, CAADP calls for African including the World Bank, the AfDB, UN Food governments to sign compacts to increase and Agricultural Organization (FAO) and UNDP. national investment in agriculture and establish The mission was also made aware of a number a framework for systemic engagement with all of bilateral development partners, such as the stakeholders, including the private sector. At the German Development Agency (Deutsche time of writing, however, it remains unclear if or Gesellschaft für Internationale Zusammenarbeit, how climate change adaptation can be added to or GIZ), the US Agency for International this agenda and the current discussions. Development, the Japan International
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Strategic areas and next steps
Strategic areas developing climate scenarios and modelling to support the drafting of national plans and Five strategic intervention areas are identified to climate-sensitive sector plans. A National respond to the gaps and advance the NAP Adaptation Plan will also be formulated in the process in Niger. context of this component.
Within the framework of the LEG Guidelines that 2. Institutional capacity and skills building focus on laying the groundwork, undertaking A training programme should be designed for preparatory steps, supporting implementation ministry staff on economic and cost-benefit and strengthening M&E, issues of relevance in analysis and climate adaptation, as well as Niger and areas that require strategic management. This should also include building interventions were assessed. This assessment the capacities of the National School of was derived from an analysis of the policy Administration and Magistrates by updating environment, institutional capacity gaps, modules with up-to-date information on climate analysis of documents and stakeholder risk and mainstreaming. This should be followed interviews. by a longer-term approach to capacity Strategic intervention areas corresponding to the development addressing institutional capacities gaps identified include: and individual skills development on 1. Climate mainstreaming into development mainstreaming climate adaptation across policy planning processes and institutions.
Activities should aim to mainstream climate 3. Climate mainstreaming implementation in change in all the climate-sensitive sectors in the sectors key national development strategy documents, This component should support the especially through the identification of climate implementation of sector plans to adapt to indicators and continuous monitoring mechanisms. It is recommended to focus on
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climate change, especially with regards to monitoring systems.
4. Climate mainstreaming at local level
The activities would aim to promote the implementation of the climate change integration tool developed by SE/CNEDD into development and investment plans at the levels of communal and regional administrations. They would also support the implementation of the local development plans in municipalities, including through the establishment of local early warning systems, enhancing access to information, and availability of communications products targeted at producers.
5. Data and information systems coordination
The CNEDD’s climate information platform and monitoring system could be strengthened and aligned with existing or upcoming monitoring systems such as those of the PDES and I3N, in partnership with the GCCA. CNEDD should also be aligned to the early warning system of the National Mechanism for Disaster and Food Crises Prevention and Management (DNPGCCA).
The following figure summarises the main building blocks and strategic interventions to advance longer-term adaptation planning in Niger.
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FIGURE 2: ENTRY POINTS AND COMPONENTS FOR THE NAP PROCESS IN NIGER
To implement the above-mentioned strategic interventions, the SE/CNEDD should make use of contributions from the diverse range of actors and stakeholders and build synergies with past, ongoing and upcoming initiatives.
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Next steps and suggested roadmap Strategic areas of the roadmap’s workstreams include: The suggested strategic interventions should be implemented in a sequence to support the • Piloting the NAP and enhancing coordination and capacity to implement development of an iterative NAP process in CCA Niger. Three time-frames are suggested: short, • Mainstreaming CCA into national and medium (2017-2020) and long term (2021 sectoral planning and budgeting onwards). • Reporting, Monitoring and review
The roadmap for the NAP process in Niger is divided into three workstreams, incorporating six strategic intervention areas. The three workstreams are defined as:
WORKSTREAM 1: Launching and steering the NAP process
WORKSTREAM 2: Integrating climate change adaptation into national, sectoral and local planning
WORKSTREAM 3: Reporting, monitoring, review and outreach process.
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Table 7: NAP workstreams and recommended actions
WORKSTREAM 1 WORKSTREAM 1 WORKSTREAM 2 WORKSTREAM 2 WORKSTREAM WORKSTREAM 3 Milestones Integrating climate Milestones 3 Milestones Launching and change adaptation Reporting, steering the NAP into national, monitoring, process sectoral and local review and planning outreach Short-term (2015-2016) Designate a • A national mandate for Build and enhance • Partnerships are forged Set up a • Data processing, coordination the NAP process is capacity with national (DGRE, systematic modelling, projections, mechanism with a adopted and NAP ENAM, University of mechanism for vulnerability for planning and clear mandate to process officially Niamey Department of CCA monitoring. assessments, GIS, are ensure appropriate launched. implementing Geography, FAST- MSc in all ownership of the Environment Studies, harmonised/standardise • A technical committee adaptation. NAP Process. EMIG) and regional d is established with a (AGRHYMET, CILSS, • The CNEDD's climate mandate, timelines, ACMAD) institutions for information platform means of cooperation, designing and implementing and monitoring system and roles of actors training packages on is strengthened and determined. climate mainstreaming, alignment is ensured economics of adaptation with existing monitoring and management skills. systems such as PDES • Partnerships are forged and I3N (partnership with other donors to support with GCCA), and the the institutional capacity early warning system of building through appropriate DNPGCCA. programmes. • Access to climate change information by different sectors and other users in the country is supported.
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Draft steps to • Development needs Integrate climate • Climate scenarios, climate Establish a • The review produce NAP and climate change adaptation risk analyses in specific monitoring and mechanism is document and/or vulnerabilities are into national and sectors (incl. water and review developed and finalise NAP comprehensively and subnational health), gender mechanism of established with areas roadmap. iteratively assessed, as development and mainstreaming, and cost- NAP process, to to be evaluated well as synergies to sectoral planning. benefit analyses are assess progress, identified. determine entry points undertaken. effectiveness and • The established for the NAP. • CCA is mainstreamed into gaps. review mechanism is the Vision 2035 process, implemented. • Areas and activities of the reviewed Climate • Knowledge on the added value are Change Strategy and NAP process is specified. Integrated Water Resources capitalised on and • A roadmap is validated. Management planning and disseminated. • The mandate is other sectors. confirmed. • CCA indicators are mainstreamed in the next PDES Communication on • NAP process Conduct studies in • A training on the NAP for Outreach on the • A NAP ‘Nigerien NAP’ to development is accepted view of compiling a government stakeholders is NAP process. communication/outreac UNFCCC/LEG Chair by UNFCCC / LEG NAP document. organised h strategy derived from and at international Chair. the national CC • Analyses of climate level. • Funding is facilitated communication strategy scenarios are undertaken. from a diverse range of is developed. • Climate vulnerabilities, partners to support the climate and disaster risks NAP process. for national and sector processes are assessed. • Climate adaptation options for national and sector processes are identified, reviewed and appraised • Priorities are compiled, draft NAP is submitted for review by stakeholders, the NAP is validated and disseminated
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Stakeholders • An inception workshop Mainstream CCA • There is increased use of Reporting on • The NAP documents consultations at all with all key national at the local level. the climate change progress and and related outputs are levels on the NAP stakeholders is integration tool developed effectiveness. disseminated to the process. organised by CNEDD in the UNFCCC Secretariat • Consultation formulation of development and to other relevant workshops at regional and investment plans at stakeholders. level are organised. communal and regional levels. • These tools are adapted to NAP process and their use is disseminated and expanded. • The implementation of the local development plans in municipalities (incl. the establishment of local early warning systems, better access to information, and availability of communications products targeted at producers) is supported. Medium-term (2017-2020) Convene second • A review of the overall Prioritise CCA in • National criteria for Monitoring and • Results of the NAP workshop for a NAP process is national budgeting. prioritizing implementation reporting on CCA. monitoring are mid-term review, conducted. are defined. analyzed. with stakeholders • Lessons learned are • Monitoring results, • A mechanism for climate from national and drawn. including mainstreaming in upcoming subnational levels, • The lessons are fed recommendation for Medium Term Expenditures research institutions, back into NAP process. improvements, are Frameworks is developed. multilateral and published and bilateral agencies, disseminated to all etc. concerned stakeholders.
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Continue • Further analyses are Promote • NAP process and addressing climate undertaken. coordination and lessons learned are risk in national and • Concrete adaptation synergy at the described in National sectoral planning measures based on the regional level and Communication to and budgeting. NAP are implemented. with other UNFCCC. multilateral • NAP process and • Capacities and institutional environmental lessons learned are and regulatory frameworks described at for addressing adaptation in agreements. international the long-term are further conferences and in strengthened. discussion papers. Long-term (2021 and beyond) Mainstream • Further analyses are Review and • Conclusions from the climate change undertaken. revise the NAP second NAP review on into long-term • CCA is mainstreamed into process and steering and development the 2021-2025 PDES. iteratively update cooperation planning, NAPs. mechanisms within the • Concrete adaptation budgeting and NAP process are measures based on the monitoring drawn. NAP are implemented. systems. • The national adaptation plans, and related documentation, are updated at a frequency specified in the national mandate, framework or strategy for the NAP process, by repeating selected steps as appropriate. • Updates are aligned with relevant national development plans.
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Bibliography
Government of Niger, ‘National Climate Change Policy’ (2013). UNdata, The World Statistics Pocketbook, Online: http://data.un.org/CountryProfile.aspx?crName=niger (2016). United Nations Institute for Training and Research (UNITAR), ‘Competency Framework for NAPs’, (2013).
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Annex 1: List of ministries, departments and institutions consulted
Name Structure Abdou Adamou MESU/DD (Secretary General) Abdoulaye Issa SE/CNEDD – National Action Programme for Adaptation (NAPA, or Programme d’Action National pour l’Adaptation aux changements climatiques, PANA) Adamou Danguioua HC3N Aka Yacouba DNPG CCA Ali Béty AFD Arouna Alassane ENAM Assadek Chamcham SE/CNEDD Bako Safi Solange SE/CNEDD – PANA Project Bonneau Laurent Embassy of France in Niger Boubacar Aï SE/CNEDD – PANA Project Boubacar Boureïma SE/CNEDD Boubacar Moussa Soumey DGE/DD/MESU/DD Boubacar Zalia Yacouba SE/CNEDD Boukar Attari SE/CNEDD Boukari Assouman ENAM (Secretary General) Bussi Béatrice European Union Delegation Daouda Mamadou DMN David Pierre Embassy of France in Niger Diallo Mamadou Yacouba Ministry of Health Dieudonné Garba Goudou SE/CNEDD – ACAFS Project Djibril Amadou SE/CNEDD – ACAFS Project Dontaine Jean-François FAO Niger Habibou Mamam Ministry of Health Hamza Abdou Sidi SE/CNEDD – ACAFS Project Heise Solange FAO Niger Iliya Miko FAO Niger Issa Hamsatou SE/CNEDD Issa Idi SE/CNEDD Kaly Jean-Laurent UNDP Niger Konté Diawoye UNDP Niger Labo Moussa DMN Laoualy Ada UNDP Niger Maâzou Kamayé SE/CNEDD (Executive Secretary) Mahamane Lawali UNDP Niger Mahamadou Ali MESU/DD Mahazou Sani MESU/DD Makadassou Alassane MESU/DD Malam Issa Oumarou French Research Institute for Development (Institut de Recherche pour le Développement, or IRD) Mamoudou Idrissa SE/CNEDD Moha Moussa Ministry of Finance (DEP)
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Moussa Abdou Ministry of Agriculture Moussa Bouda European Union Delegation Moussa Gousmane SE/CNEDD Moussa Morou ENAM Nanamou Ajirou Ministry of Finance Omar Tankari Care International Ouattara Amadou FAO Niger (Representative ai) Oumarou Harou Ministry of Health Ounteina Adamou Issaka HC3N (High Commissionner) Ousseini Mariama Early Warning System (Système d’alerte précoce) of the DNPGCCA) Ndiaye Mansour UNDP Niger Saley Amadou FAO Niger Sani Mourtala UNDP Niger Schinder Solveig GIZ Souley Abdou MP/AT/DC (Secretary General) Subsol Sébastien AGHRYMET (Technical Assistant) Thiers Robin UNDP Niger Directeur General des Ressources en Eau Process coordinator, National Action Plan for Integrated Water Resource Management (Plan d’Action National de Gestion Intégrée des Ressources en Eau, or PAGIRE) / Directorate General of Water Resources (Direction Générale des Ressources en Eau, or DGRE) In charge of PAGIRE/ DGRE monitoring and evaluation process Focal point for the Global Environment Facility (GEF, or Fonds pour l’Environnement Mondial, FEM) / Ministry of planning
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