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John Costenbader
Sr. Consultant, Climate Focus
National consultation on Papua New Guinea forest and REDD+
related policy & legislationPort Moresby, Papua New Guinea
25 July 2014
Overview of REDD+ and
Main Policy & Legal Issues
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Objectives
1. Understand REDD+ in the context of evolving international forest and climate policy
2. Consider forest and land use sector law and policy needs & challenges for REDD+
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Structure
I. Overview of REDD+
1. Basic Background
2. Key Elements
II. Main Legal/Policy Issues for REDD+
1. Substantive & Procedural Issues
2. Practical Options
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Part I
Overview of REDD+
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What is REDD+?
Reducing Emissions from Deforestation and forest Degradation in developing countries; and the role of conservation, sustainable management of forests and enhancement of forest carbon stocks
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1. Basic Background
• REDD+ broadens policy focus from forest conservation to climate change mitigation.o Underlying problems remain the same and basing forest
conservation on emissions has its own challenges.
• For REDD+ to succeed, causes of deforestation and degradation must be addressed.o Causes may be local, national or international, and are often
cross-sectoral;
o Main causes: agricultural expansion & unsustainable logging.
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1. Basic Background
• REDD+ differs from traditional approaches in its national-level performance basis;‡
• Develping countries able to reduce deforestation/degradation relative to a reference time period can receive financial compensation.
• Goal is emissions reductions but potentially multiple benefits.
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1. Basic Background
Phase 1: Developing strategies &
plans, policies & measures; capacity building;
Phase 2: Implementation
of strategies, policies and
measures; pilot projects
Phase 3: Result-based actions fully measured,
reported and verified.
Scale
National with sub-national as an interim measure.
Phased approach
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1. Evolution of REDD+, 2005-2014
2005
• RED
• (Direct) compensationpayment for avoided deforestation
• Criterion: avoided emissions
• Financing: international offsets from cap & trade mechanisms
• Pilot projects with state/ national strategy
2014
• REDD+
• (Direct or indirect) incentives for forest conservation, sustainable management, restoration
• Criteria: reduced emissions, carbon stocks + safeguards, MRV
• Financing: mix of sources, major potential: international payment for performance
• Jurisdictional (nested) programs
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2. Key elements of REDD+ system
1. Reference level;
2. Monitoring, reporting and verification;
3. Financing;
4. Incentive allocation;
5. Safeguards.
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Reference level: A baseline for assessing performance in reducing emissions, expressed in tons of carbon dioxide equivalent per year.
Historical emissions from deforestation
Projected emissions without REDD+Reference level
Ton
ne
sC
02eq
Implementation of REDD+ Policies and Measures (PAMs)
Actual emissions with REDD+
REDD+ Payments
2.1 Reference level
Time
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Forest carbon measurement:
Combines remote sensing and inventory data
2.2 Measurement, Reporting & Verification
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2.2 Measurement, Reporting & Verification
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2.3 Financing
• Private
• voluntary carbon markets & projects;
• Public
• UNFCCC agreement;
• bilateral agreements;
• multilateral funds:
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2.4 Incentive allocation
• Form of incentives at different levels:
o Cash?
o Development support?
• In return for:
o Implementation of policies & measures?
o Emissions reductions?
o Both?
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2.5 Safeguards
Cancun Safeguards (2011):
(a) Follow nat’l forest programs, int’l conventions & agreements;
(b) Transparent and effective national forest governance structures;
(c) Respect knowledge and rights of indigenous and local people, noting UN Declaration on the Rights of Indigenous Peoples (UNDRIP);
(d) Full and effective participation of relevant stakeholders;
(e) Consistent with conserving natural forests & biodiversity
(f) Actions to address the risks of reversals;
(g) Actions to reduce displacement of emissions.
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Part II
Policy & Legal Issues for REDD+
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Importance & challenge of REDD+ law & policy
Forest and Land Use Change: 10-20% of overall emissions
How to develop a system that is:
• Functional;
• Measurable;
• Just;
• Evolving…
• … and Simple???
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Main Policy & Law Issues for REDD+
1. Substantive Issues:1. Land, Forest & Carbon Rights
2. Institutional Arrangements
3. Implementation
4. Land-Use Planning
5. (Et al. Issues)
2. Procedural Approaches:
1. Balancing Policy, Legislation & Regulation
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1.1 Land, Forest & Carbon Tenure
• Legal provisions on scope & ownership of rights• Recognition of traditional rights, community
forests
• Gaps or conflicts in land, forest, carbon rights regulations
• Identification of persons possessing rights
• Systems for registration of rights
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1.2 Institutional Arrangements
• Institutions designated for forest & climate change program design & implementation
• Horizontal (inter-agency, inter-sectoral) & vertical(central-provincial-local) coordination
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1.3 Land Use Planning
• Coordination/harmonization across:
• land use & related economic sectors
• national and provincial levels
• Forest/land use maps; prioritization of areas; identification of eligible activities & actors
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1.4 Implementation
• Regulations for implementing national & sub-national law
• (but… overregulation problem)
• Capacity of administrative, legislative and judiciary branches in policy development, implementation, oversight process
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1.5 Et al. Law & Policy Issues
i. Incentive allocation
ii. Safeguards
iii. Gender mainstreaming
iv. Measurement & MRV
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2.1 REDD+ Procedural Approaches
Main questions: • Subnational or national leadership?• Branches involved:
• Executive policy or regulation?• Parliament legislation?
• New law or existing law?• How much to include, and where?• Where to start?
Brazil Mexico Indonesia DRC
Policy Environmental Policy Climate Change Policy National Plan on Climate
Change Plan for the Prevention
and Control of Deforestation in Legal Amazon
[Draft REDD+ Strategy]
National REDD+ Strategy
National REDD+ Strategy
Legislation Constitution [Draft REDD+ Law] Forest Code Public Forest Mgmt. Law National Climate Change
Policy (Law) Legal Land Program Access to Information
Law Environmental
Information Law
Constitution General Climate
Change Law General Law for
Sustainable Forest Development
General Environmental Protection Law
Agrarian Law Sustainable Rural
Development Law
Constitution Forestry Law Agrarian Law Regional Autonomy Law Fiscal Balance Law Spatial Planning Law
Constitution Forest Code Land Tenure Code Agriculture Code Decentralization
Law
Regulation Public Forest Mgmt. Law Decree
National Climate Change Policy Decree
• Law for Sustainable Forest Development Decree
Implementation of Forest Carbon (Reg. 20)
REDD+ Demonstration Activities (Reg. 68)
REDD+ Implementation (Reg. 30)
Licensing Carbon Sequestration and Storage (Decree 36)
Establishing REDD+ Task Force (Decree 30)
* REDD+ImplementationStructure (Decree09/40)
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Conclusions
• Evolution in REDD+, from:• projects to programs, and • private to public finance
• Importance of creatively adapting REDD+ to national & subnational contexts• No one best system• “With or without REDD+”
• Need to consider science and (subnational, national, international) policy contexts