2012年-世界发展银行全球_Lessons_Learned_for_REDD_from_PES_and_Conservation_Incentive_Programs___Examples_from_Costa_Rica_Mexico_and_Ecuador_165页_3mb

Summary of Lessons Learned for REDD+ from PES and Conservation Incentive Programs

Core Content

This report, authored by FONAFIFO, CONAFOR, and the Ministry of Environment, explores lessons learned for the development of REDD+ (Reduced Emissions from Deforestation and Forest Degradation) from the experiences of Payments for Ecosystem Services (PES) and conservation incentive programs in Costa Rica, Mexico, and Ecuador. It highlights the importance of integrating insights from these programs into REDD+ strategies, policies, and institutional frameworks, with a focus on five key areas: legal aspects, equity issues, trade-offs and synergies, monitoring, reporting, and verification (MRV), and financial mechanisms.

Main Lessons and Key Information

1. Legal and Institutional Frameworks

• Lesson 1: Provide a clear institutional framework that facilitates inter-sectoral cooperation.

  • Governments should establish integrated frameworks that enable collaboration across sectors.
  • Costa Rica, Ecuador, and Mexico have distinct institutional structures, but coordination is essential to avoid conflicting goals.

• Lesson 2: Use simple contracts, backed up by clear, easy-to-reference program guidelines.

  • Contracts should be straightforward to ensure transparency and ease of understanding.
  • Program guidelines must be accessible and well-documented to support implementation.

• Lesson 3: Invest in legal capacity building and technical support.

  • Capacity building is essential to ensure that both participants and government bodies can effectively engage in PES and REDD+ programs.

• Lesson 4: Explore options for overcoming tenure barriers to participation.

  • Tenure issues can significantly affect participation in conservation programs and must be addressed to ensure equitable access.

• Lesson 5: Set contract duration based on the relative need for certainty in ecosystem service delivery versus flexibility in enrolled properties.

  • Contract terms should be tailored to the specific needs of the program and the participants.

• Lesson 6: Make payments directly or indirectly conditional on ecosystem service delivery.

  • Payments must be tied to the delivery of environmental benefits to ensure program effectiveness.

• Lesson 7: Design program activities to minimize the costs of participation while allowing for productive activities to occur alongside REDD+.

  • Programs should balance conservation with livelihood support to enhance participation and sustainability.

• Lesson 8: Incorporate robust and transparent guidelines for monitoring and verification (MRV).

  • Clear MRV guidelines are critical for ensuring accountability and program integrity.

• Lesson 9: Provide clear, transparent, and enforceable sanctions for noncompliance, in combination with risk management mechanisms.

  • Sanctions must be enforceable and transparent to maintain trust and ensure compliance.

2. Equity and Social Objectives

• Lesson 10: Strengthen the enabling legal, policy, and governance framework.

  • Legal and policy frameworks must support the implementation of conservation and REDD+ programs.

• Lesson 11: Support implementation with good governance and appropriate institutions at multiple levels.

  • Strong governance and institutional support are vital for the success of these programs.

• Lesson 12: Adopt a rights-based approach that respects internationally-agreed safeguards.

  • Programs must respect the rights of local communities and include safeguards to protect indigenous and marginalized groups.

• Lesson 13: Use targeted outreach and capacity building, and control transaction costs to overcome obstacles to participation, particularly for poor or marginalized people.

  • Outreach and capacity building must be tailored to the needs of vulnerable populations to increase participation.

• Lesson 14: Incorporate credible monitoring of social outcomes and impacts.

  • Social impact monitoring is necessary to assess the effectiveness of programs in achieving equity goals.

3. Trade-offs and Synergies

• Lesson 15: Account for multiple benefits in targeting payments or incentives.

  • Programs should consider the multiple benefits of conservation to enhance effectiveness.

• Lesson 16: Use multiple criteria to minimize trade-offs and enhance synergies when selecting eligible participants and activities.

  • Selection criteria should be multi-dimensional to support both environmental and social objectives.

• Lesson 17: Explicitly consider multiple or co-benefits in evaluating outcomes.

  • Co-benefits such as biodiversity protection and water regulation should be evaluated alongside carbon sequestration.

• Lesson 18: Evaluate synergies and trade-offs with other environmental and economic development policies and programs.

  • Synergies with other programs can enhance the overall impact of REDD+.

• Lesson 19: Use differentiated payments to recognize and reward actions that enhance synergies among multiple environmental services.

  • Payments should reflect the value of multiple environmental services to encourage sustainable practices.

4. Monitoring, Reporting, and Verification (MRV)

• Lesson 20: Understand the advantages and disadvantages of PES MRV systems, taking into consideration the key differences in scale, scope, and objectives that distinguish the requirements for REDD+ MRV.

  • PES and REDD+ MRV systems differ in complexity and requirements.

• Lesson 21: Use effective MRV design to achieve and attribute additional emissions reductions.

  • MRV systems must be designed to accurately measure and attribute emissions reductions.

• Lesson 22: Design MRV systems to track leakage in order to improve efficiency of program performance against REDD+ objectives.

  • Leakage must be monitored to ensure that conservation efforts do not lead to deforestation elsewhere.

• Lesson 23: Set clear targets and baselines, and regularly measure and evaluate relevant indicators to assess and adaptively manage performance on social and environmental safeguards.

  • Clear baselines and regular evaluation are essential for adaptive management.

• Lesson 24: Identify opportunities for cost-efficiency in MRV while recognizing trade-offs between cost and accuracy or precision.

  • Cost-efficiency in MRV is important, but must not compromise the accuracy of data.

• Lesson 25: Invest in human capital and capacity building at both “ends” of the payment.

  • Capacity building for both participants and government bodies is crucial for program success.

5. Sustainable Finance

• Lesson 26: Diversify funding sources and duration to reduce risks and contribute to sustainability.

  • Diversification of funding helps reduce dependency and ensures long-term viability.

• Lesson 27: Engage the private sector with public programs via an enabling legislative framework.

  • Legal frameworks must support private sector participation to enhance funding and innovation.

• Lesson 28: Improve targeting by clearly defining objectives and baselines and using adaptive management techniques.

  • Clear objectives and adaptive management improve the effectiveness of targeting.

• Lesson 29: Explore options to control administrative costs.

  • Administrative cost control is essential for the sustainability of conservation and REDD+ programs.

Country Experiences

• Costa Rica:

  • Launched its PES program (PSA) in 1997, managed by FONAFIFO.
  • The program covers 671,000 hectares and has helped increase forest cover from 44% in 1998 to 51% in 2005.
  • The country has a centralized institutional framework for environment and natural resources.

• Mexico:

  • Introduced the Hydrological Environmental Services Program (PSAH) in 2003 and later the Payments for Carbon and Biodiversity Services Program (PSA-CABSA) in 2004.
  • These programs are managed by CONAFOR and have been integrated into the Program of Payments for Environmental Services (PSAB), covering 2.2 million hectares.

• Ecuador:

  • Established the Socio Bosque program in 2008 and the Páramo Chapter in 2009.
  • The program has protected about 868,000 hectares of native forest and other ecosystems by 2011.

Key Takeaways

• PES and conservation incentive programs offer valuable lessons for REDD+.
• A clear institutional framework, simple contracts, and robust MRV systems are essential for successful implementation.
• Equity and social inclusion must be prioritized to ensure that conservation benefits reach all segments of society.
• Financial sustainability requires diversification of funding sources and cost-efficiency in administration.
• Strong inter-ministerial and inter-sectoral coordination is critical to reduce trade-offs and enhance synergies.

Conclusion

The report concludes that the experiences of PES and conservation incentive programs in Costa Rica, Mexico, and Ecuador can significantly inform the development of REDD+ strategies. These lessons emphasize the importance of legal and institutional support, equitable participation, and effective MRV systems. The insights provided are intended to guide the implementation of REDD+ at the national and subnational levels, ensuring that it is both effective and sustainable.