Global Environment Facility

Proposed Project Concept

Countries / CARICOM Member Countries(Antigua & Barbuda; Bahamas; Barbados; Belize; Dominica; Grenada; Guyana; Jamaica; St. Kitts; St. Lucia; St. Vincent & the Grenadines; Trinidad & Tobago)
GEF focal area / Climate Change
GEF Programming Framework / Enabling Activity
Project Title / Mainstreaming Adaptation to Climate Change (MACC)
Estimated Project Costs and Financing Plan / US$8.5 million
GEF: US$4.5 million
CIDA/CCCDF US$2.0 million
Nat'l Counterpart: US$1.5 million
Other: US$0.5 million (includes French-GEF)
Estimated Project Preparation Costs and Financing Plan
PDF-B request
Canadian TF request
Counterpart (in-kind) –OAS and Caricom Countries / US$535,000
US$345,000
US$ 50,000
US$140,000
Requesting Agency / World Bank
Executing Agency / GS-OAS for the PDF-B
Caribbean Climate Change Center (CCCC) for MACC
Duration / Project Preparation: One year
Project Implementation: Four years
Project Summary / MACC will (i) assist in mainstreaming climate change considerations into their development planning and sectoral investment projects; (ii) identify and develop appropriate technical and institutional response mechanisms for adaptation to global climate change; and (iii) support and promote regional climate change monitoring and modeling.
1. Project Objectives

The overall objective of the proposed project is to build capacity in the CARICOM Small Island Developing States (SIDS) to develop Stage II adaptation strategies and measures, according to the United Nations Framework Convention on Climate Change (UNFCCC), the guidance issued at the Conference of Parties, and building on the outputs of the National Communications. This will be sought through support to:

(i) the mainstreaming of climate change considerations into development planning and sectoral investment projects; (ii) appropriate technical and institutional response mechanisms for adaptation to global climate change; and (iii) regional climate change monitoring and modeling.

2. Eligibility

All CARICOM countries have ratified the UNFCCC and, as non-Annex II countries, are eligible for GEF funding through the financial mechanism of the convention.

3. Background

3.1 Global Significance

Global Climate Change (GCC) is one of the world’s major long-term challenges. Anticipated global warming and consequent changes in sea level, sea-surface temperatures, precipitation, and wind and ocean currents have a serious impact on the sustainable development of Small Island Developing States (SIDS) and low lying coastal states of the Caribbean. These countries need to formulate effective policy and implement appropriate measures that would allow them to respond and adapt to GCC, especially to avoid its adverse impacts and to undertake measures that would reduce their vulnerability to these impacts.

Low lying small island developing states depend on the economic opportunities and protective functions offered by tropical coastal ecosystems for their economic survival, physical existence, and social viability. Global climate change will compromise the integrity of these ecosystems (coral reefs, sea-grass beds and mangroves), undermining their ability to deliver the protection that they offer to coastlines, bays, beaches, buildings and coastal infrastructure.[1] It will also affect their ability to provide food (fisheries), employment (tourism, fishing, recreation) and building materials.

3.2 Climate Change, a Priority Issue for the Caribbean

Caribbean SIDS[2] share a number of challenges, such as a heavy economic and social reliance on fragile ecosystems, susceptibility to the vagaries of international trade, lack of economies of scale, high transportation and communication costs, substantial vulnerability to natural disasters, scarce land resources, and limited capacity to manage and use natural resources on a sustainable basis. Affected by an intensification of hurricanes since the early 1990s, many of the Caribbean SIDS are facing situations in which scarce resources that were earmarked for development have to be diverted to relief and reconstruction following disasters, thus impeding sustainable growth.

In the Barbados Program of Action (BPOA) adopted at the UN SIDS conference held in Barbados in 1994, “Climate Change and Sea-level Rise” was first among 14 areas identified as threats to small island states sustainable development. Recent findings by the Inter-Governmental Panel on Climate Change (IPCC) and other scientific organizations confirm that the most serious long-term environmental challenge facing Caribbean SIDS and low lying coastal states is that of Global Climate Change and its impact on the socio-economic welfare of these nations. Coastal areas, their population and economic activities will be threatened by the anticipated sea-level rise. Already faced with a crisis in managing limited freshwater resources, changes in rainfall patterns, forecasted under the baseline climate change scenarios, could result in disastrous consequences affecting tourism, agriculture and health. Increasing climate variability is expected to lead to more frequent and intense tropical storms.

4. Baseline

The region has benefited from a wide range of development assistance funded by bilateral donors (United Kingdom, United States and others), by the European Union, the UN system agencies and the OAS, and by multilateral financing agencies including the Caribbean Development Bank, the Inter-American Development Bank and the World Bank. A substantial part of this assistance has been dedicated to improving natural resource management and environmental conservation. Three areas of assistance of direct relevance to the proposed project are summarized below:

4.1 Capacity Building for Sustainable Development in the Caribbean

Several capacity building initiatives in the Caribbean arose out of the UN Conference on Small Island Developing States (UNSIDS - Barbados, 1994), which reiterated the need for stronger linkages between development and the environment. Three of these initiatives are of particular relevance to the proposed project:

(a) UNDP: Capacity 21 Program. The UNDP Capacity 21 Program (1994-1998) aimed to act as a mechanism to help developing countries implement Agenda.[3] However, long-term capacity building remains elusive in the region. As in the case of many other programs, funding for Capacity 21 came to an end, resulting in the reduction of activities being undertaken by the Sustainable Development Councils established under this program. Governments have failed to absorb these Councils into their existing framework.[4]

(b) OECS/Natural Resources Management Unit (OECS/NRMU) Island Systems Management. The OECS-NRMU recently developed the concept of Island Systems Management and has started implementing this approach to integrated development in Island States. Significant progress has been made with the process in St. Lucia, which is establishing a framework for the utilization of integrated development.

(c) National Climate Change Committees. An important outcome from the implementation of CPACC and the UNDP support is the establishment of national climate change committees which embrace a wide cross-section of national stakeholders including the private sector. Through these committees, the countries address matters related to the UNFCCC and may serve as a precursor to a permanent national mechanism for addressing the wider range of issues under the sustainable development umbrella.

4.2. Reducing Vulnerability to Extreme Climate Events

The traditional approach to disaster management in the Caribbean is characterized by an uncoordinated and often ad-hoc response to rescue victims and repair damages. Preparedness planning was introduced during the 1980. Disaster mitigation in housing and infrastructure was the focus of a recently completed 6 year Caribbean Disaster Mitigation Project (CDMP), financed by the USAID Office of Foreign Disaster Assistance (OFDA), and executed by the OAS. Since the early 1980’s, the Pan American Health Organization (PAHO) has operated an extensive program of disaster preparedness and response in the health sector. Notwithstanding these efforts, losses from natural disasters in the Caribbean continue to mount. The primary cause is the rapid development, concentrated in highly vulnerable coastal areas, and the general lack of attention to proper land-use planning and building standards. The losses suffered over the past 2 decades are making it clear that present levels to reduce vulnerability to climate change falls well short of what is necessary.[5] In 1999, the World Bank launched the Emergency Recovery and Disaster Management loan and credit program for the OECS countries (OECS/ERDMP). The program aims to support the physical and institutional efforts of five of the member countries of the OECS in disaster recovery and emergency preparedness and management.[6] The program consists in individual country-lending operations in the five countries.[7]

Likewise, the Inter-American Development Bank (IADB) and the CDB have several lending programs addressing aspects of coastal vulnerability reduction in Caribbean states[8]. In the aftermath of 1997-98 El Niño, Guyana received an emergency loan from the World Bank for regeneration of agriculture, improving drainage and irrigation, and restoration of flood protection. In addition, the CDB routinely provides small grants to the Caribbean Disaster and Emergency Response Agency (CDERA)to assist with the immediate aftermath of disasters.

4.3. Adaptation to Global Climate Change

There have been two major initiatives in the area of climate change in the Caribbean, both financed by the GEF:

(a) Enabling Activities: National Communications Projects Implemented by UNDP. The UNDP National Communications Support Program (NCSP) provides technical support to CPACC participating countries, Haiti, Suriname and the Dominican Republic. Regional experts in the field of climate change are contracted to support countries in their efforts to prepare their National Communications. Training workshops are offered in the preparation of green house gas inventories, vulnerability assessment, and other key areas.

(b) Caribbean Planning for Adaptation to Climate Change. The GEF-funded CPACC Project (1997-2001) is being executed by the Organization of American States (OAS), in partnership with University of the West Indies Centre for Environment and Development (UWICED), for the World Bank, as the GEF Implementing Agency. CPACC’s overall objective is to support Caribbean countries in preparing to cope with the adverse effects of GCC. As a Stage I Enabling Activity, the project is focused on creating awareness and on organizing training in skills relevant to impact assessment and adaptation planning; the collection and dissemination of sea-level and climate data in each country; impact and vulnerability studies; and the formulation of policy options to address adaptation issues. The project has been very successful and is expected to close on time (December 2000), fully achieving its objectives.

Specific achievements of the project are:

a)Establishment of a sea-level and climate monitoring system that contributes to global and regional assessment of the issues. The monitoring stations and related information network installed in 12 countries have improved the CC monitoring and evaluation capacity in the region. The data’s primary use is to document sea-level rise and changes in sea surface temperature (SST), thus assisting in the global monitoring of the impacts of climate change.The contribution and place of this Caribbean monitoring activity within the global monitoring efforts are being assessed. Additional applications in areas such as shipping, tourism and monitoring of extreme events are being promoted.

b)Improved access to and availability of data. The project has developed an extensive database for coastal zone management and climate change monitoring, accessible to a wide range of environment and development agencies in each country.

c)Increased appreciation of climate change issues at the policy-making level and technical support to regional positioning at the Convention. CPACC has made policy-makers, decision-makers, technical personnel and the wider public aware of climate change, and has increased the appreciation for the complexity and integrated nature of climate change issues. The project has enabled a more unified and better documented positioning of the region before the Convention and the Conference of Parties.

d)Meeting country needs for expanded vulnerability assessment. Pilot vulnerability studies have expanded the knowledge of vulnerability assessment tools and methods and have facilitated an increased awareness of the most physically vulnerable sectors in the Caribbean sub-region

e)Establishment of coral reef monitoring protocols. Coral reefs have proven to be key barometers of climate change. As a result of ongoing efforts within CPACC, monitoring and early warning capabilities are being enhanced. The data is assisting in documenting the pace of coral bleaching and impacts on coral reefs caused by changes in SST. Like with SST and sea-level change, efforts are being undertaken to link the CPACC coral reef monitoring activities with the global networks.

f)Creation of a network for regional harmonization. Through its collaborative efforts with a number of existing agencies [9] CPACC is introducing climate change as a factor in these agencies’ agendas, and is establishing programmatic linkages between CC and other activities.

A final evaluation of CPACC is scheduled for the third quarter of calendar year 2001. To date, there have been two comprehensive evaluations:

(a) World Bank Mid-Term Evaluation. The mid-term review of CPACC (September 1999) concluded that implementation performance throughout the first half of the project was satisfactory and constituted a sound basis on which to continue CPACC activities. The mid-term review also identified several areas where CPACC will need to dedicate increased attention and/or resources to meet its objectives.[10]

(b) GEF Secretariat Review of GEF-Funded Climate Change Projects in the Caribbean

The GEF Secretariat commissioned (first quarter 2000) an evaluation of the GEF-UNDP funding for National Communications, the GEF-UNDP National Communications Support Program, (a regional project), and the CPACC.[11] The report states that the GEF funded efforts are meeting the objectives of assisting CARICOM countries to: (a) develop the capacity to assess and adapt to the possible adverse impacts of Climate Change, and (b) to meet their respective obligations under the UNFCCC, with respect to Initial National Communications. The report points out that prior to the start of CPACC, the Caribbean was characterized by a general weakness of the policy and institutional arrangements for environmental management and sustainable development, constraining the effect of the capacity building activities of CPACC. This weakness is identified as a principal cause for poor linkages between Climate Change and the other areas of environmental and economic management in the countries. The report indicates that sustainability of CPACC and the National Communications process is being threatened by a low appreciation of Climate Change issues at the level of the political directorate, and the lack of capacity for in-depth research into these issues. [12]

5. Rationale for Further GEF Support (Issues to be addressed)
Notwithstanding the considerable success of CPACC, through its activities and the National Communications process, participating countries have identified additional and critical gaps in their understanding of climate change impacts, and their capacity to adapt to its consequences. The new project will address some of these key gaps and move the region toward stage II adaptation:
5.1. Mainstreaming Climate Change Issues in National Development Processes

The capacity building started under CPACC needs to be broadened to ensure that planning for adaptation measures is carried out within the context of national economic development.

Despite increased awareness and activism in the international fora, climate change issues have rarely been included in the development decision making in participating countries. Successful adaptation to climate change depends on the extent to which these issues are addressed as part of the domestic agendas of key sectors affected by climate change. The project intends to address and facilitate this change. Of critical importance to mainstreaming climate change issues is the extent to which sector decision making incorporates climate change issues. Without the proposed project it is doubtful that the development planning process will have access to the resources required to incorporate and internalize climate change concerns.

5.2. Supporting Stage II[13] activities in the Adaptation Process

CPACC was a Stage I adaptation project, with a focus on developing appropriate capacity to assess the potential impact of climate change, and to identify policy options for adaptation. Stage II adaptation, which is being discussed in the context of the COPs and SBSTAs, is anticipated to include further capacity building and specific steps leading to the implementation of specific technical and institutional adaptation measures. Stage III, as presently defined, covers: “Measures, including further capacity building, which may be taken to prepare for adaptation” The new project is designed to meet the regional needs for Stage II adaptation. Even with the strong results from CPACC, it is unlikely that the countries in the region would have the technical and financial resources to initiate on their own the next stages of the adaptation process.

5.3. Need for additional efforts on climate change monitoring and modeling.

While the primary objective of the monitoring effort has been to document the impact of global climate change, the data collected have a variety of practical local applications in such areas as tourism, coastal shipping, agriculture, emergency management and the study of climate risk. These applications are essential to the design of adaptation activities and are valuable at the same time for sector planning and in support of the development of regional modeling tools. Opportunities for such applications were identified during CPACC, and some initial investments were made in their development. Further investments are needed to increase the reliability of the monitoring network, increasing the scope and application of the data generated. Without GEF support the necessary investments are not likely to be made available for these efforts in a timely fashion, therefore delaying the adoption of planning tools and the integration of the data into mainstream economic sectors.

6. Mainstreaming Adapting to Climate Change (MACC)

6.1 Project Description