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National REDD+ Strategy Myanmar
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Foreword (by State Counselor?)
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Preface (by Union Minister of MONREC)
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Introduction (by DG/FD)
REDD+ is a mechanism under the United Nations Framework Convention on Climate Change (UNFCCC) to mitigate climate change through a reduction in net emissions of greenhouse gases (GHGs) from forests. The acronym stands for “Reducing Emissions from Deforestation and Forest Degradation, and the role of Conservation, Sustainable Management of Forest and Enhancement of Forest Carbon Stocks in Developing Countries”. Under the REDD+ mechanism, developing countries stand to receive results-based payments from the international community (specifically, Annex 1 countries1), if they succeed in reducing net emissions below a level established by their “Forest Reference (Emissions) Level” (FRL). The “Warsaw Framework for REDD+2” (WFR) established the conditions that developing countries need to meet in order to qualify for results-based payments.
The Republic of the Union of Myanmar is located in South-East Asia between north latitudes 9° 32’ and 28° 31’ and east longitudes 92°10' and 101°10'. The country has a total land area of 676,577 km2. The width from east to west is 936 km and the length from north to south is 2,051 km (including a 1,200 km-long peninsular in the south east). Myanmar shares a border of 2,192 km with China, 224 km with Laos and 2,096 km with Thailand to the east. To the west it shares a 1,331 km border with India and 256 km with Bangladesh. The country’s 2,832 km coast faces the Bay of Bengal in the west and the Andaman Sea in the south and south west. The topography of Myanmar can roughly be divided into three parts: the Western Hills, the Central Valley and the Eastern Hills. Seven States and seven Regions constitute the Union of Myanmar. The Central Valley of the River Ayeyawady consists of the Sittaung Valley and the Chindwin Valley. The seven States are Kachin, Kayah, Kayin, Chin, Mon, Shan and Rakhine. The seven Regions are Magway, Mandalay, Sagaing, Bago, Tanintharyi, Ayeyarwady and
1 http://unfccc.int/parties_and_observers/parties/annex_i/items/2774.php2 http://unfccc.int/land_use_and_climate_change/redd/items/8180.php
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Yangon. Nay Pyi Taw, the recently created new capital city of Myanmar located in the southern part of the Mandalay Region represents a new administrative Region.
Climate
The climate of Myanmar is influenced by the south-west and the north-east monsoon. Myanmar has three distinct seasons namely, the rainy season, the winter, and the summer. The rainy season starts with the onslaught of the south-west monsoon winds in early May and ends in October. The winter starts from November and ends in February. The summer begins in March and continues to the end of April. The coastal regions have about 5,000 mm of annual rainfall but the dry zone areas of Central Myanmar have less than 750mm. The temperatures generally vary between 10°C and 32°C with an average mean temperature of 21°C in the northern lowlands. Temperatures can drop down to -1°C or 0°C in the highlands and reach up to 32°C in coastal areas and 40°C or more in the central dry zone.
Population
In 2014, the population of the Union of Myanmar was estimated at 51.48 million, registering a growth rate of 2.02%. About 70% of Myanmar’s population lives in rural and remote areas. The most populous cities are Yangon, the former capital, and Mandalay, the ancient capital of Myanmar. The most populated Regions are Mandalay, Ayeyarwady and Yangon. Myanmar is ethnically very diverse with a population classified into eight groups namely Bamar, Chin, Kachin, Kayah, Kayin, Mon, Rakhine and Shan. The Bamar constitute the largest group or about 69% of the total population. The people of Myanmar are primarily Buddhists but include important Christian, Hindu, Muslim and Animist populations.
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ContentsSection 1: Myanmar, Climate Change, Sustainable Development and REDD+..........................................10
1.1 Myanmar’s National Development Planning Context – the Green Economy Policy Framework.....111.1.1 Myanmar’s Nationally Determined Contribution.....................................................................111.1.2 Myanmar’s approach to achieving the Sustainable Development Goals..................................12
1.2 Myanmar’s Forests and Drivers of Forest Cover Change.................................................................131.2.1 Summary of Myanmar’s Forests...............................................................................................131.2.2 Drivers of forest change............................................................................................................171.2.3 Stakeholders in REDD+ in Myanmar.........................................................................................19
1.3 The process of developing Myanmar’s National REDD+ Strategy....................................................21Section 2: Myanmar’s Vision and Approach to REDD+..............................................................................23
2.1 Myanmar’s Vision for REDD+...........................................................................................................242.1.1 Goal of the National REDD+ Strategy; the role of REDD+ in delivering the NDC and SDGs in Myanmar...........................................................................................................................................242.1.2 Objectives of the National REDD+ Strategy..............................................................................25
2.2 Myanmar’s Approach to REDD+......................................................................................................252.2.1 National REDD+ Strategy: Scale, Scope and Timeframe...........................................................26
Section 3: REDD+ Actions - Policies and Measures....................................................................................283.1 Summary and organization of PAMs................................................................................................29
Section 4: REDD+ Coordination and Reporting..........................................................................................344.1 Institutional Arrangements Coordination and Reporting of Actions on REDD+ under the National REDD+ Strategy -....................................................................................................................................354.2 Forest Reference Level (FRL)............................................................................................................364.3 National Forest Monitoring System (NFMS)....................................................................................374.4 Safeguards Information System (SIS)...............................................................................................38
Section 5: Financing REDD+.......................................................................................................................405.1 Ensuring Adequate Investment to Achieve REDD+..........................................................................415.2 Management of Results Based Payments........................................................................................42
Section 6: Communicating REDD+ and learning from experience.............................................................436.1REDD+ Communications and Knowledge Management...................................................................44
6.1.1 Steps in implementing the Strategy..........................................................................................44Section 7: The Way Forward......................................................................................................................45
7.1 Step 1: Investment Planning and Preparation for testing of PAMs – 2017-2019.............................467.2 Step 2: Early Implementation 2018-2022........................................................................................467.3 Step 3: Submission of updated FRL and review of achievements - 2020.........................................477.4 Step 4: Scaling up of PAMs – 2020 onwards....................................................................................47
Annexes.....................................................................................................................................................48Annex 1: Detailed information on direct drivers – geographical distribution and temporal trends (red = increasing severity; orange = stable).......................................49Annex 2: Stakeholder Engagement Guidelines (Section IV)............................................50Annex 3: Detailed assessment of the interest of women’s groups and Indigenous Peoples...............................................................................................................................................66Annex 4: Policies and Measures to address specific direct drivers...............................68Annex 5: Further information on the process of developing an SIS..............................71Annex 6: Communications and Knowledge Management Plan (excluding annexes and references)...............................................................................................................................73
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List of TablesTable 1: Percentage breakdown of closed and open forest, inside and outside the PFE (2015 data) 14Table 2: Overview of current direct drivers, their impacts, location and potential trends 17Table 3: Stakeholder assessment according to interests and potential roles in REDD+ 20Table 4: “Areas of action” of the MCCSAP and alignment of National REDD+ Strategy 24Table 5: Progress towards NDC targets for PFE coverage 25Table 6: Priority direct drivers and barriers 29
List of DiagramsDiagram 1: Distribution of PFE 15Diagram 2: Institutional arrangements for REDD+ implementation 36Diagram 3: Financing of REDD+ across the phases of REDD+ 42
List of BoxesBox 1: Myanmar’s Forest Definition 13Box 2: Compliance with UNFCCC guidance 21Box 3: UNFCCC guidance on FRL 37Box 4: UNFCCC guidance on NFMS 38Box 5: UNFCCC guidance on SIS 39
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Table of Acronyms and Abbreviations
Acronym/Abbreviation MeaningAAC Annual Allowable CutACC Anti-Corruption CommissionALARM Advancing Life and Regenerating MotherlandC02eq Carbon dioxide equivalentCEDAW Convention for the Elimination of Discrimination Against WomenCF Community ForestEAO Ethnic Armed OrganizationECD Environmental Conservation DepartmentEIA Environmental Impact AssessmentEMF Environmental Management FundFD Forest DepartmentFLEGT Forest Law Enforcement, Governance and TradeFREDA Forest Resource Environment Development and Conservation AssociationFRL Forest Reference LevelGHG Greenhouse gasGoM Government of MyanmarIEE Initial Environmental Examination IPCC Inter-governmental Panel on Climate ChangeLPG Liquified Petroleum GasMCCSAP Myanmar Climate Change Strategy and Action PlanMFA Myanmar Forestry AssociationMOALI Ministry of Agriculture, Livestock and IrrigationMONREC Ministry of Natural Resources and Environmental ConservationMRV Measurement, Reporting and VerificationMSS Myanmar Selection SystemMTE Myanmar Timber EnterpriseNDC Nationally-Determined Contribution NFI National Forest InventoryNFMS National Forest Monitoring SystemNGO Non-governmental OrganizationNRPM National Reforestation and Rehabilitation ProgrammeODA Overseas Development AssistancePA Protected AreaPAM Policy and MeasurePFE Permanent Forest EstatePPF Protected Public Forest
REDD+Reducing Emissions from Deforestation and Forest Degradation, and the role of Conservation, Sustainable Management of Forest and Enhancement of Forest Carbon Stocks in Developing Countries
RF Reserved Forest
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SDG Sustainable Development GoalsSFM Sustainable Forest ManagementToR Terms of ReferenceTWG Technical Working GroupTWG-SES Technical Working Group on Stakeholder Engagement and SafeguardsUNFCCC United National Framework Convention of Climate Change
UNREDDThe United Nations Collaborative Programme on Reducing Emissions from Deforestation and Forest Degradation in Developing Countries
UPDJC Union Peace Dialogue Joint CommitteeUSD United States dollarsVFV Vacant, Fallow and VirginWFR Warsaw Framework for REDD+
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Section 1: Myanmar, Climate Change, Sustainable Development and REDD+
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1.1 Myanmar’s National Development Planning Context – the Green Economy Policy Framework
Myanmar developed a “Sustainable Development Strategy” in 2009, but at that time, the necessary institutional capacities and legal framework to implement the Strategy were not in place. The passage of the Environmental Conservation Law in 2012, which led to the establishment of the Environmental Conservation Department, under the (now) Ministry of Natural Resources and Environmental Conservation, opened the door to progress on sustainable development. Among the objectives of the law are:
to lay down the basic principles and guidance for systematic integration of matters of environmental conservation in the sustainable development process;
to manage and implement measures to mitigate the decrease and loss of natural resources and to enable the sustainable use of such resources;
to ensure cooperation among Government departments, Government organizations, international organizations, non-government organizations and individuals in matters of environmental conservation.
The Environmental Conservation Department has made substantial progress on the development of a number of key policies, most of which are now before cabinet. These include:
Environmental Policy Climate Policy Land Use Policy Waste Management Policy
The “Green Economy Policy Framework” is an umbrella policy framework that will serve to support implementation of related policies, especially through increasing sustainable public financing and private investments, including the establishment of an Environmental Management Fund.
1.1.1 Myanmar’s Nationally Determined Contribution
Myanmar’s Nationally-Determined Contribution - NDC presents a vision for achieving climate resilient, low-carbon, resource efficient and inclusive development as a contribution to sustainable development. To support this vision, Myanmar is developing its Green Economy Strategic Framework with associated action plans (see below).
The mitigation component of Myanmar’s NDC encompasses two sectors: Forestry and Energy. In the Forestry Sector, the stated targets are to increase national forest cover to 30% of total national land area being Reserved Forest (RF) and Protected Public Forest (PPF); and 10% of total national land area being Protected Areas. These targets are consistent with those set out in the 30-Year National Forestry Master Plan (2001-30), and have also been incorporated into the draft National REDD+ Strategy (see also, below).
Under the Energy Sector, targets are proposed for renewable energy, rural electrification, industrial energy efficiency, and energy-efficient cookstoves. The targets for rural electrification (at least 30%
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generated from renewable sources) and cookstoves (260,000 to be distributed between 2016 and 2031) are closely related to REDD+ since biomass energy is a major driver of forest degradation in Myanmar.The adaptation component of the NDC identifies short, medium and long-term priority actions in eight sectors, including forestry; and biodiversity. The highest priorities are resilience in the agriculture sector, developing early warning systems and forest preservation. Within the forestry sector, the priority action items are:
Building the resilience of degraded/sensitive forest areas to climate change impacts through reforestation.
Community-based reforestation for climate-resilient ecosystems and rural livelihoods in degraded watershed areas of the Central Dry Zone.
Community-based mangrove restoration for climate-resilient ecosystems and rural livelihoods in vulnerable and degraded coastal regions.
Enhancing the climate change resilience of rural livelihoods through community-based restoration at the Indawgyi and Inle Lake watershed areas in the Northern Hilly Region
1.1.2 Myanmar’s approach to achieving the Sustainable Development Goals
The Government of Myanmar has committed to achieving the 17 SDGs since they will contribute to a free and secure democratic society3. As forests still cover a high proportion of Myanmar’s land, and World Bank data suggests that the contribution of forests to the national economy is the third highest in Asia4, forests will have a key role in achieving the SDGs in Myanmar.
An assessment by Myanmar’s Central Statistical Organization and UNDP concluded that of the 241 Sustainable Development Goals (SDG) indicators, only 44 are currently produced and readily available at the national level. However, many (97) of the missing indicators can be computed from existing data sources – often with little effort - and don’t require any additional data collection.
Based on a report of the Sustainable Development Solutions Network in 2017, Myanmar ranks 110 thin terms of progress towards the SDG’s, and is on average 59.5% of the way to the best possible outcome across the 17 SDGs5, compared with a ranking of 117th and score of 44.5% the year before.
Besides the obvious contributions to SDG 15 (Life on Land) and SDG 13 (Climate Action), forests will play a much broader role. For example, since for many of Myanmar’s poor (26%) who live in rural areas, forests are a source of income, so forests will be important in moving towards achieving SDG 1 (No Poverty), by increasing incomes from forests. Similarly, for SDG 2 (No Hunger), forests are a direct source of food for many, but also support the productivity of agro-ecosystems. The Dry Zone, in the centre of the country, which is a major area for food production, is highly dependent on adequate and regulated water supply, and maintaining (or restoring) forest cover in upper catchment areas is essential to maintain productivity in a changing climate.
Forests can also contribute to reducing inequalities (SDG %; Gender Equality and SDG 10; Reduced Inequalities). Many women are leaders of community forest groups serving to empower them, in
3http://www.unmultimedia.org/tv/unifeed/asset/1712/1712421/4https://data.worldbank.org/indicator/NY.GDP.FRST.RT.ZS5http://sdgindex.org/assets/files/2017/2017-SDG-Index-and-Dashboards-Report--regions.pdf
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contrast to the gender situation in most of the rest of society; while democratization of forest governance will serve to reduce inequalities broadly. A good example of this is the recent process of developing the Land Use Policy, which involved an unprecedented level of public participation and consultation.
Finally, Myanmar has suffered from internal conflicts over many decades. The current government is investing an immense level of effort to resolve these conflicts through the “Panglong-21” process. In May 2017, this process resulted in agreement on 37 “principles” to a future comprehensive peace accord. Since many of the armed ethnic groups occupy remote, mountainous and heavily forested areas, it is not surprising that 25% of the agreed principles relate to the land and environment sector.
1.2 Myanmar’s Forests and Drivers of Forest Cover Change
1.2.1 Summary of Myanmar’s Forests
Forests in Myanmar cover still approx. 45% of the land area of the country. The forests are distributed over three climatically distinct regions (i.e. tropical, subtropical and temperate) with eight major forest types and several subtypes defined by the occurrence of certain dominant species or species groups (e.g. dipterocarps) or specific edaphic conditions:
1. Tropical types: Evergreen Hardwood Forests (including mangroves) Mixed Evergreen and Deciduous Hardwood Forests Dry Deciduous Hardwood Forests
2. Subtropical types: Hardwood Rainforests Mountain Forests (including Pine Forests)
3. Temperate types: High Mountain Hardwood Forests High Mountain Conifer Forests High Mountain Subalpine Scrub Forests
The most abundant forest type in Myanmar is the tropical Mixed Evergreen and Deciduous Hardwood Forest which, in both its upland and lowland subtypes, is known for the occurrence of teak and other valuable timber species such as ironwood. Other common forest types are the Subtropical and Temperate Mountain forest formations and Tropical Dry Deciduous forest. However, no recent study provides a contemporary assessment of the distribution of the different forest types.
The Mixed Evergreen and Deciduous Hardwood Forests have been the main target of commercial timber logging in Myanmar, while Subtropical forests, often scattered on slopes and tops of mountains (e.g. in Chin and Shan states) have been traditionally affected by shifting cultivation carried out by local communities. In recent years, commercial logging has expanded to Evergreen Hardwood Forests in lowlands, for example in Tanintharyi. The Tropical Dry Deciduous Hardwood Forest, concentrated in the
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Box 1: Myanmar’s Forest Definition
Myanmar uses an adaptation of the FAO definition of forests: “Land spanning more than 0.5 hectares with trees higher than 5 meters and a canopy cover of more than 10 percent or trees able to reach these thresholds in situ”. Mangroves are included, but perennial agricultural plantations such as oil palm and rubber are not.
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Central Dry Zone, are also under human influence, including conversion to agriculture, and firewood harvesting.Myanmar also describes its forests in terms of their canopy coverage. Forests with more than 40% canopy cover are defined as “closed forests”, while those with between 10% and 40% canopy cover are defined as “open forest”.
Administratively, Myanmar defines its “permanent forest estate” (PFE) to be comprised of three components:
Reserved Forests. These are forests gazette for timber production by the state; Protected Public Forests. These are forests that are gazette for production of timber and other
products for use locally; Protected Areas (PA).
The distribution of the PFE throughout the country is shown in Diagram 1. The distribution of forest by canopy class (closed/open) and administrative classification (inside/outside PFE) is shown in Table 1. Of the total forest area of Myanmar (29.0 million ha), only 41%, or11.8 million ha are within the PFE. The percentages for closed and open forest are similar (43 and 39%, respectively). The PFE accounted for 28.9% of the total area of the country in 2015. Most of the forest outside the PFE, lies on land designated as “Vacant, Fallow and Virgin” (VFV). Only 60.4% of the PFE has forest cover (closed plus open forest).
Table 1: Percentage breakdown of closed and open forest, inside and outside the PFE (2015 data)Category Cover type Area (hectares) % of country area
Inside PFE
Closed forest 5,229,115 7.7Open forest 6,570,123 9.7Total Forest 11,799,238 17.4Other land use 7,526,245 11.1Water bodies 209,364 0.3Total Area 19,534,847 28.9
Outside PFE
Closed forest 6,916,470 10.2Open forest 10,331,664 15.3Total Forest 17,248,133 25.5Other land use 29,522,579 43.6Water bodies 1,352,409 2.0Total Area 48,123,122 71.1
Total area
Closed forest 12,145,585 18.0Open forest 16,901,786 25.0Total Forest 29,047,372 42.9Other land use 37,048,824 54.8Water bodies 1,561,773 2.3Total Area 67,657,969 100.0
Forest and land tenureArticle 37 of the 2008 Constitution states:
“The Union … is the ultimate owner of all lands and all natural resources above and below
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the ground, above and beneath the water and in the atmosphere in the Union …”
Diagram 1: Distribution of PFE
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Currently, there is no legislation in place that explicitly recognizes community land and resource tenure rights. However, Part VIII (Paragraph 64) of the Land Use Policy of 2016 does state that:
“Customary land use tenure systems shall be recognized in theNational Land Law in order to ensure awareness, compliance andapplication of traditional land use practices of ethnic nationalities,formal recognition of customary land use rights, protection of theserights and application of readily available impartial disputeresolution mechanisms”
Pending the development of a new Land Law based on this Policy, the Association Law of 2014 can potentially be used to assist communities or groups wishing to secure formal recognition and protection of their community tenure rights. The Farmland Law of2012 also permits the issuance of land use certificates tofarmland in the name of organizations.
Although tenure over forested land generally lies with the government, there are a number of other tenure arrangements.
Community forests (CF).The most recent version of the Community Forestry Instructions (2016) specify that CF can be established in Reserved Forest, Protected Public Forest, Buffer Zones of Protected areas and Land under the management of government agencies, or owned by private individuals and non-governmental organizations (NGOs). The Forest Department may issue a permit for Community Forest Enterprise with the aims for adding value to and freely trade forest products through commercialization. The Forestry Master Plan (2001) set a target of 920,000ha under CF’s by 2030. Currently there are 116,700 ha. To meet the target will require nearly 67,000ha (over 1,000 CF’s at current average area) to be established each year from now on, compared with a current average of 2,810 ha/year.
Village-owned fuelwood plantations.Also known as “Village supply plantations”, the Forest Department has established 183,000 ha of such plantations in the period 1981-2016 on Permanent Forest Estate land.
Privately-owned plantations. The National Reforestation and Rehabilitation Programme has set a target of expansion of privately-owned forest plantations by 8,100 ha, annually. Up to March 2017, private plantations amounted to 56,100 ha of teak and 35,700 ha of non-teak species.
Land in areas under the control of Ethnic Armed Organizations (EAOs). Myanmar has seen ethnic conflict over many decades, and there are still more than 20 EAOs in existence. However most of them have signed the October 2015 National Ceasefire Agreement, which established the tripartite Union Peace Dialogue Joint Committee (UPDJC: government, EAO’s, and political parties), with the mandate to prepare a “Framework for Political Dialogue”, and to organize national-level political dialogues – the “21st Century Panglong” process. How much territory is under the control of EAO’s is iimpossible to quantify, both because changes can occur at any time, but also because there is a myriad of scenarios relating to government-EAO relationships, making such an assessment subjective. In some areas, an EAO may exert complete control over territory, and the government has no access, but there are also a wide range of other arrangements whereby Union agencies and the EAO exert greater or lesser authority, often in coordination.
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1.2.2Drivers of forest change
The initial analysis of drivers conducted under the REDD+ Readiness Roadmap was further developed through additional analyses in 2016 and 2017. These analyses distinguished between:
‘Direct drivers’ (also called ‘proximate causes’) i.e. human activities or immediate actions that directly impact forest cover and lead to the loss of forest carbon; and
‘Indirect drivers’ (also called ‘underlying causes’ or ‘driving forces’) i.e. the complex interactions of social, economic, political, cultural and technological processes that bring about direct drivers.
Summary of direct drivers of deforestationTable 2 provides an overview of current direct drivers, their impacts, location and potential trends. Depending on the data sources, there can be substantial variations even for data of the same year. There are also different opinions on what is driving deforestation in a particular area. Hence the information below may not reflect all stakeholder views, and information on trends should be treated with caution.
Table 2: Overview of current direct drivers, their impacts, location and potential trends
Driver Impact Location Trend
Rice ca. 7 million hasignificantly affecting mangroves
Ayeyarwaddy delta, central dry zone), Yangon deltaic and Rakhine coastal areas
Myanmar Rice Sector Development Strategy foresees 7.7 million ha under rice by 2030.
Corn530,000 haReplacing mainly other annual crops, but also some deforestation
Shan State about 52 percent of total production. The Ayeyarwady (delta regions), Magwe, and Sagaing regions make up the balance
As the livestock sector is growing (also beyond Myanmar), demand for feedstock will continue to increase. Corn production will grow by at least 6%. More deforestation should be expected.
Pulses and beans
4.3 million hanormally grown immediately after the harvest of the main rice paddy crop in the delta region; effects on forests negligible
Mainly in central dry zone, but are also found in the delta, hilly, and coastal zones
Stable with increases depending on demand from India.
Aquaculture
Areal extent not known1.6% of mangrove deforestation between 2000 and 2012 could be; attributed to aquaculturemangroves also affected by fuelwood cutting for shrimp drying
Ayeyarwaddy delta No information available.
Rubber652,105 haDeforestation in the north and along new infrastructure corridors in the south;
Mon, Tanintharyi, and Kayin account for 68% of rubber area, Shan, Bago, and Kachin account for 24% of rubber area
Improvements in productivity and increasing interest and investments by Malaysian and Thai companies may lead to an expansion of the area under rubber and further deforestation.
Oil palm Around 400,000 ha Deforestation of pristine forests Only Tanintharyi
In the short to medium term expansion of oil palm plantations will slow down.
Shifting cultivation 6-7 million ha Upland areas
Shifting cultivation area decreased since 2000;expected to decrease further, if conflicts can be resolved
Mining 46,000 haInconclusive information on the effects on forests
Kachin, Sagaing and Mandalay
Due to investment risks, the area affected by mining is not expected to grow in the short
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Hydropower
139,400 ha (existing and under construction)252,300 ha plannedFigures exclude facility development and necessary infrastructureHydropower development has overwhelmingly occurred within forest reserves
Ayeyarwady, Sittaung and Thanlwin Basin
Increasing energy demand in Myanmar and neighboring countries and the interest of donors and the private sector to provide finance will lead to further deforestation.
Road and transportation networks
No figure available
Across the country, but new developments particularly connecting to neighboring countries
Road network will expand and have direct and indirect impacts on forests, especially in border areas.
Summary of direct drivers of forest degradationWhile the impacts, locations and trends for the direct drivers of deforestation could be determined to some extent, this is virtually impossible for the direct drivers of forest degradation.
There is no indication in the available literature that legal logging is causing less damages to the remaining forests in some states and/or regions than in others. Illegal logging is taking place in many states and/or regions, although the hotspot appears to be Kachin state, as timber (and charcoal) are from here exported to China illegally.
Fuelwood collection, forest fires and forest grazing are happening throughout the country, with the highest negative impacts in the Dry Zone.
All drivers also contribute to degradation to such an extent that ultimately forests may be converted to agricultural lands. This is also driven by the 30-year Master Plan for the Agriculture Sector (2000-01 to 2030-31), which aims to convert 4.05 million hectares of wasteland. Some of these areas contain forests with significant biodiversity. Others are presumably already quite degraded.
There are various contrasting trends, which exacerbates drawing a widely acceptable picture of the future. On one hand, the Government of Myanmar has committed to improving the country’s timber legality assurance system. Beyond the logging bans imposed in 2016, reforms are underway to improve legal logging, including the reduction of the annual allowable cut (AAC). Numerous organizations are also involved in up-scaling improved cookstove dissemination. The Government of Myanmar policy is to achieve 100% electrification by 2030, which should lead to a reduction in biomass use (e.g. fuelwood and charcoal) for cooking.
On the other hand, applying improved harvesting methods, reducing harvesting intensities and not exceeding the AAC for teak and other hardwoods, will take time. Without increasing capacity to seriously address corruption and bribery, it is likely that many of the illegal activities will continue, as experiences from other countries indicate. A growing population will also require more energy, and fuelwood (and other biomass) will continue to be a major contributor to energy generation. Demand for charcoal from China may also rather increase than decrease.
Positive trends can only be expected, if indirect drivers are effectively addressed at national and sub-national levels.
Indirect drivers of deforestation and forest degradationThe REDD+ Readiness Roadmap identified the following indirect drivers:
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1. Current institutional setup (Central Land Management Committee headed by the Ministry of Agriculture and Irrigation and sub-national Land Management Committees at township level headed by the Ministry of Home Affairs/General Administration Department) makes it easier to convert forest which is not included in the Permanent Forest Estate (non-reserved or un-classified forest);
2. Overlapping and conflicting mandates of different land management committees: a. Central and sub-national Land Management Committees (based on Farm Land Law and
headed by the Ministry of Agriculture, Livestock and Irrigation- MoALI), b. National Committee on Land Scrutinising and Land Allocation (created by Presidential
Decision and headed by the Ministry of Natural Resources and Environmental Conservation- MONREC) and
c. Central Vacant, Fallow and Virgin Land Management Committee (based on the new Vacant, Fallow and Virgin Land Management law and headed by MoALI) reduces efficiency of land management and land use planning.
3. Weak enforcement of the law;4. Land grabbing facilitated by insufficient or ineffective protection of traditional land or forest
tenure rights coupled with the lack of fair and transparent land conflict resolution mechanisms and structures;
5. Poverty and lack of alternative livelihoods;6. Increasing demand for resources from growing middle class;7. Eco-system services of forest undervalued and/or not considered in policy and investment
decisions.
In many countries, political and economic transitions have had substantial impacts on forest conservation. Myanmar is transitioning from an authoritarian, centralized state with a highly regulated economy to a more decentralized and economically liberal democracy.
In general, the centrality of agriculture to the Myanmar economy indicates that emerging policies and strategies, and improved market access and technologies will lead to potentially greater rates of deforestation due to the introduction of well-funded investors, weak land-tenure arrangements, low governance effectiveness and overlapping and conflicting priorities of the forestry and agricultural sectors. The broad national challenge of addressing the drivers of deforestation and forest degradation is to initiate environmental governance reforms in the face of significant pressures for land grabbing, opportunistic resource extraction and infrastructure development, clarify land tenure arrangements and significantly strengthen the coordination of forestry and agriculture.
Barriers to increased conservation, sustainable management of forests, and enhancement of forest carbon stocksBarriers to sustainable management of forests are the inverse of the indirect drivers of non-sustainable timber harvesting. Many of the barriers to increased conservation through the protected area system relate to the complexity of the gazetting process, combined with individual and institutional capacity gaps. Barriers to enhancement also include capacity limitations, but the need to design incentives to encourage greater investment in afforestation and reforestation is also significant.
1.2.3 Stakeholders in REDD+ in Myanmar
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A comprehensive understanding of the categories of stakeholders involved in, and affected by, the forest sector is essential for the effective implementation of a REDD+ programme. A stakeholder mapping process was undertaken during preparation of the REDD+ Readiness Roadmap. Stakeholders were classified according to their interests and potential role in REDD+ (see Table 3).
Table 3: Stakeholder assessment according to interests and potential roles in REDD+Stakeholders Interests Potential Role in REDD+ Implementation
Government institutions and agencies
Development, Climate Mitigation. Climate Adaptation, Forest Conservation
Coordination, policy formulation, implementation, awareness raising, facilitation of stakeholder consultation, monitoring, fund raising
Private Sector
Sustainability of Investments, Complementary Income Generation and Environmental Costs
Funding (payment for environmental services), contribution to policy and legal framework development, promotion of REDD+ implementation (carbon sequestration and avoided emissions)
National Forestry/ Environmental NGOs or networks
Development, Sustainable Forest Management, Conservation, Poverty Reduction
Coordination, policy formulation, implementation, awareness raising and training, facilitate consultation, monitoring and safeguards
International or regional NGOs
Development, Sustainable Forest Management, Conservation, Poverty Reduction, Climate Mitigation
Coordination, awareness raising, facilitating stakeholder involvement and consultation, funding and supporting implementation, technical support
Women’sgroups and networks
Income generation, empowerment of women
Mobilization and participation of women, policy development, development of benefit sharing mechanisms, monitoring and safeguards
Knowledge Institutions
Research to contribute to implementation, policy development, knowledge sharing and education
Policy development, awareness raising and training, research and monitoring in support of implementation.
Youth GroupsPromotion and participation of youth, creation of economic opportunities and capacity building for youth
Awareness raising and capacity building, facilitate consultation, participatory monitoring and safeguards
NGOs and networks working with Ethnic Groups/ minorities
Protection of rights of ethnic minorities, Sustainable Forest Management, rural development and income generation
Awareness raising and capacity building, facilitating consultation, implementation, participatory monitoring and safeguards
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1.2.4 Engaging women and ethnic minoritiesTo ensure the stakeholder engagement for effective implementation of REDD+ in Myanmar, systematic incorporation of gender and ethnic minority considerations is crucial. As Myanmar is signatory to Convention on All Forms of Discrimination against Women (CEDAW) and an active member of the Association of Southeast Asian Nations’ Committee on Women and Children, the inclusion of gender perspectives ensures that the REDD+ framework respects international law. Respect for the rights of Indigenous Peoples is explicitly mentioned in the Cancun Safeguards. Consequently, a more detailed analysis of the interests and potential roles of women’s groups and Indigenous Peoples was undertaken – see Annex 3 for results.
1.3 The process of developing Myanmar’s National REDD+ Strategy
The process leading to the formulation of the National REDD+ Strategy began in 2012, with the preparation of a “REDD+ Readiness Roadmap”, which was completed in August 2013. The Roadmap represented an initial analysis of the issues to be addressed in Phase 1 of REDD+ 6. This included an initial stakeholder mapping (see 1.2.3), analysis of drivers, review of forest cover change, and summary of a country-led approach to safeguards. The Roadmap was completed before the adoption of the WFR, yet most of the contents of the Roadmap are consistent with the provisions of the WFR. The preparation of the Roadmap was guided by three multi-stakeholder Technical Working Groups, on Drivers and Strategy; Stakeholder Engagement and Safeguards, and Measurement, Reporting and Verification (MRV).
The Roadmap identified work to be undertaken under six components:
1. Management of REDD+ Readiness Arrangements2. Stakeholder Consultation and Participation3. Development and Selection of REDD+ strategies4. Implementation Framework and Safeguards5. Development a National Reference Level and Reference Emissions Level6. Development a National Forest Monitoring System
6UNFCCC Decision 1/CP.16, paragraph 73
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Box 2: Compliance with UNFCCC guidance
A national REDD+ strategy or action plan is one of the four REDD+ design elements from the Warsaw Framework. Decision 1/CP.16 (paragraph 72, Cancun Agreements) states:
[The Conference of the Parties] “Also requests developing country Parties, when developing and implementing their national strategies or action plans, to address, inter alia, the drivers of deforestation and forest degradation, land tenure issues, forest governance issues, gender considerations and the [Cancun] safeguards, ensuring the full and effective participation of relevant stakeholders, inter alia indigenous peoples and local communities”
Myanmar has addressed these issues in the following ways in this strategy:
Issue Addressed in the strategy by …
Drivers of deforestation and forest degradation
Specific Section on drivers (1.2.2)
Land tenure issues Covered in Section 1.2.1
Forest governance issues Covered by PAMs action package 5
Gender considerations Covered in Section 1.2.4 and Annex 3
Cancun safeguards, ensuring the full and effective participation of relevant stakeholders, inter alia indigenous peoples and local communities
Covered in Section 4.4, Section 1.2.3 and Annex 3
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6
Implementation of the RoadMap has primarily been supported by the UN-REDD Programme, though numerous other initiatives have also contributed important information and capacities.
A major activity contributing directly to the development of the National REDD+ Strategy was a more detailed drivers’ analysis than that conducted during the Roadmap process, and from this developed candidate policies and measures (PAMs). Several consultation processes were then undertaken:
Government consultations with the seven key ministries anticipated to play a significant role in implementing PAMs
Sub-national multi-stakeholder consultations in each of the 15 states/regions of the country Consultations with potential private sector participants Open, web-based public consultation
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Section 2: Myanmar’s Vision and Approach to REDD+
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2.1 Myanmar’s Vision for REDD+
Myanmar’s vision for REDD+ is:
Myanmar’s forests play a leading role in contributing to climate change mitigation and adaptation under the NDC and, through the ecosystem services they provide, contribute to vibrant sustainable economic, particularly rural, development, thus contributing to the achievement of many of the SDG targets in Myanmar.
2.1.1 Goal of the National REDD+ Strategy; the role of REDD+ in delivering the NDC and SDGs in Myanmar
In delivering the vision for REDD+, the goal of the Myanmar REDD+ strategy is “to contribute to the achievement of a climate resilient, low carbon and sustainable development path of the country through transformational change in the land-use and forestry sector by reducing deforestation and forest degradation while enhancing livelihoods, sustainable growth and development.”
This goal responds to several national and international policy documents. At the national level, it aligns with the Myanmar Climate Change Strategy and Action Plan (MCCSAP), since environment and natural resources is one of the six priority sectors identified in the MCCSAP. No specific or quantitative targets or goals are included in the MCCSAP, but there are six, priority “areas of action” to which the National REDD+ Strategy responds (Table 4):
Table 4: “Areas of action” of the MCCSAP and alignment of National REDD+ StrategyMCCSAP action area National REDD+ Strategy
Integrating Climate Change into development policies and plans Vision plus several PAMsEstablishing institutional arrangements to plan and implement response to Climate Change Section 4.1
Establishing financial mechanisms to mobilize and allocate resources for investment in in climate smart initiatives Section 5
Increasing access to technology Relevant to Section 4.3, NFMSBuilding awareness and capacity to respond to climate change, and Section 6Promoting multi-stakeholder partnerships to support investment in climate smart initiatives
Annex 2, Stakeholder engagement guidelines
It also contributes to the 10-year Reforestation and Rehabilitation Programme (NRPM; 2017-2026), to be implemented in all 15 states and regions and all 68 forest districts, to: (1)restore biodiversity and ecosystems in the areas affected by deforestation and forest degradation to their original condition by using proper silvicultural operations; and (2) support national socio-economic development and sustainable forest management.
Contribution to Myanmar’s NDCMyanmar’s NDC presents the same vision as the MCCSAP: achieving climate resilient, low-carbon, resource efficient and inclusive development as a contribution to sustainable development. As described in section 1.1.1, REDD+ is a major instrument for implementation of the NDC as forests constitute a major part of the both the mitigation and adaptation components of the NDC.
The current status of PFE in relation to the targets set in the NDC is shown in Table 5.
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Table 5: Progress towards NDC targets for PFE coverage
Forest category PFE in 2008 (ha)
PFE in 2015 (ha)
Target for 2030 (% of land area)
Target for 2030 (ha)
Annual rate of increase 2008-2015
Reserve Forests (RF) and Public Protected Forests (PPF) 16,184,687 19,534,847 30 20,297,337 2.53%
Protected Area System (PAS) 2,661,349 3,887,982 10 6,765,779 5.57%Total PFE 18,846,036 23,422,829 40 27,065,146 3.09%
In the period 2008-2015, RF and PPF area increased at 2.53%/year, and PA area at 5.57%/year. The rates required to meet the NDC targets are 0.26%/year for RF plus PPF, and 4.93% for PAs, suggesting that the targets are plausible.
Myanmar’s Progress on SDGsAs noted in section 1.1.2, forests can play a major role in achieving targets under multiple SDG’s. Implementation of the National REDD+ Strategy will therefore contribute to Myanmar’s commitment to achieve the SDGs.
2.1.2 Objectives of the National REDD+ Strategy
Key objectives and targets of the National REDD+ Strategy are established in the policy documents described above. Others supplement such policy objectives.
1. Reduction of deforestation and related carbon emissions by 30% by 2030.This will be achieved, in part, by securing the NDC target of increasing forest cover to 30% of total national land area in Reserved Forest and Protected Public Forest, and 10% of total national land area in Protected Areas
2. Enhancement of forest carbon stocks by 90 million tonnes of C02e by 2030.This is consistent with the objectives of the NRPM
3. Reduce degradation on existing overexploited forests and prevent future forest degradation. This will be achieved by addressing drivers such as fuelwood extraction, charcoal production, timber harvesting (legal and illegal), fire and grazing.
4. Conserve forest carbon stocks, particularly in Protected Areas.This will be achieved through improved management of PAs and increasing coverage to the target specified in objective 1.
The first two of these objectives are supported by specific targets because the NFMS is currently able to quantify changes for deforestation, while area target for afforestation are provided in the National Programme for Reforestation and Rehabilitation. The limitations of the NFMS are reflected in Myanmar’s initial FREL submission in January 2018 (see sections 4.2 and 4.3, below). Specific targets will be established for the third and fourth objective as capacities to measure changes in carbon stocks are enhanced.
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2.2 Myanmar’s Approach to REDD+
Myanmar’s approach to REDD+ will:1
1. Align with the guidance of the UNFCCC.
The alignment of the National REDD+ Strategyis reflected in Box 2, above. In addition, the design of the NFMS and SIS aligns with guidance provided by the UNFCCC.
2. Promote transformational changes in the way that the country approaches economicand land use development.
The vision, goal and objectives of the National REDD+ Strategy align with national development goals and objectives increasing sustainability of key economic activities that drive forest cover changethrough action within relevantsectors. This is reflected in the policies andmeasures identified in the National REDD+ Strategy, which address underlying drivers of forest cover change and support the economicdevelopment and livelihood security of rural communities.
3. Ensure that policies and measures designed to address greenhouse gas emissions also generate non-carbonbenefits.
Forests provide a wide range of social, environment and economic benefits. Climate action will not undermine the other benefits provided by forests, and will maintain benefits that are threatened by ongoing forest loss, and, where possible, enhance them. This will ensure that the National REDD+ Strategy also contributes to Myanmar meeting SDG targets.
4. Take immediate action on all REDD+ activities likely to have significant mitigation benefits, but focus initially on reporting emissions and removals related to (1) reducing emissions from deforestation, and (2) the enhancement of forest carbon stocks through afforestation and reforestation.
Data on changes between closed forest and open forest suggest that emissions due to forest degradation are extremely significant in Myanmar. For this reason, actions to address degradation will be initiated immediately. However, capacities to report on emissions is currently limited to changes due to deforestation and enhancement through afforestation and reforestation. The scope of reporting will be expanded as data availability and methodologies improve, particularly with regard to improvements inthe way that degradation is measured.SECTION 2.2
5. Require any projects targeting sub-national actions, and those under other forest carbon mechanisms to follow guidelines linked to the national REDD+ development process and UNFCCC decisions and guidance, and to absorb the additional costs of reconciling carbon accounting and safeguards information.
Pending the development of additional guidance by the UNFCCC on Article 6.b and Article 6.d of the Paris Agreement, and depending on the nature of that additional guidance, the Government will not seek to develop or promote the development of forest carbon projectstargeting the voluntary carbon
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market or other forest carbon mechanisms in which it is a partner. The government will, however, consider proposals from private sector actors and NGOs who are able to demonstrate clearcompetencies within the areas of project development, secure long term financial investmentand a strong commitment to the ongoing support and development of communities within theproject location. Any projects developed will also be required to coordinate closely with relevant government agencies in the development of project design and implementation.Projects will also be required to ensure that methodologies used for calculating their projectscale FRL are in line with those used at the national level and that data can support nationalsystems. If it is necessary to reconcile carbon accounting in order to avoid double-counting of mitigation results, as required by Articles 4.13, 6.2, and 6.5 of the Paris Accord, the projects developed under other forest carbon mechanisms will be responsible for the additional costs. Similarly, those projects will be responsible for any costs associated with reconciling reporting on Cancun Safeguards and the safeguards frameworks of other initiatives (e.g. the Climate, Community and Biodiversity Standards).
2.2.1 National REDD+ Strategy: Scale, Scope and Timeframe
The National REDD+ Strategy will be implemented throughout the territory of the Union of Myanmar, prioritizing the application of policies and measures in areas subject to drivers of deforestation or forest degradation, or where barriers to conservation, sustainable management of forests and enhancement of forest carbon stocks exist.
The scope of the National REDD+ Strategy covers all five REDD+ activities. Priority will be given to those activities for which reporting capacities exist (currently deforestation and enhancement through afforestation and reforestation) and to those activities likely to have a significant mitigation benefit even though reporting capacities currently do not exist (degradation and enhancement through rehabilitation of degraded natural forests).
The timeframe for implementation of the National REDD+ Strategy is open-ended, but will take account of:
a) Targets set by the strategy itself or in national and international policy documents to which hit is linked; and
b) The need to constantly review changes in drivers, the efficacy of policies and measures being implemented, changes in the political situation in Myanmar (particularly related to the peace process), and changes in governmental institutional mandates.
These factors mean that the National REDD+ Strategy is a “living document” and may be reviewed and modified at any time. It will certainly be reviewed no later than five years after approval.
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Section 3: REDD+ Actions - Policies and Measures
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3.1 Summary and organization of PAMs
Based on the drivers analysis (see Section 1.2.2), seven direct drivers and barriers to two of the “+ activities” are considered as high priority, as shown in Table 6, below.
Table 6: Priority direct drivers and activities for which barriers will be addressed
Driver Extent Severity Feasibility of PAMs Priority
Large-scale agriculture
National, with concentration in some states/divisions High High High
Small-scale agriculture National High High High
Timber (over-) harvesting
National, with concentration in some states/divisions Medium-high High High
Illegal logging National, especially in border areas Medium-high Medium High
Firewood collection National, especially in rural areas High High High
Charcoal production National, especially near urban areas High High High
Shifting cultivation National, with concentration in some states/divisions Medium(?) High High
Mining National, with concentration in some states/divisions (esp. Kachin) Low Low Medium
Infrastructure development
National, especially near urban areas Low Low Low
Hydropower development
National, but only locally important Low Low Low
Forest grazing Locally significant Low High Low
Barriers to: Extent Severity Feasibility of PAMs Priority
Enhancement National, especially Dry Zone and coastal (mangroves) High High High
Conservation National, especially north, east and south Medium-high High High
Some of the drivers not assessed as “high” priority will also be addressed, but in a limited way. For example, for mining, the main threat is assessed to come from small-scale artisanal mining, which is largely unregulated. So extending the application of existing regulations to such operations will be beneficial, but have a low impact on emissions.
For the seven high priority drivers and barriers to the two high-priority “+ activities”, the process described in section 1.2.4 led to the identification of 58 policies and measures. Collectively, these are
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designed to address direct and indirect drivers of deforestation and forest degradation and barriers to increased conservation and enhancement (barriers to sustainable management of forests being simply the inverse of drivers of non-sustainabletimber harvesting).
These are organized below into seven “action packages”, which include PAMs having similar characteristics. Some PAMs fall under more than one action package. Each direct driver (or barrier) is addressed through a number of PAMs. Annex 3 shows which PAMs are designed to address which drivers. In order to effectively address drivers, many PaMs need to be implemented in combination with other PaMs, in order to avoid potential unintended effects. For example, PaMs that strengthen law enforcement or protected area management need to be combined with those which support sustainable livelihoods, in order to avoid displacement of pressures, and those which provide protection for informants.
Action package 1: Legal/regulatory reform
This action package covers the development of new, and revision of existing legal or regulatory measures, and the operationalization of existing measures. The main drivers to be addressed through legal/regulatory reform are deforestation due to agricultural expansion, degradation through timber harvesting, both legal and illegal, and barriers to conservation. The PAMs are:
Amend investment regulations to include penalties for unauthorized forest clearance and environmental damage
Apply 3rd party independent monitoring of logging operations (legal and illegal)Develop trade agreements for sustainably produced timber
Develop and apply regulations that recognize authority over PAs at multiple levels Implement the Land Use Policy (2016), particularly Part VIII regarding land tenure security and
the recognition of customary rights Increase the amount of revenues collected by states/regions deposited in state/region funds Operationalize regulations under new Forest/Wildlife/PA Laws and Community Forestry
Instructions (2016) Revise and simplify PA gazetting process Revise incentives system for staff of MONREC and MoALI, particularly at local levels Revise the revenue distribution system among states/regions from sales of timber other forest
products Strengthen FD and MTE capacities and commitment to apply the MSS Code of Conducts
responsibly Within the context of the work of the UPDJC, engage with EAO’s to develop cooperation on (a)
detecting movement of illegal timber; and (b) PA establishment and management
Action package 2: Land management rationalization
The PAMs in this action package primarily address agricultural expansion, both large- and small-scale. The PAM dealing with incorporating VFV land into PFE is likely to be the most significant in meeting the targets for PFE in the NDC and the National Forestry Master Plan. PAMs in the legal/regulatory reform and governance packages will, in combination with PAMs in this package, address agricultural drivers of deforestation. The PAMs are:
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Develop a national land use plan and implement territorial land-use planning with emphasis on areas with high potential for REDD+
Expand community forest network Incorporate forested VFV land into PFE, supported by strengthened VFV land management
committees Promote agroforestry systems with long term tree components and improvement of agricultural
yields
Action package 3: Finance and incentivization
PAMs in this action package are expected to contribute to overcoming all the major drivers of deforestation and forest degradation. However, the drivers most targeted by finance and incentivization PAMs are fuelwood collection and charcoal production. The PAMs are:
Address market access issues for agriculture and forestry in rural development projects and programmes
Establish environmental accounting systems which include the economic value of non-extractive forest uses and ecosystem functions
Implement incentivized community co-managed monitoring programmes for illegal logging Incentivize private sector and community plantations, including investment in short rotation
species Incentivize production and distribution of improved/efficient cook stoves Incentivize adoption of alternative7 fuels Incentivize the development of fuelwood plantations and charcoal production areas, especially
in high demand areas Incentivize use of wood from sources other than natural forests, including residues from wood
processing Provide low interest rate credit mechanisms and incentives, which are accessible to both
women and men, to facilitate investment and technology transfer for forestry and agriculture Revise the revenue distribution system among states/regions from sales of timber other forest
products
Action package 4: Awareness, capacity development and training
In this action package, individual capacities are targeted related to several drivers, including illegal logging, fuelwood collection, charcoal production, and agricultural expansion, as well as barriers to conservation. The PAMs are:
Build capacities (training) for (a) producers in low-waste processes; (b) Protected Area staff; and (c) Forestry Police
Build capacities for plantation maintenance (including resource mobilization) Capacitate Government and NGOs to provide technical support on income generation,
especially in rural areas Establish participatory and gender equitable land use planning approaches at region/state
district and township level
7 Alternatives to fuelwood and charcoal
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Ensure appropriate and proportionate penalties applied (including awareness raising of judiciary)
Raise awareness of: (a) for AAC; (b) fuelwood (health and sustainability); (c) charcoal sustainability; and (d) alternative fuels
Strengthen Environmental Impact Assessment(EIA) and Initial Environmental Examination(IEE) capacities in the Environmental Conservation Department(ECD) in relation to evaluation of concession areas for commercial agricultural plantation development
Action package 5: Governance improvement
This action package recognizes four components of “good governance”, namely transparency, accountability, rule-of-law, and participation. Collectively, governance PAMs cover all drivers except charcoal production, but with a strong emphasis on addressing deforestation through agricultural expansion and timber harvesting, both legal and illegal. The PAMs are:
Apply 3rd party independent monitoring of logging operations (legal and illegal) Empower the Anti-Corruption Commission (ACC) to act on corruption and “laundering” of
timber through development of anti-corruption strategy Empower and incentivize law enforcement agencies to prioritize legal action against individuals Enhance border control cooperation among local government, communities and with
neighbouring countries, e.g., sharing of electronic documentation Ensure appropriate and proportionate penalties applied (including awareness raising of
judiciary) Ensure greater cooperation between FD and Forestry Police Establish a publicly available and accessible sub-contractor/ service provider registry with
specified service standards and penalties for non-compliance Establish gender-responsive Forestry and Agricultural/ Agroforestry Extension services in rural
and hill areas Establish publicly accessible on-line registry for export licenses Establish safeguards for informants and whistle-blowers Implement incentivized community co-managed monitoring programmes for illegal logging Improve inter-ministerial planning and coordination through strengthening of existing
coordination bodies at national level Promote farmers and growers’ associations, including equitably for women and men, in order to
facilitate cooperative market access Promote sustainability measures in commodity supply chains Publish MTE monitoring reports (including on-line) Secure political commitment to SFM and penalties for breaches Strengthen FD and MTE capacities and commitment to apply the MSS Code of Conducts
responsibly Support inclusion of land-use change proposals in workplans of national Land Use Council or
subnational Land Use Committees or other work committees defined by the government Within the context of the work of the UPDJC, engage with EAO’s to develop cooperation on (a)
detecting movement of illegal timber; and (b) PA establishment and management
Action package 6: Diversification of energy supplies and addressing demand for biomass energy
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Because demand for fuelwood and charcoal are such significant drivers of at least forest degradation in Myanmar, a series of PAMs address demand-side management, with a focus on diversification of energy supplies. Other PAMs, under finance and incentivization, and awareness, capacity development and training, address supply-side management. The PAMs are:
Accelerate rural electrification, including use of biomass waste, hydro/solar/wind for generation Develop alternative fuel distribution infrastructure (e.g. for Liquified Petroleum Gas - LPG) Incentivize adoption of alternative fuels Incentivize the development of fuelwood plantations and charcoal production areas, especially
in high demand areas Incentivize use of alternative sources for charcoal production Incentivize use of wood from sources other than natural forests, including residues from wood
processing Raise awareness of: (a) ACC; (b) fuelwood (health and sustainability); (c) charcoal sustainability;
and (d) alternative fuels
Action package 7: Technical support
The PAMs in this action package do not directly address drivers, but provide new and additional data and information that permit more effective implementation of other PAMs. They cover all drivers, but fuelwood collection is the driver for which the greatest number of technical support PAMs apply. The PAMs are:
Develop and apply a domestic timber certification system Develop and implement PA management plans, including sustainable financing plans Establish and implement a domestic timber supply plan Incentivize the development of fuelwood plantations and charcoal production areas, especially
in high demand areas Incentivize use of wood from sources other than natural forests, including residues from wood
processing Include fuelwood production and non-market values of forests in the NFMS and national
counting system Prioritize cadastral surveys in areas of encroachment Prioritize OneMap application to Key PAs Survey domestic timber demand and fuel wood consumption for domestic use & industrial use Undertake cost-benefit analysis of plantation establishment Undertake high resolution mapping of existing forests, shifting cultivation, and encroachment
“hotspots”, with online registry
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Section 4: REDD+ Coordination and Reporting
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The Warsaw Framework for REDD+ specified that countries qualifying for results-based payments under REDD+ need to have four elements in place8. These are a National REDD+ Strategy (or Action Plan), a Forest Reference Level (or Forest Reference Emissions Level), a National Forest Monitoring System, and a Safeguards Information System. The institutional arrangements and status of each of these elements is described below.
4.1 Institutional Arrangements Coordination and Reporting of Actions on REDD+ under the National REDD+ Strategy -
The Forest Department of the Ministry of Natural Resources and Environmental Conservation is the lead agency for REDD+ in Myanmar. However, since REDD+ implementation involves a wide array of stakeholders, a broad-based National REDD+ Taskforce9 has been established to oversee and coordinate implementation. The Taskforce reports to the Climate Mitigation and Adaptation Working Group of the National Environmental Conservation and Climate Change Central Committee, which has 23 members, being Deputy Ministers and heads of department from various line agencies, and reports to the Vice President.
Day-to-day management of REDD+ implementation will be the responsibility of a REDD+ Office within the Forest Department. To maintain the broad-based coordination established during the readiness phase, bodies such as the Technical Working Groups and Stakeholder Forum, established to support that process, will continue, although possibly adjusted to reflect the final selection of PAMs. These arrangements are represented in Diagram 2.
Reporting of results documented by the NFMS is the responsibility of the Environmental Conservation Department of MONREC. Results will be submitted by the Forest Department, through the NFMS/FRL Technical Working Group (TWG), to the National REDD+ Taskforce for review before being passed on to the Environmental Conservation Department for inclusion in a Technical Annex to a Biennial Update Report for submission to the UNFCCC.
8Decision 9/CP.19, paragraph 119Members are from the Forest, Environmental Conservation, and Mines Departments of the Ministry of Natural Resources and Environmental Conservation; Agricultural Planning, Agricultural Land Management and Statistics, and Irrigation and Water Utilization Management Departments of the Ministry of Agriculture, Livestock and Irrigation Member; Budget, and Planning Departments and Directorate of Investment and Company Administration of the Ministry of Planning and Finance; General Administration Department of the Ministry of Home Affairs; and representatives of CSOs, Indigenous Peoples organizations, and the private sector.
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Diagram 2: Institutional arrangements for REDD+ implementation
4.2 Forest Reference Level (FRL)
Myanmar submitted its initial FREL to the UNFCCC in January 2018. Following the suggestion of Decision 12/CP.17, Myanmar prepared its FREL using a stepwise approach. The initial FREL will be a benchmark for assessing its performance in implementing REDD+ activities in contribution to climate change mitigation. The main objective of the FREL submission is to support the climate change mitigation efforts under the national context of Myanmar. Further objectives of the submission are;
To assess and evaluate the performance of REDD+ policies and measures and sustainable forest management practices
To provide information on emission projections to stakeholders including policy makers, government line departments, technicians and members of the public on a clear, transparent and consistent basis.
To facilitate access to potential funding sources for results-based payments and to support efforts to reduce emissions from the forest and land use sector.
The scale of Myanmar’s FREL is national, as all the existing land and forest monitoring and measurement capacities are at the national level. The scope of the
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REDD+ Office
Forest Department
Environmental Conservation Department
OtherDepartments
Ministry of Natural Resources and Environment Conservation Ministry of
Agriculture, Livestock and
Irrigation
Ministry of Electricity
and Energy
Ministry of Home Affairs
Other Ministries
Technical Working GroupsDrivers and StrategyNFMS and FRLStakeholder Engagement and Safeguards
National REDD+ Taskforce
Climate Mitigation and Adaptation Working Group
Other Working Groups
Central Committee for Natural Resource Conservation and Climate Change
GovernmentNon-government
Private sector
Civil Society Orgs
Indigenous Peoples
Orgs
Reporting & advice (up)/ Direction (down)
Membership
Key
Box 3: UNFCCC guidance on FRL
Four decisions taken by the Conference ofthe Parties, see below provide guidance on REDD+FRLs. Based on these FRLs should:• Be expressed in tonnes of carbon dioxideequivalent per year.• Be consistent with national GHGinventories. This requires consistencydomestically as well as following theIntergovernmental Panel on Climate Change(IPCC) guidance and guidelines as a basis forestimating forest-related GHG emissions bysources and removals by sinks, forest carbonstocks, forest area and forest area changes.• Be established transparently, providinginformation and rationale on FRLdevelopment. This includes submissionof supporting information to show howthe FRL was constructed and how nationalcircumstances were considered.• Allow for a step-wise approach. Countriescan improve their FRLs over time byincorporating better data, improvedmethodologies and, where appropriate,additional pools.• Allow for the use of subnational FRLs asan interim measure. This can be used as aninterim measure but countries are expectedto make a transition over time to a nationalforest FRL.
UNFCCC Decisions:4/CP.15, 1/CP.16, 12/CP.17, paragraphs 7-11 and annexes, and 13/CP.19
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FREL is limited to deforestation only.Three carbon pools include: Above Ground Biomass (AGB), Below Ground Biomass (BGB) and Litter, using allometric equations derived from district forest management and according to IPCC Good Practice Guidance. Soil and deadwood carbon pools were omitted due to limited information/data at national level. Only CO2 was included in the initial FREL although non- CO2
emissions may be included later.
The proposed reference period covers the period from 2005 to 2015, due to the availability of the most reliable national existing Activity Data (AD) and Emission Factors (EF) for this period. Consistency with GHGs Inventory reporting was also considered for the submission. AD have been developed by estimating the extent of forest change measured as gross area estimates of forest, non-forest and deforestation during 2005-2015, excluding forest degradation, forest improvement and forest area gain.
The amount of deforestation (forest loss) was estimated using a sample based approach. The bias-corrected forest loss is about 387,527 ha per year over the period 2005-2015.
Based on forest inventory data from 40 districts, a national EF of 125.43 tCO2 eq per ha was calculated. Annual CO2 emission from deforestation during the historical reference period 2005-2015 is therefore estimated as 48,607,511 tons per year.
4.3 National Forest Monitoring System (NFMS)
The Forest Department is in charge MRV for REDD+ in Myanmar. As for the FRL, an action plan for NFMS was developed in 2015 and implemented from the same year. The action plan was based on a capacity needs assessment, which established the framework for NFMS improvement.
NFMS development encompasses the strengthening of the satellite based land monitoring system including the use of modern open source and open access based remote sensing capacities and techniques and the enhancement of field inventory capacities including the establishment of a new comprehensive National Forest Inventory (NFI). In parallel, capacities for further developing activity data and for more detailed emission factor calculation, based on existing data in the Forest Department, need to be strengthened.
In addition, the NFMS will also be a source of safeguard-related information (e.g. biodiversity, socioeconomic conditions in forest use, among others) thus covering biophysical and non-biophysical data collection and analysis and/or needs to be integrated for this purpose with other information systems.
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Box 4: UNFCCC guidance on NFMS
National forest monitoring systems should be flexible, allow for improvement and build upon existing systems, as appropriate. They should reflect the phased approach of REDD+ implementation and enable the assessment of different types of forest in the country according to national definitions, including natural forest. They may also provide relevant information to the safeguards information systems.
The data and information provided by national forest monitoring systems should be transparent, consistent over time, and suitable for measuring, reporting and verifying, taking into account national capabilities and capacities. In order to achieve this, the systems should also use a combination of remote sensing and ground-based forest carbon inventory approaches for estimating anthropogenic forest-related greenhouse gas emissions by sources and removals by sinks, forest carbon stocks and forest area changes.
Having the national or, as an interim measure, subnational forest monitoring system in place is one of the requirements in order to be eligible for results-based payments in accordance with decision 9/CP.19, and information on the forest monitoring system should also be provided in the Lima REDD+ Information Hub.
Most relevant COP decisions: 4/CP.15, 1/CP.16, 11/CP.19
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Based on present MRV capacities (with some targeted improvements) Myanmar is able to monitor land use changes of key land cover classes and can calculate activity data with approach 2 according to Inter-Governmental Panel on Climate Change (IPCC) guidelines.
For the development of emission factors, until updated NFI results are available, Myanmar will use: For above ground biomass (AGB): a combination of emission factors derived from existing
district level inventory results (likely with expansion factors both at individual tree and stand level) and IPCC default values, and
For other carbon pools (below ground biomass, soil organic carbon, litter and deadwood) the IPCC default values;
The data collection approach for the NFI is still in the piloting phase and the final decision on which carbon pools will be included in field measurements not yet fully decided. Since time, cost and capacity constraints apply for inventory and monitoring, a key category analysis will be carried out before the final decision is taken (chapter 4.1.2 of the NFMS Action Plan).Thus, for the time being the emission factor calculation will be at the level of a combination of tier 1 and tier 2 according to IPCC guidelines.
4.4 Safeguards Information System (SIS)
Based on the guidance set out by the UNFCCC, countries implementing REDD+ must meet three main requirements related to a set of seven safeguards – known as the Cancun Safeguards (see Box 5) 10. These requirements are that countries shall: 1) promote and support the safeguards throughout the implementation of REDD+ activities, regardless of the source or type of financing11; 2) establish a Safeguard Information System12; and 3) produce summaries of information showing how the safeguards are being addressed and respected13.
A Safeguards Roadmap was developed in 2017 under the auspices of Myanmar’s Technical Working Group on Stakeholder Engagement and Safeguards (TWG-SES) for REDD+, with the involvement and review by TWG members, other stakeholders and the Myanmar National UN-REDD Programme team. It provides information on the proposed goals and scope of Myanmar’s safeguards approach, an overview of UNFCCC safeguards requirements, and a description of completed or ongoing initiatives in Myanmar that are relevant to its safeguards roadmap. Building on a presentation of the conceptual framework for the development of country approaches to safeguards, it sets out the planned steps for developing a safeguards approach, including establishment of the SIS and producing the first summary of information, in Myanmar, as per the discussions
10 UNFCCC 11 UNFCCC Decision 1/CP. 16, paragraph 69; Decision 2/CP.17, paragraph 63; Decision 12/CP.17, paragraph 112 UNFCCC Decision 1/CP. 16, paragraph 71 (d) ; Decision 2/CP.17, paragraph 64; Decision 9/CP.19 paragraph 313 UNFCCC Decision 12/CP.17, paragraphs 3 and 4; Decision 9/CP.19, paragraph 4; Decision 12/CP.19, paragraphs 3-5
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Box 5: The Cancun Safeguards
UNFCCC Decision 1/CP.16, appendix I, paragraph 2 introduced a set of social and environmental safeguards for REDD+ that are generally referred to as the Cancun Safeguards. They cover the following topics:a. Policy coherence (national & international policies and commitments)b. Forest governance (transparency & effectiveness)c. Respect for knowledge & rights of indigenous peoples& local communitiesd. Full & effective participation of relevant stakeholderse. Conservation of natural forests, ecosystem services and biodiversity;achieving social & environmental benefitsf. Addressing risk of reversalsg. Reducing displacement of emissions.
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held under the TWG-SES. A work plan summarizing the planned activities, responsibilities and timelines is provided in the document, as is further background information on the process used to develop the Roadmap.
The initial list of goals to be achieved through Myanmar’s safeguards approach, as identified in the Roadmap, comprises the following points:
Meet the REDD+ safeguards requirements of the UNFCCC Support the social, economic and environmental dimensions of sustainable development, as
well as the sustainability of forest resources Support good governance and improved land and forest tenure Ensure that the application of the safeguards aligns with existing environmental and social laws,
including EIA and SEA procedures Facilitate compliance with the safeguards frameworks of possible development partners (e.g.
Green Climate Fund - GCF).
It was agreed that the safeguards approach should initiallybe applied toall REDD+ PAMs included in the National REDD+ Strategy. A widening of this scope to include further policies and measures involving payments for ecosystem services from forests will be considered at a later stage.The steps proposed and being undertaken for developing Myanmar’s approach to the REDD+ safeguards, under the guidance of the TWG-SES, can be summarized as follows:
1. Stakeholder engagement: this is being carried out during all stages of the work on safeguards and includes activities such as continuous updating of stakeholder mapping, training and capacity-building, and exchange of information on safeguards.
2. Assessing benefits and risks of potential policies and measures: this is a key step that serves a twofold purpose. On the one hand, it informs the selection and design of REDD+ PaMs in order to enhance benefits and avoid risks from REDD+. On the other hand, it helps to identify issues that deserve particular attention during the implementation of REDD+ in line with the safeguards, and when providing information (through the SIS) on how safeguards are addressed and respected.
3. Identifying, assessing and strengthening policies, laws and regulations (PLRs), their implementation and related institutional arrangements: this step identifies existing PLRs that support the implementation of REDD+ in line with the safeguards, as well as opportunities to improve their implementation and fill gaps in the PLR framework.
4. Carrying out a national clarification of the Cancun safeguards: drawing on both the assessment of benefits and risks (step 2) and the review of PLRs (step 3), a document will be produced that explains in clear language and using nationally appropriate terms what the Cancun safeguards mean in the specific context of REDD+ in Myanmar, and how they will be applied during REDD+ implementation.
5. Identifying, assessing and strengthening systems and sources of information relevant to the safeguards: this step builds on the national clarification to identify information needs for the Safeguards Information System, to develop a SIS design that draws on existing information sources and systems as far as possible, and to make the SIS operational. This involves the development of methods for collecting, validating and publishing information, and setting up relevant institutional arrangements.
6. Defining institutional and procedural arrangements for applying the safeguards to REDD+ implementation: responsibilities and processes will be established to ensure that the Cancun safeguards (as specified through the national clarification) are addressed and respected, and that relevant information is made available through the SIS.
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Further information on the process of developing an SIS is provided in Annex 5
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Section 5: Financing REDD+
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The Conference of the Parties to the UNFCCC decidedthat REDD+ should be implemented in three phases (Diagram 3). Phase 1, often called “readiness”, includes preparation of a National REDD+ Strategy (or Action Plan), and capacity building. Under Phase 2, implementation of the National Strategy begins, supported by additional capacity building, technology development and transfer and results-based demonstration activities, and leading to Phase 3, in which results are fully measured, reported and verified. In Phase 3, provided the other elements of the Warsaw Framework for REDD+ are in place, a country qualifies for results-based finance. The costs of Phases 1 and 2 are referred to as investment finance. This is represented diagrammatically below.
Diagram 3: Financing of REDD+ across the phases of REDD+
5.1 Ensuring Adequate Investment to Achieve REDD+
Financing for Phase 1 of REDD+ in Myanmar covering implementation of the REDD+ Readiness Roadmap, has already been fully secured. The majority of this finance (approximately USD 6 million), covering most of the six components of the Roadmap, has come from the UN-REDD Programme through “Targeted Support” and a UN-REDD National Programme. Additional financing for specific elements of the Roadmap has come from the Union budget, as well as Overseas Development Assistance (ODA) from a range of development partners.
It is generally recognized that the volume of investment financing required for Phase 2 of REDD+ is many times larger than the volume required for Phase 1. For example, the budget of the National Reforestation and Rehabilitation Programme is 589.2 billion Kyat, equivalent to USD 463.9 million 14. Of this, 65% (USD 303.8 million) will come from the Union Government budget, with the remainder being sought from international sources.
This Programme covers only the enhancement component of the National REDD+ Strategy. The costs of the other parts of the Strategy (addressing deforestation, degradation, and barriers to conservation) will be calculated during 2018. Sources of finance will certainly include the Union budget, the private sector (especially for the diversification of energy supplies action package), and ODA. The Green Climate Fund is a potential source of investment finance, together with other development partners. During 2018, a detailed investment plan will be prepared, covering the expected costs of implementation of the
14Exchange rate 1,270 Kyat = 1 USD
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Phase 1: (Readiness; including development of NS/AP, NFMS, SIS, PAMs, etc.)
Phase 2: Initial REDD+ Implementation
Phase 3: Reported and verified results
Investment funding Results-based finance
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strategy, together with identification of potential sources of finance. This “REDD+ Investment Plan” will serve as an addendum to the National REDD+ Strategy.
5.2 Management of Results Based Payments
Once Myanmar qualifies for results-based payments, there will need to be a mechanism in place to receive and manage those payments. The UNFCCC provides no guidance on this matter. However, the Green Climate Fund, one potential source of results-based payments, does provide guidance. It states that countries receiving results-based payments from the Green Climate fund:
“must reinvest the proceeds in activities in line with their current or next Nationally Determined Contributions (NDCs) as established under the UNFCCC Paris Agreement, their REDD-plus strategies, or low-carbon development plans … Countries must provide a description of the anticipated use of proceeds, including the main activities to be conducted, the agencies or relevant stakeholders involved, the timeframe for implementation15”
Furthermore, countries need to describe “how the plan for the use of proceeds will facilitate management of financial, technical and operational, social and environmental, and other risks”, and may also include a description of a benefit sharing mechanism16.
An Environmental Management Fund (EMF) was established in Myanmar under the Environmental Conservation Law of 2012. The fund is not yet operational, however, and is still under design. The details of its design will determine whether the EMF will be suitable for management of results-based payments, or whether alternative arrangements will need to be made. An assessment of the suitability of the EMF for management of REDD+ results-based payments will be made in early 2018, and the resulting recommendations will be added as an addendum to the National REDD+ Strategy.
15 Paragraph 13 of Annex 1 of GCF Board Decision xxx16 Paragraph 25 of Annex 1 of GCF Board Decision xxx
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Section 6: Communicating REDD+ and learning from experience
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6.1REDD+ Communications and Knowledge Management
A REDD+ Communications and Knowledge Management strategy was developed in 2016with support from the UN-REDD Programme. It is designed to:
Ensure that knowledge generated during REDD+ readiness activities and subsequent REDD+ implementation is shared effectively among all partners and informs decisions on REDD+;
Ensure that communication of information and knowledge about REDD+ enhances stakeholder participation and promotes collaboration and cooperation among partners; and
Promote broad support for REDD+ in Myanmar, including through engagement of public media.
The design of the REDD+ Communications and Knowledge Management Strategy was based on the following principles:
It will respond to and reflect progress on REDD+ in Myanmar; It will design and deliver products aligned to the needs and capacities of all stakeholder groups,
taking account of gender and ethnicity; It will reflect the commitment of the Government of Myanmar to reducing emissions from
deforestation and forest degradation, while respecting the rights of all stakeholders, and environmental sustainability;
It supports and promotes the REDD+ concept as defined through the UNFCCC process; Communications on REDD+ will reflect the gaps in understanding among stakeholder groups;
and It will seek to ensure that messages disseminated through different partners are consistent, and
aligned with both UNFCCC decisions and GoM policies.
6.1.1 Steps in implementing the Strategy
Given the objectives and principles stated above, the priority for the Knowledge Management component of the Strategy is to establish a system to ensure that all knowledge generated through all REDD+ activities is accessible to all, and utilized to ensure the design of a state-of-the-art national REDD+ programme.
The priority for the Communications component of the Strategy is to produce and disseminate information relevant to each stakeholder group to enable them to play an effective and relevant role in the design and subsequent implementation of a national REDD+ programme, including the preparation of all elements of the WFR.
The priority for the Media Relations component of the Strategy is to contribute to broad-based support for REDD+ in Myanmar by ensuring that all media have access to accurate and balanced information about REDD+.
In order to deliver on this priority, all publications, newsletters, statements and announcements will continue to be sent to media outlets via the contact manager database. Where possible, training and meetings should be organized to give brief updates to members of the media on the programme.
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Section 7: The Way Forward
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In line with UNFCCC to adopt a step-wise approach, implementation of the National REDD+ Strategy will follow the steps outlined below. These steps are not rigidly sequential – one step may commence before the previous step has been fully completed. Also in line with the adaptive management principle underlying the strategy, the specifics of each step, and especially the timing, is subject to revision in light of lessons learned as implementation progresses.
7.1 Step 1: Investment Planning and Preparation for testing of PAMs – 2017-2019The PAMs outlined in Section 3 require further elaboration, including costing and the identification of potential sources of investment finance,and integration with other elements of the strategy, such as safeguards and monitoring frameworks. This includes costing capital/operational running costs of addressing/respecting safeguards, the SIS and NFMS, and producing Summaries of Information. This process commenced in late 2017 and will continue through 2018, leading to the preparation of a “REDD+ Investment Plan” by late 2019.
Some PAMs are either low-cost, or already financed. For example, “operationalizing regulations under the new Forest and Wildlife/PA laws” is a PAM for which the costs are largely restricted to salaries, travel and consultation, which are either already financed or can easily be so. PAMs related to enhancement are already financed through the NRPM, or by development partners, while some related to diversifying energy sources are being financed by the private sector. Implementation of such PAMs can commence, but it is important to ensure that for the drivers they are intended to address, sufficient PAMs are implemented to have an impact. Because of the inter-relationships among indirect drivers, attempting to address one without addressing others is unlikely to be effective and would consequently result in a waste of resources. In some cases, it may be necessary to initiate implementation in selected areas that do not represent the full geographic extent of the drivers.
7.2 Step 2: Early Implementation 2018-2022
As additional investment finance is mobilized, additional PAMs can be implemented, at least in some areas. The target is to have initiated implementation of all PAMs by 2020. For those combinations of PAMs that have been implemented in a given area for an adequate length of time, their efficacy will be assessed so as to allow adjustment and, if necessary, re-design or identification of additional PAMs.
In parallel with implementation of PAMs, capacities will continue to be developed. Capacities requiring further development include:
Capacities to run the Safeguard Information System and NFMS, and to ensure that safeguards are addressed and respected;
Capacity to prepare and submit a Summary of Information (target for first submission: 2021); Capacity to measure degradation; Capacity to manage results-based payments, based on recommendations produced in 2018; Strengthening of the operations of the National REDD+ Taskforce, REDD+ Office and Technical
Working Groups will be reviewed and adjusted, as needed;
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Individual capacities will be developed as required, mainly through PAMs identified for this purpose.
7.3 Step 3: Submission of updated FRL and review of achievements - 2020
By 2020, two major milestones are expected to have been achieved. Firstly, the capacity to measure degradation will have been developed, and this will lead to the preparation and submission of a revised FRL, incorporating degradation and updating information on other activities (targeting the 2021 Technical Assessment cycle of the UNFCCC). Secondly, it is anticipated that sufficient investment finance will have been mobilized to allow implementation of all PAMs to begin at a national level.
Information on the efficacy and results of those PAMs that have been under implementation for some time will allow an assessment of achievements to date. Depending on the results of that assessment, a revision of the National REDD+ Strategy may be indicated.
7.4 Step 4: Scaling up of PAMs – 2020 onwards
Full implementation of PAMs at a national level is expected from 2020. With the Safeguards Information System under operation, a mechanism for managing results-based payments in place, and some PAMs having been implemented at least in some areas for several years and nationally from 2020, it is anticipated that a submission to the UNFCCC of results obtained may be possible by 2022. Assuming that the results are positive (and substantial), mobilization of results-based payments can be expected soon afterwards, with the payments being re-invested, at least in part, in continuing implementation of those PAMs shown to be most effective and/or of re-designed PAMs.
By 2022, if not already indicated through the review of achievements under Step 3, a revision of the National REDD+ Strategy will certainly be required to reflect changing circumstances.
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Annexes
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Annex 1: Detailed information on direct drivers – geographical distribution and temporal trends (red = increasing severity; orange = stable)
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Annex 2: Stakeholder Engagement Guidelines (Section IV)
IV. National Stakeholder Engagement GuidelinesThis section provides guidance to REDD+ practitioners on how to actually conduct stakeholder engagement, with a special emphasis on assisting Myanmar to complete the REDD+ readiness phase. At the same time, this section will also be able to support the subsequent phases of implementation and results-based actions.
Users will undoubtedly need to design and implement stakeholder engagement efforts to suit the unique circumstances presented by each set of stakeholders and the purpose of engaging with them. These Guidelines are not intended to be an absolute standard that cannot be deviated from. It will therefore be presented in generic form, and encourage the exercise of flexibility and local wisdom by those entrusted with the engagement process.
In many countries, some stakeholder engagement activities - such as workshops - have become so commonplace that “workshop fatigue” has set in, and stakeholders have become wary – and weary - of investing time and effort in engaging. Poor quality engagement also has the effect of frustrating stakeholders, and can lead to accusations that such efforts are either exercises in pacification/distraction, or designed for political “photo opportunity” effect. Full and effective stakeholder engagement, on the other hand, invites optimism and deeper participation.
1. Types of stakeholder engagement processesEvery engagement process is unique. The stakeholders, relationships among them, their interests and influence, and the challenges and opportunities will differ from process to process. The design and conduct of the process will therefore also differ, depending on these differences (whether real or perceived). The ability to design and implement a truly effective engagement process calls for a capacity that is sometimes referred to as “process wisdom.”17
There are thus several types of stakeholder engagement processes. In general, an engagement can vary between “more participation” and “less participation,” as per Figure 2. At the higher end of the scale is active engagement – “empowerment” and “joint decision-making,” for example. The lower end of the scale is characterized by passive engagement such as “information sharing” and “consultation.” Occupying the middle ground is “collaboration,” where joint activities occur without shared control. More detailed descriptions for each type of engagement can be viewed at Annex B.
17 Concept developed by Chris Spies of South Africa, peacebuilding practitioner and former UN Peace & Development Advisor
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Figure 1: Introduction to Stakeholder Engagement, REDD+ Academy Journal 11, 2015.
Engagement can therefore be active or passive, and can give more authority to those engaged, or less. The choice of engagement type depends on what results are expected from the engagement. If, for example, stakeholders are not very well informed about climate change, the type of engagement used to address this lack of information will be very different from an engagement designed to generate joint decision-making on REDD+ result-based actions. The former will be shorter, and probably include a larger number of stakeholders. The latter will be longer, may even use elements of the former, and likely will include a smaller number of stakeholders.2. Practical Guidance for Effective Stakeholder EngagementThe following sections identify eight steps typically associated with stakeholder engagement, and provide practical guidance for effective engagement for each step. These steps build on each other while being inter-related. They follow an approximate chronological path that can be summarized as in Figure 3 below:
Figure 2: Designing and Implementing a Stakeholder Engagement Process
While these 8 steps provide a working framework for designing and implementing stakeholder engagement, the reality of engagement is that flexibility in response to actual situations is needed. Such flexibility may require steps to be repeated (e.g. if
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knowledge levels are too low) or redesigned (e.g. if mistrust levels are too high). Some engagement may conclude after step #8 (such as may apply for a local consultation, for example), while more complex engagement will require some steps to be repeated. An engagement to design a national REDD+ strategy, for example, will require multiple events, ongoing process evaluation and the treatment of dissent and grievances.
Stakeholder engagement processes can therefore also be conceptualized as policy processes where parallel sub-processes are simultaneously occurring and developing in iterative and incremental ways rather than in a simple linear progression.
Step 1: Identify Purpose & Type of EngagementThe first step in every engagement is to identify the goals, outcomes, objectives and other desired results the engagement is expected to produce. A non-exclusive listing of possible purposes of an engagement within Myanmar’s readiness phase is listed at Annex C. Once these results are clarified, it will become more obvious what type of engagement process is required, to permit the engagement design process to begin.
Guidance for implementing step 11. Articulate results: Be as precise as possible about the results expected
from the engagement, as per the samples in the following box. Ideally, indicate the ways in which this result can be objectively verified as having been accomplished.
2. Identify engagement type(s): Recalling Figure 2 above, situate the engagement at the appropriate level of participation, thus identifying the type(s) of engagement required for the desired results to be achieved. Be aware that higher levels of engagement may require prior investments at other levels.
3. Outline an engagement concept: If possible at this stage, identify the preliminary details associated with the engagement process, including duration, milestones, resources and so on. For more complex processes, begin identifying the sequencing of steps, inclusive of investments in preparatory engagement. Identify how the engagement contributes to REDD+ readiness and, as applicable, indicate other steps and processes that will reinforce or synergize with the engagement being planned. Consider putting these preliminary details into a
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Illustrative Engagement Results Based on Engagement Type
Type of Engagement
Sample Engagement Results
Empowerment Implement specific REDD+ actions on the ground
Joint Decision-Making
Prioritize scope and scale of REDD+ actions
CollaborationDevelop and design options for strategies and actions to tackle the drivers
Consultation Identify the drivers of deforestation
Information Sharing
Raise awareness on the main causes of deforestation and forest degradation
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brief concept note to capture and communicate the rationale for the engagement.
Step 2:Identify StructuresEvery engagement process requires a structure to operationalize the engagement. Myanmar’s REDD+ Taskforce plays a leadership role within any mechanism, which may include TWGs and others to whom some engagement responsibilities may be delegated. The eventual structure is not only a mechanism to implement administrative tasks, such as logistics and sending out letters, but also a potential vehicle for assuring higher levels of stakeholder inclusion in the design and implementation of the engagement.
Guidance for implementing step 21. Explore mechanisms for stakeholders to support the REDD+ Taskforce:
Dependingon the desired results of the engagement, it may be helpful to involve stakeholders directly in the design and implementation of the engagement. There are different ways of designing these mechanisms (see Tips box to right). In general, the TORs for these structures allows stakeholders to co-create the engagement process with the lead agency, by: Reaching consensus on the purpose of the process, to
guide work on the design, preparation, facilitation and follow-up phases of the process
Keeping decision-makers and other constituencies informed at all stages of the engagement process.
Advising on and creating the necessary conditions for trust in the process, including approving communication and media policies.
Clarifying the rights and duties of stakeholders (see sample items at Annex D)
Overseeing the entire process.2. Beware of overly burdensome structures: While
inclusion is to be desired, too many participants in oversight structures can reduce efficiencies and effectiveness. In determining the balance that leads to optimum participation in operational structures, firstly consider whether stakeholders wish to participate in these more demanding roles. Additionally, consider identifying the stakeholders that would add the highest value to the structure.
3. Involve resource persons: Consider including technical resource persons, including event facilitators, technical experts, and rapporteurs, for example, in the planning work of the lead agency and/or the oversight committee. These persons will already participate in the implementation of the engagement so it is ideal if they have the opportunity to also participate in the planning. This will help ensure a seamless transition from planning to implementation. These resource persons may also bring critical skills and prior experiences that help improve the engagement processes.
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Tips, Tools and Resources
:Engagement Mechanisms
Oversight Committees are prominent spaces where key stakeholders have a direct role in approving the design and implementation details of the engagement.
Advisory Committees are less formal spaces for generating ideas, managing dilemmas and generally advising on the engagement plans.
Working Groups are technical spaces that permit specialized interests and capacities to inform the design and implementation of stakeholder
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Step 3: Plan The Engagement ProcessThe persons within the structures identified in the previous step must now plan the details of the engagement process, inclusive of discrete events. Preparing for an event typically consumes a lot of time and attention, even though it is only a moment within the longer engagement process. This planning function, which is the responsibility of the REDD+ Taskforce or its operational support office and any stakeholder participation mechanisms identified, includes all the work that is necessary to implement other steps (such as preparing stakeholders) and is an ongoing process. As a central function within a stakeholder engagement process, this planning step typically serves as the fulcrum around which other steps are performed.
Guidance for implementing step 31. Develop an Engagement Plan: Using the outputs from the previous steps,
develop the plan for the entire engagement process, which details what needs to be done, by whom and when. Describing the content of your plans through an engagement plan, or other equivalent tool, helps generate a shared understanding among stakeholders of the engagement process. A plan also better ensures accountability and provides a basis for budgeting.
A wisely developed plan is central to the engagement process as it articulates the operational details for implementation, including: A context analysis: The foundation of an
engagement plan is an understanding of the context within which the engagement will take place. Even if unwritten, aim to understand local dynamics, potential risks, opportunities and other characteristics of the context that could help or threaten the engagement process. Key in this process is also to identify potential power relations between stakeholders as well as possible barriers to participation (literacy, socio-economic and political constraints, etc.) that might be at play and could also jeopardize the meaningful participation of stakeholders. Doing so can help inform the engagement process and how it can be successfully designed and implemented to achieve its goals.
The type of events: Different events serve different purposes, with each having its own features. The choice of events within stakeholder engagement processes includes meetings, consultations, symposia, workshops, and conferences. Users are encouraged to consider what type of event is most appropriate given the specifics of the engagement’s purpose, the stakeholders, including their existing capacities, available resources, etc.
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Tips, Tools and Resources:
Engagement Plans
Learning from local success: Groups in Myanmar have used community exchanges to share lessons and successes across regions.
Event Types: Workshops, trainings, retreats and dialogues are all possible types of engagement events. The different types of events, their typical purposes and general features, is available at Annex E.
Communications: Proactive communication with stakeholders, including the media, help build trust and prepare
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When organizing any event, it is important to explain clearly to stakeholders the nature, purpose and outcome of the event, particularly if their input will be used, and for any results to be clearly communicated back to them.
A workplan: A workplan with an associated timeline gives operational backbone to an engagement plan. It indicates the duration of the engagement process and key milestones, such as events. Creating a sense of key milestones and target dates adds to the accountability of the process, and provides specificity to the engagement process and its events.
Key strategies: Identify those overarching strategies that will add particular value to the engagement process. These strategies might include:
o A partnership strategy, which seeks to leverage the strengths of others in order to achieve mutually held goals. Potential partners should be identified as early as possible in the stakeholder mapping process. A partnership across the REDD+ readiness and the EU FLEGT process is one example of possible synergies that might increase the efficiency and effectiveness of engagement processes and events.
o An engagement communication strategy, which should explicitly articulate the what/how/when/who of the engagement communications opportunities that will enhance the intended results of the engagement. A generic outline of an engagement communication strategy, with sample performance metrics, is available at Annex F.
o A conflict prevention strategy, which seeks to maximize the linkages between peace and development through REDD+ activities. Such a strategy may aim to reduce conflicts generated by REDD+ activities or leverage REDD+ activities to address the deeper causes of conflicts, or both. An important contributor to an effective conflict prevention strategy is the context analysis described above, particularly as relates to the identification of the root causes and potential triggers of conflicts. Elements of effective conflict prevention strategies may include: Involving peacebuilding practitioners in the design and
implementation of the engagement Conducting an actor analysis to identify opinion and other leaders
likely to oppose REDD+ activities, as well as potential champions for these activities
Developing a plan to engage leaders, to strengthen champions while mitigating opposition
Developing a conflict risk matrix to ensure that REDD+ activities are conflict sensitive and, at a minimum, do not exacerbate existing tensions further to the UN principle of “do no harm.”18
Terms of references: It often proves useful to hire or otherwise engage experts, whether technical experts, facilitators, or others, to assist the process at various points. These professional outsiders can significantly improve the quality of engagement, while increasing stakeholder confidence and participation. To guide their participation, even short terms of reference should be developed.
A budget: Without being overly rigid, a budget is a practical way of estimating the financial resources needed to bring a certain amount of stakeholders together in particular ways to produce specific outputs. A
18Civil Affairs Handbook , UN-DPKO, NY, USA, 2012.
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budget is a practical element of, and complement to, a concept note. When budgeting, be sure to cater for:
o The hiring of experts, facilitators etc.o The rental of the venue o Transportation costso Allowanceso Contingencieso Office supplies, inclusive of copying costso Social activities (such as a cocktail reception or a field trip)
An Evaluation Framework: Consider developing a simple framework that describes how an objective assessment of the engagement would be done. This detail is an important tool for gauging success and can include:
o Event evaluation formso Attendance levelso Stakeholder diversity
For larger, more complex stakeholder engagement processes, users may wish to consider developing results-based logical frameworks, which include indicators and targets. These overarching types of evaluations may apply well to the REDD+ readiness phase. An illustrative results-based framework for Myanmar’s readiness phase, and how these might be measured, is available at Annex G.
2. Develop Concept Notes for Events: It is good practice to develop concept ormethodological notes for each event. Such notes typically include the rationale for the event, the purpose and intended outcome of the event, a schedule of events, a method for identifying participants, and any follow up actions that may be needed after the event (e.g., communication of results etc.). These notes are expected to reflect the strategic considerations identified earlier in the Engagement Plan (such as may relate to partnerships and conflict prevention, for example).
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Tips, Tools and Resources:
Concept Notes
Concept Notes: In Myanmar, groups have identified tangible ends and means (e.g. livelihoods, training) around which to build engagement event concepts. A sample annotated agenda from
Sample Partnership Strategy: METTA (Loving Kindness Development Foundation, Myanmar)
METTA has been involved in community foresting since 2004, and has adopted a strategy of working in partnership with the main stakeholders. This strategy, applied in 5 states and 4 divisions, includes a focus on communities and processes of engagement.
Key elements of the METTA partnership strategy are a) the involvement of local authorities and other government agencies, as appropriate, b) the use of local project committees, to structure participation, c) stakeholder identification and context analysis, upon which to base actions and to ensure the participation of key stakeholders, d) assuring the needs of partners are met, and supporting the building of their capacities, and e) an annual review of engagement processes.
Among the key results achieved by METTA’s approach to partnerships are improved levels of trust by stakeholders in the engagement, increased levels of partner participation, and
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Concept notes often contain an annotated or detailed agenda. Such agendas capture the flow of the events with descriptions of how each agenda item will be implemented, who is responsible for what, the materials and equipment needed, and so on.
3. Remember the Global Development Principles: In developing and implementing the engagement plan, keep in mind the global development principles discussed earlier (section III.6). Particularly important principles to reflect in the Engagement Plan are ownership, transparency, accountability, inclusion, and gender equality.
Step 4: Identify StakeholdersBased on the purpose and type of the engagement, stakeholders must now be identified. The process of identifying stakeholders is often referred to as “stakeholder mapping.” An example of a rapid stakeholder mapping, as was done in preparation for Myanmar’s REDD+ Readiness Roadmap, may be viewed in Annex I.
Guidance for implementing step 41. Be comprehensive and inclusive: Aim initially to be as comprehensive and
inclusiveas possible. The stakeholder map can always be fine-tuned during the process, to extract those that are less interested or influential and to add those who were missed.
2. Categorize stakeholders: Identify a tool for categorizing stakeholders, using criteria important for the success of the engagement (e.g. women, ethnic nationalities, community leaders). An interests/influence matrix, identified in the Readiness Roadmap, is one possible tool to use. One advantage of categorizing stakeholders is that it can help identify missing segments of the stakeholder population, particularly those often more marginalized and left out of such processes, such as ethnic nationalities, women, youth, disabled, elderly, etc. This approach also helps to identify key stakeholders with the power to make, or break, an engagement process.
3. Pay attention to disadvantaged groups: Take particular care to include disadvantaged groups (e.g. ethnic nationalities, women, youth) and to securing the participation of the private sector. Where practical barriers (such as limited physical access or transportation/communication difficulties) exist, consider identifying representative stakeholders who have the confidence of those important others who are unable to participate. If enlisting representatives, it is important to support the principle of self-selection and ensure authenticity of representatives.
4. Beware of over-representation: At the same time as one is creating a stakeholder map that is comprehensive and inclusive, avoid overloading the map with urban, elite, male, government, elderly, academic and other
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Tips, Tools and Resources
To help categorize stakeholders: Stakeholders have different levels of interest and influence. It is important to identify who has influence and to increase their interest in engaging. A tool for categorizing stakeholder interest and influence is at Annex J.
To include hard-to-reach groups: Consider proxy stakeholders in lieu of others who are unable to participate.
To balance representation: In Myanmar, older males often dominate stakeholder engagements, while civil society and women may be under-represented.
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such stakeholders. These stakeholders typically are over-represented in stakeholder engagement efforts and can exercise a disproportionate influence on engagement outcomes.
5. Ensure legitimacy of representatives: Since not all stakeholders can be accommodated in every engagement, representatives are usually preferred as participants. However, for the engagement to succeed, representatives must enjoy the confidence of those whom they seek to represent. Too often in engagement processes, representatives are not elected, have not received a mandate to participate, or do not communicate effectively with those whom are being represented. When care is not taken, the phenomena of elite capture19 – where a few persons use their power to usurp a process to their own advantage - can destroy an engagement.
6. Consult with partners: Wherever possible, build your stakeholder map with the help of others who may already know relevant regional and sectoral stakeholders, and thematic groups.
7. Identify champions: Identify stakeholders who are already championing the desired results of the engagement, and consider developing special partnerships with them. Champions can bring energy and integrity to an engagement process. However, be sure other stakeholders view the champions positively.
8. Recognize inter-group histories: When it comes to inter-stakeholder relations, it is useful to research and map the quality of those relations and the extent to which the stakeholders are able to work together. Typically, stakeholders have histories between themselves of cooperation vs. competition, trust vs. mistrust, and familiarity vs. unfamiliarity.
9. Secure stakeholder commitment to engage: If time permits, consider connecting with each stakeholder individually (whether in person, in writing or otherwise) to confirm interest in being involved. In this process, it is advisable that enough information be communicated to stakeholders, and within a format that is comprehensible and accessible to them, so that they can make an educated and informed decision on their involvement. At a minimum, do engage all key stakeholders directly to help secure their active participation. Additionally, consider whether stakeholders need to be mandated by their organization to take decisions and/or help with the implementation of work flowing from the engagement process.
Step 5: Prepare StakeholdersSome stakeholders are particularly disadvantaged when it comes to engagement. There can be several reasons for this, including a lack of familiarity with such processes, a lack of technical capacity, and a lack of interest or disrespect/hostility from other stakeholders. Ethnic nationalities, women, forest dependent communities and the youth in Myanmar need special attention to overcome disadvantages.
There are thus many opportunities and needs for stakeholder preparation. Well-prepared stakeholders lead to increased participation and the improved likelihood of engagement success. Unfortunately, many engagement processes pay little
19Elite Capture and Corruption: Concept and Definitions , National Council of Applied Economic Research, India, 2009.
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attention to stakeholder preparation, resulting in the reduced success of engagement efforts.
Guidance for implementing step 51. Assess Capacities: Here, users are encouraged to conduct a rapid scan to
identify capacity deficits of stakeholders (government, private sector and communities/ethnic nationalities/CSOs/NGOs) that would hinder effective participation. These may range from a lack of knowledge about the REDD+ process to weak administrative capacity of stakeholders and their groups. Capacity deficits may also include stakeholder mistrust of the engagement process and its lead agencies/actors. Users may wish to prioritise key capacity gaps identified, in order to maximize value for resources to be invested (particularly of time, personnel and money).
2. Build capacity of stakeholders: Depending on the capacity gaps identified, put in place mechanisms to produce materials, promote rapprochement between groups (or to build trust in the lead agency, for example) and to communicate proactively, and effectively, with target stakeholders. The value of stakeholder inclusion in these mechanisms cannot be over-emphasized as a technique for learning-by-doing, even while sharpening the focus and implementation of capacity building-initiatives.
Some capacity deficits can only be addressed in the longer-term (e.g. organizational and leadership strengthening). In such cases, multi-year capacity building programmes are needed. Capacity building is not limited to providing information, but also includes building institutions and processes, for instance ethnic nationalities and CSO platforms that allow stakeholders to discuss and self-organize in order to engage effectively with stakeholder engagement events and processes. Capacity building has the added advantage of positively affecting other development initiatives, such as relate to the economy, health, and democratic participation. In these cases, consider adopting approaches that increase efficiencies and effectiveness, such as the training of trainers and partnerships with national capacity-building bodies as well as existing platforms and representative institutions.
3. Prioritise the needs of disadvantaged or otherwise under-represented groups: Whether relating to capacity-building, inclusion or communications, for example, the special status of key disadvantaged groups – particularly women and ethnic nationalities – justifies extra effort being made to satisfy their engagement preparation needs. Pay particular attention to the specific challenges that these groups face in terms of cultural and socio-economic barriers, levels of
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Tips, Tools and Resources: Building Stakeholder Capacity
Boosting stakeholder capacity ahead of an engagement adds considerable value to the process, particularly if there are histories of mistrust. Groups in Myanmar have used the following tools to good effect:
Use“circles of trust” to expand the range of stakeholders who trust someone already in the process (see Annex K)
Host multi-stakeholder preparatory meetings
Organizesocial events around important mutually valued celebrations (e.g. Earth Day)
Facilitate bilateral meetings to discuss specific incidents and experiences that might hinder effective working relations
Accept all invitations to discuss stakeholder concerns
Design joint capacity building sessions
Adopt training of trainers approaches that not only focus on building stakeholder capacity but
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literacy, remoteness/location, timing, limited funding, weak communications infrastructure, and language barriers.
4. Information and proactive communication: Stakeholders will be better prepared for meaningful engagement if they understand early what the engagement is all about, why they should participate, and how and when they can engage. Consider the use of multiple means of communicating with stakeholders, as a single mechanism (e.g., e-mail) is unlikely to work satisfactorily for everyone. Communicate clearly, simply and as early as possible.
Information is crucial in preparing stakeholders for engagement. Quality information and communication materials can help fill informational gaps. Since producing these materials often requires labour, time, specialized skills and funding, they should be included in the planning and budgeting steps.
In addition to the generic guidance above, there are stakeholder-specific routes that might lead to their improved preparation and increased participation. This is particularly valuable for disadvantaged groups such as women and ethnic nationalities. Stakeholders in Myanmar identified common obstacles and possible solutions to stakeholder participation as per the table at right.
Generic global advice is available to support the enhanced participation of women, indigenous peoples and the private sector, as per the following illustrations:
For Men and Women:20
Identify men and women’s barriers to participation, including cultural, social and economic barriers, as well as knowledge and capacity gaps around REDD+. Design meetings (e.g., time, location, group arrangement, child care arrangements) to encourage men and particularly women’s equitable involvement.
Mobilize gender expertise and create partnerships promote involvement of women’s and gender focused CSOs, groups, networks, etc., who can bring
20Guidance Note on Gender Sensitive REDD+, UN-REDD Programme, 2013.
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Local Ideas to Improve Participation
Key REDD+ stakeholdersmet on May 19, 2016 and identified the following common obstacles and potential solutions to the participation in engagement processes of women and youth, the private sector, sub-national government, ethnic nationalities and self-administered areas. More detail on this meeting is available at Annexes N & O.
Common Obstacles to Engagement Possible Solutions Low capacity for engagement (technical and
non-technical) Low levels of trust Limited enabling regulatory framework for
engagements How to organize for the participation of
stakeholders who are diverse (e.g. private sector)
Convincing stakeholders there is a benefit to engaging
Improve communications Strengthen relations among
stakeholders (trust-building, cease-fires etc.)
Use qualified facilitators Revise/strengthen existing regulatory
framework for engaging stakeholders (including customary rights, engagement policies etc.)
Education/awareness
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their expertise to support gender sensitive stakeholder engagement processes.
Monitor and report on gender mainstreaming through the collection of sex disaggregated data and use of gender indicators.
Establish targets to promote gender equality and women’s participation. (In line with the target endorsed by the UN Economic and Social Council, it is widely held that women, at a minimum, should at least make up 30% of any decision-making body, committee, consultation, workshop, etc.).21
For Indigenous Peoples/Ethnic Nationalities:22
Undertake necessary actions to build mutual trust and respect for the rights of indigenous peoples/ethnic nationalities
Provide long-term institutional support for their representatives and institutions
Harmonize and simplify guidelines for participation so as to enable indigenous peoples/ethnic nationalities to exert real influence in decision-making
Bridge the gap between information overloads and information deficits Document the role of indigenous peoples/ethnic nationalities in conserving
their forests through local wisdom, traditional knowledge and practices
For the Private Sector:23
Deepen partnerships between government and private sector as relates to the regulatory framework
Support the development and use of tools and systems to reduce deforestation
Make the distinction between multinational/large national companies and small-scale producers
Lobby and advocate for their buy-in
Step 6: Manage Public EventsAs mentioned earlier, there may be several events within an engagement process. Within an engagement process to promote national consensus on a national REDD+ strategy, for example, there may be a workshop to build the technical capacity of stakeholders, a national awareness raising engagement for ethnic nationalities, and several consensus-building meetings for select stakeholder representatives representing core constituencies (such as ethnic nationalities, women, private sector and MONREC).
The key tool for guiding the conduct of events is the concept or methodological note described in step 3 (“Plan the Engagement Process”). Within the concept note, the annotated agenda guides the actual flow within the event. This agenda will present a format that addresses the specifics of the engagement purpose and stakeholder needs, such as the use of small discussion groups to facilitate the more active participation of women and youth. 21 Beijing Declaration and Platform for Action, Fourth World Conference on Women, United Nations (1995), available at http://www.un.org/womenwatch/daw/beijing/pdf/BDPfA%20E.pdf22Practical Approaches to Ensuring the Full and Effective Participation of Indigenous Peoples in REDD+ , BMZ, GIZ, FCPF & UN-REDD Programme, 2014.23Working with the Private Sector on REDD+ , European Forest Institute, 2014
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Guidance for implementing step 61. Secure Expertise: In accordance with the concept note for the event, the
recruitment of external assistance, such as technical experts, resource persons, facilitators and rapporteurs, may be needed. In addition to technical skills, assess the extent to which these external persons are sensitive to the dynamics of stakeholder engagement processes as well as the likelihood that they will increase stakeholder confidence in the process. For more complex events, such as where levels of trust are low or where decisions need to be made, an external and expert facilitator can add considerable value.
2. Use Event Planning Tools: Event planning tools, such as checklists, cater to the logistical and administrative needs of events and often assign specific roles and responsibilities to individuals under the supervision of an events coordinator. These arrangements better assure that all steps required for the successful implementation of an event, from the distribution of invitations to transportation arrangements, are in place to support the participation of stakeholders. Event planning is often handled by dedicated staff or persons hired to perform this function.
3. Involve the media: As appropriate and within the parameters established by the communication strategy, Orient the media on the event
beforehand, including on the desired results of both the event and the larger engagement process
Invite the media to attend key moments in the event
Prepare and issue a press release Organize, with their permission and
full understanding, for key stakeholders/organizers to be interviewed
4. Location, Timing and Language: Issues relating to location and timing can have a significant bearing on the level of stakeholder participation in engagement events. To mitigate challenges relating to location and timing, consider the following approaches: Involve key stakeholders in
deciding on questions of location and timing
Prioritize the preferences and addressparticipation constraints of traditionally under-represented and
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Tips, Tools and Resources
Facilitation: Facilitators that are independent, sensitive to conflict and experienced have aided stakeholder engagement considerably, including in Myanmar - where facilitators have helped improve stakeholder participation and increase the success of engagement. Facilitators can assist in designing processes as well as in implementing events.
Further information on the role, skills and functions of facilitators may be found at: http://www.recoftc.org/training-
manuals-and-guides/art-building-facilitation-capacities
http://www.fao.org/docrep/008/ a0032e/a0032e00.htm
Trust-Building: In Myanmar, groups have used a variety of techniques to increase levels of trust in activities, including: Asking trusted local organizations, such
as religious groups, to play a lead role in events
Using independent facilitators and trusted experts
Apologizing for any mistakes made in the process
Not discouraging expression of tensions and being empathetic by, for example, rephrasing concerns expressed to signal understanding
Increasing participation: Local groups in Myanmar have successfully used such techniques as: Involving strong women leaders to
encourage other women Allowing alternative options, so long as
those who support it agree to implement it
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marginalized groups, such as women, youth, ethnic nationalities, etc., where applicable
Be aware of competing events and activities, such as national holidays, religious festivals and important political or policy events.
Communicate proactively to stakeholders on the options and considerations Ensure sensitivity to language needs, particularly with participants from
ethnic nationalities. Provide translation facilities where needed, and account for these needs in agenda planning/time planning of sessions.
Provide options to those still unable to participate, such as:o “You can send an alternate.”o “We will send you the report, and promptly.”o “Please join the meeting debrief/evaluation.”o “Can we brief you on the outcome, and help you replicate the event
with your constituency?”5. Proactively Manage Dissent: Everything that precedes engagement events,
from mapping to capacity building, from inclusion to transparency, is geared towards mitigating dissent. The reality of stakeholder engagement, however, is that not everyone will agree with everything all the time. While stakeholder engagement should be designed to increase stakeholder comfort, even consensus, there is no guarantee this will occur every time since the nature of stakeholder engagement is more socio-political.
To proactively manage stakeholder dissent and disagreement in stakeholder engagement processes, consider the following options:
Utilize facilitators with more expertise in the field of conflict transformation, who are also familiar with techniques for transforming conflict into win-win solutions
Establish generic ground rules (or a code of conduct) at the start of the process, such as illustrated in the sample box above. Related to this is the establishment of specific rights and obligations that will help the engagement to achieve its objectives (see samples at Annex D). Ideally, these items will be consensually agreed to by stakeholders and not unilaterally imposed by event organizers or facilitators
Identify dissent early through “process groups” (volunteer participants) who agree to assess the event as it unfolds and help identify needed changes
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Sample Ground Rules to Promote Consensus
1. We will respect each other.2. We agree to not interrupt each
other.3. We agree to call each other by our
first names.4. We agree to not blame, attack, or
engage in insults and will ask questions of each other for the purposes of gaining clarity and understanding.
5. We recognize that each of us is entitled to our own perspective and opinions.
6. We will not dwell on things that did not work in the past, but instead will focus on the future we would like to create.
7. We agree to refrain from unproductive arguing, venting, or narration.
8. Where appropriate, we will generate and encourage options.
9. We will speak up if something is not working for us in the engagement process.
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To control the floor, and in addition to groundrules, consider using “talking tokens” or other techniques to establish order when it comes to taking the floor
Take time-outs if warranted, perhaps via an early tea break, to facilitate off-camera resolutions
Use the “parking lot” technique (per the adjacent box) to recognize issues that either are not on the agenda or which cannot be resolved during the event
If it is likely that there may be conflict at an event (due to poor prior relationships between participating stakeholders, for example), consider holding a preparatory event before the planned event to help mitigate the conflict causes.
6. Monitor and Evaluate: There are numerous opportunities to monitor and evaluate the quality of an event. Consider the following approaches: Check the turnout level among different stakeholder groups as an initial
indicator of stakeholder participation “Process groups,” as per the earlier mention above, can help monitor in real
time how participants are experiencing an event Assess the extent to which participants are actually participating through, for
example, the extent they are taking or making external phone calls or the degree to which disadvantaged groups, such as women, youth, ethnic nationalities, etc., are contributing to discussions and speaking during events
For capacity-building events, use before-and-after questionnaires to assess the extent to which capacities have increased
Administer end-of-event evaluation questionnaires to check levels of stakeholder satisfaction with the process and its outputs/outcomes
Review the event against the results-based framework agreed within the Engagement Plan
Collect sex disaggregated data on event invitees and participants, as well as among those who actively participant and raise their voice in events, in comparison to those who do not
7. Capture Outputs: A key challenge in the actual implementation of an event is the timely capturing of notes, especially as relates to key points arising, conclusions, agreements and next steps. If a rapporteur is available, be sure to determine report formats and delivery deadlines for reports. As a general rule, participants appreciate the speedy production and delivery of outputs. Let them know when they can expect to receive written outputs, and endeavour not to disappoint.
Step 7: Communicate ResultsGood stakeholder engagement includes clear, prompt and meaningful communications with stakeholders. To do otherwise is to invite cynicism, mistrust, and disappointment, thus compromising stakeholder participation in future engagement. Within the parameters already established by the communication
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The Parking LotEvery engagement has a purpose. Sometimes, however, issues arise that are beyond the established purpose of the process.
The Parking Lot is a publicly visible place (perhaps a flipchart sheet on a wall) where issues are captured for future attention, such as inclusion in the meeting report or transmission to appropriate authorities.
The Parking Lot acknowledges the needs of stakeholders without exceeding or distracting the
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strategy within the Engagement Plan (step 3 above), the following items may be considered for implementation. Language and literacy needs are important to consider when communicating results.
Guidance for implementing step 71. Share Outputs: Consider promptly circulating the following:
Drafts or final versions of reports Agreed “next steps” Evaluation results on events and the process more generally
2. Circulate media reports: Positive media attention can improve stakeholder enthusiasm, and enhance participation. Consider sharing with stakeholders: Upcoming items on TV/radio (interviews, panel discussions etc.) Newspaper clippings and links to online engagement mentions
3. Keep Stakeholders Engaged: It is unfortunate that many engagement processes experience a loss of momentum once key events, such as a national consultation, are held. Keeping stakeholders engaged may be achieved by: Providing updates on the implementation of agreed engagement next steps Inviting further participation as other engagement opportunities develop. Developing and sharing newsletters and other communication material that
update on REDD+ at large
Step 8: Assess ProcessThose responsible for implementing an engagement should be sure to review for successes and challenges. Documenting the experience is an important contributor to improvements the next time around. Given that REDD+ in Myanmar is still in the initial (readiness) phase, such an investment in evaluation could yield significant benefits over the longer-term.
Guidance for implementing step 81. Capture Event Evaluations: Particularly if a series of the same type of event
is held, compile and aggregate the evaluations from those events.2. Evaluate against results-based framework
(RBF): The RBF will contain objective indicators for the process and its specific results, and ways of measuring these. The Lead Agency is responsible for ensuring that evaluation findings are collected, analyzed and reported on. A sample RBF-friendly evaluation questionnaire may be viewed at Annex L. In addition, consider: Ensuring that evaluation findings are
disaggregated by important criteria (e.g. age, gender, ethnicity)
Comparing findings with those from other REDD+ programme countries
Sharing findings with others within the global/regional REDD+ structure
Sharing findings with stakeholders (even in summary form)
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Tips, Tools and Resources: Evaluation
Questionnaires: In Myanmar, groups have used pre- and post-event questionnaires to measure shifts in capacities and perceptions, and to assess the quality of events.
Quiz Contest: Where the engagement involves information sharing and awareness raising, consider using a quiz as a fun way to test comprehension and recollection. See a sample
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3. Taskforce/Organizers Retreat: Those responsible for implementing stakeholder engagement, such as the Taskforce or the TWGs, may wish to hold a review retreat to examine evaluations and generate lessons learned. This may include a review of systems used to perform the work.
4. Review Compliance with these Guidelines: Since these guidelines are intended to increase the quality of stakeholder engagement in Myanmar as relates to REDD+ readiness, the Taskforce will need to consider ways and means of encouraging its usage in practice. The quality of that usage can be integrated into the structures established (per step 2), and monitoring and evaluation (per step 6), including on-site and rapid assessments by members of the engagement TWG and others to whom such responsibilities are delegated. In addition to assuring compliance, review processes can be used to refine these guidelines over time.
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Annex 3: Detailed assessment of the interest of women’s groups and Indigenous Peoples
Stakeholder group
Interest Potential roles in REDD+ implementation
Local level stakeholders: Ethnic Minority groups or CSOsKachin minority
Main activity is shifting cultivation and forest resources exploitation. Main interest/concerns are SFM, sustainable water resources, land and biodiversity management and benefits from REDD+ and other PES systems
REDD+ piloting, implementation and community monitoring of forests, contribution to readiness activities through local level consultations and pilot activities.
Karen minorityKayar minorityChin minorityMon minority Main activities are permanent farming (paddy,
rubber, palm oil), shrimp farming, fishing and shifting cultivation. Main interests are sustainable farming, water and land management, access to NR and where possible benefit from REDD+ and other PES systems
Rakhine minority
Shan minority
KanBawZa Youth Librarian Reading Class(Shan/ Taungyi)
Capacity buildingCoordination (for CF)Environmental Conservation (plantation forestry)
Awareness raising, capacity building and facilitation of local consultation
Day LoeKalo
Youth educationHealth educationAwareness rainingFund raising
Awareness raising, capacity building and facilitation of local consultation.
Local level stakeholders: Women CSOs
Self-help groups
Saving/creditIncome generation, especially in rural areas activity
Information sharing, piloting participation and monitoring of REDD+, development of benefit sharing mechanisms.
Local level stakeholders: Women CSOs of Ethnic Minorities
Women Empowerment Project/Jieeyah Service
Awareness raising (women right, climate change impact) Capacity building Training (gender equity, land use right, CEDAW); Ethnic based organization (Mon minority) with experience in Environmental impact assessment (rubber processing industry).
Contribution to reviews and studies, facilitate consultation and contribution to REDD+ framework development, awareness raising, mobilization and facilitation of piloting, implementation and monitoring.
Kachin Women Peace Network
Securing and protection of women in conflict areaParticipation in peace making process. Focus on Kachin ethnic minority.
Contribution to reviews and studies, facilitate consultation and awareness raising.
State / Division Level Stakeholders: Ethnic Minorities
Kachin Conservation Working Group (URM, Shan Literature, KMSS, Shalom, Anglican, KRDC)
Environmental ConservationSustainable development Policy advocacy relating with environmental resource useStrong gender component empowering women’s participation in Community Forestry committees.Multi-ethnic (Kachin, Shan, Karen, Myanmar) organization targeting beneficiary from different ethnic groups.
Contribution to reviews and studies, facilitate consultation and contribution to REDD+ framework development, awareness raising, mobilization and facilitation of piloting, implementation and monitoring.
National Level Stakeholders: Ethnic minorities , women/ gender NGOsKaren Baptist Environmental conservation, plantation Awareness raising, capacity building and
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Church (KBC) establishment, income generation activities; Ethnic & religious based organization
mobilization
Shalom
Organization focused on ethnic groups, promoting peace building, environmental conservation and capacity building (Community Forestry establishment)Provide gender training to FUG through GDI and integrate gender mainstreaming in CF programPromote income generation activity for women group
Contribution to reviews and studies, facilitate consultation and contribution to REDD+ framework development, awareness raising, capacity building and mobilization.
Metta Development Foundation
Community ForestContract Farming
Contribution to reviews and studies, facilitate consultation and contribution to REDD+ framework development, awareness raising, mobilization and facilitation of piloting, implementation and monitoring.
Promotion of Indigenous and Nature Together (POINT)
Training (FPIC,REDD+, UNDRIP)Awareness raising (Environment, climate change impact)
Contribution to reviews and studies, facilitate consultation and contribution to REDD+ framework development, awareness raising, capacity building
Gender Development Initiative (GDI)
Provides training services to other organizations (e.g. gender analysis & gender training to FUG, REDD+ and FPIC)Expertise in: gender based analysis, women’s rights& customary law and gender & forest resource management, protection of IP rights and customary law of ethnic minorities (Rakhine& Chin)
Awareness raising, advocacy to ethnic political party (REDD + AIPP), capacity building (Gender and FIPC)
Food Security Working Group (FSWG)
Works on food security, fishery research and development, Land tenure rights (focus on ethnic minorities), contract farming.Supporting information exchange and Resource Centre
Contribution to reviews and studies, facilitate consultation and contribution to REDD+ framework development, capacity building, advocacy and Information sharing (publications).
Mangrove Service Network (MSN)
Rural Energy (fuel wood saving training focused on women and improved stoves);Forest conservation (nursery operation & mangrove plantation establishment)Implementation in Kachin, Kayar, Kayin, Mon areas.
Contribution to quantitative study of emissions from forest degradation (fuel wood collection), development, piloting and implementation of REDD+ strategies for the reduction of emissions from fuel wood consumption.
SPECTRUM
REDD+ training and development of REDD+ and FPIC awareness raising materials in local languages (Myanmar and Ethnic Minorities). Promoting role of women in REDD+ Expertise in Ethnic Minority rights, gender participation forest resource use and land tenure rights.
Awareness raising and capacity building, contribution to REDD+ implementation framework development.
EcoDev
Community Forest, environmental conservation, climate change awareness raising, gender equity and income generation, especially in rural areas, land tenure rights (expertise with Kachin Ethnic Minority)
Contribution to reviews and studies, facilitating consultation and contribution to REDD+ framework development, awareness raising, mobilization and facilitation of piloting, implementation and monitoring.
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Annex 4: Policies and Measures to address specific direct drivers
As mentioned in Section 3, combinations of PAMs from different action packages are required to address specific direct drivers (and barriers to priority “+ activities”). These are shown for the seven direct drivers and two barriers below.
Direct driver 1: Conversion to agriculture (large-scale/industry-driven)
Amend investment regulations to include penalties for unauthorized forest clearance and environmental damageDevelop a national land use plan and implement territorial land use planning with emphasis on areas with high potential for REDD+Establish environmental accounting systems which include the economic value of non-extractive forest uses and ecosystem functionsEstablish safeguards for informants and whistle-blowersImplement the Land Use Policy (2016), particularly Part VIII regarding land tenure security and the recognition of customary rights Improve inter-ministerial planning and coordination through strengthening of existing coordination bodies at national level Incorporate forested VFV land into PFE, supported by strengthened VFV land management committees Promote sustainability measures in commodity supply chainsRevise incentives system for staff of MONREC and MoALI, particularly at local levelsStrengthen EIA and IEE capacities in ECD in relation to evaluation of concession areas for commercial plantation (and mining) developmentSupport inclusion of proposals in workplans of national Land Use Council or subnational Land Use Committees or other work committees defined by the government Undertake high resolution mapping of existing forests, shifting cultivation, and encroachment “hotspots”, with online registry
Direct driver 2: Conversion to agriculture (small-scale/smallholder-driven)
Capacitate Government and NGOs to provide technical support on income generation, especially in rural areasEmpower and incentivize law enforcement agencies to prioritize legal action against individualsEstablish gender-responsive Forestry and Agricultural/ Agroforestry Extension services in rural and hill areasExpand community forest networkImplement the Land Use Policy (2016), particularly Part VIII regarding land tenure security and the recognition of customary rights Improve inter-ministerial planning and coordination through strengthening of existing coordination bodies at national level Operationalize regulations under new Forest Law and Community Forestry Instructions (2016)Provide low interest rate credit mechanisms and incentives, which are accessible to both women and men, to facilitate investment and technology transfer for forestry and agriculture
Direct driver 3: Timber harvesting (legal)
Apply 3rd party independent monitoring of logging operations (legal and illegal)Develop and apply a domestic timber certification system Develop trade agreements for sustainably produced timberEmpower ACC to act on corruption and “laundering” of timber through development of anti-corruption strategyEstablish a publicly available and accessible sub-contractor/ service provider registry with specified service standards and penalties for non-compliance
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Establish safeguards for informants and whistle-blowersIncrease the amount of revenues collected by states/regions deposited in state/region fundsPublish MTE monitoring reports (including on-line)Revise incentives system for staff of MONREC and MoALI, particularly at local levelsRevise the revenue distribution system among states/regions from sales of timber other forest productsSecure political commitment to SFM and penalties for breachesStrengthen FD and MTE capacities and commitment to apply the MSS Code of Conducts responsibly
Driver 4: Timber harvesting (illegal)
Apply 3rd party independent monitoring of logging operations (legal and illegal)Empower ACC to act on corruption and “laundering” of timber through development of anti-corruption strategyEmpower and incentivize law enforcement agencies to prioritize legal action against individualsEnhance border control cooperation among local government, communities and with neighbouring countries, e.g., sharing of electronic documentation Ensure appropriate and proportionate penalties applied (including awareness raising of judiciary)Ensure greater cooperation between FD and Forestry PoliceEstablish and implement a domestic timber supply planEstablish publicly accessible on-line registry for export licensesEstablish safeguards for informants and whistle-blowersImplement incentivized community co-managed monitoring programmes for illegal loggingOperationalize regulations under new Forest Law and Community Forestry Instructions (2016)Raise awareness of: (a) for AAC; (b) fuelwood (health and sustainability); (c) charcoal sustainability; (d) alternative fuelsRevise incentives system for staff of MONREC and MoALI, particularly at local levelsSurvey domestic timber demand and fuel wood consumption for domestic use & industrial use Within the context of the work of the UPDJC, engage with EAO’s to develop cooperation on (a) detecting movement of illegal timber; (b) PA establishment and management
Direct driver 5: Fuelwood collection
Accelerate rural electrification, including use of biomass waste, hydro/solar/wind for generationDevelop alternative fuel distribution infrastructure (e.g. for LPG)Empower and incentivize law enforcement agencies to prioritize legal action against individualsIncentivize production and distribution of improved/efficient cook stoves Incentivize adoption of alternative fuelsIncentivize the development of fuelwood plantations and charcoal production areas, especially in high demand areasIncentivize use of wood from sources other than natural forests, including residues from wood processingInclude fuelwood production and non-market values of forests in the NFMS and national counting systemRaise awareness of: (a) for AAC; (b) fuelwood (health and sustainability); (c) charcoal sustainability; (d) alternative fuels; (e) EIA/IEE regulationsSurvey domestic timber demand and fuel wood consumption for domestic use & industrial use
Direct driver 6: Charcoal production
Build capacities (training) for (a) producers in low-waste processes; (b) Protected Area staff; (c) Forestry PoliceDevelop alternative fuel distribution infrastructure (e.g. for LPG)
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Incentivize production and distribution of improved/efficient cook stoves Incentivize adoption of alternative fuelsIncentivize the development of fuelwood plantations and charcoal production areas, especially in high demand areasIncentivize use of alternative sources for charcoal productionRaise awareness of: (a) for AAC; (b) fuelwood (health and sustainability); (c) charcoal sustainability; (d) alternative fuels
Direct driver 7: Shifting cultivation
Establish gender-responsive Forestry and Agricultural/ Agroforestry Extension services in rural and hill areasImplement the Land Use Policy (2016), particularly Part VIII regarding land tenure security and the recognition of customary rights Include fuelwood production and non-market values of forests in the NFMS and national counting systemPromote agroforestry systems with long term tree components and improvement of agricultural yieldsPromote farmers and growers’ associations, including equitably for women and men, in order to facilitate cooperative market accessProvide low interest rate credit mechanisms and incentives, which are accessible to both women and men, to facilitate investment and technology transfer for forestry and agricultureUndertake high resolution mapping of existing forests, shifting cultivation, and encroachment “hotspots”, with online registry
Barrier 1: Enhancement
Build capacities for plantation maintenance (including resource mobilization)Incentivize private sector and community plantations, including investment in short rotation speciesProvide low interest rate credit mechanisms and incentives, which are accessible to both women and men, to facilitate investment and technology transfer for forestry and agricultureRevise incentives system for staff of MONREC and MoALI, particularly at local levelsUndertake cost-benefit analysis of plantation establishment
Barrier 2: Conservation
Build capacities (training) for (a) producers in low-waste processes; (b) Protected Area staff; (c) Forestry PoliceDevelop and implement PA management plans, including sustainable financing plansDevelop regulations that recognize authority over PAs at multiple levelsEnsure greater cooperation between FD and Forestry PoliceImprove inter-ministerial planning and coordination through strengthening of existing coordination bodies at national level Operationalize regulations under new Forest Law and Community Forestry Instructions (2016)Prioritize cadastral surveys in areas of encroachmentPrioritize OneMap application to Key PAsRevise and simplify PA gazetting processRevise incentives system for staff of MONREC and MoALI, particularly at local levelsWithin the context of the work of the UPDJC, engage with EAO’s to develop cooperation on (a) detecting movement of illegal timber; (b) PA establishment and management
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Annex 5: Further information on the process of developing an SIS
The steps proposed and being undertaken for developing Myanmar’s approach to the REDD+ safeguards, under the guidance of the TWG-SES, can be summarized as follows:
7. Stakeholder engagement: this is being carried out during all stages of the work on safeguards and includes activities such as continuous updating of stakeholder mapping, training and capacity-building, and exchange of information on safeguards.
8. Assessing benefits and risks of potential policies and measures: this is a key step that serves a twofold purpose. On the one hand, it informs the selection and design of REDD+ PaMs in order to enhance benefits and avoid risks from REDD+. On the other hand, it helps to identify issues that deserve particular attention during the implementation of REDD+ in line with the safeguards, and when providing information (through the SIS) on how safeguards are addressed and respected.
9. Identifying, assessing and strengthening policies, laws and regulations (PLRs), their implementation and related institutional arrangements: this step identifies existing PLRs that support the implementation of REDD+ in line with the safeguards, as well as opportunities to improve their implementation and fill gaps in the PLR framework.
10. Carrying out a national clarification of the Cancun safeguards: drawing on both the assessment of benefits and risks (step 2) and the review of PLRs (step 3), a document will be produced that explains in clear language and using nationally appropriate terms what the Cancun safeguards mean in the specific context of REDD+ in Myanmar, and how they will be applied during REDD+ implementation.
11. Identifying, assessing and strengthening systems and sources of information relevant to the safeguards: this step builds on the national clarification to identify information needs for the Safeguards Information System, to develop a SIS design that draws on existing information sources and systems as far as possible, and to make the SIS operational. This involves the development of methods for collecting, validating and publishing information, and setting up relevant institutional arrangements.
12. Defining institutional and procedural arrangements for applying the safeguards to REDD+ implementation: responsibilities and processes will be established to ensure that the Cancun safeguards (as specified through the national clarification) are addressed and respected, and that relevant information is made available through the SIS.
Work on the assessment of potential environmental and social benefits and risks of proposed REDD+ PAMs began in 2017 and has informed the development of the present National REDD+ Strategy. Guided by the TWG-SES, consultations on the draft Strategy and proposed PAMs, held in 15 states and regions, have included discussion of likely benefits and risks. This information will be incorporated into a national-level assessment in 2018. Also underway is the review of policies, laws and regulations (PLRs), covering their relevance and compatibility with REDD+ as well as their role in addressing the REDD+ safeguards. The clarification of the Cancun safeguards in the Myanmar country context is scheduled to take place in the first half of 2018, laying the foundations for work on the SIS to commence later in the year (see box 6 for UNFCCC guidance on SIS).
In addition to establishing the SIS, future activities in Myanmar to ensure the country is meeting the safeguards requirements of the UNFCCC and relevant funders for REDD+ will include:
- Undertaking priority reforms of PLRs, strengthening capacity to implement PLRs, and establishing responsibilities and procedures to ensure safeguards are addressed and respected;
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Stakeholder Engagement
Benefits and Risks Assessment
PLR review
Clarifying institutional and procedural arrangements for safeguards implementation
National safeguards clarification
SIS development
First summary of information
Strengthening PLRs and their implementation
- Building links between the SIS and other relevant systems and mechanisms, e.g. M&E systems, or the grievance redress mechanism;
- Planning, preparing and validating a first summary of information on safeguards.
An indicative timeline for the development of Myanmar’s country approach to safeguards is shown in Figure 1:
Figure 1: Indicative timeline of key planned steps in the development of Myanmar’s safeguards approach
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Annex 6: Communications and Knowledge Management Plan (excluding annexes and references)
I. Introduction
Myanmar developed a REDD+ Readiness Roadmap in 2013, which is now under implementation supported by a number of programmes including the UN-REDD Programme. Through the implementation of the REDD+ Readiness Roadmap, Myanmar will build the institutional capacity, analyze the drivers of deforestation and forest degradation, develop a REDD+ strategy and design the interventions to reduce emissions and enhance removals of CO2 from the forest sector and develop national systems to monitor forests and report on results and finally receive results-based payments.The Myanmar REDD+ Roadmap has six sections:
1. Management of REDD+ Readiness Arrangements2. Stakeholder Consultation and Participation3. Development and Selection of REDD+ Strategies4. Implementation Framework and Safeguards5. Development a National Reference Level and Reference Emissions Level6. Development a National Forest Monitoring System
To ensure that the REDD+ Readiness implementation and the shared information and messages from and among wider range of all relevant REDD+ stakeholder groups are consistent and engaged, a Knowledge Management and Communications Strategy for 2016 is proposed as a guiding to a success of the readiness implementation phase of REDD+ in Myanmar.
II. Goal, Objectives, and Principles:
Goal: To support the development of a national REDD+ programme in Myanmar that will effectively and sustainably reduce net emissions from forests.
Objectives: The Strategy will pursue the following three objectives.
1. To ensure that knowledge generated during REDD+ readiness activities is shared effectively among all partners and informs decisions on a national REDD+ programme.
2. To ensure that communication of information and knowledge about REDD+ in Myanmar enhances stakeholder participation and promotes collaboration and cooperation among partners.
3. To promote broad support for REDD+ in Myanmar, including through engagement of public media.
Principles: In managing knowledge and delivering communications on REDD+ through this strategy, the following principles will apply:
It will respond to and reflect progress in the Myanmar REDD+ readiness programme. This means that the priorities of the Strategy will reflect evolving priorities in the Myanmar REDD+ readiness programme.
It will design and deliver products aligned to the needs and capacities of all stakeholder groups, taking account of gender and ethnicity.
It will reflect the commitment of the Government of Myanmar (GoM) to reducing emissions from deforestation and forest degradation, while respecting the rights of all stakeholders, and environmental sustainability.
The Myanmar REDD+ readiness programme supports and promotes the REDD+ concept as defined through the UNFCCC process.
Communications on REDD+ will reflect the gaps in understanding established through the baseline awareness survey conducted by the UN-REDD Programme.
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The Myanmar REDD+ readiness programme will seek to ensure that messages disseminated through different partners are consistent, and aligned with both UNFCCC decisions and GoM policies.
III. Target Audiences/Partners
a) Knowledge Management
Under objective 1, above, ensuring that knowledge generated during REDD+ readiness activities is shared effectively among all partners and informed decisions on a national REDD+ programme requires the identification of sources of knowledge, and of users of that knowledge.
Sources of knowledge include all those programme and initiatives that are building capacity for Myanmar to implement REDD+. These include the initiatives shown in Table 1.
Table 1: Initiatives and projects generating knowledge on REDD+ in Myanmar
Asia Air Survey Co. Ltd. (Japan)Study on the strengthening methodological and technological approaches for reducing deforestation and forest degradation within the REDD+ implementation framework: application in Myanmar
EU National 2012-2015 Land Use Management Planning Project
FAO (with GEF funding) Sustainable cropland and forest management in priority ecosystems of Myanmar
International Tropical Timber Organization
Capacity building for developing REDD+ activities in the context of sustainable forest management
International Tropical Timber Organization
Capacity Building for Strengthening Transboundary Biodiversity Conservation of the Taninthayi Range in Myanmar
IUCN-Smithsonian Institute-NORAD Mapping Forest Cover Change in Myanmar 2000-2013: a National Baseline for Forest Management and REDD+ Development
Korea Forest Service (KFS) Mitigation of climate change impacts through restoration of degraded forests and REDD+ activities in Bago Yoma Region, Myanmar
RECOFTC Grassroots Capacity Building for REDD+UNDP Raising awareness on REDD+ among indigenous youth UNDP Inle Lake projectsUNDP (with GEF funding) Strengthening Sustainability of Protected Area ManagementUNEP (with GEF funding) Development of the National Biodiversity Strategy and Action PlanUNEP and the United Nations Human Settlements Program (UN-Habitat)
Myanmar Climate Change Alliance
UNITAR/Operational Satellite Applications Programme (UNOSAT)
Training and technical support in the use of Geographic Information Systems and Satellite Imagery
UN-REDD Targeted Support and National UN-REDD Programme in support of implementation of the REDD+ Readiness Roadmap
Wildlife Conservation Society (with funding from Norway) Strengthening of Myanmar’s protected area system
World Markets AG and Simplon Services GmbH Voluntary market project
The potential value of traditional knowledge in design of Policies and Measures to address drivers of deforestation and forest degradation also needs to be recognized. For example, Indigenous Peoples and forest-dependent
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communities may have knowledge and experience of regeneration of natural forest types that may be useful if forest regeneration is one of the adopted PAMs for REDD+ in Myanmar.
Users of knowledge include the National REDD+ Taskforce, Technical Working Groups, and other bodies guiding the development of the National REDD+ Programme.
b) Communications on REDD+
To reach all stakeholders, the target audiences for communications on REDD+ can be divided into internal (within Myanmar) and external audiences (international). These are grouped as shown in Table 2, below:
Table 2: Categories of audiences to be targeted through the Communications Strategy
In Myanmar
Academia/research institutes Donors/UN Agencies Government agencies (decision makers including Legislatures, Politicians, and Government
bodies including central and local government.) Development partners Private Sector International NGOs National NGOs Civil Society Local communities, including Indigenous Peoples and Forest Dependent Journalists/Media agencies General public
Outside Myanmar
Donors/UN Agencies International NGOs International academia Journalists/media
Further information about how communications will be provided to these target audiences is given in the following sections.
IV. Key Messages for Communications
A baseline survey of REDD+ awareness, conducted in September-October 2015, with a sample size of 113, served to identify some key issues on which awareness is low. These include:
1. Where will the money to implement REDD+ come from? Key message(s):There are various sources of financing, for REDD+ readiness and for implementation of REDD+ (so-called “investment finance”), and for results-based finance. For REDD+ investment finance, most funding is provided through development/aid programmes by/from developed countries, through multilateral agencies like the United Nations system and the World Bank, and from domestic sources. Financing for full REDD+ implementation is expected to come mainly from developed countries that want to utilize emission reductions from REDD+ to meet targets set by the UNFCCC and domestic sources. The Green Climate Fund, established by the UNFCCC, is also expected to be important in financing REDD+ implementation.
2. What is REDD+ and why is Myanmar implementing REDD+? Key message(s):REDD+ is a mechanism developed by the United Nations Framework Convention on Climate Change (UNFCCC) to reward developing countries for reducing emissions of greenhouse gases from deforestation and forest degradation. It will create an incentive for developing countries to protect, better manage and sustainably use
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their forest resources, and thereby contribute to the global efforts to mitigate climate change. This can be done while maintaining the other important functions provided by forests.
The decisions of the UNFCCC mean that national governments will be responsible for designing and implementing REDD+ programmes. This is important because only national approaches have the potential to reduce greenhouse gas emissions at a scale that will be significant globally. REDD+ can only be implemented successfully with the full engagement of all stakeholders whose activities have an impact on forests. Countries are required to develop national REDD+ strategies describing how emissions will be reduced. These strategies should also identify who will be responsible for implementing the various policies and measures required to reduce emissions.
Myanmar developed a REDD+ Readiness Roadmap in 2013 and is now engaged in readiness activities such as building institutional capacity including for forest monitoring, analysing drivers of deforestation and forest degradation and developing a National REDD+ Strategy. The next step will be to move into Phase 2 of REDD+, and start to implement activities to reduce emissions.
3. Processes for Myanmar to receive results-based payments for REDD+ Key message(s):To receive Results-Based Payments in the context the UNFCCC, Myanmar needs to develop the four elements identified through UNFCCC negotiations:
- A national REDD+ strategy, - A national forest reference emission level (or forest reference level), - A national forest monitoring system, and - A system for providing information on safeguards, including how safeguards are addressed/respected
throughout implementation; and for producing Summaries of Information.
4. REDD+ Policies and Measures (PAMs) – what they will involve Key message(s):The goal of REDD+ is to promote sustainable management of forests. This does not mean countries cannot harvest trees and other products in the forests. Harvesting non-timber products, such as vegetables, fruits, honey, vines, resin, etc., for family consumption or local use is consistent with sustainable management, and so would certainly be allowed in a REDD+ programme. Harvesting timber can also be sustainable if carefully managed.
Countries will also still need to do some deforestation e.g. for infrastructure development, but with improved planning and involvement of the relevant stakeholders then the effect on the forest area can be reduced and countries can still have positive REDD+ results.
5. Methodologies for measuring changes in forest cover, including time-scale Key message(s):Rates of deforestation can easily be measured by use of remote-sensing images, especially satellite imagery. These days, the costs are very low, and deforestation rates can potentially be measured on an annual basis. Measuring changes in rates of forest degradation is more complex, as it requires ground-based observations, such as provided by national forest inventories.
6. Methodologies for measuring REDD+ results Key message(s):Results-Based Payments under REDD+ are assessed by comparing measured emissions with the country’s FRL which measures emissions in terms of tonnes of carbon dioxide equivalent(CO2eq))/year. A country may submit a FRL for technical assessment by the UNFCCC Secretariat at any time. Adopting a step-wise approach to REDD+, a country may submit progressively more comprehensive FRLs as the scale of ambition increases and new data become available.
7. Methodologies for MRV and monitoring (role of local stakeholders) Key message(s):
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Communities have roles, responsibilities, and rights in management and use of forest in a transparent manner. As REDD+ covers all the forests in the country this also include those forests managed by communities and they will have a role in implementation of REDD+. Communities can also play a role in monitoring forest use and condition. However, in terms of measuring carbon, the processes involved in applying guidance form the Inter-governmental Panel on Climate change mean that communities will not play a role in MRV.
Conserving and managing forests sustainably will provide the main benefit from REDD+. This will especially benefit rural communities using the forests for their livelihood. Rural communities are also important stakeholders for REDD+ planning and implementation which will need to be taken into account when designing incentives for REDD+ interventions.
8. Measuring performance: Forest Reference Levels(FRLs) Key message(s):Results under REDD+ are measured in terms of emissions of CO2eq/year. Myanmar will need to submit to the UNFCCC a “Forest Reference Level” (FRL), which will record historical emissions over a specified reference period. Subsequently, Myanmar will submit a report on its performance since the end of the reference period (through a Technical Annex in a future Biennial Update Report. The difference between the reported emissions and those in the FRL will represent Myanmar’s performance, and will be used to trigger results-based payments.
These issues and messages should be a central theme of an active awareness raising programme. The data from the survey also highlighted differences in understanding among stakeholder groups. So, for example, awareness raising for different groups should focus on those topics where understanding was weak, which were:
Government: Issues 1, 2, 3 and 5 (above) Local NGOs and Indigenous Peoples: Issues 1, 2, 3, 5, and 6 Academics: Issues 1, 2, 3, 5, 6, and 7.
** Special focus on NGOs with objections to REDD+
Internationally, some NGOs continue to oppose, and to protest against REDD+. Some of these NGOs may have affiliates in Myanmar, and some domestic NGOs may share their concerns. Therefore, a special effort needs to be made to address these concerns.
It is safe to assume that no NGOs oppose the goals of addressing climate change or increased conservation and sustainable management of forests. Rather, their concerns relate to how these goals will be achieved, and in particular the risk that the rights of local stakeholders may be ignored or subverted. Therefore, there needs to be a focus on emphasizing how Myanmar will respect the rights of local stakeholders in designing and implementing a national REDD+ strategy. An excellent start has been made on this with the Roadmap process being highly participatory, and the very positive report of the UN-REDD Policy Board members representing Asia/Pacific CSOs and IPs following their visit in September 2015.
A series of communications, including brochures, newsletter articles and videos needs to be produced emphasizing the following messages:
The GoM is committed to designing and implementing participatory processes in the preparation of the national REDD+ strategy, and in particular, in the design of PAMs;
The right to FPIC will be respected; and The GoM is committed to making available all information relating to REDD+ in Myanmar in as many
indigenous languages as is feasible and realistic, prioritizing languages in those parts of the country where initial REDD+ PAMs will be implemented.
V. Steps in implementing the Strategy
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a) Knowledge Management
Given the objectives and principles stated above, the priority for the Knowledge Management component of the Strategy is to:
“Establish a system to ensure that all knowledge generated through all REDD+ readiness initiatives is accessible to all, and utilized to ensure the design of a state-of-the-art national REDD+ programme.”
The following steps will be required in order to deliver on this priority: Identify all relevant REDD+ readiness initiatives; Identify a knowledge focal point within each initiative; Work with each knowledge focal point to compile all reports, workplans, ToR, etc.; Establish an appropriate knowledge platform (on web-site?)’; Ensure all knowledge is organized on the platform is a logical fashion (e.g., by WFR element); and Ensure all knowledge is accessible through the platform and regularly updated.
b) Communications
The priority for the Communications component of the Strategy is to:
“Produce and disseminate information relevant to each stakeholder group to enable them to play an effective and relevant role in the design and subsequent implementation of a national REDD+ programme, including the preparation of all elements of the WFR.”
The following steps will be required in order to deliver on this priority:
Identify all relevant REDD+ readiness initiatives; Identify all relevant REDD+ organizations (government agencies and non-governmental organizations); Identify communications focal point in each organization; Collect all existing communications materials and make them available, e.g., through an on-line platform; Identify gaps in communications materials by stakeholder group; Establish communications review committee; and Produce or commission production of new materials to fill gaps.
c) Media Relations and Networking
The priority for the Media Relations component of the Strategy is to:
“Contribute to broad-based support for REDD+ in Myanmar by ensuring that all media have access to accurate and balanced information about REDD+”
In order to deliver on this priority, all publications, newsletters, statements and announcements will continue to be sent to media outlets via the contact manager database. Where possible, training and meetings should be organized to give brief updates to members of the media on the programme. Below are proposed information/events could be produced and shared, as required:
Press Release; Radio announcement; Opinion editorial; Features; Features advisories, etc.
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However, every interaction and information corresponding to the media’s inquiries is important to be answered by key identified spokespersons to ensure that information provided is consistent and accurate. While at the same time, it is the role of the Communications Officer to assist to pull together information and draft answers in consultation with technical experts before submitting to the spokes-persons. The spokespersons include the National Programme Director, Deputy Programme Director, and/or key focal point to be identified and appointed. It is also essential that a list of all key relevant media agencies is compiled for an internal database with the purpose of further reference and sources of information sharing. Therefore, it is advised that the Communications Officer should start gathering all necessary contact information for the programme.
VI. Coordination with other REDD+ readiness initiatives /Capacity Building Strategies in Myanmar
To coordinate communication activities among actors, there is a need to develop strong linkages with all stakeholders.
This will require the Knowledge Management and Communications team (consisting of the Communications Officer in the UN-REDD PMU and a Knowledge management/communications focal point within the FD) to develop and maintain multiple databases, including:
All individuals associated with the Myanmar REDD+ readiness programme (recipients of the Newsletter and other regular communications materials);
KM/Communications focal points in all key governmental and non-governmental partners; and A communications review committee, responsible for reviewing and approving all communications
materials to be used for REDD+ readiness in Myanmar.
VII. Key Mediums for Communications on REDD+ / Corporate Communications Resources/Activities in 2016
a) Printed Materials and Products
All kinds of communications materials once were identified by the programme in consultation with key REDD+ stakeholders and members of the communications focal points will be produced with an assured reviewing process by the Communications Review Committee, which to be established. Other required and agreed reviewing process will also applied if necessary. The followings are some key proposed materials which are required for the programme at the start.
- NewsletterThe Programme will aim to release newsletters, on a quarterly basis. Newsletter content will continue to focus on the Programme progress, and feature new authors/contributors. Key technical staff in the programme will be encouraged to submit articles for these newsletters.
- Other materialsMaterials and reports about REDD+ implementing in Myanmar will be produced as required by the programme and the needs of all relevant REDD+ stakeholder groups. Those are:
Myanmar REDD+ Programme Brochure Misperception of REDD+ Flyer FAQs on REDD+ Flyer COP Decisions Booklet REDD+ Glossary Booklet, etc.
b) Online and ElectronicKey interactive tools that the programme are identified as means to disseminate and/or share information and/or communicate with all relevant REDD+ stakeholder groups and the general public mainly in Myanmar are:
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- Audio and VideoWhere feasible, the programme will also aim to produce radio and TV programmes to raise awareness about REDD+ activities implementation during the readiness process in Myanmar. Radio and TV are believed to be the tools/channels to outreach to a broader audience and especially people who could not read nor write.
- Website/MultimediaThe National Myanmar REDD+ website is a means for information sharing to the public of Programme activities. Throughout the year, the website will be improved and updated to reflect the evolving needs of the Programme.
- Social media (mainly Facebook) The National Myanmar REDD+ Programme will promote through social media channels (Twitter, Facebook, blog, YouTube and Wikipedia) and will be used primarily to drive traffic to Myanmar-redd.org, and make the Programme easier to find in search engine results.
- Emailing:Email Alerts should be sent out to all REDD+ contacts about new materials/publication and/or any upcoming/recent events. All publications and announcements will continue to be shared with relevant REDD+ stakeholders.
- DatabaseAll contact information of REDD+ stakeholder groups need to be up-to-date. It is suggested that an online database should be created so that all the PMU could also access and update as required. Google database could be one option for such a platform; it is simple and users friendly.
c) Awareness Raising Activities
To ensure that information and/or messages of REDD+ activities are consistently well received and understood, some awareness raising activities will be organized. Those include meetings with national and subnational REDD+ stakeholders including local communities and ethnic groups at target REDD+ sites. However it is necessary to note that the plan needs to communicate very well with other PMU colleagues and especially with Stakeholder Engagement Officer to avoid overlapping activities. Below are planned activities for 2016.
VIII. Monitoring and Evaluation
Activities for monitoring:
This REDD+ Knowledge Management and Communication Strategy needs to be evaluated and revised over time during both the implementation period and beyond to respond to changes that might be occurring as the national REDD+ Programme develops are addressed.
Monitoring of implementation can be undertaken by the preparation of quarterly reports for submission to the TWG on Stakeholder Engagement and Safeguards, and the National REDD+ Taskforce. These reports should cover activities undertaken during the quarter, including uses of communications materials. Responsibility for preparation of quarterly reports lies with the UN-REDD Communications Officer.
Evaluation: Measuring Impact
The impact of communications (in relation to awareness raising) is defined in the programme document to be:
“The level of understanding of issues which scored below 70% in the initial awareness survey” (these being the six key messages listed in Section IV).
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The baseline value (average correct score across those six issues) is 54%. An appropriate target would then be: “By the end of year 1, the average score for those issues scoring below 70% in the initial survey is at least 75%”
In contrast, the programme document does not propose any indicator to measure the impact of KM activities. On one hand, impact can be measured through an increase in awareness, as an increase in (accurate) understanding indicates that knowledge must have been effectively captured and shared. However, an additional measure of the impact of KM activities could be:
“Experiences from the REDD+ programme in Myanmar are shared with other countries through knowledge sharing events and publications”.
The baseline value is that no experiences are shared (since the programme is still in its infancy). An appropriate target might be that Myanmar experiences are quoted in publications or shared through events at least four times a year from 2017 onwards.
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