Gobernanza y arreglos inter-instituciones a diferentes niveles

Para la creación y desarrollo de los PAMIC, diversas instancias de gobierno pertenecientes al sector ambiental unieron esfuerzos y diseñaron un proyecto muy vanguardista e innovador que surge de la sincronía de tres instituciones de gobierno federal y de un fondo privado. El INECC coordina la construcción de los planes (PAMIC); la CONANP consolida la gestión y operación en ANPs, y la CONAFOR implementa el esquema de Pago por Servicios Ambientales (PSA) del fondo de biodiversidad. Por su parte, el FMCN contribuye con su experiencia en el manejo de esquemas de financiamiento; mediante dichos arreglos interinstitucionales, se formaron dos fondos más para detonar efectos. Además, el diseño de gobernanza y coordinación interinstitucional incluye un Comité Técnico del Proyecto que supervisa y dirige la operación del C6; una Unidad Coordinadora del Proyecto y dos Unidades Regionales de Proyecto, las cuales tienen la responsabilidad de la coordinación diaria en temas técnicos y logísticos. Este diseño de coordinación interinstitucional es parte esencial para generar mayores alcances en el ordenamiento del territorio buscando impactos colectivos.

  • Trabajo muy coordinado entre las instituciones con una visión clara sobre el uso de los instrumentos de financiamiento y gestión;
  • Interés de las instituciones por participar y contribuir con su experiencia y el apoyo que ellas brindan a través de sus programas de asistencia social, de subsidios, dirigidos a ciertos lugares;
  • Recursos financieros e institucionales suficientes.

Los esfuerzos de coordinación interinstitucional se vieron beneficiados por la creación de un esquema de gobernanza policéntrica, entre niveles y actores.Dicho esquema, respaldado por acuerdos formales entre las instituciones participantes, ha establecido de manera transparente las “reglas del juego” para todos los demás actores involucrados en el proyecto a nivel regional y local.Este aspecto de formalidad institucional ha derivado, en la práctica, en un instrumento de planeación muy dinámico que fortalece la toma de decisiones y que ayuda a cada actor, desde el nivel en donde está trabajando, a aprovechar los diversos elementos de planeación y de manejo del territorio. Así también, se ha visto que incrementa la confianza de las instituciones en los procesos territoriales a escala local. Por ejemplo, al mejorar las decisiones de las instancias gubernamentales para aterrizar recursos de sus programas. CONAFOR inició ya este camino incluyendo en sus criterios de prelación,favoreciendo a aquellas zonas que cuentan un PAMIC. Este criterio es tener capital para esquemas de conservación.

Fondo Mexicano para la Conservación de la Naturaleza, A.C.
Gobernanza y arreglos inter-instituciones a diferentes niveles
Creando una visión común del territorio a partir del agua
Los elementos clave para la conservación del ecosistema también son antrópicos
Apoyo de instituciones y organizaciones de base con presencia en el territorio
Fondo Mexicano para la Conservación de la Naturaleza, A.C.
Gobernanza y arreglos inter-instituciones a diferentes niveles
Creando una visión común del territorio a partir del agua
Los elementos clave para la conservación del ecosistema también son antrópicos
Apoyo de instituciones y organizaciones de base con presencia en el territorio
Fondo Mexicano para la Conservación de la Naturaleza, A.C.
Gobernanza y arreglos inter-instituciones a diferentes niveles
Creando una visión común del territorio a partir del agua
Los elementos clave para la conservación del ecosistema también son antrópicos
Apoyo de instituciones y organizaciones de base con presencia en el territorio
Fondo Mexicano para la Conservación de la Naturaleza, A.C.
Gobernanza y arreglos inter-instituciones a diferentes niveles
Creando una visión común del territorio a partir del agua
Los elementos clave para la conservación del ecosistema también son antrópicos
Apoyo de instituciones y organizaciones de base con presencia en el territorio
Achieving governance for adaptation with an ecosystem approach

The Advisory Council serves as a vehicle to escalate up to the Commission local experiences and evidence of the benefits of ecosystem based adaptation. To address adaptation challenges, it is governed by several criteria, among them: identify and reduce the vulnerability of society and ecosystems; consider climate change scenarios in territorial planning; study and strengthen the resilience and adaptive capacity of natural and human systems; take advantage of opportunities generated by new climatic conditions and; promote food security, productivity and ecosystem conservation. To facilitate the consideration of technical matters, the Council established 4 Working Groups, the last one being that for Adaptation. This latter Group hopes to consolidate a space for exchanges and multidisciplinary synergies, where its members can advocate for EbA. The Council's contribution to governance for adaptation will depend on the mechanisms it is able to facilitate for the integration of grassroots and civil society organizations (ejidos). If it also adopted a basin-wide approach to territorial management, and collaborated with the other Working Groups, it could build an even more collegial, ecosystemic and resilient governance model.

  • Having evidence of EbA effectiveness for mainstreaming EbA throught the Advisory Council: Community vulnerability studies and experiences in applying EbA measures in ejidos of the upper watersheds of the Coatán and Cahoacán rivers, and on the coast (Tapachula) were developed and shared with the Council.

 

  • Sharing the evidence widely to mainstream EbA: Studies were presented at VII National Congress on Climate Change Research, allowing for network-building, awareness-raising and experience-exchange on EbA effectiveness.
  • A barrier to EbA implementation is financial resources. Reaching policy-makers to include EbA as a State development priority and assign budget remains a challenge. Despite Counsellors being open to leverage EbA approaches to policy-makers, there is still need for greater linkages between State’s climate change institutional system and watershed management organizations/resource management organizations.
  •  EbA can achieve greater impacts by complementing actions and recognizing synergies with other strategies, such as mitigation /emissions reductions (e.g. REDD+) and disaster risk reduction. This is relevant as a way to expand the Council's agenda, which has tended to focus more on mitigation issues.
  • To truly achieve multidimensional, ecosystemic, sustainable and participatory governance, these CC institutionality and grassroot organizations must demonstrate greater coordination over time, including the ability to jointly assess the effectiveness of adaptation policies and co-benefits for mitigation.
Achieving multi-dimensional and participatory governance for adaptation

The Climate Change State System is the permanent mechanism for communication and coordination of State entities and municipalities on climate change policies. It members are: Climate Change Inter-Secretariat Coordination Commission (CCISCC), Climate Change Advisory Council (CCAC), State Secretary of Environment, federal delegations, mayors and state Congress.The CCISC is in charge of developing the adaptation and mitigation policies against climate change in the State of Chiapas and the CCAC is the permanent consultative body. Although the CCAC was established in 2014, it was inoperative, leaving a gap in the promotion of public participation in the formulation and implementation of CC policies.

IUCN conducted an analysis and interviews to identify the reasons behind it, which were: 1) lack of time due to the honorific (non-paid) basis of the Counsellor and 2) lack of an Internal Regulations with rules on removal from office due to prolonged absence. Counsellor lasts 3 years in office, thus IUCN and the State Secretariat of Environment used the momentum in 2017 to promote the appointment of new Counsellors by the CCISCC president and the elaboration of its Internal Regulation. They also made sure to include a Working Group on Adaptation.

The multidimensional participatory governance improvement was possible thanks to a variety of enabling factors:

 

  • Political will and commitment
  • Commitment from NGOs
  • Committed local communities with experience in conservation actions
  • Media coverage
  • Support from ongoing adaptation projects, both from international cooperation and national programs.

 

  •  In order to constitute a multidimensional governance platform, the Advisory Council should promote multi-sectoral integration, but also multi-level integration. This implies the inclusion of Ejido representatives, local actors and indigenous peoples so that these actors can put their proposals, adaptation needs (particularly for EbA) and mitigation opportunities, before state authorities.
  • Considering that over 50% of Chiapas population live in rural areas and that some Counsellors live far from Chiapa’s capital, it is important to develop decentralized mechanisms for representation and participation in decision-making. Otherwise the institutional setting may fail to achieve its goal.  
  • Spaces such as the National Congress on Climate Change Research, supported in recent years by the Advisory Council, offer dissemination and networking opportunity so that actors, such as Ejidos, researchers and civil society, can present their needs and proposals related to climate change.

Note: The Ejido is a system of land tenure and form of communal organization, where communities sow to help each other.

Capacity building to ensure the ecosystem approach

To improve local governance in the Sumpul River, it was crucial to mainstream the ecosystem approach into land management, and train accordingly water local governance structures, local authorities, and farmers. Together they implement EbA measures to face drought and variability such as: soil conservation practices, protected spring water and implemented agroforestry systems.

 

Capacity building was delivered to: 

  • >100 farmers through a "learning by doing" approach to attain demonstrative results in the field. The EbA measures implemented focused on the ecosystem services of water and soil, on productive diversification and on mitigating the impacts of climate change and variability (winds and extreme rainfall) on crops and goods and  improve water infiltration and availability in the area. 
  • Water Committes on organizational and management skills as well as on integral water management, in order to influence their understanding of the importance of water ecosystem services.
  • Leader and farmer women were trained on communication skills.
  • Municipal officers were part of a regional climate change adaptation training and exchange of experience with other 30 local governements of Mesoamerica. 
  • Synergies with existing projects and local organizations such as Plan Trifinio were crutial. 
  • Exchanges of experience contribute to training processes and to motivate participants to take part in water governance, and recognize the learning value of actions that are carried out.
  • Ensuring the capacities of local organization is key to ensure the provision of water ecosystem services, and will always be a good investment.
Developing flexible governance frameworks for adaptation

Governance for adaptation requires flexible policy and legal frameworks. Therefore, the upper sub-basin’s governance platforms required management instruments that would enable those adaptation options and forms of governance that brought about the greatest socio-environmental benefits to be valued and institutionalized. The Internal Regulations of several ADESCO Water Committees and the sub-basin’s Binational Community Committee were drafted, with the latter also updating its Strategic Plan (five-year plan) and Annual Operating Plan.

 

The process took into account new dynamics and trends in the sub-basin, as well as the EbA approach. The formulation of municipal policies was also supported (Local Adaptation Plans for La Palma and San Ignacio, El Salvador). Given that adaptation to climate change is immersed in a series of uncertainties about future climate impacts and development trajectories, these frameworks and instruments must be constantly evolving, always taking into account lessons derived from field and governance experiences. In this way, adaptation to climate change can move forward under a flexible approach, and through iterative cycles, generate short-term strategies in view of long-term uncertainties.

  • The continuous presence and the rooting in the territory of Plan Trifinio is a powerful enabling factor that provides flexibility in decision making and also vertical scaling. This trinational entity works closely with communities and knows the territory well, yet also has political weight and leverage with authorities, as it is part of the Central American Integration System and is chaired by the Vice Presidents and Presidential Delegate of three countries (El Salvador, Guatemala and Honduras).
  • The Sumpul sub-basin has an Integral Management Plan, the implementation of which falls on all sub-basin stakeholders, and which could be revitalized based on the progress made with EbA and the strengthening of governance for adaptation. Flexible governance should contemplate the monitoring, evaluation and updating of this Integral Management Plan based on lessons of implementes projects.
  • The new management instruments prepared by the sub-basin’s governance platforms should in future be evaluated to determine how effective they were as adaptation responses. Any adjustments that result from this analysis will be a sign of flexible governance.
Multidimensional governance for adaptation of water resources

Multilevel and multisectorial governance for adaptation implies working at multiple levels and with differente sectors. It requires creating connections for better articulation between territorial actors.

 

In the upper part of the Sumpul River sub-basin, this entailed working closely with grassroots (community-based) organizations to develop bottom up water resource management. This was done supporting the conformation of  Water Committees linked with Community Development Associations (ADESCOs), the Municipalities and the Binational Community Committee.

 

The capacities of 4 Water Committees and their supply systems were strengthened and were thereafter formalized under municipal governance.

 

Moreover, and following the multilevel governance approach, the Binational Community Committe was strengthened throught restructuring advice, trainings, new management tools, and greater links with municipal governments. This Committee is now leading community water issues to prevent conflicts around water use.

  • Honduras legal framework (General Water Law) that defines different water basin governance structures; and in El Salvador the regulation of the ADESCO Water Committees, with a public health mandate.
  • The existence of the Binational Committee was key, since work did not start from scratch, but rather focused on their strengthening and restructuring, respectively. 
  • The articulation of project and organization efforts across a territory is fundamental (e.g. between IUCN and Plan Trifinio)
  • The strengthening of existing local and community structures is vital, as these have the ability to sustain the progress and changes achieved in the territory, despite the alternation of local authorities.
  • The ADESCOs and the Binational Community Committee undertake important mediation tasks, since the management of water resources can generate conflicts due to the diversity of interests that converge on this issue.
  • The articulation of project efforts across a territory is fundamental (e.g. between the AVE and BRIDGE projects) to achieve greater impacts and efficiencies, through coordinated project agendas.
  • The BRIDGE project in the Goascorán River basin (El Salvador-Honduras) left the following lesson learnt that is also relevant in this case: "Water diplomacy does not necessarily follow a straight path. Effective strategies need to incorporate multiple dimensions and a phased approach, interconnecting existing and emerging structures in the basin."