Download Sean Doolan - Overseas Development Institute

Greening development?
- not just “aid”
ODI, 23 Sept 2008
Seán Doolan
Environment adviser
DFID Africa Division
Summary
• Where do environment & climate change fit in donor
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priorities?
How raise profile – political & economic debate?
How support national & regional institutions &
processes?
How engage country leadership in processes?
How integrate with development more broadly?
• What approach?
• What support?
• How resource?
Insights
• “Hard to be a long-term donor and see so little progress
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… or long-term recipient and not see this as entitlement”
Environmental programmes as part of “high politics” &
“party politics”
Bilaterals more responsive to global & regional
significance, policies & poverty
• incentives & procedures?
Environmental screening not emphasised for bilaterals
• opt outs, reliance on multilaterals, over-reporting
Delegation to multilaterals – scaling up, CC
Climate change to integrate environment & development
Reservations
• Few references to donor documents & evaluations
• Outcome-based “conditionality”?
• Multi-donor trust funds -“off balance sheet finance”?
• Environmental information – CITES not indicative
• Neglects role of EC/EU in setting norms
Reservations
• Predates shift towards general budget support
• Sectoral allocations do influence aid emphasis
• Income & population relate to MDGs
• PLAID & aid effectiveness?
• Coding, duplicate reporting, proxy indicators
• Terminology, practitioners
• Do not rectify all inconsistencies in reporting …
Observations
– governance & political economy
• Actors & institutional landscapes
• Bargaining power of recipients, esp. BRICS
• Policy instruments & procedures, political champions
• Donors raise issues, local politics determine outcomes
• “Windows of opportunity, strategic coalitions, alter
incentives, redistribution of capabilities”
• National development planning essential
• Individuals & happenstance important
“Environment” in development
cooperation - after 2000
• MDGs – expansion of “neutral aid”
• poverty-environment linkages failed to gain traction
• MDG 7 – now reported as “water”
• Much in terms of safeguards, not investments
• different to domestic environmental expenditure
• Shift towards programmatic funding
• General & sector budget support
• Increase in social sector spend
• Harmonisation & alignment (Paris & effectiveness)
• Climate change
“Environment” – the future
Economic growth & human development
• NR-driven growth & conflict
• Resource scarcity & competition (BRICS, climate
change, fragile states, chronic poverty)
• Underpinning delivery of other objective
Need realistic integration
• Reframing language, backstaging
• Networks, coalitions & evidence
• Public audit & accountability mechanisms
• Niche actors & champions
• Inter-institutional/sectoral linkages?
“Environment” – future drivers
• Climate change
• Political momentum
• Environment marginalised by development
architecture & instruments
• Need to re-engage on both sides
• “Environment” as driver of governance shifts?
• “Environment” as result of shifts in governance &
political economy?
Health – India, infection management
Service delivery
• nosocomial infections (MRSA …)
• 63% injections unsafe in India
• 2 million new Hepatitis B cases a year
• 1.5 million deliveries PHCs, CHCs
• 2,700 blood storage facilities
• 280M AD syringes
• 615 t needles
• 550,000 outreach sites
• Indian experience – WHO transfer
India – school water & sanit’
UNICEF partnership
1993
2003
• 630,000 primary schools
• 1.12 million primary
• 44% with water supply
• 8% with sanitation
schools
• 70% with water supply
• 51% with sanitation
• Enrolment & retention figures
• Morbidity, time
• Teacher motivation
NRE context in Ghana
NRE policy trade-offs - underestimated consequences
 GoGh Strategic Env Assessment neglected
Rethink policy dialogue & operational support to NRE
 Inconsistent consideration of NRE in-country
 Shift to budget support, harmonisation &
alignment; country priorities & systems
 Disengagement from NRE policy support
(PPG7 analogy with Brazil)
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NRE marginal to "on-budget" support,
aid instruments & development policy
Government & donor alignment
New aid architecture, JAS = 14 donors, 90% aid
Growth & Poverty Reduction Strategy II
Development Partners & GPS coordination
Donor
Donor
Ghana Partnership Strategy
Joint Assistance Strategy
Donor
(JAS)
Donor
Multi-Donor (General)
Budget Support
Prog
Prog
Prog
NREG preparation process
(not linear)
Government of Ghana
Finance
(MoFEP)
High level
committee
Analytical work
Ghana Poverty & Reduction Strategy II
Budgets &
fund flows
Missions,
virtual
networks
Ministries &
Agencies
Ghana Joint Assistance Strategy
Policy
matrices
Policy Dialogue – General Budget Support
NREG
task team
NREG
Development Partners
Civil society
ENR Sector
group
Donor coordination on NRE
2001 Coordination
• projects around NR Management Programme
• disbursement focus, differing project requirements
2004 Sector group started
• information exchange
2005 Economic & Sector Work
• discussion at different level
• economic case, not " protection"
2006-7 Country Environmental Analysis
• platform for dialogue during workshops
2007-8+ NRE Governance sector budget
support
NREG - evolving mix of
financing instruments?
Multi-Donor
Budget Support
£€$ - MoFEP
Sector budget programmes
Sector-aligned programmes
£€$ - Ministries
£€$ - MoFEP & Ministries
Projects
£€$ - Sector agencies
2006
Shift from
enclave projects
2010
Consolidating
accountability
2015
Sustaining
progress
Paris linkages - ownership
• Anchored in sector dialogue & issues
• Finance at centre, coordinating line Ministry inputs
• Sub-sector matrices
• Letter of Development Policy as overall statement
• Nat’ Dev’ Planning Commission guidance on sector
planning
• Medium-Term Expenditure Frameworks
- public financial management focus
- analysis & planning on financial flows
- budget cycle
Paris linkages - alignment
• Single set of indicators, set by line Ministries &
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Agencies
Finance commissioning related studies using
country procurement mechanisms
Multi-year budget commitment, annual
assessments
Flexibility in evolving indicators & targets
Reinforcing country sectoral & national planning
& systems
Paris linkages - harmonisation
• Donor procedures differ, only some flexibility
• Joint conclusions from joint assessments?
• Reconciling HQs with in-country offices &
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processes
Active sector group dialogue key
Anchor in dedicated staff & in-country processes
Division of labour – NRE expertise can disappear
Linkage to general budget support dialogue
problematical
General budget support useful for existing
policies, not reform
Paris linkages - reflections
High transactions costs in set-up
• for both Government & development partners
• Weak strategic planning, M&E & financial
systems
Quality of input
• Bringing NRE agencies to speed with aid
instruments
• Policy matrices & indicators – sector plans vs
dialogue
• “Matrix fatigue” & “guided ownership”
• Civil society engagement sensitive
Paris linkages - analysis
Institutional planning & budgeting
• Credibility of medium-term strategic planning &
budgeting
• Effectiveness of NRE country systems &
processes to address development agenda
Analytical work on NRE
• Scarcity of analytical work to make economic
case for NRE
• Scarcity of institututional or expenditure
analyses