Transcript To Conserve or convert the Lake Victoria basin wetlands: An

Policy Process for Climate Change
Adaptation in the Agricultural
Sector: A case study of Tanzania.
By
Kassim Kulindwa, UDSM, Tanzania
/Noragric, UMB, Norway
Outline





Introductory background
Framework for policy processes analysis for
climate change adaptation
Experiences form implementation in Tanzania
Prospects for policy adoption; a multiple
target engagement approach
Conclusions
Introductory background

Background



We note that climate change is on the agenda of
many developing nations currently
We also note that more research is being done on
climate change with the aim of feeding to policy and
influence behavioural change
However, we also note that there exists a gap
between research and policy

Evidence translation into appropriate policies is partial and slow particularly
in developing countries(Morten Anserud et al, 2005). So many good research
output gathering dust on shelves without getting a chance to inform policy!
Context: Nature of policy
processes

Linear process

The conventional policy making approach is
represented by a linear process with stages which
rational decisions are taken by omnipotent
government authorities i.e. policy makers


Assumption is that they use researched evidence.
The earlier policies of 1970s and 80s were thought
to be national, but in reality were government
policies because they represented the sector at the
national level but not by the way they were
formulated and whose interests they represented
Nature of policy processes

Non linear process

Policy development processes are complex
protracted & non linear with a multitude of
actors and interests some of which counteract.


Have greater chance for evidence based dialogue
Post 1980’s the top down approach of policy
making has been replaced by participatory
approach with the civil society represented by
NGOs (local and international), CBO, the private
sector and others make their voices heard
Non linear process

The National Land Policy which took 5 years , while its
bill took 10 years to prepare and get accepted in 2005.


Main actors included NGOs for gender equality&
pastoralists’ rights, academics, government and donors
whose participation was not so explicit .
The other example is the NGO policy which took about
5 years to prepare while the bill took only 1 year to be
developed and passed.

Actors involved included Donors, NGOs, international
institutions and the government
Motivation

Share experience of how gap between
research and policy could possibly be
bridged

Through learning from a case study done
in Tanzania in collaboration with IDS –
University of Sussex through funding from
IDRC
Conceptual Framework: Three
lenses approach




Narratives/discourse: how are research and policy
narratives framed, and how are research messages
communicated, considered and reframed?
Politics and interests: what are the power relations,
dynamics and incentives for policy, and what causes
something to stick in people’s minds?
Actors and institutions: what networks,
organisations, norms, individuals and champions are
involved, formally and informally?
This approach aims to uncover where the historic and future “Agents ,
drivers of change” and policy spaces that influence policy around
climate adaptation in the agricultural sector
Framework for policy process analysis
Analytical
lenses
Narratives and
Discourse
Actors and
institutions
Politics and
interests
Three Lenses Approach (IDS 2006)
What are policy spaces

These are avenues by which different
actors may use to influence policy. There
are a number of policy spaces including

Popular spaces


invited space


for awareness creation through public meetings
When a proposer is invited to present their ideas
to interested and influential group,
Political spaces (parliament etc)
Policy spaces cont...

Practical spaces


Bureaucratic space


Interaction with the government and agencies
Conceptual spaces


E.g. Farm Field Schools in the study area
academic fora mainly
Discursive spaces

where new ideas and framings are introduced
into debate, and circulated through various media
Experiences from
implementation in Tanzania

Premise of study:

“Risk management, reduced vulnerability and
agricultural productivity in Tanzania”




conducted by SUA researchers through participatory
action research (PAR) funded by IDRC
Study area in Same District, Kilimanjaro region
3 sites covering low , middle and highland – In
Usamabaras (semi arid with chronic food shortages)
Established farmer field schools for researching on
farming technology options
Study Implementation Process



Identified and analysed Actors’ roles and
their position in terms of CC adaptation and
their policy spaces
Reviewed narratives by these actors and
what the counter narratives were
Looked at existing Politics and interests in
CC adaptation in agriculture

Do they facilitate or impede adaptation?
Stakeholder analysis

Identified stakeholders include:




Farmers, District Agricultural officers, DC, RC, TMA
(district and national),
Government: Environment Management Unit –MAFC,
Food Security Directorate – MAFC, Ministry of Water
and Irrigation (MOWI), VPO – Division of
environment,
International Organisations: FAO – Tanzania Office,
World Bank, UNDP etc
NGO’s: WWF – Tanzania Programme Office, SAIPRO
etc and the PAR Researchers
Stakeholders/ actors analysis
s.n.
Major Stakeholder
Identified
Stakeholder Mandates and roles
1
Farmers
Testing and demonstration of the project concept and users of the products
of the field experiments. These are potential beneficiaries of the project
outputs.
2
DALDO
Providing agricultural extension education through extension officers in the
district
3
DCs Office
Responsible for district administration, coordination and supervision of
development efforts in the district. It is the highest policy making office at
the local government level. Supporting the project and making facilitative
decisions such as making the district TMA staff a member of the full council
forum.
4
RC’s Office
Coordinate administrative and development issues at the regional level
through Regional Consultative Council (RCC) as the highest decision and
policy body at the regional level.
5
TMA Same District
Generate and make available weather data and information to the national
TMA and advice on weather conditions to various users in the district.
6
TMA Dar es Salaam
Provide national weather information and advice to various users national
wide.
7
Environment
Management Unit MAFC
Coordination of environmental issues in the MAFC. Responsible for
conducting and overseeing EIA for agriculture projects.
Stakeholders/ actors analysis
8
Food Security Directorate MAFC
Coordinate food security matters in the country and provide
situation analysis and early warning of food situation nation wide.
Responsible for collecting early warning information including
weather conditions which affect agricultural production.
9
Ministry of Water and
Irrigation. (MOWI)
Develop and manage water resources and utilisation nationwide
including irrigation agriculture
10
VPO – Division of
Environment
Policy and coordination of environmental issues countrywide.
Responsible for NAPA and all climate change matters in the country
and linking the country with the rest of the world.
11
FAO – Tanzania Office
Technical backstopping in agricultural issues in the country. Has
great interest in climate change issues as it affects agriculture and
livelihoods.
12
WWF – Tanzania
Programme Office
Environmental and natural resource conservation and advocacy. Has
a global programme called climate witness through which WWF
connects with people around the world and provides them with an
opportunity to share stories about how climate change impacts their
lives
13
PAR Researchers
Responsible for the scientific input into finding adaptation measures
to climate change in collaboration with their boundary partners
14
SAIPRO
Its mandate is to facilitate and promote sustainable agricultural
production (crops and livestock) through capacity-building and
enhancement of balanced social relations of organised and committed
smallholder farmers and agro-pastoralists of the Western Lowlands of
Same District to effectively utilise the available resources for their
own benefit.
Actor roles and policy spaces
s.n.
Stakeholder
Role
1
HeadEnvironmental
management
unit
(EMU) - MAFS
Director-Directorate
of National Food
Security - MAFS
Make policy proposal known Through
their Invited
and
to management and get them Director
and Bureaucratic
interested enough to act.
eventually to the PS policy spaces
2
3
Target Audience
Policy Space
Make the policy proposal Director of National Invited
and
known to management and Food Security and Bureaucratic
convince
them
of
its PS
policy spaces
importance to food security.
They could work together
with the EMU
Director- Policy and Make policy proposal known
Planning - MAFS
to the Agriculture sector
consultative group which
includes
Development
partners, the Government,
Private sector and NGOs. This
forum meets four (4) times a
year
Director of Policy Invited
and
and Planning as the Bureaucratic
Focal point to the policy spaces
consultative group
Actor roles and policy spaces
4
FAO (Resident
Representative)
Support the policy proposal
dissemination by bringing
the PAR project to the
attention of the Development
Partners’ forum. The host is
FAO – Acts as secretariat for
DP.
Agriculture
Invited spaces
working group of
the DP who invite
people to present
on
agriculture
development
issues
in
the
country monthly.
5
WWF Tanzania
(Climate
Witness
Programme)
Report on the project outputs Government, all
through their climate witness stakeholders
programme through TV, internet (viewers
and
etc.
internet users etc)
6
Vice President’s
Office
–
Division
of
Environment.
Bring the policy proposal to the
attention
of
the
government
through cabinet paper reporting on
climate change annually
Practical spaces,
Invited
and
Bureaucratic
spaces.
Cabinet – through Bureaucratic space
the
InterMinisterial
Technical
Committee IMTC
Actor roles and policy spaces
7 World Bank
8 UNDP
9 Policy Forum
They could support the policy
proposal dissemination by
bringing it to the attention of
the Development Partners’
forum & Agriculture sector
consultative group.
-same as aboveThey could support the policy
proposal dissemination by
bringing it to the attention of
over 60 NGOs registered in
Tanzania
Agriculture
working Invited space
group of the DP and
Agriculture
sector
consultative who invite
people to present on
agriculture development
issues in the country
quarterly and monthly
respectively.
-same as aboveInvited space
Active
citizens’
voice Invited space
working Group of the
forum that analyses issues,
generates information and
shares
with
other
members, and with the
general public
Narratives, politics and interests

Government.

subscribe to the discourse of Climate Change



Climate change is real and has huge impacts to
vulnerable developing countries – President Kikwete
Oct. 2009
Agriculture is the backbone of the economy (NAP
1997)
Agriculture is the largest employer. 75% of
population dependent on subsistence agriculture(NAP 1997)
Narratives, politics and interests

District commissioner


Eager to be part of the solution to a long
standing food deficit situation hence raise
his political capital
Constituency MP also Deputy Minister
for Agriculture.

Supportive for obvious reasons of being an
MP and a government minister
Narratives, politics and interests

Central government


Avert catastrophe due to CC, ensure food security
and reduce poverty
Local Government

Opportunity to solve the food shortage problem
through the project
Narratives, politics and interests

NGOs are pro adaptation narrative


Climate change adaptation vital to
vulnerable communities to avert food
insecurity – SAIPRO
Their interests are

seeing their role and efforts in supporting
rural communities achieve food security
through adaptation, result into positive
outcomes
Narratives, politics and interests

Farm input suppliers also subscribe to


Climate change is detrimental to business
and agriculture e.g. Uncertainty of input
supply time
Farm input suppliers

Looking to benefits from the adaptation
project and proposed policy by selling
more inputs in time and stocking the
right/recommended inputs
Narratives, politics and interests

Communities


See Climate change impact is devastating
to their livelihoods and wellbeing-failing
crops
Communities interested in

Reduced vulnerability to changing climate
by increasing their agricultural output

Seen as potential project outcomes
Narratives, politics and interests

Counter narratives to agriculture adaptation to
climate change as discussed earlier


We did not identify counter narratives to the agric
adaptation to CC, nor actors whose interests would
be threatened by CC adaptation, we however
identified sceptics who thought adaptation funds for
developing countries may not be forthcoming!
Others wondered whether at the household level
adaptation could be anything different from the
coping strategies used by farmers in times of
droughts and floods, is it anything new?
Prospects for policy adoption

The process has so far achieved a number
of outcomes at different levels including

A collaborative working relationship has been
established between TMA, District agricultural
extension officers, NGO, Traditional weather
forecasters, Input providers to provide a timely
weather information and farming advice
brochure and distribute it to farmers in the
district
Prospects for policy adoption

The Same District council facilitated by the
PAR researchers has established a decision
making forum (DMF)

Housed at the district council comprised of
farmers, weather forecasters (traditional and
scientific), input suppliers, agricultural
extension officers, NGOs, making decisions
on information on weather forecasts and
advice on farming timing, crops and inputs
Prospects for policy adoption




District commissioner to include the DMF operation
in district budgeting process
Invited the district weather forecaster (TMA) to be
a member of the full council-highest policy body,
TMA is working to document Indigenous
Knowledge to scientifically correlate it with weather
parameters
Farmers in the project area are experimenting with
knowledge obtained from the project.
Prospects for policy adoption

Further engagement of the actors earlier
identified who are important avenues for
policy process should be undertaken e.g.




Development Partners Forum through FAO
Agriculture Sector Consultative Group through
Director of Policy and Planning MAFC
Inter-Ministerial Technical committee through
VPO Environment
Active citizens and Public through Policy Forum
Conclusions



Framework very useful for understanding the
policy landscape through identification of
interests and relevant narratives and counter
narratives, actors and therefore policy spaces
i.e. How to navigate the policy process.
It is important to target different levels for
influencing change and not only the top brass
Robustness of research evidence is important
to convince and influence policy makers and
other actors’ thinking and behavioural change