www.transport2012.org

Transport NAMA submissions to the UNFCCC: Domestic frameworks

Anne Binsted, Matthew Wayman and Heather Allen

April 2012

Introduction

The Nationally Appropriate Mitigation Action (NAMA) concept is still being refined under the UNFCCC climate change negotiations, but they are almost inevitably going to be a component of the UNFCCC’s post-2012 climate regime.

1 NAMAs are currently climate change mitigation

actions in developed and developing countries that are reported to the UNFCCC as such. They are broad in scope but must be deemed ‘nationally appropriate’ (although there are currently no guidelines on how this should be determined) and capable of reducing GHG emissions from a ‘business as usual’ scenario. The key components of NAMAs are outlined in Figure 1 below, which also introduces the issue of wider benefits (‘co-benefits’) of climate change mitigation activities in the land transport sector. This is linked to the UNFCCC’s grounding of NAMAs in the context of wider sustainable development.

2

Figure 1 : A breakdown of the NAMA concept. Source: Sakamoto (2012).3

NAMAs suggested by Non-Annex 1 Parties to the UNFCCC (developing country Parties) can be unilateral (conducted with domestic support) or supported (conditional upon receiving financial, technological and/or capacity building support). NAMAs that are intended to be supported by the carbon markets are referred to as credited.

1 NAMAs were very prominent in the text on ‘enhanced action on mitigation’ that is contained in

the (currently draft) decisions of COP17 (see UNFCCC (2011) Advance unedited version. Draft decision [-CP.17] Outcome of the work of the Ad Hoc Working Group on Long-Term Cooperative Action under the Convention. Available from http://unfccc.int/files/meetings/durban_nov_2011/decisions/application/pdf/cop17_lcaoutcome.pdf 2 For an overview of co-benefits associated with climate change mitigation in the land transport

sector see http://www.adb.org/sites/default/files/pub/2009/ADB-WP10-Rethinking-Transport-Climate-Change.pdf. 3 Sakamoto, K. (2012) Tip of the Iceberg? The current state of transport NAMAs. Available from

http://cleanairinitiative.org/portal/sites/default/files/presentations/Sakamoto_ADB_Tip_of_the_Iceberg_0.pdf.

2

For an overview of the NAMA concept in the context of transport see GIZ (2011).

4

The Copenhagen Accord

5 contained the first invitation for developing country Parties to the UNFCCC

to communicate intentions to conduct NAMAs to the UNFCCC. This invitation was repeated at COP16 in Cancún,

6 and again at COP17 in Durban.

7 There have been 48 submissions made by developing

country Parties to date8 and 28 of these contain intentions to conduct NAMAs in the land transport

sector.9 This does not, however, fully reflect the level of engagement of developing country Parties

with the concept of NAMAs, or indeed transport NAMAs. COP16, 10

requested that the UNFCCC organise workshops to understand the diversity of mitigation actions submitted by developing country Parties, as well as the underlying assumptions and details of any support needed for the implementation of the actions being submitted.

11 The UNFCCC has held numerous workshops to

better understand the diversity of mitigation actions communicated as NAMAs, and this has seen Parties present intentions that are additional to, or elaborated from, initial proposals. These presentations also only reflect a small proportion of the work that is taking place on the ground in developing countries to develop NAMA proposals.

Aim and content of this paper

Bridging the Gap has reviewed the NAMA intentions communicated to the UNFCCC from a land transport perspective.9 The aim of this paper is to provide an insight into the broader domestic context in which a selection of these intentions to conduct NAMAs in the land transport sector have been developed, and to seek to identify whether any additional information exists about intentions for the financing and MRVing of NAMA suggestions. In doing so it hopes to increase understanding about intentions to conduct NAMAs, and to identify recommendations for other developing country Parties on the basis of the countries reviewed. This note could also help to ascertain how efforts to increase the development of NAMAs in the land transport sector could be targeted. This paper is based on a desktop review, with a focus on documents from national government websites and the UNFCCC, of the following countries:

Colombia

Ghana

Indonesia

Mexico and

Singapore.

4 GIZ (2011) Frequently Asked Questions on Transport NAMAs. Available from

http://www.transport2012.org/bridging/ressources/documents/2/1336,Factsheet_NAMA_final_030411.pdf. 5 Conference of the Parties (2010) Decision 2/CP.15. Available from http://unfccc.int/2860.php.

6 Conference of the Parties (2011) Report of the Conference of the Parties on its sixteenth session,

held in Cancun from 29 November to 10 December 2010. Available from http://unfccc.int/resource/docs/2010/cop16/eng/07a01.pdf. 7 UNFCCC (2011) Advance unedited version. Draft decision [-CP.17] Outcome of the work of the Ad

Hoc Working Group on Long-Term Cooperative Action under the Convention. Available from http://unfccc.int/files/meetings/durban_nov_2011/decisions/application/pdf/cop17_lcaoutcome.pdf 8 UNFCCC (2011) Appendix II. Nationally appropriate mitigation actions of developing country Parties.

Available from http://unfccc.int/meetings/cop_15/copenhagen_accord/items/5265.php. 9 Binsted, A. (2011) NAMA submissions to the UNFCCC: An overview from a transport perspective.

Bridging the Gap. Available from http://www.transport2012.org/bridging/ressources/files/1/1493,NAMA_proposals_May_2011.pdf. 10

For details of COP16 see http://unfccc.int/meetings/durban_nov_2011/meeting/6245.php. 11

UNFCCC (2011) Report of the Conference of the Parties on its sixteenth session, held in Cancun from 29 November to 10 December 2010. Addendum. Part Two: Action taken by the Conference of the Parties at its sixteenth session. Available from http://unfccc.int/resource/docs/2010/cop16/eng/07a01.pdf#page=2.

3

These countries have been selected from the 28 countries that have submitted an intention to conduct NAMAs in the land transport sector. They have been chosen to encompass different geographical regions, size of country and also levels of development. The NAMA concept has not been formally operationalised by the UNFCCC and as such key provisions and modalities have yet to be developed. The guidelines for how NAMAs will be Measured, Reported and Verified (MRV), for example, are still to be developed and it is expected that these details will be further developed during 2012, which will culminate with COP18. This paper therefore touches on domestic processes in developing countries that it should be noted are likely to change to be consistent with international guidelines as they emerge. The specific focus of this note is on the following five areas for each of the five countries:

Intentions to conduct NAMAs in the transport sector that have been communicated to the UNFCCC;

National transport and climate change policy context of transport sector NAMA intentions communicated;

Relevant national level institutional frameworks;

Proposed sources of funding for the transport NAMA intentions identified;

MRV provisions. These countries are introduced in turn in the sections that follow.

1 Colombia

The transport sector in Colombia accounts for between 23% and 33% of CO2 emissions and is the fastest growing source of CO2 emissions in the country.

12

a) Transport NAMA intentions that have been communicated to the UNFCCC

The Government of Colombia communicated their willingness to be associated with the Copenhagen Accord on 13 August 2010 and stated that they were in the process of analysing the mitigation potential and abatement cost curves of climate change mitigation activities in transport, agriculture, energy, waste management and industrial sectors as part of their national Low Carbon Development Strategy (see below). It listed related NAMAs in three categories based on the type of financial support provided (see below section ‘Sources of funding’) The details communicated are largely in the form of targets rather than specific activities that will be conducted to achieve these targets. International ‘NAMAs,’ for example, include the intention to increase biofuel production to 20% of total national fuel consumption by 2020, and domestic ‘NAMAs’ include Colombia’s intention to generate at least 77% of ‘total energy capacity’ from renewable sources by 2020. The transport sector is mentioned specifically in the context of the CDM, where the communication states their aim to reduce total CO2 emissions by up to 54.8 megatonnes through this flexible mechanism in different sectors including the transport sector. It is of relevance to note that Colombia is also developing NAMAs that have not been communicated to the UNFCCC. These include a NAMA in the transport sector for the ‘renovation of freight vehicles.’

13 This is in the context of the country’s Low Carbon Development Strategy (see below).

b) National transport and climate change policy context

12

Targa, F. (2011) Ministerio de Transporte. Available from: http://www.slideshare.net/EMBARQNetwork/tt2012-viceministertransportcolombia. 13

GIZ has been leading the development of this NAMA, as well as the creation of a national Working Group for NAMAs. For more information see http://www.transferproject.org. The TRANSfer project aims to support decision-makers in developing countries to develop NAMAs in the land transport sector, and Colombia is one of the project’s three partner countries.

4

Colombia appears to be relatively advanced in relation to many areas of environmental policy, management and protection. The scope of national information and related initiatives, many of which are led by the Ministry of Environment and Sustainable Development, is wide, covering territorial environmental management, product policy, ozone, and climate change mitigation and adaptation. A number of the key policy documents in terms of transport and climate change are outlined below. Low Carbon Development Strategy

This strategy document aims to support long-term climate change mitigation activities through specific projects that are featured by sector. The Strategy has been in development since 2011 and initial results regarding the evaluation of potential climate change mitigation activities are expected to be announced in May 2012. The transport sector is one of the seven sectors

14 that initial

communications state will be featured in this Strategy.15

National Plan of Development 2010 – 2014

16

This Plan outlines government objectives, goals and strategies for economic development. It has a broad scope that includes climate change mitigation and adaptation activities which include formulating and implementing a national climate change policy (the Low Carbon Development Strategy introduced above), the development of 15 CDM projects, and the adoption of climate change guidelines by 80% of Colombia’s regional environmental agencies. It incorporates a multi-modal transport sector specific component that is based on the Plan Maestro de Transporte (see below). Plan Maestro de Transporte 2010 – 2032

This plan contains short-, medium- and long-term plans for the transport sector over the period 2010 to 2032, and therefore contains inputs for future national development plans (as well as for the 2010 to 2014 plan). Developed in 2010 it takes an integrated approach and has five pillars: infrastructure, institutions, regulations, financing, and logistics. National Urban Transit Program (NUTP)

The NUTP was created through two national Economic and Social Policy Council documents. It was adopted in 2002 as a national policy to enhance urban mobility. It called for the implementation of Bus Rapid Transit (BRT) or other forms of Integrated Mass Transit Systems (IMTS) in cities with a population of more than 600,000, and Strategic Public Transit Systems (SPTS) in ‘medium-sized’ cities (those with a population of between 250,000 and 600,000). An explicit aim is to reduce GHG emissions, and the national Government covers up to 70% of project costs. National Logistics Policy

17

This policy aims to modernise freight and logistics in Colombia. It outlines a broad programme of activities, which include the implementation of more environmentally sustainable procedures, and specifically strategies to support climate change mitigation. Clean Development Mechanism (CDM)

The Clean Development Mechanism is not a national policy, but it is of note that Colombia hosts three of the thirteen CDM transport projects that have been registered internationally. These include the

TransMilenio BRT project in Bogota, another BRT project in Barranquilla, and a cable car in Medellín. The first approved methodology for a large scale CDM came from Colombia and obviously this

14

The other sectors include industry, agriculture, energy, mining, construction and waste. 15

Ministry of Environment and Sustainable Development (2012) 130212 Estrategia Carbono. Available from http://www.minambiente.gov.co//contenido/contenido.aspx?conID=8005&catID=1306. 16

República de Colombia (2011) Bases del Plan Nacional De Desarrollo 2010-2014. Prosperidad para todos. Available from http://www.dnp.gov.co/PortalWeb/LinkClick.aspx?fileticket=4bdXNh4SHZo%3d&tabid=1238. (Large pdf) 17

Asociación Colombiana de Logística (2008) Politica Nactional Logística. Available from http://www.acolog.org/quienes-somos/politica-nacional-logsitica-compes-3547/.

5

investment in time and capacity has helped them in putting together other CDM projects. This may also have beneficial effects in developing NAMA capacity. Together these projects are estimated to save 320,000 tonnes of CO2 equivalent per annum (as stated by the project participants). In addition, Colombia is at the time of writing requesting registration for two additional projects, which are expected to save 366,000 tonnes of CO2 equivalent per annum.

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c) Institutional framework

Colombia operates as a presidential democratic republic. The President is both head of state and head of government. Executive power is exercised by the government, legislative power is vested in the two chambers of congress, and the judiciary is independent of both. Supporting the President is a Vice President and a Council of Ministers who represent sixteen Ministries of state. The two Ministries that play the largest role in relation to transport and climate change mitigation are listed in Table 9 along with a national agency with related responsibilities. Table 1 : Responsibilities of the two core Ministries and Agency in respect to transport and climate policy.

Department Mission

Ministry of Environment and Sustainable Development

This Ministry is responsible for matters related to the environment and sustainable development. It performs and promotes activities related to sustainable development through the formulation, adoption and implementation of policies, and led the development of Colombia’s Low Carbon Development Strategy. It was created as a stand-alone ministry in 2011 after the responsibilities of the Ministry of Environment, Housing and Regional Development were divided.

http://www.minambiente.gov.co/

Ministry of Transport

The Ministry aims to ensure the development and improvement of national transport. It is comprised of three different authorities – the National Roads Institute (INVIAS), the Colombian Maritime and Fluvial Port Authority, and the Colombian Civil Aerospace authority.

http://www.mintransporte.gov.co/?fb_xd_fragment

National Planning Department (DNP)

This Agency is responsible for development and for recommending and promoting public and economic policies. Its scope includes environmental, social and economic policies, for which it is tasked with developing a strategic ‘vision.’

http://www.dnp.gov.co/

The national climate change policy being developed by Colombia emphasises co-ordination between Colombia’s planning agency and sector Ministries. Colombia is also said to be aiming for climate change guidelines to be adopted by 80% of Colombia’s regional environmental agencies.

19 There are

numerous examples of where climate change mitigation and land transport policy are being integrated in practice. Figure 2 below shows an example of where cross-sector co-ordination is built into the structure of a ‘Department’ of the National Planning Department,

20 which co-ordinates policies and

activities of stakeholders in four sectors, and also plays a role in the monitoring and evaluation of these activities. Figure 3 below also shows an example of how transport and climate change are being integrated on an institutional level within Colombia’s Sustainable Urban Mobility Office.

18

Details of registered CDM project activities can be accessed from http://cdm.unfccc.int/Projects/registered.html. 19

IDB (2012) CO-L1063: Program to Support the Development of a Climate Change Agenda. Available from http://www.iadb.org/en/projects/project,1303.html?id=CO-L1063. 20

Details of the other Departments can be accessed from: http://www.dnp.gov.co/Programas/Transportev%C3%ADascomunicacionesenerg%C3%ADaminer%C3%ADa.aspx.

6

Figure 2: Selected functions of the National Planning Department.

Figure 3: The responsibilities of Colombia’s sustainable urban mobility office.21

Figure 4 gives an example of an element of Colombia’s broader framework for inter-sectoral co-ordination. It outlines the structure of SINA (Sistema Nacional Ambiental - the National Environmental System) whose purpose is to co-ordinate environmental policies, plans and programmes.

22 It was

created by an Act (number 99) in 1993 and organises research institutes linked to the Ministry of Environment and Sustainable Development with an aim to support the provision of scientific and technological support required for the formulation of environmental policies. It is based on the principle that environmental policies need to reflect relationships with society and contribute to sustainable development.

21

Targa, F. (2011) Ministerio de Transporte. Available from: http://www.slideshare.net/EMBARQNetwork/tt2012-viceministertransportcolombia. 22

El Congreso de Colombia (1993) Fundamentos de la Politica Ambiental Colombiana. Available from

http://www.minambiente.gov.co/documentos/normativa/ley/ley_0099_221293.pdf.

National Planning Department (PND)

Department of Infrastructure and Sustainable Energy

Sub-department of Transport

Sub-department of Mines and Energy

Sub-department of Telecommunications

Sub-department of Private Participation in Infrastructure

Projects.

... and 10 other Departments...

7

Figure 4: Colombia’s National Environmental System (SINA).

d) Sources of funding The mitigation actions outlined in the Government of Colombia’s NAMA communication to the UNFCCC referred to unilateral NAMAs (which would be supported domestically), NAMA actions that require international financial support, and actions that would take place subject to support from carbon markets.

23

The NAMA submission of the Colombian Government also referred to its Low Carbon Development Strategy, which is still under development. This Strategy is being developed with support from 14 donors and partners

24 and it is likely that it contain activities that could be defined as NAMAs at a later

stage. These include governments and Non-Governmental Organisations (NGOs) from both industrialised and developing countries.

25 It also appears that this Strategy had support from the Inter-

American Development Bank (IADB), which granted Colombia a programmatic policy-based loan for US$250 million to support activities including the formulation and implementation of a national climate change policy.

26

Colombia is one of three partner countries in GIZ’s TRANSfer Project – Transfer Towards Climate-Friendly Transport towards climate-friendly technologies and measures. The TRANSfer Project aims to at enabling decision-makers in developing countries to develop climate change strategies in the transport sector to be registered as Nationally Appropriate Mitigation Actions (NAMAs).

27 The project

23

The submission is in Spanish: Nueva York (2010) Misión Permanente de Colombia ante Naciones Unidas. Available from http://unfccc.int/files/meetings/cop_15/copenhagen_accord/application/pdf/colombiacphaccord_app2.pdf. This report is based on the English language translation available from: UNFCCC (2011) Compilation of information on nationally appropriate mitigation actions to be implemented by Parties not included in Annex I to the Convention. Available from http://unfccc.int/resource/docs/2011/awglca14/eng/inf01.pdf. 24

Ministry of Environment and Sustainable Development (2012) 130212 Estrategia Carbono. Available from http://www.minambiente.gov.co//contenido/contenido.aspx?conID=8005&catID=1306. 25

These include the governments of South Africa, Germany, the United Kingdom, the United States of America, the EU (via the UN Program for Development in Colombia), the World Resources Institute, the International Center for Tropical Agriculture, the German Development Cooperation, Mitigation Action Planning Scenarios and the Children Investment Fund Foundation. 26

IDB (2012) CO-L1063: Program to Support the Development of a Climate Change Agenda. Available from http://www.iadb.org/en/projects/project,1303.html?id=CO-L1063. 27

For more information see the TRANSfer project’s website at http://www.TRANSferProject.org

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is funded by the Government of Germany via its International Climate Initiative (ICI),28

and is due for completion in September 2013. In Colombia, GIZ has been supporting the development of a national Working Group on NAMAs.

e) MRV provisions

The ‘NAMA’ communication to the UNFCCC stated that Colombia’s mitigation actions will include ‘the capacity to measure, report and verify emission reductions for their subsequent sale’ and ‘measuring and monitoring tools (similar to CDM mechanisms).’

29 This implies that the MRV provisions that they

are considering relate largely to credited rather than unilateral or ‘supported’ mitigation actions. Colombia has hosted numerous CDM projects in the transport sector and their reference in relation to NAMAs implies that they will adopt stringent MRV processes, as necessary, for NAMAs.

For more information see also (to be added)

2 Ghana Transport accounts for 13% of GHG emissions in Ghana.

30 It is also responsible for 34% of CO2

emissions making the transport sector the highest emitter of CO2 emissions in the country.

Total transport emissions decreased by 9% over the period 2000 to 2006 relative to emissions from other energy consuming sectors, although total direct energy consumption increased during the same period by 58%.

30 The decrease in emissions from transport was largely attributed to renewal of the

vehicle fleet.

a) Transport NAMA intentions that have been communicated to the UNFCCC

Ghana submitted an ‘initial list’ of NAMAs to the UNFCCC on February 15 2010,

31 which it stated

would be subject to further and more detailed analysis, particularly with regard to mitigation potential and international support requirements in terms of technology, finance and capacity building, the latter of which is required to support Ghana to meet necessary MRV standards. Ghana submitted 55 specific intentions to conduct NAMAs in what they classify as energy, industrial processes, agriculture, waste and forestry sectors. Transport is treated as a sub-sector of energy and ten relatively broad propositions for NAMA are made for the sub-sector (see Table 2).

Table 2 : Ghana’s transport NAMA proposals

Category Business as Usual Situation List of Mitigation Actions

28

For more information see http://www.bmu-klimaschutzinitiative.de/en. 29

The submission is in Spanish: Nueva York (2010) Misión Permanente de Colombia ante Naciones Unidas. Available from http://unfccc.int/files/meetings/cop_15/copenhagen_accord/application/pdf/colombiacphaccord_app2.pdf. This report is based on the English language translation available from: UNFCCC (2011) Compilation of information on nationally appropriate mitigation actions to be implemented by Parties not included in Annex I to the Convention. Available from http://unfccc.int/resource/docs/2011/awglca14/eng/inf01.pdf. 30

Environmental Protection Agency (2011) National Greenhouse Gas Inventory Report for 1990-2006. Volume 1: Synthesis Report. Available at: http://www.epa.gov.gh/index.php?option=com_docman&task=cat_view&gid=105&Itemid=73 31

Sherry Ayittey (2010) Submission of Appendix II of the Copenhagen Accord. Available from http://unfccc.int/files/meetings/cop_15/copenhagen_accord/application/pdf/ghanacphaccord_app2.pdf.

9

Infrastructure/ modes

Inadequate transport network Expand road, and develop infrastructure for and promote rail, maritime, air, and inland water transport systems.

Poor road conditions Improve road conditions by increasing the percentage of paved road.

Limited infrastructure for non-motorised transport

Expand infrastructure for non-motorised transport.

Services Inefficient public transport system

Develop and improve facilities for public transport system.

High preference for use of private vehicles

Incentivise the use of public transport and promote car pooling.

Fuel use Poor maintenance practice Enforce road worthiness certification requirements.

Retrofit existing refinery infrastructure and ensure that new refinerys produce non-metallic based gasoline.

High proportion of vehicle population use metallic-based gasoline

Substitute the use of gasoline with CNG, LPG and electricity for public transport.

Predominant use of gasoline and diesel fuels

Promote the production and use of bio-fuels as transport fuel.

Vehicle technology

Predominant use of conventional Euro II vehicles (manufactured before 2004)

Promote the use of Euro III and above as well as use flexi-vehicles. Institute measures to promote and switch from the use of gasoline and diesel fuels to CNG, LPG, and electricity for public transport.

COP16,

32 requested that the UNFCCC organise workshops to understand the diversity of mitigation

actions submitted by developing country Parties33

and in the first of the two workshops that have since been held took place on 4 April 2011 in Bangkok, Ghana was among the Parties to present. The presentation gave three examples of what a NAMA could look like in Ghana,

34 one of which was ‘the

establishment of an efficient urban transport system.’35

Proposals include the implementation of urban transport projects such as the Ghana Urban Transport Project, a BRT, develop rail based mass transport links and increase non-motorised transport facilities especially in city centres. An internal policy brief on NAMAs has been developed in Ghana,

36 and further analytical work on

NAMAs is ongoing in-country. They envisage that this in-country work will culminate in the identification of five NAMAs to be prioritised,

37 and a detailed ‘NAMA plan,’ which will contain

‘information on NAMA sectors or projects for submission to the UNFCCC.’

b) National transport and climate change policy context

32

For details of COP16 see http://unfccc.int/meetings/durban_nov_2011/meeting/6245.php. 33

UNFCCC (2011) Report of the Conference of the Parties on its sixteenth session, held in Cancun from 29 November to 10 December 2010. Addendum. Part Two: Action taken by the Conference of the Parties at its sixteenth session. Available from http://unfccc.int/resource/docs/2010/cop16/eng/07a01.pdf#page=2. 34

Kyekyeku Yaw Oppong-Boadi (2011) Ghana’s Nationally Appropriate Mitigation Actions. Available from http://unfccc.int/files/meetings/ad_hoc_working_groups/lca/application/pdf/ghana_namas.pdf. 35

The other two were: a feed-in tariff for renewable energy, where international support is used to pay for the additional costs of renewable energy compared to the fossil-fuel alternative; and a system of rebates to consumers for buying energy efficient electrical appliances, which will help consumers save electricity costs. 36

Cameron, L., van Tilburg, X. and Würtenberger, L. (2011) Policy brief. NAMAs and the Ghana Shared Growth and Development Agenda 2010 – 2013. Available from http://www.ecn.nl/docs/library/report/2011/o11019.pdf. 37

In relation to the following criteria, amongst others: emission reduction potential, contribution to sustainable development, market and technology potentials, financial feasibility, and development benefits.

10

This section provides an overview of key strategy documents in the fields of transport and climate change. National Climate Change Policy Framework (NCCPF) Ghana is currently developing a National Climate Change Policy Framework (NCCPF) through its Ministry of Environment, Science and Technology, a process which was started in 2010.

38 Its

development was initiated by the National Climate Change Committee (NCCC), which is introduced below. The NCCPF has three objectives: low carbon growth; effective adaptation to climate change; and social development. It is a broad Framework that is being designed as a mechanism for implementing and financing the national climate change policy framework.

Ghana Shared Growth and Development Agenda 2010 – 2013 (GSGDA)

39

This is the latest in a series of medium-term national development plans, which outline national development priorities. Developed by the National Development Planning Commission (NDPC) it introduces a strategy and policies to support economic, social and environmental development. It is broad in scope and incorporates issues such as governance and climate change considerations. It also recognises the strategic role of the transport sector in sustainable development. It is based on the medium- to long-term goals set out in the Government’s broader planning agenda ‘Better Ghana Agenda’ (see below). A Better Ghana

40

This broad agenda outlines the Government’s plans for Ghana. It contains a range of medium- to long-term goals. It sets out numerous high-level plans for enhancing the transport network, with a focus on road and rail for both passenger and freight vehicles. Sector Medium Term Development Plan (SMTDP) The Ministry of Roads and Highways (MRH) medium-term development plan is part of the GSGDA. It states that the main medium-term ‘development goal’ of the transport sector is to support efforts to increase development of the agriculture sector through infrastructure provision, and to develop an integrated, well managed and sustainable road transport network. Integrated Transport Plan 2011-2015 This is Ghana’s current integrated transport sector strategy, which supersedes the Transport Sector Development Programme (TSDP) for the period 2008 to 2012. It is a comprehensive programme of activities that contains priority actions to be undertaken over the period of the plan for all modes (road, rail, water and air), explicitly highlights the need for climate change mitigation in the sector, and recommends developing related capacity within transport agencies. Ghana Urban Transport Project (2007 to 2012)

41

38

Government of Ghana (2012) MEST to develop climate change policy framework (2012). Available at: http://www.ghana.gov.gh/index.php/news/general-news/10938-mest-to-develop-national-climate-change-policy-framework. 39

NDPC Ghana (2010) Medium-Term National Development Policy Framework: Ghana Shared Growth and Development Agenda (GSGDA), 2010 – 2013. Volume 1: Policy Framework. Available from http://www.ndpc.gov.gh/GPRS/7%20%20Ghana%20Shared%20Growth%20and%20Development%20Agenda%20(GSGDA%202010%20-%202013).pdf 40

National Democratic Congress (NDC) (2008) A Better Ghana. Available from http://www.presidency.gov.gh/sites/default/files/ndc_manifesto_General%20agenda%20Prez%20Mills.pdf

11

This project was initiated to improve the efficiency of urban transport across Ghana. It aims to improve mobility in urban areas by improving their transport systems through a combination of enhanced management and institutions, traffic engineering measures, regulations, and the implementation of BRT systems. It is being financed by domestic and international sources and includes climate change mitigation activities, notably through its aim to shift demand to sustainable modes of transport. National Science, Technology and Innovation Policy

42

‘Roads and Transport’ and ‘Environment’ are two of 19 ‘sectors’ featured in this policy document, the aim of which is to ensure that the economy develops on a foundation of science and technology and that related sector-specific science and technology programmes and activities are developed. In terms of ‘roads and transport’ the policy states that the transport network needs to be modern and well-developed to support an efficient economy. It recommends a number of specific interventions, which include promoting research and development in the sector and other forms of building capacity. The policy recognises the need to protect the natural environment and advocates the integration of environmental concerns in all development policies, related public awareness raising, and research and development.

For more information see also:

Würtenberger, L., Bunzeck, I.G. and van Tilburg, X. (2011) Initiatives related to climate change in Ghana. Towards coordinating efforts. Available from http://cdkn.org/wp-content/uploads/2011/04/Ghana-initiatives-mapping-climate-change-May2011.pdf.

Ministry of Environment, Science and Technology (2010) Government of Ghana. Ghana Goes for Green Growth. National engagement on climate change. Discussion document. Available from http://prod-http-80-800498448.us-east-1.elb.amazonaws.com/w/images/2/29/GhanaGreen.pdf.

c) Institutional framework Ghana operates as a representative democratic republic with a president supported by a vice president, ministers and a council of state formed of prominent citizens. Table 3 below introduces the Ghanaian Ministries, along with two related national bodies, that are most directly involved with national transport and climate change policy. Table 3 : Stated aims of relevant Ghanaian Ministries and key agencies with respect to transport and climate change.

Department Mission/Objectives

Ministry of Environment, Science & Technology (MEST)

This Ministry exists to establish a strong national scientific and technological base for Ghana’s sustainable development. It is responsible for co-ordinating Ghana’s response to climate change and its role includes developing the NCCPF. MEST and the Environmental Protection Agency (EPA) (a division within MEST) are responsible for the development and implementation of NAMAs, and indeed other work related to the UNFCCC, with MEST leading on policy and the EPA leading on technical aspects.

http://mest.gov.gh/

Ministry of Transport

Its role is to provide well integrated and well maintained roads as well as other transport infrastructure and services that meet national requirements and international standards on a

http://www.mot.gov.gh/

41

Centre for Urban Transportation (Ghana) (2010) Ghana Urban Transport Project. Available from http://www.utp-ghana.com/home.aspx. 42

Ministry of Environment, Science & Technology (2010) National Science, Technology and Innovation Policy. Available from: http://www.ghana.gov.gh/documents/stipolicy.pdf

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sustainable basis.

Ministry of Roads & Highways

This Ministry is tasked with formulating the requisite policies and monitoring and evaluating programmes and projects to ensure the provision of an affordable, integrated, safe, responsive and sustainable road transport network that meets national economic, social and environmental needs whilst adhering to international standards.

http://www.mrt.gov.gh/

Ministry of Finance and Economic Planning (MOFEP)

This Ministry oversees the management of public finances. It has been taking steps to co-ordinate and harmonise climate change related initiatives in Ghana.

http://www.mofep.gov.gh/

Ministry of Energy

It works to make energy services accessible and readily available across Ghana, and to meet energy needs in an environmentally sustainable manner.

http://www.energymin.gov.gh/

Energy Commission

This statutory body recommends national policies for the development and use of domestic energy resources, encourages energy efficiency standards, and advises the Ministry of Energy.

http://new.energycom.gov.gh/index.php

National Development Planning Commission (NDPC)

It advises the President on development planning policy and strategy by providing a national development policy framework and ensuring that related strategies are effectively implemented.

http://www.ndpc.gov.gh/

The key Ministries with respect to transport and climate change, as well as their respective departments, are outlined in

13

Figure 5 below.

Executive Council

Ministry of Environment Science and Technology

Town and country Planning

Department

Environmental Protection

Agency

Centre for Scientific and

Industrial Research

Ghana Atomic Energy

Commissions

Ministry of Transport

Rail sub-sector

Road Transport

service sub-sector

Maritime sub-

sector

Civil aviation

sub-sector

Ministry of Roads and Highways

Ghana Highways Authority

Department of Feeder

Roads

Department of Urban

Roads

Ghana Road Func

Secretiariat

Ministry of Energy

(Various departments and agencies)

Ministry of finance and economic

...and 14

others..

14

15

Figure 5: An overview of the Ministries in Ghana that are particularly active in terms of federal level transport and/or climate change policies.

Two ‘bodies’ have been established to encourage a cross-Governmental response to climate change. These are the National Climate Change Committee (NCCC) and the Environment and Natural Resources Advisory Council (ENRAC). The NCCC was established to co-ordinate the Government’s response to climate change and to provide climate related advice to the MEST. It is a multi-stakeholder initiative that actively seeks to engage scientists, policy-makers and other experts, for example through organising workshops and creating platforms (such as the National Science Policy Dialogue

43) via which climate related issues can be discussed. It has 24 members from

government, four from civil society, and one is a donor. ENRAC is another body that also oversees climate change related issues and was established in order to improve climate change activities across Government and their co-ordination. It is funded by MOFEP and is officially chaired by the Vice President.

43

Mensah, A., Tweneboah, E. and Gorden, C. (2009) Integrating Climate Change Adaptation and Mitigation in Development Planning: National Science - Policy Dialogue in Ghana. Post Dialogue Report. Available from http://start.org/download/2009/ccmap-ghana-final.pdf.

Executive Council

Ministry of Environment Science and Technology

Town and country Planning

Department

Environmental Protection

Agency

Centre for Scientific and

Industrial Research

Ghana Atomic Energy

Commissions

Ministry of Transport

Rail sub-sector

Road Transport

service sub-sector

Maritime sub-

sector

Civil aviation

sub-sector

Ministry of Roads and Highways

Ghana Highways Authority

Department of Feeder

Roads

Department of Urban

Roads

Ghana Road Func

Secretiariat

Ministry of Energy

(Various departments and agencies)

Ministry of finance and economic

...and 14

others..

16

Ghana’s Natural Resources and Environmental Governance Programme (NREG) is a programme that is running from 2008 until 2012 (although may be extended) with the task of enhancing governance around environmental issues. It has a focus on the forestry sector but a key aim of the programme is also to better integrate environmental issues such as climate change into policy formulation and implementation in all relevant Government departments. It has a remit to support sustainable development and has a number of associated targets, including annual targets for climate policy.

d) Sources of funding

Ghana presented their NAMA intentions in a pre-sessional workshop in Bangkok (as mentioned previously), where they highlighted the need for ‘enhanced mitigation’ in the country to be enabled and supported by international finance, capacity-building and technology transfer provided by developed countries.

44 It said that they were ‘open for technical and financial support to support preparation and

implementation of NAMAs.’ Their written submission to the UNFCCC31

also detailed their intention to analyse the amount of international financial (as well as technological and capacity building) support that they would require. They stated that GHG emissions in Ghana could be reduced from a business as usual scenario with unilateral NAMAs, although indicated the additional mitigation potential associated with the provision of (internationally) supported NAMAs, and greater still with credited NAMAs. Ghana’s need for international support for shifting towards a lower carbon economy is also outlined in their medium-term national development plan.

45

e) MRV provisions In their written submission Ghana stated that they would require international capacity building support in order to meet necessary MRV standards.

31 The presentation that they delivered at the workshop

also indicated the lack of a current MRV framework for NAMAs in Ghana but an intention to develop one. They explicitly mentioned an intention to develop a national MRV system to support the next step of NAMA development and that would be consistent with international guidelines, once such guidelines are adopted.

44

There are indications that Ghana is receiving support to develop their MRV capacity for NAMAs. Japan, for example, has started to collaborate with Ghana (specifically the Ministry of Environment, Science and Technology), as well as Ministries in 11 other African countries, to develop an ‘MRV system for NAMAs.’

46

3 Indonesia

In 2005 the transport sector in Indonesia was responsible for 20.7% of national CO2 emissions, 89% of which were emitted from the road transport sector.

47

Indonesia has the fastest rate of deforestation of any country and associated GHG emissions, which account for approximately 80% of Indonesia’s total GHG emissions, position the country as the third largest global emitter of GHGs behind the USA and China.

48

44

Kyekyeku Yaw Oppong-Boadi (2011) Ghana’s Nationally Appropriate Mitigation Actions. Available from http://unfccc.int/files/meetings/ad_hoc_working_groups/lca/application/pdf/ghana_namas.pdf. 45

NDPC Ghana (2010) Medium-Term National Development Policy Framework: Ghana Shared Growth and Development Agenda (GSGDA), 2010 – 2013. Volume 1: Policy Framework. Available from http://www.ndpc.gov.gh/GPRS/7%20%20Ghana%20Shared%20Growth%20and%20Development%20Agenda%20(GSGDA%202010%20-%202013).pdf. 46

Government of Ghana (2012) Japan Government Holds Workshop On Climate Change Mitigation. Available from http://ghana.gov.gh/index.php/news/general-news/10543-jap. 47

Republic of Indonesia (2009) Indonesia Climate Change Sectoral Roadmap. Available from http://www.paklim.org/wp-content/uploads/downloads/2011/05/ICCSR-_synthesis-report_2010.pdf.

17

a) Transport NAMA intentions that have been communicated to the UNFCCC

Indonesia communicated their association with the Copenhagen Accord in a letter dated 30 January 2010.

49 The letter included a list of economy wide

50 voluntary mitigation actions, which they estimated

would collectively reduce national emissions by 26% by 2020. It did not specify the base year that the 26% reduction would take place from and nor did it provide specific information about how the mitigation actions would take place. In the context of land transport, for example it communicated only an intention to ‘shift to low-emission transportation mode.’ Indonesia’s ‘National Mitigation Action Plan’ (RAN-GRK) is a working document that contains more concrete details about how Indonesia intends to meet the voluntary 26% target.

51 It has been stated

that ‘the Government of Indonesia intends to achieve its national greenhouse gas emission reduction target through the implementation of NAMAs.’

52

The unilateral 26% emission reduction target was first communicated at a G20 Summit Meeting in Pittsburgh in September 2009 where it was also stated that national emissions could be reduced by up to 41% from a business as usual scenario if international support was available.

53 Indonesia is one of three partner countries in GIZ’s TRANSfer project, which aims to support decision makers to develop NAMAs.

54 In Indonesia, GIZ is supporting the Transport Ministry’s Working Group

on Transport and Climate Change (see below) to develop an urban transport programme as a supported pilot NAMA. Its development has been based on the national action plan for climate change mitigation, which is introduced in the next section.

b) National transport and climate change policy context

This section contains an overview of Indonesian strategy and policy documents in the fields of transport and climate change. National Action Plan on Climate Change (RAN-PI)

55

48

Bank Dunia - The World Bank, DfID Indonesia and PEACE (2007) Indonesia and Climate Change: Current Status and Policies. Available from http://siteresources.worldbank.org/INTINDONESIA/Resources/Environment/ClimateChange_Full_EN.pdf. 49

Rachmat Witoelar (2010) Indonesia Voluntary Mitigation Actions. Available from http://unfccc.int/files/meetings/cop_15/copenhagen_accord/application/pdf/indonesiacphaccord_app2.pdf. 50

NAMAs were proposed in the following areas: shifting to low-emission modes of transport, promotion of energy efficiency, development of alternative and renewable energy sources, sustainable peat land management, reduction in the rate of deforestation and land degradation, carbon sequestration projects in forestry and agriculture, and reduction in solid and liquid waste. 51

In the ‘energy and transport’ sector it states that they will achieve required emission reductions through: bio-fuel use, engines with higher fuel efficiency standards, improvements in Transport Demand Management (TDM), improved quality of public transport and roads, demand side management, energy efficiency, and renewable energy development. 52

Hardiv H. Situmeang et al (2011) Development of the Indonesian NAMAs framework. Background Study – final draft. Available from http://www.paklim.org/wp-content/uploads/downloads/2011/12/GIZ-PAKLIM-Indonesian-NAMA-framework-development-full-report.pdf. 53

Ministry of Environment Republic of Indonesia (2010) Indonesia Second National Communication under the United Nations Framework Convention on Climate Change. Available from http://unfccc.int/files/national_reports/non-annex_i_natcom/submitted_natcom/application/pdf/indonesia_snc.pdf. 54

For more information see the TRANSfer project’s website at http://www.transferproject.org/index.php?start=6. 55

Republik Indonesia (2007) Rencana Aksi Nasional Dalam Menghadapi Perubahan Iklim (RAN-PI). Available from http://csoforum.net/attachments/023_RAN%20PI-Indonesia.pdf.

18

This policy document was published by the Government of Indonesia in 2007. It is one of the initial inputs to Indonesia’s national climate change policy framework, and as such sets a framework for the more recent policy documents introduced below. Indonesia Climate Change Sectoral Roadmap (ICCSR)

56

This outlines Indonesia’s strategic vision in relation to climate change mitigation and adaptation. Transport is one of the sectors that this ‘roadmap’ emphasises the need to reduce GHG emissions from,

57 detailing prioritised actions (based on the ‘avoid, shift and improve’ approach to emission

reduction), targets, capacity building needs, financial assessments and associated Ministries and other stakeholders, including donors. It covers the period to 2030 and is the basis for both the current and future Medium-term Development Plans (see below). It is designed to be a working document that will evolve in response to external developments and co-ordinate responses to climate change across the economy. National Action Plan for Green House Gas Reduction (RAN-GRK)

58

This Action Plan is a policy framework for central and local governments, the private sector and other key stakeholders for climate change mitigation over the period 2010 to 2020. This document, which has been mentioned above, was approved in 2011 and contains an overview of the national mitigation potential with a focus on activities in five priority sectors for national development planning, one of which is ‘Energy and Transport.’

59 It includes 30 transport activities, to be implemented on the local

and national level, and builds on those listed in the ICCSR. It states that the framework that it contains is designed to follow the conceptual steps of a NAMA, and that NAMAs will be a vehicle for operationalising the RAN-GRK. It links closely to the RAD-GRK (see below) owing to the recognition of the role of local governments in meeting (and setting) the national GHG emission reduction target. It is also part of Indonesia’s Long-Term and Med-Term Development Plans (see below), and as such is the foundation for related activities in numerous Ministries and institutions. Local Action Plan for Green House Gas Emission Reduction (RAD-GRK)

60

The RAN-GRK adopts a co-ordinated and participatory approach to climate change mitigation, and as such states that national GHG emission reduction targets will not be met without action on the local level, specifically through local mitigation plans which will be complied to one national RAD-GRK. These are seen as a means of implementing the RAN-GRK, which requires that each province of Indonesia develops one local action plan that includes a strategy for emission reductions and that is integrated with other local strategic planning and policy documents, such as Strategic Plans for the Transport Sector. Long-Term Development Plan (RPJPN) (2005 to 2025)

61

This is an economy-wide sustainable development framework, of which the RAN-GRK and RAD-GRK are effectively designed to form part of the climate change component. National Mid-Term Development Plan (RPJMN) (2010 to 2014)

62

56

Republic of Indonesia (2009) Indonesia Climate Change Sectoral Roadmap. Available from http://www.paklim.org/wp-content/uploads/downloads/2011/05/ICCSR-_synthesis-report_2010.pdf. 57

The other sectors are: forestry, energy, industry, agriculture, coastal area, water, waste and health. 58

Government of Indonesia (2011) Rencana Aksi Nasional Gas Rumah Kaca (RAN-GRK). Jakarta. 59

The other four are: agriculture, forestry and peatland, industry and waste management. 60

Government of Indonesia. Rencana Aksi Daerah Pengurangan Emisi Gas Rumah Kaca (RAD-GRK. Jakarta. See http://sutip.mine.nu/ENV/OUTPUT/2011/05-Guideline_RAD_GRK_2011_04_08.pdf. 61

Ministry of National Development Planning/National Development Planning Agency (2007) 2005-2025 National Long-Term Development Plan. Available from http://www.ssc-indonesia.org/index.php?option=com_content&view=article&id=265:rpjpn&catid=121:rules-and-regulation&Itemid=121.

19

This document is also linked to the RPJP, and the RAN-GRK and RAD-GRK are based on this Mid-Term Development Plan. There will be two more RPJMNs that outline how to operationalise the RPJP. For more information see also:

BAPPENAS (2012) National Action Plan on Greenhouse Gas Action Plan (RAN GRK) and Nationally Appropriate Mitigation Actions (NAMAs). How are they connected?. Available from http://www.paklim.org/wp-content/uploads/downloads/2012/01/NAMAs-RAN-GRK-briefing-note_english.pdf.

Republic of Indonesia (2011) Guideline for implementing Green House Gas emission reduction action plan. Available from http://www.transport2012.org/bridging/ressources/documents/2/1717,Guideline-on-the-implementation-of-.pdf.

Cooperation Republic of Indonesia, GIZ and AfD (2011) Development of the Indonesian NAMAs Framework. Available from http://www.paklim.org/wp-content/uploads/downloads/2011/12/GIZ-PAKLIM-Indonesian-NAMA-framework-development-full-report.pdf.

Ministry of Finance and the World Bank (2008) Low Carbon Development Options for Indonesia. Available from http://www.esmap.org/esmap/sites/esmap.org/files/Final%20Low%20Carbon%20Dev%20Options%20Phase1_english_0.pdf [an overview of Indonesia’s recent but superseded climate change policy framework].

c) Institutional framework

The Republic of Indonesia is a democratic multi-party presidential republic. As in other democratic countries the Indonesian political system separates legislative, executive and judicial powers. After re-election in 2009, the executive power lies with President Susilo Bambang Yudhoyono, the Vice President, and the United Indonesia Cabinet of Ministers covering coordination, state and departmental roles. The transport minister is one of twenty departmental ministers and the environment minister is one of ten state ministers. The responsibilities of the core national ministries in respect to transport and climate change are outlined in

Table 4. It should also be noted that Indonesia’s administrative system is relatively decentralised, and

that local governments are quite powerful and diverse.

Table 4 : Responsibilities of core Ministries in respect to transport and climate policy.63

Ministry Remit Official website

Ministry for the Environment

It is responsible for national environmental policy and planning, provides related technical guidance across sectors, and is one of three Ministries that facilitate the RAD-GRK development.

64 It is responsible for

http://www.menlh.go.id/

62

Ministry of National Development Planning/National Development Planning Agency (2010) Regulation of the President of the Republic of Indonesia. Number 5 of 2010 regarding the National Mid-Term Development Plan (RPJMN) 2010 - 2014. Available from http://www.ssc-indonesia.org/images/documents/rpjmn%202010-2014.pdf. http://www.google.co.uk/url?q=http://bappenas.go.id/get-file-server/node/9374/&sa=U&ei=Npt9T47eHoaf0QWD0LWkDQ&ved=0CBMQFjAA&sig2=E4Z_f12K5QZeFt_gAlw_xA&usg=AFQjCNGo18ZcwtB9_zYTmbb1Fnv4CpVdag 63

Ministry of National Development Planning/National Development Planning Agency (2011) Guideline for implementing Green House Gas emission reduction action plan. Available from http://www.transport2012.org/bridging/ressources/documents/2/1717,Guideline-on-the-implementation-of-.pdf 64

The other two are the Ministry of Home Affairs and the Ministry of National Development Planning.

20

Indonesia’s GHG emission inventory, and providing related guidance.

Ministry of Transportation

This Ministry is responsible for the governance and regulation of transport across Indonesia.

http://www.dephub.go.id/

Co-ordinating Ministry for the Economy

Its mandate is to co-ordinate and synchronise all elements of national economic development, ensuring that it is inclusive and sustainable. It has an active role in planning and policy, and co-ordinates the implementation and monitoring of RAN-GRK by the relevant Ministries/Agencies. It also reports to the President at least once a year on the implementation of the RAN-GRK.

http://www.ekon.go.id/

Ministry of National Development Planning/ BAPPENAS

It is responsible for national development. The Ministry co-ordinates the implementation of RAN-GRK by relevant Ministries/Agencies, and will also lead and co-ordinate the NAMA development process.

http://www.bappenas.go.id/

Ministry for Energy and Mineral Resources

The Ministry’s role is to increase national energy security and independence, enhance access to energy across Indonesia, and to support the responsible use of the country’s resources.

http://www.esdm.go.id/

Ministry of Home Affairs

Its role is to facilitate a democratic political system and participate in related areas, such as sustainable regional development. It facilitates the RAD-GRK development with the Ministry of National Development Planning and Minister of the Environment.

http://www.depdagri.go.id/

Co-ordinating Ministry for People Welfare

It is tasked with the co-ordination of planning and the development and implementation of policy across the economy in the field of welfare and poverty reduction. This Ministry receives reports of the national GHG inventory and related processes, as well as of the RAN-GRK implementation.

http://www.menkokesra.go.i

d/

Figure 7 below gives an indication of the framework for the implementation of the primary national climate change mitigation policies. It provides a relatively high-level overview but shows the cross-Ministry and cross-sector co-ordination that forms the basis of domestic climate change activities. In this process the Minister of the Economy is tasked with co-ordinating the implementation and monitoring of the national climate change strategy (RAN-GRK and RAD-GRK) with the relevant Ministers and Agency Heads. It receives reports on the implementation of the RAN-GRK from these bodies at least once a year and in turn reports progress to Indonesia’s President. The Minister of PPN/Head of BAPPENAS plays a co-ordinating role below the Minister for Economy, informing also the Minister for People’s Welfare of its reports. It has formed a ‘National Working Group’ to facilitate this role, with members from key stakeholder groups such as Ministries, Agencies, Local Government representatives and external experts.

21

Figure 6: The overarching framework for the implementation of the RAN-GRK and RAD-GRK (National and Local Action Plans for Greenhouse Gas Reduction).

Indonesia has a National Council on Climate Change (NCCC or DNPI in Indonesian),

65 which is

tasked with building organisational and technical capacity in the context of climate change policy. It aims to support the development, co-ordination, monitoring and evaluation of national and local level climate change policies across sectors. Its composition appears to be evolving as several different structures are featured in different official documents. It does, however, appear to be led by the Minister for the Environment, chaired by the President of Indonesia, and have members from Ministries representing interests across the State. Figure 7 below is based on the structure of the NCCC as presented by Indonesia’s Ministry of Transportation in December 2011. The Transport Working Group on Climate Change featured in Figure 7 has over 40 members from the Ministry of Transport.

66

65

Dewan Nasional Perubahan Iklim (2009). Dewan Nasional Perubahan Iklim. Available from http://www.dnpi.go.id/ .

President

Minister of Economy

Ministry of National Development Planning/ National Development Planning Agency (Bappenas)

Minister of Home Affairs

Minister of Environment

Other related Ministries/Agencies

Provincial Governments

Governors

Minister for People's Welfare

22

Figure 7: A ‘condensed’ structure of the NCCC/DNPI to focus on its transport related functions.

66

The NCCC/DNPI is responsible for developing NAMAs and actions to support them to achieve MRV, although Indonesia has also created a National Centre for NAMA development (NC4ND), which was established by BAPPENAS with support from donor Governments of Germany, France and Japan.

67

d) Sources of funding Indonesia has stated that they will aim to reduce emissions by 26% by 2020 on a unilateral basis, and the RAN-GRK, which outlines their voluntary national contribution, was developed by financing from a range of relevant local and central government Ministries and Agencies. In addition they are working on the creation of an Indonesian Climate Change Trust Fund to provide funding for innovative projects and thus create a good environment for mitigation actions. It is especially relevant for RAN and RAD GRK. To date this has not been used for any transport projects.

The country has said that they may be able to reduce emissions by 41% with international financial support.

68 They have specifically stated that they do not anticipate receiving finance through the

carbon market, rather from the Green Climate Fund and other international funds.69

66

Aritenang, W. (2011) Developing transport-NAMAs in Indonesia. Available from http://www.transport2012.org/bridging/ressources/documents/2/1671,4.Aritenang-GIZ-BMU-TRANSfer-Event-.pdf. 67

Hardiv H. Situmeang et al (2011) Development of the Indonesian NAMAs framework. Background Study – final draft. Available from http://www.paklim.org/wp-content/uploads/downloads/2011/12/GIZ-PAKLIM-Indonesian-NAMA-framework-development-full-report.pdf. 68

Ministry of Environment Republic of Indonesia (2010) Indonesia Second National Communication under the United Nations Framework Convention on Climate Change. Available from http://unfccc.int/files/national_reports/non-annex_i_natcom/submitted_natcom/application/pdf/indonesia_snc.pdf. 69

Republic of Indonesia (2011) Guideline for implementing Green House Gas emission reduction action plan. Available from http://www.transport2012.org/bridging/ressources/documents/2/1717,Guideline-on-the-implementation-of-.pdf.

President (Chair)

The State Ministry of National Development Planning (BAPPENAS)

DNPI Secretariat

Numerous divisions

Transport Working Group on Climate

Change (Ministry of Transport)

Sub-sector land transport

Sub-sector railway transport

Sub-sector sea transport

Sub-sector air transport

Numerous other Working Groups

on NCCC activities

Stakeholders

23

They are currently receiving support to develop (with a view to implementing) transport NAMAs, including contributions from the German Federal Ministry for the Environment, Nature Conservation and Nuclear Safety (BMU) under the TRANSfer Project.

70

e) MRV provisions

Indonesia has stated that it’s National Action Plan (RAN-GRK) will be accompanied by an MRV system ‘in order to ensure that each action receives the necessary level of funding.’

71 Indonesia’s

guidelines for implementing GHG emission reductions72

also state that the climate change mitigation impacts of activities in the RAN-GRK will be ‘measurable.’ They further state that the national climate change action plan is developed on the principles of MRV according to existing UNFCCC principles and that it is not possible to have NAMAs without an accompanying MRV framework. The guidelines indicate how Indonesia is intending to measure emission reductions from the transport sector (through a combination of a top-down and bottom-up approach – based on the ASIF model

73 -

and the establishment of a baseline). They outline key steps that Indonesia recommends that it follow to MRV transport sector climate change mitigation activities, whilst also stating that they would be able to make such calculations more accurately with access to ‘better methodologies, data and information.’ Indonesia appears to be at a relatively early stage of MRV process development. The guidelines, which were published in 2011, indicate that the ‘business as usual’ scenario for Indonesia has not yet been calculated and nor have robust sector scenarios, with only an indicative climate change mitigation impact of the transport sector policy having been estimated. The guidelines also highlight the fact that the monitoring of mitigation activities is a new task for central and local government agencies. A recent report on the development of Indonesia’s NAMA framework

74 adds that there is no

monitoring system in place for the RAN-GRK, which as stated previously aims to provide guidance for concrete actions needed to meet Indonesia’s emission reduction targets. The report also reiterates the fact that there is no accurate data available to support sectoral emission reduction potential or projections.

70

For more information on this work in the transport sector see http://www.transferproject.org/. 71

UNFCCC (2011) Compilation of information on nationally appropriate mitigation actions to be implemented by Parties not included in Annex I to the Convention. Available from http://unfccc.int/resource/docs/2011/awglca14/eng/inf01.pdf. 72 Republic of Indonesia (2011) Guideline for implementing Green House Gas emission reduction

action plan. Available from http://www.transport2012.org/bridging/ressources/documents/2/1717,Guideline-on-the-implementation-of-.pdf. 73

Schipper, L., Cordeiro, M. and Wei-Shiuen, N. G. (2007) Measuring the Carbon Dioxide Impacts of Urban Transport Projects in Developing Countries. Available from http://pdf.wri.org/measuring-co2-impacts-transport-projects-developing-countries.pdf. 74

Cooperation Republic of Indonesia, GIZ and AfD (2011) Development of the Indonesian NAMAs Framework. Available from http://www.paklim.org/wp-content/uploads/downloads/2011/12/GIZ-PAKLIM-Indonesian-NAMA-framework-development-full-report.pdf.

24

4 Mexico

The transport sector is responsible for approximately 18% of Mexico’s total GHG emissions, 90% of which are from road transport.

75

Transport is the largest and fastest growing emitter of GHG emission and Mexico’s fastest growing consumer of energy consumer in Mexico in Mexico. The size of the vehicle fleet alone tripled between 1996 and 2006.

75

a) Transport NAMA intentions that have been communicated to the UNFCCC

In the NAMA communication to the UNFCCC that Mexico submitted in January 2010 they did not directly outline NAMAs but rather referred to their Special Climate Change Program (SCCP or PECC in Spanish),

76 which they estimated would reduce emissions by 51 million tonnes of CO2 equivalent

above a business as usual scenario by 2012.77

The SCCP estimates that mitigation activities in the land transport sector will account for approximately 11% of the estimated emission reductions (5.74 megatonnes of CO2 equivalent). Table 5 below contains the related climate change mitigation activities as outlined in the SCCP. Table 5: Land transport ‘NAMAs’ communicated by Mexico via their Special Climate Change Program (SCCP/PECC).

‘Objective’ (followed by the relevant number in the SCCP)

‘Goal’

Energy savings in transport by adopting better practices and applying energy efficiency standards (2.2.1)

Adopt a standard for fuel use and CO2 emissions for new light duty vehicles in 2010

Reduce consumption of diesel and gasoline by 16 peta joules (PJ) annually through the transport program of the National Energy Conservation Agency (CONUEE)

Reduction of energy consumption in freight and passenger transport (2.2.2)

Include relevant stakeholders in the Clean Transport Program of the Ministry of Environment and Natural Resources (SEMARNAT)

Expansion and modernisation of federal roads (2.2.3)

Construction of 38 new road ‘sections’

Construction of 18 new highways

Renewal of vehicle fleet to increase energy efficiency (2.2.4)

Scrapping of 15,100 vehicles

Develop four financing schemes for different sub-sectors in order to upgrade 40,000 vehicles

Reduce energy intensity of rail infrastructure via multimodal schemes (2.2.5)

Increase the market share of rail freight by 2.3percentage points (from 26% of tonne-kms to 28.3%)

Introduce modern urban public transport systems in cities with more than 100,000 inhabitants (2.2.6)

Increase the proportion of metropolitan areas and cities with more than 100,000 inhabitants that are served by modern urban transport (with an emphasis on BRT) from 36% to 100% with the programmes of PROTRAM (Programa de Apoya Federal al Transporte) and FONADIN (Fondo Nacional de Infraestructura).

Suburban passenger transport (2.2.7) Increase the capacity of ‘passenger vehicles’ by running lines 1, 2 and 3 of the suburban train of the Metropolitan

75

ECOFYS (2010) NAMAs in the transport sector – a case study for Mexico. Available from http://www.slocat.net/wp-content/uploads/2009/11/Final-report-Ecofys-idb-NAMA.pdf. 76

Poder Ejecutivo Federal (2009) Programa Especial de Cambio Climatico 2009-2012. Available from http://www.cambioclimatico.gob.mx/images/stories/PDF/pecc_capitulos.pdf. 77

Socorro Flores Liera (2010) Convención Marco de las Naciones Unidas sobre Cambio Climático. Available from http://unfccc.int/files/meetings/cop_15/copenhagen_accord/application/pdf/mexicocphaccord_app2.pdf

25

Area of the Mexico Valley.

Source: PECC76

based on the English language translation in Ecofys (2010).75

In addition to the emission reduction target for 2012, Mexico’s communication to the UNFCCC also outlined their aim to reduce GHG emissions by 30% from a business as usual scenario by 2020, subject to the provision of adequate financial and technological support from developed countries. Mexico’s communication of 2010 was followed up by a presentation on their mitigation actions in the first workshop organised by the UNFCCC on NAMAs, which was held in Bangkok.

78 Mexico

presented mid-term goals for the period 2020 to 2030 and ‘potential NAMAs’ for four sectors in Mexico, one of which was the transport sector. The potential transport NAMAs are similar to those outlined in their initial communication, and are specifically: to accelerate the development of ‘Mass Public Clean Transport Systems’ in the country; to expand technologies beyond BRT, and to replace old vehicles and optimise routes in medium-sized cities.

79

Mexico is taking numerous steps to develop NAMAs beyond their communications to the UNFCCC. These include the development of proposals for a national freight NAMA,

80 and a NAMA to optimise

public transport routes in cities, which are being led by the Ministry of Environment and Natural Resources (SEMARNAT) with international support.

81 They also include an internationally supported

NAMA in Mexico City to expand their public bike programme (Ecobici/ Eco Bike), which is being developed by the City’s Ministry of the Environment (SMA).

82

b) National transport and climate change policy context

This section contains a short overview of climate change activities at federal level with a focus on transport and climate change. In line with the rest of this paper it focuses on the national level, although it is important to note that there are also many related activities taking place at State level. Many of Mexico’s 32 States, for example, have developed, or are in the processing developing, Climate Change Action Plans (PEACs in Spanish). Vision Mexico 2030

83

This document is a broad long-term ‘vision’ for Mexico, which sets out a commitment to sustainable development. It outlines the type of country that Mexico aspires to be in 2030 – economically, socially and environmentally, and also in terms of governance. 2007-12 Plan Nacional de Desarrollo (PND) (National Development Plan)

84

This National Development Plan outlines a development strategy for Mexico over a six year period that encompasses issues of social, economic and environmental sustainability. It is compatible with

78

UNFCCC (2011) Pre-sessional workshops – United Nations Climate Change Talks, Bangkok, 3 to 8 April 2011. Available from http://unfccc.int/bodies/awg-lca/items/5928.php. 79

Mata Sandoval, J. C. (2011) Mexico’s approach on NAMAs. Available from http://unfccc.int/files/meetings/ad_hoc_working_groups/lca/application/pdf/mexico_ws.pdf. 80

This is likely to comprise three actions: technological improvements to vehicles, improvements to logistics and to infrastructure. 81

For example see Ecofys (2010) Nationally Appropriate Mitigation Actions. Insights from example development. Available from http://www.ecofys.com/files/files/report_ecofys_nama_overview_eng_04_2010.pdf and Centro de Transporte Sustentable (2012) Reúne CTS a actors interesados en el desarrollo de una NAMA de tranpsorte de carga. Available from http://www.ctsmexico.org/node/571. 82

CTS (2012) Se comprometen la Secretaría del Medio Ambiente y el CTS para combatir el cambio climático. Available from http://www.ctsmexico.org/node/566. 83

Estados Unidos Mexicanos (2007). Visión 2030. El México que queremos. Available from http://www.vision2030.gob.mx/pdf/folleto.pdf. 84

Poder Ejecutivo Federal (2007) Plan Nacional de Desarrollo 2007-2012. Available from http://pnd.calderon.presidencia.gob.mx/pdf/PND_2007-2012.pdf.

26

the ‘Vision Mexico’ scenario,83

and sets out national goals, development priorities and related strategies that can support its realisation. Mexico refers to it as a ‘starting point’ for national development, and it dictates policy for the country’s Ministries, which is then incorporated into sectoral plans including a strategy for the transport sector. These also include the Special Climate Change Program (SCCP), which is introduced below, and which is part of the PND’s ‘environmental sustainability’ pillar. Mexico’s National Climate Change Strategy (NCCS) (Estrategia Nacional de Cambio Climático - ENACC)

85

This Strategy was published in 2007. It is a long-term strategy for climate change mitigation in Mexico, identifying opportunities for climate change mitigation in the country, estimating the potential impact of specific measures, and developing medium- to long-term goals for adaptation and mitigation. It contains national requirements for capacity building and has contributed to the development of the SCCP (see below). Special Climate Change Program (SCCP) (Programa Especial de Cambio Climático 2009-2012 - PECC)

86

The Special Climate Change Program (SPCC, or PECC in Spanish) builds on previous national policy and strategy documents, most notably the National Climate Change Strategy (NCCS),

85 which it

defines how to operationalise in the short-term. It is an economy-wide strategy, published in 2009, that highlights climate change mitigation related objectives and priorities whilst also making reference to the related potential for economic growth. It is the basis of Mexico’s intention to conduct NAMAs submission to the UNFCCC and indicates how emissions can be reduced by 51 MtCO2e by 2012, by 30% by 2020, and by 50% on 2000 levels by 2050. It has four main components: long-term vision, mitigation, adaptation, and policy mainstreaming. It is considered part of the 2007-2012 Plan Nacional de Desarrollo (PND) (National Development Plan) of which it is integral to its environmental sustainability pillar. A World Bank study

87 (which is widely referred to as the ‘MEDEC’ study – México: Estudio sobre la

disminución de Emisiones de Carbono) was published in 2010 to ‘contribute to the implementation’ of the PECC by developing a low-carbon ‘scenario’ for the period until 2030. The transport sector was one of five sectors evaluated for their climate change mitigation potential in this study owing to its potential to reduce GHG emissions.

88

For more information see also:

Cambio Climatico (2010) Publications. Available from http://www.cambioclimatico.gob.mx/index.php/en/publicaciones.html.

United States Agency for International Development/USAID (2010) Low emission development strategy: Pre-scoping mission assessment Mexico. Final report available from, http://pdf.usaid.gov/pdf_docs/PNADW067.pdf.

c) Institutional framework

Mexico is a federal democratic republic headed by a President (currently President Felipe Calderón but elections will take place in July 2012). The Mexican federal government has three branches:

85

Intersecretarial Commission on Climate Change (2007) Estrategia Nacional de Cambio Climático. Available from http://www.cambioclimatico.gob.mx/index.php/politica-nacional-sobre-cambio-climatico.html#enacc. 86

Poder Ejecutivo Federal (2009) Programa Especial de Cambio Climático 2009-2012. Available from http://www.cambioclimatico.gob.mx/images/stories/PDF/pecc_capitulos.pdf. 87

Johnson,T., Alatorre, M., Romo, Z., and Lui, F. (2010) Low carbon development for Mexico. Available from http://www.embarq.org/sites/default/files/LowCarbonDevelopmentMexico.pdf. 88

The other four sectors were: electric power, oil and gas, stationary energy end-use, agriculture and forestry.

27

executive, legislative and judicial. The executive branch comprises the President, Cabinet and other officers. There are eighteen secretaries of state in the cabinet along with the head of the federal executive legal office and the Attorney General. An overview of the departments with the most direct transport and climate change responsibilities is provided in Table 6.

Table 6 : Responsibilities of Mexican government departments with respect to climate and transport policy.

Department Remit89

Official website

Ministry of Communications and Transport (SCT)

It is responsible for federal level transport, such as inter-city transport, and is as such in charge of road, air, maritime and rail transport, as well as communications.

http://www.sct.gob.mx/

Ministry of Environment and Natural Resources (SEMARNAT)

Its responsibilities include climate policy and specifically Mexico’s participation in the UNFCCC. Its implementing agency is the Instituto Nacional de Ecología (INE) (National Institute of Ecology). The INE conducts research on climate change in Mexico in line with the National Development Plan, sectoral and institutional programmes, and requirements of the UNFCCC. The Office for International Affairs (UCAI) is a department of SEMARNAT that co-ordinates policy on international environmental agreements and donors.

SEMARNAT: http://www.semarnat.gob.mx/Pages/Inicio.aspx INE: www.ine.gob.mx

Vice-Ministry of Environmental Planning and Policy (SPPA)

This Vice-Ministry of SEMARNAT has responsibilities that include formulating and co-ordinating national climate change policy. The Vice-Ministry also encompasses the General Directorate for Climate Change Policy (DGPCC), which acts as a technical secretary for the CICC and monitors the implementation of the SPCC.

n/a

Ministry of Social Development (SEDESOL)

Its responsibilities include the development and implementation of land-use, urban planning and infrastructure policies. It therefore has some influence on urban transport.

http://www.sedesol.gob.mx/

Ministry of Energy (SENER)

It is responsible for the development of energy policies. It also co-ordinates all of the strategies, plans, programs and projects related to clean energy and climate change issues that are implemented by the different agencies, commissions and entities in the energy sector. One of its decentralised agencies is the National Commission for Energy Efficiency (CONUEE), which is the technical body responsible for promoting energy efficiency.

SENER: http://www.sener.gob.mx/ CONUEE: http://www.conuee.gob.mx/wb/CONAE/english

Ministry of Finance and Public Credit (SHCP)

It prepares the national budget and in doing so determines levels of funding for government institutions and subsidy policies.

http://www.shcp.gob.mx/Paginas/default.aspx

Ministry of the Economy (SE)

This Ministry promotes economic growth and is involved in the support of a broad range of public policies.

http://www.economia.gob.mx/

Ministry of agriculture, livestock, rural

Programmes implemented by the Ministry focus on environmental protection, sustainable rural development, climate change mitigation and

http://www.sagarpa.gob.mx/Paginas/default.aspx

89

USAID (2010) Low Emission Development Strategy: Pre-scoping Mission Assessment Mexico. Final Report. Available from http://pdf.usaid.gov/pdf_docs/PNADW067.pdf.

28

development, fisheries and food (SAGARPA)

adaptation, and the improvement of standards of living in rural and poor areas.

Ministry of Foreign Affairs (SRE)

Its role includes setting guidelines for, and co-ordinating policy on, international affairs and interaction with international donors and agencies.

http://www.sre.gob.mx/

There are a number of different bodies that have been established in order to respond to climate change in Mexico, and these are co-ordinated at the federal level by the Inter-ministerial Commission for Climate Change (CICC), which is also responsible for formulating related policy and incorporating it into sectoral programmes. The composition of this Commission, which was established in 2005, is outlined in Figure 8 below. The role of each of the Working Groups referred to in Figure 8 is introduced at: http://www.cambioclimatico.gob.mx/index.php/politica-nacional-sobre-cambio-climatico.html#gt_mitig.

Figure 8: Inter-Ministerial Climate Change Commission (CICC).90

The CICC is led by the Ministry of Environment (SEMARNAT) which reports directly to the President of Mexico. It is composed of senior representatives from seven other Ministries: Energy (SENER), Agriculture (SAGARPA), Transport (SCT), Economics (SE), Social Development (SEDESOL), Health, the Interior, and Foreign Affairs (SRE). The Tourism Ministry and the National Institute of Statistics and Geography are also members.

91 The work of the CICC is communicated to actors including

National Governors, Local Environment Authorities, Sustainable Development Councils, the Climate Change Experts Council, and the private sector.

92 ‘Policy mainstreaming’ is one of the four pillars of

the SCCP/PECC, in which inter-sectoral and inter-institutional co-ordination are prominent, and this is reflected in the composition of the CICC and its Working Groups.

90

Cambio Climatico (2010) National Climate Policy - Mexico. Available from http://www.cambioclimatico.gob.mx/index.php/politica-nacional-sobre-cambio-climatico.html#gt_pecc. 91

USAID (2010) Low Emission Development Strategy: Pre-scoping Mission Assessment Mexico. Final Report. Available from http://pdf.usaid.gov/pdf_docs/PNADW067.pdf. 92

Mata Sandoval, J. C. (no date) February 2nd

and 3rd

, Washington, D. C. Available from http://prod-http-80-800498448.us-east-1.elb.amazonaws.com/w/images/2/23/JMS_LEDS_Washington.pdf.

29

In terms of general transport responsibilities it is of relevance to note that the Ministry of Communications and Transport (federal level) is responsible largely for intercity (road and rail) transport, whilst urban transport is the remit of the local state (provincial level) and/or city. There can also be many stakeholders with different responsibilities at the local level.

d) Sources of funding

The development of the SCCP/PECC, which forms the basis of Mexico’s communication to the UNFCCC regarding NAMAs,

93 was supported domestically and is referred to by Mexico as part of a

‘voluntary, unilateral action, undertaken with our own resources and capabilities.’94

Mexico’s communication also specifically highlighted the need for international financial and technological support to meet its aim of reducing domestic GHG emissions by 30% from a business as usual scenario by 2020.

93 It will also support NAMAs domestically, but states that domestic climate change

mitigation can be upscaled with international support. Table 7 below gives an overview of the types of finance that could support intended transport NAMAs. Table 7: The source of financial support for the land transport ‘NAMAs’ communicated by Mexico via their Special Climate Change Program (SCCP/PECC).

‘Goals’ being supported domestically ‘Goals’ that may require international support

Include relevant stakeholders in the Clean Transport Program of the Ministry of Environment and Natural Resources (SEMARNAT)

Develop four financing schemes for different sub-sectors in order to upgrade 40,000 vehicles

Reduce consumption of diesel and gasoline by 16 peta joules (PJ) annually through the transport program of the National Energy Conservation Agency (CONUEE)

Increase the proportion of metropolitan areas and cities with more than 100,000 inhabitants that are served by modern urban transport (with an emphasis on BRT) from 36% to 100% with the programmes of PROTRAM (Programa de Apoya Federal al Transporte) and FONADIN (Fondo Nacional de Infraestructura).

Adopt a standard for fuel use and CO2 emissions for new light duty vehicles in 2010

Construction of 38 new road ‘sections’

Construction of 18 new highways

Scrapping of 15,100 vehicles

Increase the market share of rail freight by 2.3 percentage points (from 26% of tonne-kms to 28.3%)

Increase the capacity of ‘passenger vehicles’ by running lines 1, 2 and 3 of the suburban train of the Metropolitan Area of the Mexico Valley.

Source: PECC based on the English language translation in Ecofys (2010).75

In terms of international support for climate change mitigation in the land transport sector, Mexico has in the past received support from numerous sources including grants and technical assistance from

the GEF, and from the Clean Technology Fund (CTF) for a national level investment plan.75

Expert

consultancies, such as Ecofys for the Dutch Ministry of the Environment (VROM) with support from the Inter-American Development Bank (IADB), have also developed example transport NAMAs for Mexico.

95

e) MRV provisions

93

Socorro Flores Liera (2010) Convención Marco de las Naciones Unidas sobre Cambio Climático. Available from http://unfccc.int/files/meetings/cop_15/copenhagen_accord/application/pdf/mexicocphaccord_app2.pdf 94

Instituto Nacional de Ecologia (INE) (2010) Research on climate change. Special Program on Climate Change (SPCC-PECC). Available from: http://cc2010.mx/en/climate-change/research-on-climate-change-special-program-on-climate-change-spccpecc/index.html. 95

See, for example, ECOFYS (2010) Nationally Appropriate Mitigation Actions. Insights from example development. Available from http://www.ecofys.com/files/files/report_ecofys_nama_overview_eng_04_2010.pdf.

30

The SCCP/PEC which forms the basis of Mexico’s NAMA communication to the UNFCCC, estimates the emission reductions that will result from various climate change mitigation activities although does not make any reference to how it is intended that these activities will be MRVed. It states that it will put robust mechanisms in place. In a conceptual NAMA study

96 it was noted that MRV processes would need to be developed on the

state, federal and local level. This is due to the fact that the State or Municipality is responsible for planning, implementation and MRV, and that the MRV processes would need to be consistent with national reporting.

Singapore

The transport sector in Singapore accounts for approximately:

13% of national energy consumption98

(making it the third largest consumer after industry and

buildings)

19% of total CO2 emissions.100

a) Transport NAMA intentions that have been communicated to the UNFCCC

Singapore chose to associate itself with the Copenhagen Accord and in the same written communication (dated 28 January 2010) outlined proposed mitigation actions that were submitted with a request for them to be included in a compilation of NAMA suggestions by the UNFCCC Secretariat.

97

In terms of NAMAs, Singapore’s communication to the UNFCCC referred to mitigation and energy efficiency measures as outlined in its ‘Sustainable Singapore Blueprint,’

98 which was published in April

2009. The measures outlined in the Blueprint, which is a national economy-wide sustainable development strategy for Singapore, were referred to as an ‘integral part’ of activities to achieve a GHG emission reduction of 16% below business as usual levels by 2020 (although the base year was not specified), subject to a ‘legally binding global agreement’ being reached ‘in which all countries implement their commitments in good faith.’ The ‘Sustainable Singapore Blueprint’ details Singapore’s achievements in relation to transport and also a list of initiatives (NAMAs) intended to reduce the negative environmental impact of land transport. These fall under the following three themes: 1. Enhancing public transport to shift demand from the private car to public transport (particularly

in terms of commuting);

Doubling Singapore’s rail network (through the addition of new lines and extensions)

Increase interconnectivity between bus and rail services

Increase bus priority

Provide real-time and multi-modal public transport information.

96

Huizenga, C. and Bakker, S. (2010) NAMAs in the Transport Sector Case Studies from Brazil, Indonesia, Mexico and the People’s Republic of China. Available from http://idbdocs.iadb.org/wsdocs/getdocument.aspx?docnum=35468387. 97

Chew Tai Soo (2010) The Copenhagen Accord. Accessible from http://unfccc.int/files/meetings/cop_15/copenhagen_accord/application/pdf/singaporecphaccord.pdf. 98

IMCSD (2010) A lively and liveable Singapore: Strategies for Sustainable Growth. Available from http://app.mewr.gov.sg/data/ImgCont/1292/sustainbleblueprint_forweb.pdf.

31

2. Improving resource efficiency by reducing fuel consumption and adopting fuel efficient technologies;

Review and adjust where appropriate Singapore’s vehicle quota, Electronic Road Pricing, Off-Peak Car, Green Vehicle Rebate, and Park and Ride (P+R) systems

Test electric vehicles and diesel hybrid buses to facilitate future adoption

Develop a Green Framework for their Rapid Transit System

Review the rate of fuel duty and emission regulations.

3. Achieving cleaner transport through cleaner diesel vehicles and cleaner forms of commuting;

Use technology to improve the environmental performance of vehicles

Establish a vehicle emission test laboratory

Promote cleaner forms of commuting, including Non-Motorised Transport (NMT)

Implement pedestrian and cycling infrastructure in selected towns and public transport interchanges.

Singapore delivered a presentation on their mitigation actions in the first pre-sessional workshop on NAMAs in Bangkok.

99 They did not elaborate on NAMAs proposed, rather used the opportunity to

state that they had already started to implement measures to support a 7 to 11% reduction in GHG emissions below a business as usual scenario by 2020.

b) National transport and climate change policy context This section contains a short introduction to Singapore’s key strategy documents in the fields of transport and climate change. Singapore’s National Climate Change Strategy

100

This outlines Singapore’s commitment to addressing climate change and contains opportunities for national climate change mitigation. It was developed by the National Climate Change Committee (see Figure 10 for its composition), which is chaired by the Ministry of the Environment and Water Resources, and is described by its authors as a strategy roadmap that will be continually updated and reviewed. The country’s main vehicles for climate change mitigation are: to support the use of less carbon intensive fuels, and to improve energy efficiency in all sectors of the economy. Its strategies in relation to the transport sector mirror its NAMAs, as outlined in the more recent national strategy for sustainable development (below). National Strategy for Singapore’s Sustainable Development (Sustainable Singapore Blueprint)

98

This strategy document aims to support a 35% improvement in energy efficiency economy-wide between 2005 and 2030. It contains Singapore’s NAMA suggestions, as outlined above, and sets out a range of other targets for environmental sustainability while also stating how they will be achieved. It was developed by the Inter-Ministerial Committee on Sustainable Development (IMCSD) (see Figure 10 for its structure) based on consultation with a wide range of stakeholders including NGOs, businesses, academia, media, the general public, and Government officials working on a range of geographic scales. It succeeds Singapore’s 1992 Green Plan,101 a document with a 10 year horizon that in turn succeeded Singapore’s first Green Plan, which was published in 1992.

99

Chan Khar Liang (2011) Singapore’s presentation to the UNFCCC. Available from http://unfccc.int/files/meetings/ad_hoc_working_groups/lca/application/pdf/singapore_ws.pdf. 100

National Climate Change Committee (2008) Singapore’s National Climate Change Strategy. Available from http://app.mewr.gov.sg/data/ImgUpd/NCCS_Full_Version.pdf. 101

Ministry of the Environment (2002) The Singapore Green Plan 2012. Beyond clean and green. Towards environmental sustainability. Available from http://www.mewr.gov.sg/sgp2012/about_download.htm .

32

Land Transport Masterplan102

This is the Land Transport Authority’s (LTA’s) land transport strategy, which has been developed in consultation with the Ministry of Transport. It has a horizon to 2020 and covers all aspects of land transport with the main themes being: a people-centred land transport system; making public transport a mode of choice; managing road use; and meeting the diverse needs of the population. It is a comprehensive strategy that does not contradict, but covers more ground than (including plans to expand Singapore’s road network), the national sustainable development strategy. Environmental sustainability is not explicitly featured in the Masterplan. Instead, the ‘sustainable development’ section of the Ministry of Transport’s land transport policy website

103 refers back to the

national sustainable development strategy (‘Blueprint’) and its strategy for reducing the energy intensity of the sector by 2030.

98

Energy Efficient Singapore (E2 Singapore)

104

This national plan to promote energy efficiency was developed by the Energy Efficiency Singapore Programme Office (E

2PO) (for an outline of its structure see Figure 11). It outlines national actions to

be taken in the following areas: promoting the adoption of energy efficient technologies and measures, raising awareness of the need for energy efficiency, and promoting research and development to enhance related capability. The implementation of the plan is supported by a Sustainable Energy Fund, with a budget of $50 million over five years (which are not stated can be assumed to be from 2008 to 2013).

For more information see also:

National Climate Change Secretariat. Prime Minister’s Office Singapore (2012) NCCS. Available from http://app.nccs.gov.sg/.

Ministry of the Environment and Water Resources (2010) Policies: Energy/Climate Change. Available from http://app.mewr.gov.sg/web/Contents/Contents.aspx?ContId=73.

Ministry of Transport (2012) General Overview. Available from http://app.mot.gov.sg/Land_Transport/General_Overview.aspx.

E2 Singapore (2011) Energy Efficient Singapore. Available from http://www.e2singapore.gov.sg/index.html.

c) Institutional framework

Singapore is a city-state and a Constitution, but the role of the President is said to be largely ceremonial. Figure 9 gives an overview of the structure of Governance in Singapore with a focus on the functions of most relevance to transport and climate policy. The cabinet is comprised of the Prime Minister and other appointed Ministers, and it has direct control over the Ministries that it presides over. In turn, government Ministries oversee ‘statutory bodies’ (autonomous government agencies), such as the Land Transport Agency, which are not staffed by civil servants and are managed by a Board of Directors.

102

Ministry for Transport (2008) Land Transport Masterplan. A People-Centred Land Transport System. Available from http://app.lta.gov.sg/ltmp/index.asp 103

Ministry of Transport (2010) Available from http://app.mot.gov.sg/Land_Transport/Sustainable_Development/Promoting_Sustainable_Transport.aspx. 104

National Environment Agency (2007) E2 Singapore. Available from

http://www.e2singapore.gov.sg/docs/E2_Singapore.pdf.

33

Figure 9 : A simplified and high-level overview of Singapore’s Government, with a focus on its transport and environment functions.

105

Table 8 below outlines the responsibilities of some of the key Ministries in respect to transport and climate policy.

Table 8 : Responsibilities of core Ministries in respect to transport and climate policy.

Ministry Remit Official website

Ministry of the Environment and Water Resources

It aims to provide a high-quality living environment and a high standard of public health. It has two statutory boards, one of which is the National Environment Agency, which is tasked with protecting Singapore’s air, land and water resources, as well as ensuring high levels of public health.

Ministry of the Environment and Water Resources: http://app.mewr.gov.sg/web/Common/homepage.aspx

National Environment Agency:

http://app2.nea.gov.sg/index.aspx

Ministry of National Development

This Ministry directs the formulation and implementation of policies related to land use planning and infrastructure development.

http://app.mnd.gov.sg/

Ministry of Finance

Its remit is to administer and regulate financial institutions and the structure of the national economy.

http://app.mof.gov.sg/index.aspx

105

The nine other Ministries not featured are as follows: Ministry of Defence, Ministry of Education, Ministry of Health, Ministry of Foreign Affairs, Ministry of Home Affairs, Ministry of Information, Communications and the Arts, Ministry of Law, Ministry of Manpower, and the Ministry of Community Development, Youth and Sports.

34

Ministry of Transport

This Ministry administers and regulates national land, sea and air transportation. The Land Transport Authority is a statutory board under the Ministry, and is the national agency that oversees all land transport in Singapore.

Ministry of Transport :

http://www.mot.gov.sg/

Land Transport Authority : http://ltaacademy.lta.gov.sg/abtus.htm

Ministry of Trade & Industry

It directs the formulation of policies relating to the development of trade and industry in Singapore.

http://app.mti.gov.sg/

Singapore has adopted a ‘whole Government’ approach to sustainable development.

98 The national

sustainable development strategy, for example, was developed by an Inter-Ministerial Committee (IMCSD), as was Singapore’s national climate change strategy.

100 The climate strategy was

developed by Singapore’s National Climate Change Committee, which is chaired by the Ministry of the Environment and Water Resources and was designed to act as a platform for cross-Ministry policy-makers to engage with stakeholders (from both the public and private sectors) on matters relating to climate change. An overview of these two Committees is provided in Figure 10.

Figure 10 : The structure of Singapore’s National Climate Change Committee (left) and Inter-Ministerial Committee on Sustainable Development (right).

Singapore’s energy efficiency programme, which is chaired by the National Environment Agency, also comprises members (statutory bodies) representing numerous sectors of the economy (see Figure 11).

Figure 11 : The structure of Singapore’s Energy Efficiency Singapore Programme Office (E

2PO).

35

d) Sources of funding

The NAMA proposals were developed by the Inter-Ministerial Committee on Sustainable Development (IMCSD) in co-operation with the private sector, ‘community leaders,’ and citizens. It was funded domestically by the Government and the implementation of NAMA intentions will also be funded domestically. Singapore’s presentation at the pre-sessional workshop in Bangkok stated that ‘all mitigation actions will be domestically funded.’

99

The Blueprint in which the NAMAs are outlined states that the national Government has ‘committed US$1 billion to be spent over a five year period [2009 to 2013] to achieve the goals outlined in its blueprint.’ The Blueprint contains actions for the period from 2009 to 2030 and as such makes reference to investment in NAMAs exceeding this value. It states, for example, that ‘the Government has set aside more than US$40 billion to improve public transport’ to meet the Blueprint’s goal for 70% of journeys to be made by public transport by 2020. It also refers to additional investment by the LTA to upgrade rail infrastructure and Sing$43 million (US$34.38approx) to implement cycling networks in selected towns. The Blueprint recognises the domestic challenges to financing the proposals, and as a solution suggests the phasing of implementation rather than pursuit of external funding. Similarly, while the National Climate Change Strategy

100 refers to Singapore’s commitment to participate in the

international community’s response to climate change, it does not request support for doing so.

e) MRV provisions

There have not been any published proposals outlining the MRV processes that Singapore will subject its unilateral NAMAs to, but at COP17 Singapore highlighted the need for transparency in monitoring the implementation of mitigation activities. They stressed the importance of COP17 reaching a decision on a framework for MRV provisions and stated their view that adhering to such provisions is a key responsibility of Parties to the UNFCCC.

106 The country’s apparent commitment to MRV is

reinforced by the fact that Singapore’s Ministry of Trade & Industry is a partner of the ‘International Mitigation and MRV’ partnership, which aims to support knowledge sharing and capacity building in relation to mitigation activities including MRV.

107

Summary NAMAs are prominent in the UNFCCC process and this short review of the domestic policy and institutional contexts of a selection of Parties who have communicated intentions to conduct NAMAs in the transport sector indicates that NAMAs are becoming integrated into national (as well as international) policy and policy-making processes. Table 9 below summarises the nature of the intentions to conduct NAMAs as communicated by the Parties featured in this note. It indicates that developing country Parties are:

Voluntarily suggesting and financing a broad range of mitigation actions in the transport sector that they consider to be ‘nationally appropriate’ in the context of the UNFCCC.

Familiar with (and are actively considering the application of) the three different types of NAMAs (unilateral, supported and credited).

In some cases framing pre-existing low carbon transport proposals or activities as NAMAs and in others developing new ‘nationally appropriate’ climate change mitigation activities.

106

Singapore (2011) Singapore’s National Statement at COP-17 by Deputy Prime Minister, Coordinating Minister for National Security and Minister for Home Affairs Mr Teo Chee Hean in Durban, South Africa, on 7 December 2011. Available from http://unfccc.int/files/meetings/durban_nov_2011/statements/application/pdf/111207_cop17_hls_singapore.pdf. 107

See http://www.mitigationpartnership.net/.

36

Table 9 : An overview of the land transport NAMA intentions submitted to the UNFCCC by candidate countries.

Non-Annex I Party

Transport NAMA

classification

Nature of transport NAMA

intentions

Transport NAMA

strategy type108

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Colombia Ghana Indonesia Mexico Singapore It is important to note most parties responded to the first call for NAMA proposals issued in the Copenhagen Accord of COP15 in December 2009 but that there has been no requirement to update the submissions since then. This document reflects what a small number of countries that differ in size, region and state of development are doing in respect to including transport in NAMAs, The domestic contexts in which NAMA proposals are being, and will be, proposed vary considerably in line with national circumstances and priorities. The following general points can, however, be made based on the review of the countries in this paper. Intentions to conduct NAMAs are being aligned with domestic transport and climate policy frameworks

NAMA proposals are being integrated into national development frameworks (many of which are integrating environmental, economic and social aspects) and are in some cases integral parts of broader sustainable development plans and programmes. Singapore has taken this approach.

Domestic institutions are either being developed or are beginning to be put in place to support the development of NAMAs and their integration into broader national frameworks

Strategies, policies and related institutions are in place that can contribute towards supporting transport NAMAs.

Apparent commitment to climate change mitigation is being reflected in the development of dedicated institutions, or formalised channels of communication between existing institutions (such as Ministries and stakeholder groups).

NAMAs have stimulated an integrated cross-ministerial approach to developing climate change action plans. This has the potential to have the greatest impact but also has the largest risks of failure and potential for deadlock.

Financial and technical support is being requested and provided

Almost all NAMAs will at least partially be financed from domestic sources

International financial and capacity building support is available and being provided by several developed country Parties to the UNFCCC and consultants to propose, develop and implement transport NAMAs. Access to the variety of different sources is not easy for developing countries, making the possibility for bi-lateral funding attractive.

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This column categorises NAMA intentions by the demand-side ‘avoid, shift and improve’ approach to emission reduction from the land transport sector. For an overview of this widely adopted strategic framework see GIZ (2011) Sustainable Urban Transport: Avoid-Shift-Improve (A-S-I). Available from http://www.sutp.org/dn.php?file=FS-ASI-EN.pdf.

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There is an active demand for international support (both financial and technical) to increase the level of ambition of climate change mitigation activities that can be proposed and implemented.

There is widespread commitment to the need for MRV

Parties recognise and actively support the need for stringent MRV conditions associated with NAMAs. However will require a strong commitment to collect data and monitor transport activity in a more comprehensive fashion, possibly even following internationally agreed frameworks.

Most Parties have domestic measurement and evaluation processes in place, although require capacity building support to realise their desire to make these processes more accurate, robust and compatible with international standards (once they are developed).

Conclusions

This note has indicated that countries are internalising the NAMA concept in domestic frameworks and in some cases taking steps to integrate it in processes that seek to ensure that it is communicated across related government Ministries. This could result in a considerable up-scaling of climate change mitigation activities in the transport sector under the UNFCCC.

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A number of recommendations can be made based on the findings of this note. • The potential for transport NAMAs (in terms of both scope and mitigation potential) should

continue to be actively communicated to developing country Parties. • Countries with institutions dedicated to the integration of climate and transport policy should seek

to optimise their role, ensuring that their knowledge is used in policy- and decision-making processes

• Good practices in relation to NAMA development and implementation should be identified and disseminated.

• Multilateral institutions and developed country Parties can successfully enter into bilateral arrangements to develop transport NAMAs, and so should continue to consider how they might contribute to developing country Party requests for internationally supported NAMAs.

• Intentions to domestically support NAMAs in developing countries should be recognised and commended.

• The demand of developing country Parties for capacity building support, for example in relation to meeting international MRV standards, should be actively supported.

There are already numerous good practices in respect to integrating the concept of NAMAs into domestic frameworks, although it is important to note that these are in their relative infancy and that there is much still to be done to establish an effective link between international and national policy with respect to NAMAs. The intentions outlined in strategy and policy documents at national level need to be prioritised, developed into concrete NAMA proposals, and implemented on all geographic scales from the national to the local, as appropriate. There is also a general need for targeted capacity building, particularly in terms of the MRV of land transport climate change mitigation activities. Transport NAMAs are being developed, for example through the work of the TRANSfer project,

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these activities need to be up-scaled and lessons being learnt from them need to be shared. This will help to ensure that when the NAMA concept is operationalised developing country Parties will be in a position to submit detailed and workable proposals for NAMAs in the transport sector, and also to communicate related activities that are already in the process of being implemented. NAMAs could have the potential to support management of the growth of GHG emissions from the land transport sector, although their likely impact will become clearer as the NAMA framework and related modalities, such as the NAMA registry, are developed.

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Bridging the Gap (2011) Transport and the CDM. Available from http://www.transport2012.org/bridging/ressources/documents/2/1113,BtG-CDM-Update-Mar-2011_PS_JG.pdf. 110

For more information see http://www.transferproject.org/.

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The catalyst for disseminating and increasing the number and effectiveness of activities to integrate NAMAs into domestic frameworks is likely to be international support. Support to develop, implement and evaluate proposed mitigation activities. A wide range of international agencies and other actors have shown that they are willing to provide support, and the allocation of future support must be carefully considered to maximise its impact. Communities of Practice as well as databases for transport NAMAs are under development and can contribute to share knowledge and experiences, as. e.g. http://www.namadatabase.org/ and workshops will to make them a reality.