COUNTRY ANALYSIS OF THE OUTCOME OF COP 25 AND THE …

COUNTRY ANALYSIS OF THE OUTCOME OF COP 25 AND THE

EFFECTS OF COVID19 ON THE IMPLEMENTATION OF THE

OUTCOMES - ZAMBIA

STUDY REPORT

Submitted to

The National Coordinator Zambia Climate Change Network

Mulungushi International

Conference Centre LUSAKA

Prepared by

ENVIROLINK SOLUTIONS

Plot Number 4467 Mean wood Phase III Chongwe Zambia

Table of Contents LIST OF TABLES AND FIGURES ......................................................................................................... v

LIST OF ACRONYMS ............................................................................................................................ 1

EXECUTIVE SUMMARY ........................................................................................................................ 2

CHAPTER ONE: INTRODUCTION ....................................................................................................... 4

1.1 Background ..................................................................................................................................... 4

1.2 Objectives of the Study ................................................................................................................... 6

1.3 Scope of the Study .......................................................................................................................... 6

CHAPTER TWO: METHODOLOGY ..................................................................................................... 6

2.1 Assignment Design ......................................................................................................................... 6

2.2 Data Needs and Data Sources........................................................................................................ 6

CHAPTER THREE: SITUATION ANALSYSIS ...................................................................................... 6

3.1 Climate Situation in Zambia ............................................................................................................ 6

3.2 Country Participation at UNFCCC COPs ........................................................................................ 8

3.3 Zambia’s COP25 Country Priorities ................................................................................................ 8

3.3.1 Overall Global Ambition ............................................................................................................. 9

3.3.2 Transparency .............................................................................................................................. 9

3.3.3 Mitigation ..................................................................................................................................... 9

3.3.4 Finance ...................................................................................................................................... 10

3.3.5 Adaptation ................................................................................................................................. 10

3.4 Stakeholders Participation ............................................................................................................. 11

3.5 COP 25 Outcomes ........................................................................................................................ 11

3.6 COVID19 Situation ........................................................................................................................ 12

CHAPTER FOUR: ANALYSIS ............................................................................................................. 13

4.1 Implications of COVID19 ............................................................................................................... 13

4.2 Analysis of COP 25 country paper .................................................................................................. 1

4.2.1 Analysis of Achievements from COP25 Country Paper .................................................................... 1

4.3 Stakeholder Participation ................................................................................................................ 1

CHAPTER FIVE: RECOMMENDATIONS .............................................................................................. 1

5.1 Towards COP 26 ............................................................................................................................. 1

5.1.1 Global Ambition ............................................................................................................................. 1

5.1.2 Article 6 ......................................................................................................................................... 2

5.1.3 Capacity Building .......................................................................................................................... 2

5.1.4 Finance .......................................................................................................................................... 2

5.1.5 Gender and climate change ............................................................................................................ 2

5.1.6 Koronivia Joint Work Programme on Agriculture ............................................................................ 3

5.1.7 National Adaptation Plans ............................................................................................................. 3

5.2 Enhancing Stakeholders/CSO Participation .................................................................................... 4

Data collection Tools ............................................................................................................................... 1

LIST OF TABLES AND FIGURES

Table 1: Presentation of Zambia's participation at UNFCCC COPs in the last 5 years ..................................... 8 Table 2: Summary of Article 6 Outstanding Issues ........................................................................................ 12 Table 3: Implications of COVID19 on implementation of COP25 Outcome ..................................................... 1 Table 4: SWOT analysis on the COP25 country paper ..................................................................................... 1 Table 5: Performance of issues advanced by Zambia position paper ................................................................ 1

Figure 1: Response to Climate Change in Zambia ........................................................................................... 7

LIST OF ACRONYMS

CMA Conference of Parties Meeting as Parties to the

Paris Agreement

CMP Conference of Parties Meeting as Parties to the

Kyoto protocol

COP Conference of Parties

COVID 19 Corona Virus Disease of 2019

CSO Civil Society Organization

GCF Green Climate Fund

GRZ Government of the Republic of Zambia

IPBES Intergovernmental Science-Policy Platform on

Biodiversity and Ecosystem Services

IPCC Intergovernmental Panel on Climate Change

LDC Least Developed Country

NAP National Adaptation Plan

NAPA National Adaptation Programme of Action

NDC Nationally Determined Contribution

NPCC National Policy on Climate Change

SWOT Strength Weakness Opportunity Threat

UNDP United Nations Development Programme

UNEP United Nations Environment Programme

UNFCCC United Nations Framework Convention on Climate

Change

USD United States Dollar

WHO World Health Organization

EXECUTIVE SUMMARY

Background

This analysis paper examines the climate change landscape in the aftermath of the twenty-fifth session

of the Conference of Parties (COP25) to the United Nations Framework Convention on Climate

Change (UNFCCC). The paper undertakes a study on the outcomes of COP25 following the extended

period of negotiations having wrapped up on Sunday beyond its scheduled closing on Friday. The

COP took more than two weeks of fraught negotiations.

The analysis considers the outcome of COP25 which in a nutshell did not appeal to the international

community and failed to stir towards the direction of what science demands for the reduction of

greenhouse gas emissions and maintain global temperature within 1.50C. While analysing the outcome

of COP25 and the status of implementation of the respective decisions by Zambia, the COVID19

situation is also analysed to assess how the global pandemic has affected the implementation of COP25

outcomes.

Climate situation in Zambia

Zambia is affected by climate change and is in the bracket of the most vulnerable countries owing to

its economics status as a Least Developed Country, being land-locked and other existing conditions

that present special circumstances. The country is experiencing climate induced hazards such as

drought, floods and extreme temperatures. Zambia prepared the National Adaptation Programme of

Action to assist the country in addressing short term and immediate adaptation needs. Extreme

climatic conditions have negatively affected food and water security, water quality, energy, health and

livelihoods of the people, especially in rural communities. Droughts have caused crop failures and

affected hydroelectricity generation. The health effects of climate change related disruptions include;

increased respiratory and cardiovascular diseases, injuries and premature deaths related to extreme

weather changes. Insufficient infrastructure for water and sanitation has caused disease outbreaks

during the flooding episodes as was the case of the cholera outbreak in Lusaka in October, 2017.

Following the formulation of the National Adaptation Programme of Action in 2007, the approval of

the National Policy on Climate Change and establishment of a long-term institutional arrangement for

coordination of climate change programmes, Zambia has experienced increased investments in climate

change actions by government, private sector and civil society.

Zambia’s Participation in UNFCCC COPs

Since becoming party to the UNFCCC Zambia has been participating in the COPs in varying

delegation sizes, composition and high level representation. Some COPs have seen the Zambian

delegation being as large as 59 and being led by the Head of State with some delegations having as

many as 13 non state delegates participating in one of the largest multilateral process. The Zambian

delegations are led by the government UNFCCC focal point ministry and endeavor to include other

stakeholders as well consideration of gender.

Zambia’s Priorities for COP 25

In order to adequately prepare for effective engagement in COP25 negotiations, Zambia prepared a

position paper highlighting the priority areas for active participation in line with the COP25 agenda

and working within the limits of the delegation size and issues of national interest. Zambia’s priorities

for COP25 were tailored around broad issues of (i) overall global ambition; (ii) transparency; (iii)

mitigation; (iv) finance and (v) adaptation. Despite outlining these as priorities Zambia actively

engaged in specific agenda items including Article 6 of the Paris Agreement, the Koronivia Joint Work

Programme on Agriculture, Capacity building and Gender. This scenario presented a mismatch on

tracking progress and performance of the country’s participation.

COVID 19 Situation and impact on COP 25 Outcomes

The advent of COVID19 worldwide not only slowed down the economic activities due to mandatory

lockdowns that were applied in many countries to curd its spread, but also affected UNFCCC

scheduled events including the Bonn climate change talks and the convening of COP26. COVID also

affected undertaking of consultations particularly for African negotiators who meet in sub-regional

groupings to strategize on future talks. The pandemic nearly affected the momentum built by the

international community owing to the financial challenges associated with addressing COVID19 in

the face of slowed economic strides. However, organizations such as the NDC Partnership, the Green

Climate Fund, the World Bank and others initiated efforts that would see support towards addressing

economic recoveries of countries to ensure that such took place in a green dimension. Such support

to countries has seen Zambia access to an embedded economic advisor in the Ministry of National

Development Planning and the Ministry of Finance.

Towards COP 26

Against the backdrop of a weak COP25 outcome, emergence of COVID19, rescheduled COP26

Zambia like other parties to the UNFCCC is expecting to pick up the pace on the negotiations on

issues that remained outstanding from COP25. Informed by lessons from COP 25 processes, its

outcomes and the impact of COVID19 on the implementation of such outcomes, Zambia will need

to make strategic preparations for COP 26 in view of known pending issues. The country will need to

engage other stakeholders more to benefit from the different capacities and expertise they can bring

to the multilateral process. As various factors influence the level of participation, the lead ministry on

climate change could commence engagement of various actors.

CHAPTER ONE: INTRODUCTION

1.1 Background

The United Nations Framework Convention on Climate Change UNFCCC was adopted in 1992 and

its objective is to stabilise atmospheric concentrations of greenhouse gases (GHGs) to avoid

“dangerous anthropogenic interference with the climate system.” The Convention, which entered into

force on 21st March 1994, now has 196 Parties. Zambia signed the UNFCCC on 11th June 1992 and

ratified it on 28th May 1993. The Conference of Parties to the UNFCCC (COP), the Meeting of the

Parties to the Kyoto Protocol (CMP) and now the Meeting of Parties to the Paris Agreement (CMA)

are held simultaneously annually and constitute the highest decision-making body under the

Convention, the Kyoto Protocol and the Paris Agreement to provide guidance on the implementation

of the provisions of the Convention and decisions aimed at addressing global climate change.

Therefore, the main objective of the COP each year is to review the implementation of the provisions

of the Convention in order to ensure effectiveness in addressing this global challenge.

The Twenty-fifth Session of the Conference of Parties (COP-25) to the United Nations Framework

Convention on Climate Change (UNFCCC), which also served as the fifteenth Meeting of the Parties

to the Kyoto Protocol (CMP-15) and the second Meeting of Parties to the Paris Agreement (CMA-2)

was held from 2nd to 13th December 2019 in Madrid, Spain. The other meetings held at this session

included the Fifty-first Sessions of the Subsidiary Body for Implementation (SBI-51) and the

Subsidiary Body for Scientific and Technological Advice (SBSTA-51). The 25th Climate Change

Conference opened under exceptional circumstances with the conference’s host and President,

announcing suspension of hosting it in Santiago, Chile due to social unrest in the country. In less than

four weeks to the date of the COP, Spain offered to host COP25 under the Presidency of Chile and

maintained the agreed COP25 dates of 2nd to 13th December 2019.

The United Nations Framework Convention on Climate Change (UNFCCC) Bureau accepted the

offer. More than 26,700 people attended the COP-25, including over 13,600 government delegates,

nearly 10,000 observers, and over 3,000 members of the media. Zambia’s participation was

represented by a delegation of thirteen led by the Permanent Secretary, Ministry of Lands and Natural

Resources. The delegation was supported by the Zambian mission in France.

The latest science that informs parties to the UNFCCC on the status of the climate with respect to

greenhouse gas emissions and the adaptation needs has shown compelling evidence of the dangers

and costs of a business-as-usual pathway and the benefits of urgent and transformative actions

including cutting emissions by 2030. The scientific reports by the IPCC and the IPBES on the 1.5°C

temperature increase both speak to the same concerns and proposes that urgent actions are required.

Demand for urgent and decisive climate action has also soared. The youth through the global climate

strikes have added a new wave of voice for urgent action as the next generation expresses the need

for urgent action to be taken now to safeguard their future.

Therefore, the need for a holistic ambition approach by all parties, private sector, civils society,

communities and individuals to commensurate with the climate emergency facing the world cannot

be over-emphasized. It is for this reason that civil societies particularly those in Africa presented their

demands at COP 25 in Madrid with the following priorities:

Africa should be recognized as a region with special circumstances and needs

Enhanced Nationally Determined Contributions (NDCs) from the biggest emitters should in

quality and quantity, aim at significant emissions reduction

In respect to Article 6 of the Paris Agreement, put in place robust social and environmental

guidelines (Human rights based approaches) for all international corporations and carbon

market mechanisms

Review Warsaw International Mechanism on loss and damage to have a Clear Means of

Implementation (Finance) especially for emergency response in Africa

Scale up finance and capacity building that can help African countries build resilience and take

on their chosen low carbon development pathway in the spirit of Article 9.4 of the Paris

Agreement

Common Time Frames for harmonious Evaluation

African women and young people are most at risk from impacts of extreme weather. We need

to be fully aware of traditional roles women and men play in the formal and informal economy

as well as the household level and recognize that women are impacted most by climate change

yet they are usually underrepresented in climate change negotiations and decision making.

African CSOs therefore called upon the parties to:

Take action to implement the activities under the Gender Action Plan in order to strengthen

consideration of gender aspects in climate related activities.

Continue with Lima Work Programme in order to ensure the integration of gender

considerations into processes under the Paris Agreement.

Allocate adequate financial and human resources to build the needed capacity on gender

dimensions of climate policy and action at national level and to comply with the requirements

on gender under the Paris Agreement implementation Guidelines

Follow the recommendations in the Paris Agreement Implementation Guidelines to include

gender-responsive adaptation action and traditional knowledge, knowledge of indigenous

peoples and local knowledge systems related to adaptation communications and to report on

this.

The outcome of CO 25 did not appeal to the African negotiators owing to the mismatch between

their expectations and the COP outcome. The advent COVID1919-19 pandemic has exacerbated the

gap since the opportunity to redeem the lost opportunity in Madrid through further negotiations under

COP26 was postponed to 2021. For Africa, the need to ensure that Glasgow is successful is even

more urgent, given the continents inordinate vulnerability and limited ability to respond to the impacts

of already occurring climate change. Many African economies are already incurring losses of around

3% of their GDP to climate related impacts. This limits their ability to achieve any of their sustainable

development goals. COP 26 will thus become even more critical to reach agreement on how to

implement the Paris Agreement and especially on how to ensure that the agreed climate actions begin

a downward trend in greenhouse gas emissions. But for COP 26 to avoid the pitfalls of COP 25 it is

fundamental that we adequately review the challenges faced by the parties at COP 25 and begin the

process of identifying the solutions long before we congregate in Glasgow in 2021.

1.2 Objectives of the Study

i. To Carry out an analysis of the country’s position for COP 25 along with the outcome of

COP 25 and in the light of COVID19

ii. To identify the gaps in the country’s position paper and propose recommendations for the

country position paper for COP 26

iii. To recommend strategies of meaningful CSOs engagement in development of the country’s

position paper for COP 26.

1.3 Scope of the Study

The assignment involved undertaking a desk review of Zambia’s position for COP 25 and analyse the

country priorities against the outcome of COP 25. The assignment also assessed the country’s

implementation of COP25 outcome in light of the COVID19 pandemic. Through a desk analysis,

gaps in the country’s position paper for COP 25 were identified and recommendations were advanced

towards COP 26. Considering the critical role of CSOs in the multilateral processes of the UNFCCC,

strategies for meaningful CSOs engagement in development of the country’s position paper for COP

26 were recommended. The consultant also gathered primary information from Zambia key

negotiators on thematic areas.

CHAPTER TWO: METHODOLOGY

2.1 Assignment Design

This assignment was undertaken largely as a desk review. This was necessitated by the scenario that

local experts who attend COPs are limited to design a large sampling population for primary data

collection. However, steps were undertaken to consult stakeholders including government officials

and cooperating partners among others.

2.2 Data Needs and Data Sources

Based on the scope of work, data needs were identified around the issue of COP 25 and the level of

participation by Zambia. Consideration was made to the composition of the negotiating team that

represented Zambia at the Madrid conference and the thematic areas each delegate participated in.

Data needs therefore, were drawn from the priority thematic issues elaborated by the government and

the outcomes that arose from negotiations.

In line with these data needs, data sources were identified as primarily being the negotiators who were

engaged at COP 25. Other data sources were from secondary sources accessed through desk review.

CHAPTER THREE: SITUATION ANALSYSIS

3.1 Climate Situation in Zambia

Zambia like all the countries of the world is affected by climate change. The country is experiencing

climate induced hazards such as drought, floods and extreme temperatures. Droughts and floods have

increased in frequency and intensity since 2007 when the National Adaptation Programme of Action

(NAPA) was prepared. Droughts and floods have adversely impacted food and water security, water

quality, energy, health and livelihoods of the people, especially in rural communities. Droughts have

caused crop failures and affected hydroelectricity generation. The health effects of climate change

related disruptions include; increased respiratory and cardiovascular diseases, injuries and premature

deaths related to extreme weather changes. Insufficient infrastructure for water and sanitation has

caused disease outbreaks during the flooding episodes as was the case of the cholera outbreak in

Lusaka in October, 2017.

Following the formulation of the National Adaptation Programme of Action in 2007, Zambia has

seen an upswing in climate change actions being undertaken across government, private sector and

civil society. This has been driven partly by increased local awareness, institutional arrangement s set

up for coordination of climate change programmes as well effective engagement at COPs where

bilateral resource mobilization has been part of the country’s focus. The figure below illustrates

Zambia’s response to climate change adaptation, mitigation and capacity building needs:

Figure 1: Response to Climate Change in Zambia

3.2 Country Participation at UNFCCC COPs

Zambia’s participation in UNFCCC COPs is motivated by the country’s commitment to the global

goal on climate change and by the urgency for in-country adaptation needs. Participation is

spearheaded by government through the focal point Ministry of Lands and Natural Resources as

notable in the high-level heads of delegations at various COPs. The country’s historical participation

in UNFCCC COPs since its membership to the convention was characterized by government agencies

featuring in the multilateral process with little or no participation of other stakeholder.

However, following the formulation of the NAPA and the awareness that surrounded the process and

implementation, interest from other stakeholders to participate in the COPs increased as many

interested parties started identifying their roles in the implementation of climate change interventions.

In subsequent UNFCCC COP sessions saw an increase in the size of Zambia’s delegation and a mix

of delegates including government, civil society, faith-based organizations, and private sector and

cooperating partners. At the Copenhagen COP 15 in 2009 Zambia was represented by a delegation of

twenty-eight (28) delegates due to the high level political expectations that had been created towards

achieving long-term finance among other issues; this was against a backdrop of a delegation of two

(02) at COP 10 in 2004 led by the Minister of Tourism, Environment and Natural Resources

(UNFCCC, 2004). Zambia’s participation at COP25 was represented by a delegation of thirteen (13)

led by the Permanent Secretary, Ministry of Lands and Natural Resources. The delegation was

supported by the Zambian mission in France and included one (01) representative from CSO.

Government takes into account gender considerations during the preparations for participation in the

COPs. Below is an outline of how Zambia’s participation in COPs has been in the last 5 years.

Table 1: Presentation of Zambia's participation at UNFCCC COPs in the last 5 years

Year/COP Delegation size Government Other

2019/COP25 13 12 01

2018/COP24 20 18 02

2017/COP23 24 20 04

2016/COP22 59 48 11

2015/COP21 52 39 13

3.3 Zambia’s COP25 Country Priorities

Government of Zambia through the focal point Ministry of Lands and Natural Resources initiates the

country position paper based on the priority issues obtaining from country-level policies and are

aligned to the larger negotiating groups including the LDC, African Group and the Group of

77+China. The country also aligns its negotiating positions to the agenda items of the COP to ensure

its engagement is relevant to the process while addressing country needs. In order to ensure

inclusiveness in the process from country-level stakeholders, delegates representing state and non-

state actors are engaged to provide inputs to the paper as well as oriented through workshops to ensure

their submissions in the different meetings at the COP reflect the aspirations of government. In order

to adequately prepare for effective engagement in COP25 negotiations, Zambia prepared a position

paper highlighting the priority areas for active participation. In line with the COP25 agenda and

working within the limits of the delegation size, Zambia prepared its position paper around broad

priority issues of overall global ambition, transparency, mitigation, finance and adaptation. The

overview of these issues is discussed below:

3.3.1 Overall Global Ambition

The Paris Agreement signed by parties in 2015 outlines in Article 2 that in enhancing the

implementation of the Convention on climate change, including its objective, it aims to strengthen the

global response to the threat of climate change, in the context of sustainable development and efforts

to eradicate poverty, including by, among other efforts, holding the increase in the global average temperature to well below 2°C above pre-industrial levels and pursuing efforts to limit the temperature

increase to 1.5°C above pre-industrial levels, recognizing that this would significantly reduce the risks

and impacts of climate change.

Therefore in line with the Paris Agreement guidance, Zambia’s expectation at COP25 on the overall outcome with respect to the global ambition was for an outcome that was to complete the outstanding

issues for the operationalization of the Paris rule-book to ensure it guided fully the response to the

urgency of climate change. Zambia therefore expected developed countries’ demonstration of leadership through putting forward increased commitments to their domestic actions in the second

round of their NDC while supporting and facilitating expedited low carbon development in

developing countries through capacity building, technological and financial support.

Looking ahead to the 2020 mark for updating existing NDCs and submitting updated/revised or new

ones, Zambia positioned itself to pay particular interest in how the process of revising NDCs would

be supported considering that the first round of NDCs in most developing countries had not received implementation support. Zambia was of the view that achieving the global goal was dependent on the

level of commitment to providing support to implementation of NDCs in developing countries.

3.3.2 Transparency

Zambia acknowledged that for the purpose of transparency and accountability, communication and reporting is important. Zambia considered that there were already existing communication and

reporting processes under the UNFCCC such that it expected the COP to exercise flexibility on

reporting formats in view that parties are at different levels of capacity and additional reporting

requirements may call for expertise, resources and time input. Zambia was therefore in support of

adopting reporting requirements on support and actions that do not place additional burdens on

developing countries.

3.3.3 Mitigation

The Paris Agreement in Article 6 guides parties in the implementation of the international carbon

market through both voluntary and regulated markets (UNFCCC, 2015). Operationalizing these broad

guidelines required parties agreeing on how the markets would operate as part of the rule book. In its position paper, Zambia identified itself with countries that acknowledged that addressing climate

change required implementation of significant actions for transformative change across systems. In

presenting its position, Zambia underscored the need for developed countries to provide leadership

in raising their national ambitions in the revision of their NDCs to contribute to the global goal. Being

a developing country, Zambia considered that developing countries had already set ambitious targets

despite not contributing significantly to global emission levels.

It was acknowledged that forests in developing countries offered a significant and cost effective opportunity for managing GHG emissions from land-use change. However, the resource was also a

natural bank for socio-economic development through their sustainable utilization. Zambia therefore

intended to highlight the need for recognition of this potential and call for a market structure that

took into account the value of forest carbon that adequately incentivizes sustainable management of

forests. Zambia was alive to discussions related to markets to ensure the decisions were not

detrimental to access right for local communities. Zambia also planned to support submissions in the direction of a structured summary table to reflect the tracking of progress towards implementation

and achievement of an NDC. The structured summary would allow for commonality of areas for

reporting while providing room for countries to reflect information according to countries varying

circumstances. This approach would also enable comparability and enhance trust-building for

ambitious climate action among Parties, while respecting diversity in the context of the Paris

Agreement.

3.3.4 Finance

Zambia, like other developing countries, particularly LDCs has put forward ambitious climate plans

through NDCs that cannot yield significant reductions without predictable, accessible, adequate and

sustained financial, capacity building and technological support from developed countries and international partners. Zambia acknowledges that the timeline to mobilize long-term climate finance

to the mark of USD100bn a year as was agreed at COP 15 in 2009 will end in 2020. At COP25, Zambia

aimed to support calls for an exchange of views around how provision of long-term finance will be

addressed for the post 2020 period in view that NDCs are long-term in nature and required assured,

additional and predictable finance. Zambia presented this position in the context that increasing

ambition calls for corresponding increase in provision of means of implementation particularly finance.

Zambia therefore joined other parties in commending countries that had made pledges to the first

replenishment of the Green Climate Fund. However Zambia expressed strong concern on the low

level of pledges to the GCF which did not match the level of needs of developing countries in view

of the cost of NDCs. Zambia expected that the UNFCCC being party-driven would set the tone and

increased levels of commitment to provide finance from public sources if private sector and other contributors had to be leveraged. With regards to the Adaptation Fund, Zambia opted to present its

position to uphold the COP decision that allowed the Adaptation Fund to serve both the Kyoto

Protocol and the Paris Agreement. However, on governance of the Adaptation Fund, Zambia’s

position was not to support calls for a change in the composition of the Adaptation Fund Board and

instead aimed to submit that constituencies that would have a need for new or additional members on

the Adaptation Fund Board could elect to have such adjustments within their allocated representation.

3.3.5 Adaptation

Zambia continues to highlight adaptation as a significant area of focus in negotiations. The

Government of Zambia prioritizes adaptation in its national programs on the premise that projected

climate change impacts are likely to increase in frequency intensity and scale. Recent science and vulnerability assessments have confirmed this scope. Zambia being a developing country is investing

highly in infrastructure, health, water, energy and agriculture (including sub-sectors of fisheries and

livestock) thus requiring safeguards through mainstreaming of adaptation measures. At COP25

Zambia actively contributed to the process towards achieving the required urgent attention to

adaptation in the context of updating Nationally Determined Contributions (NDCs) and in terms of

scaling up financing for National Adaptation Plans. While all countries require adapting, developing countries such as Zambia require special attention as they have to deal with other equally urgent socio-

economic developmental issues. Zambia therefore positioned itself to support submissions on the

need for recognition of countries with special circumstances with respect to provision of support

towards climate actions from the international community.

3.4 Stakeholders Participation

Zambia has been making deliberate efforts to include non-state actors in the process of preparing the

country position paper, orientation of delegates in the COP agenda and participation in the overall

multilateral process. Stakeholders that have been part of the country delegations include local and

international NGOs, faith-based organizations, private sector, parliamentarians and country-based

cooperating partners.

Following the approval of the NPCC in 2016 to provide for the broad framework for participation of

stakeholders in climate change programme, the country had seen an increased interest and engagement

of non-state actors in related programmes. To further strengthen participation of stakeholders, the

NPCC established the Technical Committee on climate change whose composition includes the umbrella Zambia Climate Change Network. Drawn out of this Technical Committee is a core team of

negotiators which also includes CSOs that contribute to the process in their areas of expertise.

3.5 COP 25 Outcomes

More than 190 nations, from the United States, China and European Union members to the smallest

island states, were represented at the December 2019 25th session of United Nations Climate Change

Conference, to discuss, reach agreements and to advance climate action. The COP’s main purpose is

to review progress of implementation of the three instruments by parties and to give guidance on

further work required. Specifically, COP25 was focused on two main issues:

i. Conclusion of negotiations for the rules of the Paris Agreement’s Article 6. Work on this article included Internationally Transferable Mitigation Outcomes (ITMOs), a market mechanism, and non-market approaches. Article 6 negotiations represent the final part of the Paris Agreement rulebook to complete;

ii. To complete a review of the Warsaw International Mechanism (WIM) for Loss and Damage associated with Climate Change Impacts

Along with the above items, the COP considered numerous other issues including among them,

capacity building, long-term finance, matters related to LDCs, gender, the adaptation fund with respect to the Paris Agreement, the Koronivia Joint Work programme on Agriculture and National Adaptation

Plans. However, the COP 25 could not make the anticipated conclusions and items including Article

6, reporting requirements for transparency and “common timeframes” for NDCs were deferred to

COP 26 in 2020. However, the timing of the outbreak of COVID19 entailed that COP26 had to be

postponed and thus a further shift of negotiations (UNFCCC, 2020).

On the pledges towards the global goal of the Paris Agreement, UN Chief António Guterres and

other world leaders expressed disappointment at the failure by countries to commit to do what science

demands of the international community to reach carbon neutrality by 2050 and a no more than 1.5

degree temperature rise (UNEP, 2019). However, not all hope was lost as some parties presented their

ambitions. These included the European Union, who committed to carbon neutrality by 2050, and 73 other nations announced their intentions to submit enhanced climate action plans (or Nationally

Determined Contributions). Similarly, non-state organisations expressed their ambition for a cleaner economy as 14 regions, 398 cities, 786 businesses and 16 investors pledged to work towards achieving

net-zero CO2 emissions by 2050.

Box 1

I expect a clear demonstration of increased ambition and commitment out of COP25. Leaders of all countries need to show accountability and responsibility. Anything less would be a betrayal of our entire human family and all generations to come.

António Guterres, UN Secretary General, 2019

The UN Environment Programme released the emissions gap report (UNEP, 2019) prior to the COP

and showed that the Paris Agreement’s 1.50C goal was getting far-fetched even with the level of

ambition in the current NDCs. The report projected that emissions in 2030 will be 38% higher than

required to meet that target.

The divergent views resulting in no agreement but a procedural decision on Article 6 during COP24

held in Katowice, Poland (UNFCCC, 2018) persisted during COP25 in Madrid, Spain where the Paris

Rulebook should have been completed for the full implementation of the Paris Agreement. The table

below summarizes issues that remained outstanding under Article 6 and which require further work

at COP26.

Table 2: Summary of Article 6 Outstanding Issues

Paris Agreement Issues Issues for further work

Cooperative approaches referred to in

Article 6, paragraph 2, of the Paris

Agreement

i. Share of proceeds for adaptation; ii. Application of the guidance (whether inside or outside NDCs); iii. Determination by participating Parties for non-greenhouse gas metrics; iv. Methods for conversion between metrics in relation to Corresponding

Adjustments; v. Application of corresponding adjustments to the total quantity of emission

reduction achieved; vi. Multi-year and single-year NDCs in order to avoid double counting; vii. Overall mitigation in global emissions (OMGE); and viii. Safeguards and limits to the transfer and use of the internationally transferred

mitigation outcomes (ITMOs)

Rules, modalities and procedures for

the mechanism established by Article 6, paragraph 4, of the Paris Agreement

i. Baselines, additionality, and new methodologies for the mechanism; and ii. Transition of Kyoto Protocol units into Article 6 of the Paris Agreement

Work programme under the

framework for non-market approaches referred to in Article 6, paragraph 8, of

the Paris Agreement

i. Institutional arrangements for the framework for non-market approaches; and

ii. Mechanisms that support adaptation

3.6 COVID19 Situation

Early 2020 the WHO declared COVID19 a global pandemic and based on lessons learned from the

H1N1 and Ebola outbreaks, WHO issued guidelines for organizers of mass gatherings, in light of

COVID19 (WHO, 2020). The unprecedented COVID19 pandemic only escalated the challenge of

future climate change since the scheduled COP26 was postponed to 2021 further delaying the

opportunity to address the gaps in the Madrid COP outcome. With strict COVID19 restrictions put in place by countries, consulting on the outstanding key issues became limited including the

cancellation of the Bonn talks that could otherwise have facilitated narrowing the gaps in negotiations towards COP 26. For most of Africa, whose capacity to implement COP outcomes depends on

support provided by developed countries, the shift of global attention to addressing the COVID19

implied that this support was uncertain.

Many African economies are already incurring losses of around 3% of their GDP to climate related

impacts (Abidoye, Babatunde & Odusola, Ayodele, 2015). and the situation is likely to worsen in light

of the pandemic as economic activities slow down. The pressure that COVID19 has placed on even

the gibber economies presents a risk of resources for climate change not being adequate to address

the needs of African countries. COP 26 will therefore become even more critical to reach agreement

on how to implement the Paris Agreement. The collective global goal through implementation of NDCs will require substantial international support to African and Least Developed Countries. In an

attempt to balance global attention to the climate and COVID19 crises and noting that rapid recovery

from global lockdowns, international organizations including the Green Climate Fund and the NDC

partnership (NDC Partnership, 2020) are advancing support to green recovery to support developing

countries, including in Africa, to design green stimulus packages that strengthens their recovery from

COVID19 (GCF, 2020). Zambia has since progressed in accessing the support in form of an

embedded economic advisor to assist the country recover from COVID19 through integration of climate change considerations in recovery plans.

CHAPTER FOUR: ANALYSIS

4.1 Implications of COVID19

The emergence of COVID19 brought with it challenges beyond the direct threat on human health. The urgency to address this global emergency called for international financial resources to be

mobilized at a time when the international community was also looking towards pre-COP processes

including the Bonn session that was scheduled for June 2020. The urgency to curb the spread of

COVID19 also cast uncertainty on the provision of finance, technical and technology support to

developing countries in view of strained economies and restrictions on travel.

Box 2

The COP26 UN climate change conference set to take place in Glasgow in November 2020 has been postponed due to COVID-19. This

decision has been taken by the COP Bureau of the UNFCCC (United Nations Framework Convention on Climate Change), with the UK

and its Italian partners. Dates for a rescheduled conference in 2021, hosted in Glasgow by the UK in partnership with Italy, have been set to 1-12 November 2021. In light of the ongoing, worldwide effects of COVID-19, holding an ambitious, inclusive COP26 in November 2020

is no longer possible. Rescheduling will ensure all parties can focus on the issues to be discussed at this vital conference and allow more time for

the necessary preparations to take place. We will continue to work with all involved to increase climate ambition, build resilience and lower emissions.

Patricia Espinosa, UN Climate Change Executive Secretary, 2020

The June sessions have traditionally facilitated keeping a momentum post COP negotiations and

presents an opportunity for Parties and other stakeholders to continue having dialogue, exchanging

views and sharing information thereby facilitating narrowing of gaps on positions across blocs.

Due to the emergence of COVID19, the UNFCCC bureau took an innovative and adaptive approach to ensure work continued to progress through virtual platforms with facilitation by Chairs of the

UNFCCC’s Subsidiary Body for Scientific and Technological Advice and the Subsidiary Body for

Implementation and with the support of the UNFCCC secretariat. The work modality through the

process dubbed June Momentum for Climate Change. Through a series of online events from 1st to 10th

June 2020 the UNFCCC secretariat undertook engagements among parties and showcased how climate action is progressing under the special circumstances the world is currently facing (UNFCCC,

2020).

As a result, technical work under the constituted bodies, as well as information exchange and engagement on other work under the UNFCCC, on adaptation, mitigation, science, finance,

technology, capacity-building, transparency, gender, Action for Climate Empowerment, and the

preparation and submission of Nationally Determined Contributions advanced under the COVID19

prevailing situation.

The UK and its Italian partners therefore agreed to adjust their hosting of COP26 to new dates for of 1st to 12th November 2021, in Glasgow. Against the uncertainties around the climate change

multilateral process, COP26 presidency provided optimism and encouraged parties keep the global

challenge of climate change in sight therefore sending a positive signal to the global community include

governments, private sector and civil society. Box 3

While we rightly focus on fighting the immediate crisis of the Coronavirus, we must not lose sight of the huge challenges of climate change. With the new dates for COP26 now agreed we are working with our international partners on an ambitious roadmap for global climate action between

now and November 2021. The steps we take to rebuild our economies will have a profound impact on our societies’ future sustainability, resilience

and wellbeing and COP26 can be a moment where the world unites behind a clean resilient recovery.

Alok Sharma, COP26 President and Secretary of State for the Department of Business, Energy and Industrial Strategy,

2019

By implication, due to travel restrictions across borders, regional meetings conducted by negotiating

blocs could not take place to enable parties from the African Group have an exchange on the outcome

of COP25 and commence preparations for COP26. Virtual consultations, instead took place to

facilitate progress.

Nationally Determined Contributions (NDCs) are a key aspect of the Paris Agreement and the

achievement of the long-term goal on reducing greenhouse gas emissions, building resilience and

maintaining the 1.50C global temperature. NDCs represent efforts by parties to the Paris Agreement

to reduce their national emissions and adapt to the impacts of climate change. Parties to the Paris Agreement are required to prepare, communicate and maintain successive NDCs that it intends to

achieve (UNFCCC, 2015).

In-country, Zambia had lined up steps to undertake the updating of the NDC by March 2020 in line

with Article 4, paragraph 2 of the Paris Agreement. The advent of COVID19 and associated slowed down activities in government and cooperating partners’ institutions entailed that accessing technical

assistance for the process could not be undertaken in the planned timeframe. The country therefore

undertook a measure to submit communication to the UNFCCC secretariat on Zambia’s intention to

update the NDC and outlined the focus of the NDC revision (UNFCCC, 2020). However, even as

the country gradually resumed public activities, operations by external experts to support the NDC

revision process were not feasible due to travel restrictions.

Table 3: Implications of COVID19 on implementation of COP25 Outcome

Thematic Area COP25 Outcome Impact of COVID19 on implementation of COP25 Outcomes

Global Ambition Re-emphasized with serious concern the

urgent need to address the significant gap

between current ambition and the goals of

limiting warming to 1.5C or well-below 2C.

Parties to consider the ambition gap when

they re-communicate or update their NDCs

Hold round tables meetings at COP26 and

COP27 on the implementation and ambition

of pre-2020 efforts

The impact of COVID19 on the economy has put on hold focus on other

development activities and only prioritizing activities to respond to the impact.

The updating and revision of NDC was impacted due to restrictions on physical

engagements that are critical to NDC revision processes

The delay in NDC revision provides an opportunity to integrate the risk of disease

outbreaks such as COVID19 in the implementation plans of the revised NDC

The impact of COVID19 requires that round table meetings for COP 26 include the

resetting of the ambitions in view of the impact of COVID19 on economies

On NDC: Here the delay actually gives countries a bit more time to prepare updated

NDCs, and the UNFCCC Secretariat to prepare the synthesis report. The delay is

probably a welcome one given that many countries now need to prioritise the

COVID-19 pandemic. It also provides countries with an opportunity to consider

their climate action in the context of the economic recovery from COVID-19.

On the other hand, it is an open question now how ambitious this year’s updated

NDCs will turn out to be. Already in March of this year, Japan submitted an NDC

that left its 2015 emission target unchanged, even though the Paris Agreement

suggests that countries ramp up (Ratchet Approach) their ambition in successive

NDCs. The combination of COVID-19 and the postponing of COP26 may therefore,

well lead to less and later climate action.

Article 6

Accounting rules to

avoid ‘double-

counting’

Carryover of Kyoto

carbon ‘units’ and

projects

Share of proceeds’ to

the adaptation fund

Consideration of Paris Agreement Article 6

at its next meeting in June 2020 on the basis

of these draft decision texts, with a view to

recommending draft decisions for

consideration and adoption by CMA 3 in

November 2020

One major issue of concern as a result of holding COP26 a year later under Article

6 is the transition from the Clean Development Mechanism – or CDM – to the

market mechanisms of Article 6 of the Paris Agreement, regulating how countries

can reduce their emissions using international carbon markets. Lack of agreement

on Article 6 of the Paris Agreement means these carbon credits cannot be

transferred and retain their value under the new market mechanisms.

Negotiations in Madrid last year (2019) failed to deliver an agreement on Article

6. The earliest point in time at which agreement on Article 6 can now be reached

is November 2021. Yet the second commitment period of the CDM ends this year.

This gap affects many countries that have relied on the CDM and are now

expecting Article 6 to provide them with a steady flow of resources to support

their climate action. This definitely will have an impact on the levels of ambition

Capacity-building Continuation of the identification and

dissemination of lessons learnt to enhance

the implementation of capacity building

activities by Parties;

Assess the effectiveness of capacity

building activities implemented in

developing countries and their impact on

enhancing the ability of developing

countries to respond to climate change

Identification and implementation of capacity building needs and gaps has been

on-going virtually through the PCCB works. The country has participated in

virtual meetings on this subject matter and provided input into the expected

outcome report to the COP.

An assessment of the effectiveness of the implementation of capacity building

activities in developing countries is an on-going and annual event conducted

through Parties’ negotiations and PCCB works. This assessment is still on-going

through virtual platforms established by the UNFCCC through the PCCB. At

country level, this process was also informed through the assessment done

during the formulation of TNC

Finance Scale up financial resources, including the

provision of voluntary support, that are

additional to the share of proceeds levied on

certified emission reductions in order to

support the resource mobilization efforts of

the Adaptation Fund Board

GEF, as an operating entity of the Financial

Mechanism, to adequately support

developing country parties in preparing their

first and subsequent biennial transparency

reports under its seventh replenishment and

throughout its replenishment cycles

COVID-19 has resulted in severe economic collapses and wide spread job losses.

Countries have faced unprecedented economic contractions. Therefore, the

pledges and contributions towards the GCF’s first replenishment period may be

delayed.

GEF under UNDP gave some support, it was not adequate as Livelihoods

dependent on environment were adversely affected e.g. In Tourism , tourists were

not moving due to COVID19 affecting many livelihoods dependent on tourism.

Gender and Climate

Change Parties to appoint and provide support for a

national gender and climate change focal

point for climate negotiations,

implementation, and monitoring

COVID19 created an emerging dimension to gender and climate change.

Communities adversely affected by climate change had their adaptive capacities

lowered due to reduced access to coping measures as the country slowed down on

socio-economic activities

Koronivia Joint Work on

Agriculture Continued involvement of constituted

bodies and financing entities in the

Koronivia Joint Work on Agriculture

The planned workshops on topic 2.e: improved livestock management systems;

including agro-pastoral and other production systems and on topic 2.f: socio-

economic and food security dimensions of climate change in the agricultural

sector planned for SBSTA/SBI 52 and SBSTA/SBI 53.

The COVID1919-19 pandemic has affected the implementation of activities on the

KJWA Roadmap as scheduled workshops could not take place

National Adaptation Plans Developed countries and others to continue

to mobilize support for adaptation activities

in developing countries;

Delivery partners to strengthen efforts to

support developing countries with the goal

of expediting the submission of readiness

proposals to the GCF

The impact of COVID19 has placed pressure on domestic resources of small

economies such that supporting NAP activities has been secondary to fighting the

COVID19 pandemic

Countries that are already burdened with socio-economic challenges have had

their adaptive capacities further compromised due to the impact of the COVID19

4.2 Analysis of COP 25 country paper

In preparation for COP25, Zambia, on priority setting took an approach that captured thematic areas

at a broad level and placed attention on adaptation, transparency, mitigation, climate finance and the overall outcome on the global ambition. The SWOT analysis is applied to the COP25 country paper

here and assessed for its achievement against COP25 outcomes.

Table 4: SWOT analysis on the COP25 country paper

STRENGTHS WEAKNESSES

Priority issues were specific and clear and easy to follow

Priority setting was realistic in view of the delegation size

The issues were placed under broad thematic areas

Issues outlined as priority did not match the ones the delegation closely followed. For example capacity building was not in the position paper but the issue is coordinated by a delegation member

Presentation of priority issues did not highlight the national context to be addressed

Inadequate elaboration on the positions other than a generic description

Position paper had no assigned delegates on whom to follow up

OPPORTUNITIES THREATS

The COP25 agenda could have been explored in more detail highlighting issue of interest under the constituted bodies

Working with other in-country stakeholders such as academia, CSOs and private sector to research and elaborate on the priority areas

Limited knowledge of subject matters by individual delegation members

Inability of delegation members to present the country priorities in the COP25 meetings

Limited readiness of delegation members to navigate through the documents related to the subject matters

4.2.1 Analysis of Achievements from COP25 Country Paper

The end result of COP25 did not yield to the expectations of the Zambian delegation. The COP closed

after the delegation had left the host country and therefore following the final deliberations was a

challenge. An issue that developing countries have raised concerns on in view that the process excludes small delegations from participating fully in decision-making. Despite these shortcomings, a few

priorities that were pursed by the Zambia delegation had some positive outcomes. Below is a summary

of how priority issues from the position paper faired.

Table 5: Performance of issues advanced by Zambia position paper

Thematic Area Negotiation issue Expected outcome COP25 outcome

Global ambition Increased ambition to the

global goal through country pledges and

actions

Demonstration of developed countries’ leadership in

putting forward increased commitment to domestic actions

Decisions on outstanding issues for the full operationalization of the Paris rule book

• Re-emphasized with serious concern the urgent need to

address the significant gap between current ambition and the goals of limiting warming to 1.5C or well-below 2C.

• Parties to consider the ambition gap when they re-communicate or update their NDCs

• Hold round tables meetings at COP26 and COP27 on the

implementation and ambition of pre-2020 efforts

Transparency Common reporting formats

Adoption of reporting requirements on support and actions that do not place additional burdens on

LDCs

There was no consensus on the work under the Paris Agreement’s enhanced transparency framework for national

reporting

Mitigation Carbon market structure Agreement on a market structure that takes into account the value of forest carbon that adequately

incentivizes sustainable management of forests

• Consideration of Paris Agreement Article 6 at its next meeting in June 2020 on the basis of these draft decision texts,

with a view to recommending draft decisions for consideration

and adoption by CMA 3 in November 2020 Agreement on a structured summary table to reflect

the tracking of progress towards implementation and achievement of an NDC

Adaptation Special circumstances with

respect to support to

climate actions

Recognition of countries with special circumstances

with respect to support to climate actions

No adoption of the adaptation committee due to non-

consensus amongst parties

Climate Finance Long-term finance post

2020

Adaptation Fund serving

the Paris Agreement

A progressive decision on how provision of long-

term finance will be addressed for the post 2020

period in view that NDCs are long-term in nature and require assured, additional and predictable

finance

• Scale up financial resources, including the provision of

voluntary support, that are additional to the share of proceeds

levied on certified emission reductions in order to support the resource mobilization efforts of the Adaptation Fund Board

• GEF, as an operating entity of the Financial Mechanism, to adequately support developing country parties in preparing their

first and subsequent biennial transparency reports under its

seventh replenishment and throughout its replenishment cycles

A decision that does not change the composition of the Adaptation Fund board in view of its servicing

the Paris Agreement

While Zambia presented the issues in table xx above, the delegation also pursued the following issues but the paper had not elaborated the country’s expected outcomes. These included

i. Gender and climate change ii. Koronivia joint work programme on agriculture iii. Matters relating to the Least Developed Countries iv. Capacity-building

The delegation actively engaged in Article 6 negotiations under the broad subject of mitigation

reflected in the position paper while all finance matters were undertaken under the broad theme of

climate finance under the COP, CMP and CMA. On the other hand, the subject of the Koronivia joint

work programme on agriculture considered under the broad theme of adaptation although the position paper had not highlighted this focus. This approach was taken to meet the capacity of the lean

delegation.

4.3 Stakeholder Participation

Participation of state and non-state stakeholders has been demonstrated by the UNFCCC focal point

ministry to ensure country ownership of outcomes. This is done in facilitation of accreditation under the respective categories and direct inclusion in government delegations as well as non-state delegates’

participation in country delegation coordination meetings to keep them updated on the process.

However, full stakeholder participation is negatively affected by financial constraints faced by both

public and civil society stakeholders.

CHAPTER FIVE: RECOMMENDATIONS

5.1 Towards COP 26

Having drawn lessons from COP 25 processes, its outcomes and the impact of COVID19 on the

implementation of such outcomes, Zambia being part of the UNFCCC community will need to make

earnest and thorough preparations for COP 26 in view that outstanding issues that had remained from

COP 25 are well known. This will require not only mobilization of delegates but also clarity of

priorities and adequate orientation and dedicated assignment of delegates to agenda items. Below are recommendations for addressing selected issues going forward.

5.1.1 Global Ambition

Zambia and other African countries should aim to submit the updated NDCs and demonstrate the

commitment to the Paris Agreement goal. In the prevailing situation of COVID19 Zambia will need to mainstream measures for addressing the risk of the COVID19 on the implementation of the

updated ambitions.

The process of revising the NDC should therefore include integration of risk of global pandemics such as COVID19 and how they would affect implementation of COP decisions in particular the Paris

Agreement.

5.1.2 Article 6

The need to conclude talks around Article 6 issues should be treated with urgency in order to complete the Paris Rule Book and enable parties to embark on implementation. An agreement on Article 6 must

be arrived at COP26 in order raise levels of ambition in countries’ NDCs. The outcome on Article 6

at COP 26 will determine the signal to the private sector with respect to the carbon market and

influence achievement of ambitions that will be set in updated NDCs. Zambia must undertake in-

country diplomatic bilateral engagements on this subject and assess how to approach the agenda item

at COP 26 taking into account the direction that will be provided by the larger blocs to which Zambia associates. It is recommended that with such a complex subject as Article 6, the country should explore

an in-depth analysis with involvement of private sector, academia and relevant government agencies

to understand the implications of different scenarios on the country circumstances.

5.1.3 Capacity Building

Zambia leads the LDCs engagement in talks on capacity building. The country should consider

formulating clear and specific capacity priorities and include impact assessment of COVID19 and

integration of COVID19 related activities in capacity building programmes under the UNFCCC.

Zambia should ensure that COP 26 considers key recommendations by the PCCB through its annual

report on means and ways of identifying and enhancing implementation of capacity building activities

by Parties. In order to have meaningful contribution to the global processes on capacity building, the country needs to participate in identifying capacity gaps and needs, both current and emerging, and

recommending ways to address them. Zambia should consider active participation in the negotiations

and share lessons learnt at critical side events such as the Durban Forum Meeting. The country should

actively engage in contributing to the expected COP26 outcome paper on capacity building agenda

items. Zambia should advance the need for strengthened COVID19 impact assessment tools within

the framework of climate change capacity building under the convention and the assessment effectiveness of capacity building should take into account the impact of COVID19.

5.1.4 Finance

The emergence of COVID19 placed a strain on domestic resources for countries like Zambia in

addition to addressing other existing socio-economic demands. Social and economic recovery efforts post COVID19 will have an extended effect on domestic resources and planned interventions to

address climate change. These practical cases will make a case for Zambia to demonstrate the need

for integrating COVID19 in resource allocations. Financing windows of the UNFCCC should

respond to the pandemic and integrate finance for responding to the impacts of COVID19.

The Global Environment Facility could be guided to establish a funding window for addressing

COVID19 and further create a portfolio under 7th replenishment and subsequent cycles for addressing pandemics such as COVID19. It is recommended that additional funding for addressing

the impact of COVID19 on implementation of COP should be mobilized. At operational level there

is need for guidance to funds such as the Green Climate Fund to promote blended finance for

developing countries.

5.1.5 Gender and climate change

Although the country priority paper had not highlighted gender as a key issue, Zambia has undertaken

major steps to demonstrating its commitment to integrating gender in climate change actions including

in the current NDC. The country is implementing the NDC Support Program whose core focus is to

mainstream gender in NDC interventions (UNDP, 2019). Zambia has also appointed a gender and

climate change focal point as well as prepared the climate change gender action plan (GRZ, 2018). COVID19 just like gender issues are multi-sectoral in nature, a two-pronged approach needs to be

undertaken by mainstreaming COVID19 in the gender action plans and also have dedicated focal

points.

Box 4

The pandemic is deepening pre-existing inequalities, exposing vulnerabilities in social, political and economic systems which are in turn amplifying

the impacts of the pandemic. Across every sphere, from health to the economy, security to social protection, the impacts of COVID-19 are

exacerbated for women and girls simply by virtue of their sex.

António Guterres, UN Secretary-General, 2020

Like climate change, COVID19 has impacted men, women and youth differently owing to its influence on economic capacities of these groups and their ability to cope with the hardships it has exerted (UN,

2020). It is therefore recommended that a move should be made at COP26 to ensure COVID19

considerations are mainstreamed in the gender action plan of the UNFCCC.

5.1.6 Koronivia Joint Work Programme on Agriculture

For Zambia, adaptation efforts in the agriculture sector is a matter of importance because of the

impact climate change has on food security. Therefore Zambia actively engages in the COP agenda

item on Koronivia Joint Work Programme (KJWA) on Agriculture despite it not being highlighted in

the position paper. In view of working towards COP 26 it is recommended that an International

Agriculture Program similar to the UNREDD+ is established to. This will help mobilise resources to support developing countries implement outcomes of the KJWA especially from the in-session

workshops held so far. The Green Climate Fund (GCF) should be requested to set aside KJWA

readiness funds specifically to support developing countries to submit proposals towards

implementation of the outcomes of the KJWA. Since the convention and the Paris Agreement puts

emphasis on safeguarding food security and ending hunger, it is important to institutionalize KJWA

as a constituted body under the convention to ensure that all issues related to agriculture are

consolidated and addressed through a single body under the convention (Government core negotiator).

5.1.7 National Adaptation Plans

As Zambia is commencing preparation of its National Adaptation Plan (NAP) it is timely to integrate the risk of global pandemics such as COVID19 in the NAP process as part of resilience building. The

GCF COVID19 response support should apply to NAP readiness to ensure that gaps for addressing

pandemics in the NAP process are facilitated. Addressing the impact of COVID19 on NAP the

process will require additional technical and financial support to integrate these in the adaptation

measures and also for building resilience for addressing pandemics. Guidance to the GCF should

include review of the readiness programme to integrate COVID19 response measures.

5.2 Enhancing Stakeholders/CSO Participation

Different stakeholders deal with climate change at different levels, that is, policy, legal, advocacy and

implementation. While the efforts of government to facilitate participation of non-state stakeholders

are acknowledged in view of financial constraints, there is opportunity to increase on the diversity of

expertise and mobilize it to the advantage of the delegation. With the impact of the COVID19 on

public, private, civil society sectors, the TORs and composition of the core team of negotiators on

climate change for Zambia should reflect integration of emerging issues and ensure they are mainstreamed. As a starting point, the core team of negotiators could be expanded to include

representatives from the National COVID19 Response Team who can be dedicated to focus on

COVID19-related issues during COP 26 should they arise in the agenda.

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ANNEX

Data collection Tools Thematic Area Key informant COP25 outcome Effect of COVID-19 on

implementation of Outcome

Strategic recommendation

for COP 26