Greening development? - not just “aid” ODI, 23 Sept 2008 Seán Doolan Environment adviser DFID Africa Division
Jan 12, 2016
Greening development? - not just “aid”
ODI, 23 Sept 2008
Seán Doolan
Environment adviser
DFID Africa Division
Summary• Where do environment & climate change fit in donor
priorities?• How raise profile – political & economic debate?• How support national & regional institutions &
processes?• How engage country leadership in processes?• How integrate with development more broadly?
• What approach? • What support?• How resource?
Insights
• “Hard to be a long-term donor and see so little progress … or long-term recipient and not see this as entitlement”
• Environmental programmes as part of “high politics” & “party politics”
• Bilaterals more responsive to global & regional significance, policies & poverty • incentives & procedures?
• Environmental screening not emphasised for bilaterals• opt outs, reliance on multilaterals, over-reporting
• Delegation to multilaterals – scaling up, CC• Climate change to integrate environment & development
Reservations
• Few references to donor documents & evaluations
• Outcome-based “conditionality”?
• Multi-donor trust funds -“off balance sheet finance”?
• Environmental information – CITES not indicative
• Neglects role of EC/EU in setting norms
Reservations
• Predates shift towards general budget support• Sectoral allocations do influence aid emphasis• Income & population relate to MDGs
• PLAID & aid effectiveness? • Coding, duplicate reporting, proxy indicators• Terminology, practitioners• Do not rectify all inconsistencies in reporting …
Observations – governance & political economy
• Actors & institutional landscapes• Bargaining power of recipients, esp. BRICS• Policy instruments & procedures, political champions• Donors raise issues, local politics determine outcomes• “Windows of opportunity, strategic coalitions, alter
incentives, redistribution of capabilities”• National development planning essential• Individuals & happenstance important
“Environment” in development cooperation - after 2000
• MDGs – expansion of “neutral aid”• poverty-environment linkages failed to gain traction• MDG 7 – now reported as “water”
• Much in terms of safeguards, not investments• different to domestic environmental expenditure
• Shift towards programmatic funding• General & sector budget support• Increase in social sector spend• Harmonisation & alignment (Paris & effectiveness)• Climate change
“Environment” – the future
Economic growth & human development• NR-driven growth & conflict• Resource scarcity & competition (BRICS, climate change, fragile states,
chronic poverty)• Underpinning delivery of other objective
Need realistic integration• Reframing language, backstaging• Networks, coalitions & evidence• Public audit & accountability mechanisms
• Niche actors & champions• Inter-institutional/sectoral linkages?
“Environment” – future drivers
• Climate change• Political momentum• Environment marginalised by development architecture
& instruments• Need to re-engage on both sides
• “Environment” as driver of governance shifts?• “Environment” as result of shifts in governance &
political economy?
Health – India, infection managementService delivery
• nosocomial infections (MRSA …)• 63% injections unsafe in India• 2 million new Hepatitis B cases a year• 1.5 million deliveries PHCs, CHCs• 2,700 blood storage facilities• 280M AD syringes• 615 t needles• 550,000 outreach sites• Indian experience – WHO transfer
India – school water & sanit’UNICEF partnership
1993
• 630,000 primary schools
• 44% with water supply
• 8% with sanitation
2003
• 1.12 million primary schools
• 70% with water supply
• 51% with sanitation
• Enrolment & retention figures• Morbidity, time• Teacher motivation
NRE context in Ghana
NRE policy trade-offs - underestimated consequences GoGh Strategic Env Assessment neglected
Rethink policy dialogue & operational support to NRE Inconsistent consideration of NRE in-country Shift to budget support, harmonisation & alignment; country priorities & systems Disengagement from NRE policy support
(PPG7 analogy with Brazil) NRE marginal to "on-budget" support, aid instruments & development policy
Donor
Donor
Donor
Donor
Ghana Partnership Strategy
Joint Assistance Strategy
(JAS)
Multi-Donor (General)
Budget Support Prog Prog Prog
Development Partners & GPS coordination
Government & donor alignmentNew aid architecture, JAS = 14 donors, 90% aid
Growth & Poverty Reduction Strategy II
NREG preparation process (not linear)
Government of Ghana
Development Partners
Missions, virtual
networksNREG
task team
Ghana Poverty & Reduction Strategy II
Ghana Joint Assistance Strategy
Policy Dialogue – General Budget Support
Analytical work
NREG
Ministries & Agencies
Civil society
Policy matrices
Finance (MoFEP)
High level committee
Budgets & fund flows
ENR Sector group
Donor coordination on NRE
2001 Coordination • projects around NR Management Programme • disbursement focus, differing project requirements
2004 Sector group started• information exchange
2005 Economic & Sector Work • discussion at different level• economic case, not " protection"
2006-7 Country Environmental Analysis• platform for dialogue during workshops2007-8+ NRE Governance sector budget
support
NREG - evolving mix of financing instruments?
Shift from enclave projects
2006 2010 2015
Consolidating accountability
Sustaining progress
Multi-Donor Budget Support
£€$ - MoFEPSector budget programmes
£€$ - MoFEP & Ministries
Sector-aligned programmes£€$ - Ministries
Projects£€$ - Sector agencies
Paris linkages - ownership
• Anchored in sector dialogue & issues• Finance at centre, coordinating line Ministry inputs• Sub-sector matrices• Letter of Development Policy as overall statement • Nat’ Dev’ Planning Commission guidance on sector
planning • Medium-Term Expenditure Frameworks
- public financial management focus - analysis & planning on financial flows
- budget cycle
Paris linkages - alignment
• Single set of indicators, set by line Ministries & Agencies
• Finance commissioning related studies using country procurement mechanisms
• Multi-year budget commitment, annual assessments
• Flexibility in evolving indicators & targets• Reinforcing country sectoral & national planning
& systems
Paris linkages - harmonisation
• Donor procedures differ, only some flexibility• Joint conclusions from joint assessments?• Reconciling HQs with in-country offices &
processes• Active sector group dialogue key• Anchor in dedicated staff & in-country processes• Division of labour – NRE expertise can disappear• Linkage to general budget support dialogue
problematical• General budget support useful for existing
policies, not reform
Paris linkages - reflections
High transactions costs in set-up• for both Government & development partners• Weak strategic planning, M&E & financial
systems
Quality of input• Bringing NRE agencies to speed with aid
instruments• Policy matrices & indicators – sector plans vs
dialogue• “Matrix fatigue” & “guided ownership” • Civil society engagement sensitive
Paris linkages - analysis
Institutional planning & budgeting• Credibility of medium-term strategic planning &
budgeting• Effectiveness of NRE country systems &
processes to address development agenda
Analytical work on NRE• Scarcity of analytical work to make economic
case for NRE• Scarcity of institututional or expenditure
analyses