Influencing the Development and Integration of National Standard Climate Change Indicators into the Monitoring and Reporting Frameworks in Uganda | Capacity Building

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This paper documents the results of the process of developing and selecting national standard climate change indicators for integration into two national monitoring and evaluation frameworks in Uganda: the Output Budgeting Tool (OBT) and the Local Government Assessment tool (LGAT). The OBT is used by the Ministry of Finance, Planning and Economic Development (MoFPED) to determine national development standard indicators that are monitored and reported across all sectors in the country. The LGAT determines and annually assesses the minimum performance measures for all local governments in Uganda. Before the intervention of the Africa Climate Change Resilience Allicance (ACCRA) and the International Institute for Environment and Development (IIED) as part of the Tracking Adaptation and Measuring Development (TAMD), both frameworks lacked standard performance indicators on climate change. This meant that local governments were not required to plan, budget or report on climate change. The briefing draws out lessons learned from using a highly participatory and bottom-up process, as well as policy implications at national, sub-national and sectoral levels. It also highlights key prerequisites for successful development and integration of climate change indicators in existing monitoring and reporting frameworks of national states.
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  Influencing the development and integration of national standard climate change indicators into the monitoring and reporting frame works in Uganda  Tracy C. Kajumba 1  & Irene Karani 2  Abstract ã It is important to mainstream climate change adaptaon indicators into naonal development plans and budgets as a way of ensuring that adaptaon and development are complementary at scale in the short, medium and long term. ã For greater ownership of climate indicators at all level, the process of their development needs to begin at sub-naonal level and involve communies aected by weather and climate changes. This will allow alignment of local level CC indicators with naonal level indicators if they are to be tracked eecvely by naonal governments. ã Inuencing naonal M&E tools and frameworks used for budgeng and planning is an eecve way of ensuring that climate change is factored into all sectors. It also serves to ensure that naonal and sub-naonal government budgets and plans implement climate change intervenons when their funding is based on tracking specic indicators. ã A conducive climate change policy framework makes inuencing climate change M&E tools easier, with ownership from all stakeholders and linkage to all sectors and policy frameworks. ã It is important to build the capacity of naonal and local governments in mainstreaming climate change into their development sector plans for eecve adaptaon monitoring and compliance with naonal M&E and other reporng frameworks. ã Country integrated frameworks on monitoring and tracking climate change adaptaon, migaon and development are important in strengthening readiness of Government to access global climate change nancing   1 Naonal Coordinator Africa Climate Change Resilience Alliance (ACCRA) 2 Director LTS Africa  ACCRA Brieng Paper November 2015 Policy implications This paper documents the results of the process of developing and selecng naonal standard climate change indicators for integraon into the naonal level Output Budgeng Tool (OBT) and the Local Government Assessment tool (LGAT) in Uganda, using a highly parcipatory and boom up process. The OBT is used by the Ministry of Finance, Planning and Economic Development (MoFPED) to determine naonal development standard indicators that are monitored and reported across all sectors in the country. The LGAT, which determines and annually assesses the minimum performance measures for all local governments in Uganda also lacked performance indicators on climate change. This meant that local governments were not required to plan, budget or report on climate change. The brieng draws out lessons learnt and policy implicaons at naonal, sub-naonal and sectoral levels. It also highlights key prerequisites for successful development and integraon of climate change indicators in exisng monitoring and reporng frameworks of naonal states.   ACCRA Brieng Paper November 2015 The Internaonal Instute for Environment and Development (IIED) had worked with ACCRA 3  in Mozambique in 2013 on developing climate change indicators using the Tracking Adaptaon and Measuring Development Framework (TAMD) . As a result of this successful collaboraon, In August 2014 the Government of Uganda commied to iniate a similar process with support from IIED and ACCRA. The government’s decision on taking on the TAMD approach was backed by the conducive policy frameworks that enabled the process to run smoothly with buy-in from various stakeholders. The Ministry of water and Environment (MWE) had completed the Naonal Climate Change Policy (NCCP) and its’ costed Implementaon Strategy (IS). The Climate Change Department under MWE with support from French Development Agency had started the process of developing the Performance Measurement Frame work (PMF) for measurement and reporng on NCCP and its implementaon strategy. However, the indicators developed were at instuonal level and were output focused. This created a need to develop indicators at lower level to feed into the reporng and coordinaon indicators in the PMF. The Naonal Planning Authority had also nalized the second Naonal Development Plan 2015/16- 2019/20 (NDPII) in line with the Vision 2040 where climate change was already integrated. Another advantage were the key exisng M&E frameworks being used including; the Output Budget Tool (OBT) by Ministry of Finance, the score card by the Oce of Prime Minister (OPM) and the performance assessment tool for local governments. Instead of developing separate M&E frame works and reporng tools therefore, it was inevitable that climate change indicators get mainstreamed into exisng systems making it easy to follow up and assess as part of development processes. 3  ACCRA is a consorum made up of Oxfam , the Overseas Development Instute (ODI), Save the Children Internaonal, Care Internaonal and World Vision Internaonal. Website: hp://community.eldis.org/accra/  4 The TAMD frame work can be accessed here- hp://www.iied.org/tracking-adaptaon-measuring-development-tamd    5 Standard Indicators are provided by the responsible ministries, agencies and local governments (MoLGs) and pertain to the performance of Standard Outputs (Service Delivery Outputs) and each LG is expected to report on them Introduction Entry points used to infuence the national process in Uganda The following key steps were used to iniate, train, develop, review and validate indicators from the community, sub naonal and naonal level. Step 1; Consultave meengs between key mandated ministries, ACCRA and IIED CCD with support from ACCRA and IIED convened 2 consultave meengs, targeng all ministries responsible for the implementaon of the climate change policy and implementaon strategy, Local Governments, development agencies and civil society organisaons. This was aimed at introducing the Tracking Adaptaon and Measuring Development (TAMD), generang consensus on the process, selecng sample districts for data collecon and mapping the process of developing indicators. The outcomes of these consultave meengs, informed the key decisions and steps in the process   “Uganda is in the inial stages of adopng TAMD, but there is already indicaon that the process will strengthen the monitoring and evaluaon of adaptaon programmes in the country, consistent with Uganda Naonal Climate Change Policy.” Chebet Maikut, Head, CCD and UNFCC focal person St ep 2; Country scoping study on M&E and reporng frameworks A naonal scoping study was done to determine exisng M&E and reporng frameworks and idenfy entry points for inuencing and integrang naonal indicators for climate change into the M&E tools and reporng frame works and can be accessed here; hp://pubs.iied.org/10116IIED Key recommendaons of the scoping study included: ã The need to review the Ministry of Finance tool the OBT and the Assessment tool for Local Government too – the LGAT to integrate DRR and climate change indicators, which were missing. ã Using the local level climate change indicators to improve the naonal level indicators developed for the Naonal Performance Measurement Framework (PMF) for the Naonal Climate Change Policy (NCCP, 2015) and its Implementaon strategy (IS). This means revising sectoral indicators, which would have a direct link with the overall Naonal Development Plan II long term impact indicators. ã Harmonisaon of all exisng climate change adaptaon and DRR indicators being developed by dierent development partners in order to d evelop naonal standard indicators St ep 3; Training and data collecon using the TAMD framework and tools Capacity and skills enhancement was on top of this process to ensure ownership and connuity. A training of trainers in the TAMD methodology by ACCRA and LTS Africa was conducted in one of the pilot districts  – Bulambuli District. This was aended by 16 sta from the ministries of; Local Government, Water and Environment – Climate Change Department, Works and Transport, Gender, Labour and Social   ACCRA Brieng Paper November 2015 Development, Agriculture Animal Industry and Fisheries as well Naonal Meteorology Authority and 35 Bulambuli district sta. This hands-on experience of data collecon started in Bulambuli district with four communies in 4 dierent sub counes (two highland and two lowland communies). The praccal exercise aimed at collecng indicators for Bulambuli district and the community, while ensuring that the parcipants had grasped the methodology of indicator development and could use the tools to collect data at both district and community level in other districts. Climate risk management was assessed by engaging the District Technical Planning Commiee (DTPC) in each of the involved districts, using a score card with a list of agreed parameters. At community level, data collecon was done using the theory of change to generate climate change and development indicators Aer the ToT, parcipants were divided up into groups, and sent to four other districts where they also collected data at both district and community levels, using the score card and the theory of change respecvely. The compilaon was done for the local climate change adaptaon indicators suggested by communies and their district leaders in the 5 districts. The report was used to engage government at naonal level and other stakeholders to review relevant indicators per sector for integraon into the PMF,OBT and LGAT . “The TAMD workshop has given me new insights on how to integrate climate change in the planning cycle and the development plan and also the need to have climate change indicators an monitor them in l the acvies in the development plan.” Natural Resources Ocer, Bulambuli District  Step 4; Linking the TAMD Approach to exisng naonal level frameworks in dierent sectors Working with CCD, MWE, ACCRA began the process of lobbying the key leads of government ministries including Ministry of Local Government (MoLG), Naonal Planning Authority (NPA), Oce of the Prime Minister (OPM) and MoFED to ensure that district level adaptaon indicators are included i n the naonal planning, budgeng and monitoring processes. A brieng paper showing the linkages was documented to clarify the importance of this process, and can be accessed here; hp://pubs.iied.org/17287IIED . As a result, ACCRA was invited by the Ministry of Water and Environment to present the TAMD framework, process used and the local climate change adaptaon indicators suggested in the ve districts. The naonal meeng brought together 80 ministry sta drawn from MoFPED, MoLG, MWE, and NPA. Another presentaon was made to the Members of Parliament on the natural resources working group and several meengs followed which recognised that the local indicators generated from the TAMD process are very relevant and should be aligned with the PMF indicators, NDP II indicators in relaon to the OBT and LGAT. Further meengs between CCD, ACCRA and decision makers in key line ministries were also conducted to secure their buy in. Step 5; Coordinaon and Harmonisaon of processes and indicators at naonal level While ACCRA was working on these processes, USAID through their project “Feed the Future (FtF), Enabling environment for agriculture” was also working with Ministry of Finance and Ministry of Local Government to collect indicators for reviewing the OBT, which was also an objecve of the ACCRA TAMD process. ACCRA raised a concern on developing parallel indicators and this prompted Climate Change Department to call a coordinaon meeng with USAID, ACCRA, MoLG and the processes were harmonized and one calendar drawn to nalise the process. ACCRA’s engagement with USAID enriched the process. Indicators collected by ACCRA and USAID FtF project were combined and a local consultant hired by USAID to map the indicators and facilitate the review process. Due to Feed the futures wide coverage, 23 more districts were added to the 5 ACCRA had srcinally targeted. Other partners including FAO and CARE nancially supported some districts to collect indicators and aend the review and validaon workshops. This ensured that there was wider parcipaon in the process. Step 6; Review and Validaon of the naonal level standard climate change indicators Climate Change Department, with support from ACCRA and USAID convened a total of 3 highly parcipatory consultave forums where local governments, ministries, departments and agencies of government veed, reviewed and recommended CC indicators to be integrated in the OBT and the LGAT, aligned per sector. The consultaons ended with a naonal level validaon workshop aended by all Ministries Departments and agencies of Government as well as representaves from 31 Local Governments including chief administrave ocers, natural resources ocers, producon ocers and District planners. Civil society organisaons were also part of the validaon meeng since they also implement with Government. Indicators suggested for the output budgeng tool were composed of two priority output and outcome indicators across all government sectors. For the LGAT the stakeholders adapted climate risk management indicators from the TAMD framework.Selected Examples are given in Table 1. (Details of all sectors can be accessed in the full country report)   ACCRA Brieng Paper November 2015 Examples of indicators for the Output Budgeng Tool Outcome Indicators per SectorOutput Indicators Natural Resources including Water Forest Cover (% Land Area) Number of hectares of forests restored and conserved Percentage of domesc water sources that comply with e standards Number of households with water harvesng facilies Agriculture/Producon Percentage of household income generated from the sale of agricultural produce Number of agricultural income generang enterprises undertaken by households Percentage of households that are food secureNumber of farmers praccing Climate Smart Agriculture (CSA) technologies Meteorological Informaon Percentage of women and men making informed decisions from climate informaonNumber of men and women accessing and ulising weather and climate informaon for planning Examples of indicators for the Local Government assessment tool (minimum performance condions) Evidence of assignment of a Focal Point Person (FPP) in charge of climate changeEvidence that the local government (LG) mainstreamed climate change intervenons in their development plans consistent with NCCPEvidence that the LG annual budgets reect budgetary allocaons for climate change concerns that were raised in the LG development plansEvidence that the LG mentored and sensized sta and other community leaders on climate change adaptaon and migaonEvidence that the LG implemented climate change intervenons idened in the LG development planEvidence that climate change specic issues were idened and analyzed during the capacity building needs assessment and idened gaps addressed in their capacity building plans “Climate Change being a naonal and internaonal concern needs to be accorded its true posion in the naonal assessment tool for Local Governments and in other Government planning, budgeng and reporng frameworks so as to adequately measure the achievements and also address the challenges in an organized manner”. Andrew Musoke, Ministry of Local Government  Lessons learnt  Use of evidence from the boom up:  It is essenal to use informaon from the grass-root level on how climate change is impacng on cizens in order to inform naonal level priories. This gives credibility to the programmes or projects that are proposed, budgeted and rolled out by government through the dierent sectors and local governments.  Parcipatory processes build consensus : to enhance buy- in and ownership of government programmes and project from the grass-root. A good number of actors were involved in this process from 31 local governments, communies, all government sectors, civil society actors and development partners  Building knowledge and skills:  Through TAMD, climate change adaptaon and migaon knowledge was shared from the grass-roots to sectoral and naonal levels. It has also enhanced the capacies of various government Ministries, Departments and Agencies (MDAs) in M&E due to rigorous processes in developing, veng and validang the indicators. This is a very crical in order to get the system connue working even beyond the ACCRA project. The TAMD process is embedded with capacity enhancement for the government and civil society sta to learn how to use the parcipatory tools.  Coordinaon and Harmonizaon: C oordinaon of various actors by the MWE has paid o. Connuous aendance and high turn up throughout the review meengs boosted the eecveness of the process, bringing in more experse and opportunies for partnership.  Climate change indicators visa vis development indicators: The standard naonal CC indicators included some of the NDP II CC indicators and will assist in tracking progress against the NDP II targets, which contribute towards Uganda’s Vision 2040 as well as the Sustainable Development Goal (SDG) targets. The M&E frame work is also seen as an opportunity to strengthen the country readiness to access adaptaon and migaon nancing. Also the tradional government output oriented M&E systems are not eecve in evaluang the outcomes for long term impact yet, adaptaon is long term. That is why most African countries may need to reinforce the current M&E systems with new approaches like the TAMD process to add long term monitoring consideraons.  Working in partnership is very key. The new partnerships of like-minded pares including government naonal sectors, local governments, UN agencies, Internaonal and naonal Nongovernmental Organizaon. Specically the linkage between; ACCRA, IIED, LTS Africa, USAID Feed the Future project, Food and Agriculture Organizaon, Care Internaonal and key government ministries made the process fully parcipatory at a bigger scale with high level of ownership both at local and naonal levels. The shared costs also made it cheaper to implement the process from the community to naonal levels.
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