who wears the redd+ pants in papua new guinea? · who wears the redd+ pants in papua new guinea?...
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Who wears the REDD+ pants in Papua New Guinea?
Presented by Andrea Babon (CDU/CIFOR)
An analysis of the actors, institutions and power relations shaping national policies for Reducing Emission from Deforestation and forest Degradation (REDD+) in PNG
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Overview Present preliminary findings from a Policy Network
Analysis (PNA) which maps relationships between stakeholders (actors) in REDD+ policy arena in PNG We find both state and civil society actors are both
influential and central in REDD+ policy networks in PNG. We suggest that PNG’s system of customary land
tenure has enabled a discourse coalition based on landowner rights to (re)emerge and dominate the REDD+ policy arena Whether this coalition can challenge business-as-
usual interests driving deforestation and forest degradation remains to be seen.
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A (brief) history of REDD+ in PNG RED(D)(+) First proposed by Papua New Guinea and Costa Rica
in 2005 at COP 11 in Montreal Office of Climate Change & Carbon Trade established in 2008 to
develop climate change policy and manage carbon trading in PNG
Media reports of ‘carbon cowboys’ conning landowners and engaging in shady deals with government
OCC&CT plagued by scandals - Exec. Dir. sacked; name change to Office of Climate Change & Environmental Sustainability
International Consulting firm, McKinsey & Co. engaged to help develop ‘Climate Compatible Development Strategy’
Widespread criticism of governance arrangements and lack of national ownership of policy process
New governance structure for REDD+ developed in 2010 which creates a new ‘lean & professional’ Office of Climate Change and Development
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Policy Network Analysis (PNA)
• Draws on Social Network Analysis (SNA) theory • focuses on the nature, quality & structure of
relationships among policy actors (Wasserman & Faust 1994)
• Recognises that, while politicians and state actors have final decision making power, policy emerges from a network of inter-dependent actors (c.f. Kenis & Schneider 1991)
• PNA can enhance understanding of policy processes by identifying influential actors and the source of this influence (Fisher 2011)
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Methods • Set boundary of REDD+ policy
arena • Quantitative data collection
through surveys • Network analysis using UCINET
computer software (Borgatti 2002)
• Qualitative data collection through semi-structured interviews, document reviews and personal observation – used to ‘triangulate’ and provide context for quantitative data
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Setting the boundary of the network • Following Laumann & Knoke (1987), policy actors
defined as: “all organizations perceived by others, and that consider themselves, a part of the policy domain and able to influence the agenda setting, formulation and implementation of national REDD+ policies in PNG”
• Identified through qualitative data (context analysis; media analysis) and expert-panel
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REDD+ policy actors in PNG
Actor Group Number of actors
Survey respondent
Survey Response rate %
Interview Participant
Government 12 7 50% 5 University/Research Instit. 8 6 75% 4 Private Sector 12 5 42% 3 National NGO 12 10 83% 7 International NGO 10 9 90% 4 International Organization 2 1 50% 0 Donor 10 7 70% 5
Total 66 45 68% 28
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Survey questions Network type Survey Question Influence Q1. Please indicate those organizations that
stand out as especially influential on domestic REDD+ policies
Communication and Information exchange
Q2. Please indicate those organizations with which you regularly or routinely discuss and exchange information about national REDD+ policy matters
Actor 1 Actor 2 Actor n
Actor 1 - 1 0
Actor 2 1 - 1
Actor n 0 1 -
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Influential actors Three organisations stand out as
particularly influential: • the Office of Climate Change and
Development (OCCD) • the Papua New Guinea Forest
Authority (PNGFA) • The Eco-Forestry Forum (EFF) Other prominent actors include mix
of government, donors, local research institutes, and local and international NGO actors. Domestic organisations generally
more influential than international organisations
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‘Top 20’ most influential actors Rank Organization name Organization type % Survey
respondents nominating
1 Office of Climate Change and Development Government 86% 2 Papua New Guinea Forest Authority Government 80%
Papua New Guinea Eco-Forestry Forum NGO 80% 3 Office of the Minister for Forestry and Climate Change Government 73% 4 Office of Prime Minister Government 70%
UN-REDD Donor 70% 5 National Climate Change Committee Government 59% 6 Papua New Guinea Forest Research Institute Government 55%
National Research Institute Research Institute 55% AusAID Donor 55%
7 McKinsey and Company Private sector 52% 8 Department of Environment and Conservation Government 50%
UPNG Remote Sensing Centre Research Institute 50% 9 University of Papua New Guinea Research Institute 48%
Centre for Environmental Law and Community Rights NGO 48%
10 World Wildlife Fund NGO 45% 11 Office of PNG Sp. Envoy and Embass. For Climate Change Government 43% 12 Forestry Industry Association Papua New Guinea Private sector 41%
Coalition for Rainforest Nations International Organization
41%
JICA Donor 41%
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Information Network
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Information Network
OCCD PNGFA
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Information Network
OCCD PNGFA
EFF
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REDD+ perspectives
General consensus amongst REDD+ policy actors on many issues: • REDD+ is an effective mechanism for reducing
carbon emissions • REDD+ can contribute to other goals such as
improved forest governance • Importance of engaging landowners in decision-
making and implementation, including free prior and informed consent (FPIC)
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Benefit sharing
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Discussion • REDD+ policy arena comprised of actors from a number of
different stakeholder groups • Well-connected policy networks – e.g. information
exchange • State actors are the most influential actors in the REDD+
policy arena given their formal role in national policy processes
• Civil society has also been both influential and central in the REDD+ policy arena - largely through Eco-Forestry Forum as a representative organisation
• Private sector peripheral in many REDD+ policy networks, e.g.. information exchange, even though they are involved in activities leading to deforestation and forest degradation.
• Salience of landowner rights discourse in REDD+ policy arena – ‘ideology of landownership’ in PNG (Filer 2005)
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Limitations Missing data means we do not have complete
information about the networks and can introduce bias if certain actor groups under-represented PNA is a ‘Snapshot in time’ – only includes those
actors involved in REDD+ policy processes at a particular point in time REDD+ policy arena is a ‘sub-set’ of broader
forest policy arena – does not help us understand the power of those actors promoting REDD+ vs. actors with a vested interest in activities driving deforestation and forest degradation Still need qualitative data to help explain and
understand network measures
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Conclusion Suggest that customary landowners ‘wear the REDD+
pants in PNG’ BUT…A bigger question remains:
Is the coalition of actors promoting REDD+ powerful enough to challenge business-as-usual interests driving deforestation and degradation in PNG?
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For further information, please contact me at [email protected] I would also like to acknowledge the contribution of Daniel McIntyre (CIFOR), Gae Gowae (UPNG) and Nalau Bingeding (NRI) to the Policy Network Analysis