Briefing
Climate change; Policy and
planning
Keywords:
Climate change adaptation, Paris
Agreement, Least Developed Countries
(LDCs), Monitoring and Evaluation
(M&E)
Issue date
January 2021
Policy Progressing the Global Goal on
pointers Adaptation — key issues
The UNFCCC and The Global Goal on Adaptation (GGA) established under the Paris
Parties must work to
define a clear conceptual Agreement aims to drive collective action on climate adaptation. But to
framework to underpin the effectively measure progress, the international community must address
Global Goal on
Adaptation (GGA), and conceptual, methodological and capacity issues. The framework of the GGA
provide more accessible will strongly influence what type of adaptation action will be prioritised — in
guidance to enable
operationalisation. other words, what will count in the eyes of the international community. There
has been little progress on establishing guidelines for operationalising the
Monitoring, evaluation
and learning systems for GGA, despite the first progress review being due in 2023 as part of the
reporting on the GGA are Global Stocktake. The international community and UNFCCC bodies must
essential, and international
agencies and donors must ensure that the processes designed under the GGA balance robustness with
ensure they are grounded
in national priorities rather supporting the needs and capacities of developing countries, where
than top-down adaptation efforts are most required.
requirements.
Coordination efforts
on the GGA by the
international community The 2015 Paris Agreement (PA) was a definitive already achieved and their future progress on
need to emphasise step towards achieving political parity between adaptation for the GGA.
promoting equitable mitigation and adaptation. The PA establishes a
progress rather than The Adaptation Committee (AC) is the lead
Global Goal on Adaptation (GGA) to provide a
overzealous technical body working on adaptation under the
target for work on adaptation; it aims to enhance
rigour. Convention and is expected to provide
adaptive capacity, strengthen resilience and
significant advice on the GGA and the
reduce vulnerability to climate change. Article
Progress on adaptation stocktake. Despite the ongoing work of the AC
requires that climate 14 of the PA states that the collective progress
(drafting technical papers that review and
finance donors must by individual countries will be assessed through
propose approaches to review the overall
streamline processes and the Global Stocktake. This periodic review will
eligibility to ensure all progress made in achieving the GGA) countries
take place every five years — with information
countries can access have limited information with which to kick-start
gathering starting this year and the stocktake
climate finance. national discussions and preparations for
concluding in 2023.
assessing progress on the GGA.
There are currently processes through which
In fact, there is currently no clear roadmap for
individual countries can plan, communicate and
operationalising the GGA — despite the fact
report their mitigation and adaptation targets,
that the stocktake is starting this year. There
progress and contributions. These include
are ongoing discussions on identifying the
Nationally Determined Contributions, National
concepts for a collective vision for the GGA, on
Adaptation Plans, and Adaptation
methodologies to assess adaptation, and on
Communications.1 However, Parties have yet to
the support needed to deliver on the GGA.
determine how to measure what countries have
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IIED Briefing
There is currently a wide difference in the What does this mean then when we start
levels of preparation for the GGA between thinking about measuring “collective adaptation
countries, potentially undermining and progress” for a “global” goal, as mentioned in
excluding countries with the Paris Agreement? There is currently no
Due to the contextual fewer capacities and
resources from the
clear definition on what must be measured, and
at which scale progress will be assessed — for
and qualitative nature discussions. This
information gap can
example based on national goals or sectoral
plans. The conceptual framework supporting
of adaptation, its drastically limit country and the GGA and its vision must be established
international progress on sooner rather than later to move to the next
progress can hardly be adaptation actions. steps: identifying methodologies.
adequately measured by This briefing aims to provide Focussing on fair processes and systems
an overview of the rather than metrics. The collective
numbers alone conceptual and technical assessment of adaptation progress is
challenges around the intrinsically linked with methodological
current discussions on the GGA. We highlight dilemmas. These include aggregation,
the practical implications of these challenges comparison and collation through metrics and
in the current debate, especially for developing indicators, as well as the inevitable comparison
countries, along with three key considerations with mitigation methods. Due to the contextual
for its operationalisation. and qualitative nature of adaptation, its
progress can hardly be adequately measured
Three key priorities to by numbers alone — and the PA recognises
operationalise the GGA the need for differentiated, mixed approaches
for the GGA.
The GGA must be easily operational for all
signatory countries in the PA, but it should also A relevant framework must not only consist of
be a driver for accelerated adaptation actions. multiple possible indicators, but ones that can
To move forward, three key dimensions must allow for contextualisation while maintaining a
be addressed: suitable level of commonality in the definitions.
Yet with a high level of complexity in
Conceptually defining what ‘collective
operationalising adaptation measurements,
adaptation’ means. Climate adaptation broadly
there are concerns around the level of resources
refers to “the process of adjustment to actual or
and capacities needed to collect so much data.
expected climate and its effects. In human
systems, adaptation seeks to moderate harm or Robust methodological frameworks are difficult
exploit beneficial opportunities. In natural to implement for most developing countries, for
systems, human intervention may facilitate whom resources are limited. This in turn can
adjustment to expected climate and its effects”.2 lead to differences in data quality, and a
This means what is considered as adaptation is negative bias in the data. In other words, it can
wide-ranging, but also highly contextual: its look like developing countries are not
meaning will vary for different people, progressing on adaptation — but the problem
environments and cultures. While mitigation lies in data collection not implementing
efforts can be measured by quantifying appropriate interventions. Frameworks and
greenhouse gas emissions, there is no single — methodologies must not only be flexible,
nor any specific set of — metric or indicator that contextual and comparable, but must also be
can appropriately represent the breadth and just and fair towards different countries’ data
variety of adaptation efforts across the world. production constraints.
This complexity is reflected by the several Strong monitoring, evaluation and learning
frameworks and concepts already used to (MEL) systems are needed to support
define and refer to adaptation, such as adaptation actions, making adaptation
vulnerability, resilience and adaptive capacities. traceable at different scales, including local,
These concepts are intertwined and often used national, regional and transnational.4 But recent
interchangeably, but there is no consensus on a trends in the climate political debate have been
single framework that can universally influenced by academic work focusing on
accommodate all conceptualisations of metrics and indicators as a way to achieve
adaptation. The text of the PA refers to several effective adaptation and measurable progress,
of these concepts but lumping together related both at national and collective scales. This
but different concepts may cloud the next steps unhealthy focus on indicators has
on identifying frameworks and methodologies overshadowed the need to design nationally
to achieve the GGA.3 appropriate systems, in which contextualised
IIED Briefing
indicators can be used to support planning,
actions and reporting with limited bureaucratic Box 1. National and transboundary cases in
burden. 5 The compulsion to adopt massive South America
indicator-based systems is unproductive and
In South America, Uruguay is one of the most advanced developing
should be avoided, in favour of supporting the
countries in its preparation for the GGA and in designing appropriate
needs and capacities of developing countries
adaptation action. Uruguay was the second country to submit an Adaptation
where adaptation efforts are most required.
Communication in its Nationally Determined Contribution (NDC) plan in
Adaptation MEL, action and policies are more 2017. The NDC is the instrument for the implementation of the national
likely to be successful when they are based on climate change goals, including prioritised actions for five years for both
national needs, contexts, social perceptions mitigation and adaptation. On adaptation, it included quantitative goals for
and development policies. Developing each measure, and designed three adaptation plans: agriculture; cities,
adaptation systems that can evolve gradually infrastructures and coasts; energy and health. Uruguay accompanied its
and are iterative will further allow actors to NDC with a domestic monitoring mechanism for each goal, building an
adapt to emerging climate shocks and changes adaptation roadmap to 2025. In addition, the approach integrated
as they occur. adaptation, sustainable development and disaster risk reduction agendas.
In addition, country-based systems will support While reporting on the GGA is an individual exercise, adaptation actions
stronger synergies with national priorities often span transboundary landscapes. This is often challenging due to
under other international frameworks, such as political boundaries but is critical to deliver adaptation at scale. Argentina
the Sendai Framework for Disaster Risk and Uruguay had a long history of conflicts related to the management of
Reduction, and the Sustainable Development the Uruguay River as a common resource, which led them to the
Goals, for more aligned and effective policies. International Court of Justice in 2006. However, currently, both countries
Climate adaptation MEL systems should are developing adaptation actions on the banks of the Uruguay River,
prioritise and complement already existing within the framework of a project funded by the Adaptation Fund, which
systems and data sources rather than includes the development of methodologies to collect, analyse and
designing entirely new ones, to harness current systematise data and information concerning impacts, damages and
MEL efforts and better reflect what countries losses associated with climate change.
have already been doing on adaptation (Box 1).
Fund capacities — instead of creating
Achieving the central promise of the Sustainable
burdens. As well as conceptual and
Development Goals — leaving no one behind
methodological dimensions, effective
— means that for the world to truly work
operationalisation of the GGA will also need to
collectively on the GGA, there is a responsibility
address capacity issues. Current efforts in
to make the necessary funds and allocation
international coordination and negotiations
available. Developing countries need funding
tend to reinforce the trade-offs between local,
and support for elaborating their National
national and international actions and systems,
Adaptation Plans (NAPs) and for developing
rather than promoting collective action and
MEL systems for adaptation — as well as
global solutions to progress adaptation.
funding for adaptation actions. However,
Current discussions on how to best advance
international climate finance has largely fallen
coordination should focus on building
short of targets and pledges.
capacities at scale along the natural
boundaries at which adaptation dynamics play The financial architecture for climate action is
out, building capacities at community, not only falling short of pledges, but to date has
landscape, regional and transboundary levels.6 favoured mitigation policies and interventions.
Current processes for accessing funding are
We need systems and assessment
unnecessarily long and the access criteria
methodologies that are suitable for all national
disadvantage developing countries that do not
capacities and that allocate appropriate
have the human and financial resources to
international support in applying them. Only
navigate complex systems. This means less
this way will the work towards the GGA truly
finance is available for adaptation — and even
engender progress while avoiding new climate
less for developing countries. For example, as of
injustices and inequities in the treatment of
17 November 2020, only 55 developing
information. As Parties work towards defining
countries out of 125 are being supported by the
and assessing progress towards the GGA,
Green Climate Fund in the process of
there is now an opportunity to develop a fairer
formulating their NAPs, while bilateral partners
system. This includes, for example, turning from
and other agencies are supporting others in
an indicator-oriented focus to a needs-oriented
various activities.7 While the GGA is not directly
one and responding to contexts according to
addressing climate finance, progress on
the best available science.
adaptation will require streamlining processes
IIED Briefing
and eligibility for access to climate finance, ensure that cross-sectoral policies and
along with increasing the overall sums available. interventions at all scales include a climate
adaptation perspective, along with mitigation.
Next steps for progressing
adaptation under the GGA While countries will remain the main unit for Knowledge
communicating and reporting on adaptation, Products
After decades of negotiations, the PA has adaptation processes should be driven across
embedded that the world must collectively work multiple scales. Additional mechanisms may be
on adaptation, recognising that each local needed to coordinate adaptation efforts — The International Institute
adaptation action is linked and counts towards although care must be taken for international for Environment and
supporting international efforts. But current processes not to be intrusive or burdensome. Development (IIED)
promotes sustainable
discussions and processes for adaptation do not Parties and the international community must development, linking local
reflect the country-driven approach emphasised avoid inadvertently obstructing progress priorities to global
in the PA, and adaptation effort is not being because of focusing too much on overly challenges. We support
effectively increased. The climate political complex methodological and technical aspects some of the world’s most
debate is now far from the end goal of of the GGA. vulnerable people to
strengthen their voice in
promoting adaptation actions and balancing decision making.
This year marks the start of the first Global
adaptation and mitigation collectively. Creating a
Stocktake process, which includes an
roadmap that focuses on what countries need,
assessment of collective progress on the GGA.
and providing appropriate financing to meet Contact
This is an opportunity to raise awareness of the Emilie Beauchamp
these needs is the only fair and sustainable path
vast and complex nature of adaptation to [email protected]
to a resilient future.
climate change, rather than seeking
Third Floor, 235 High Holborn
To start moving towards global progress on reductionism. The challenge is to broaden London, WC1V 7LE
adaptation, countries — but also other actors perspectives to better progress adaption United Kingdom
including communities, local authorities, and through fair and equitable processes, taking all Tel: +44 (0)20 3463 7399
transboundary regional initiatives — must start different voices into account. www.iied.org
by answering a key question: what does it mean
IIED welcomes feedback
to reduce vulnerability, increase resilience and Emilie Beauchamp, Cecilia da Silva via: @IIED and
strengthen adaptive capacity for your Bernardo and Maria del Pilar Bueno www.facebook.com/theiied
community/country/region? Participatory and
Emilie Beauchamp is a senior researcher in IIED’s Strategy and
iterative adaptation planning exercises can help Learning Group. Cecilia da Silva Bernardo is director for ISBN 978-1-78431-871-0
drive responses that are contextualised, but also cooperation of the Ministry of Culture, Tourism and Environment of
the Republic of Angola, and co-chair of the Adaptation Committee.
reflective of respective circumstances and Maria del Pilar Bueno is a researcher at CONICET (Argentina), This briefing was produced
capacities. Adaptation responses must then be professor at Universidad Nacional de Rosario and a member of the
Adaptation Committee. with the generous support
captured and integrated in existing development of the Swedish International
planning cycles and evaluation systems. This will Development Cooperation
Agency (Sida). However, the
views expressed do not
necessarily represent those
of Sida.
Notes
1
Sharma, A, Schwarte, C, Müller, B, Abeysinghe, AC, Barakat, S (2016) Pocket Guide to the Paris Agreement. ecbi. pubs.iied.org/G04042 /
2
Noble, IR, Huq, S, Anokhin, YA, Carmin, J, Goudou, D, Lansigan, FP, Osman-Elasha, B and Villamizar, A (2014) Adaptation needs and
options. In: Climate Change 2014: Impacts, Adaptation, and Vulnerability. Part A: Global and Sectoral Aspects. Contribution of Working
Group II to the Fifth Assessment Report of the Intergovernmental Panel on Climate Change (Field, CB, Barros, VR, Dokken, DJ, Mach, KJ,
Mastrandrea, MD, Bilir, TE, Chatterjee, M, Ebi, KL, Estrada, YO, Genova, RC, Girma, B, Kissel, ES, Levy, AN, MacCracken, S, Mastrandrea, PR
and White, LL [eds]). Cambridge University Press, Cambridge, United Kingdom and New York, NY, USA. www.ipcc.ch/site/assets/
uploads/2018/02/WGIIAR5-Chap14_FINAL.pdf / 3 Ngwadla, X and El-Bakri, S (2016) The Global Goal for Adaptation under the Paris
Agreement: Putting ideas into action. CDKN, London. https://cdkn.org/wp-content/uploads/2016/11/Global-adaptation-goals-paper.pdf
/ 4 Brooks, N, Anderson, S, Aragon, I, Smith, B, Kajumba, TC, Beauchamp, E, D’Errico, S and Rai, N (2019) Framing and tracking 21st century
climate adaptation. IIED, London. pubs.iied.org/10202IIED / 5 D’Errico, S, Geoghegan, T, Piergallini, I (2020) Evaluation to connect national
priorities with the SDGs. IIED, London. pubs.iied.org/17739IIED / 6 Benzie, M, Adams, KM, Roberts, E, Magnan, AK, Persson, A, Nadin, R,
Klein, RJT, Harris, K, Treyer, S and Kirbyshire, A (2018) Meeting the global challenge of adaptation by addressing transboundary climate risk:
A joint collaboration between SEI, IDDRI, and ODI. Discussion Brief. Stockholm Environment Institute, Stockholm. / 7 FCCC/SBI/2020/
INF.13 — progress in the process to formulate and implement national adaptation plans.
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