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Draft
Kaliappa Kalirajan
The Australian National University
Kanhaiya Singh
National Council of Applied Economic Research
Shandre Thangavelu
National University of Singapore
Anbumozhi Venkatachalam
Asian Development Bank Institute
Preamble
It is now recognised around the world that climate change will affect about all aspects of lives
on earth. The negative influence of climate change on livelihoods, particularly of the world’s
poorest population is alarming, which would slow down the pace of poverty reduction across
the globe. The United Nations Framework Convention on Climate Change (UNFCCC)
recommends important policy measures to address climate change. Firstly, mitigation
of climate change by reducing greenhouse gas emissions and secondly to increase the
adaptation to the impacts of climate change. Though climate change mitigation measures
are being promoted in many developing countries at different levels, effective mitigation
would be feasible only in the long run as ‘old habits die hard’. This means that climate change
adaptation, which provides benefits in the immediate future, becomes crucial for the
livelihoods of several million people living below the poverty line. The concept of climate
change mitigation is well understood, but climate change adaptation needs elaboration. What
is climate change adaptation? In simple terms, adaptation refers to the willingness and ability
to manage risk and disasters. Parry et al. (2009) argued that due to the underestimation of
current climate targets, policies of adaptation and recovery need urgent attention from
policymakers around the world. Adaptation should be based on sustainable development
principle in which the needs of the present population are met without sacrificing the ability
of future population to meet their needs (Anbumozhi, 2010). The G8 Heiligendamm Summit
2
2007 held in Germany highlighted the need for an effective commitment to strengthen the
adaptive capacity in developing countries through cooperation in achieving sustainable
development. Unfortunately, a country’s adaptive capacity is highly dependent on the
country’s available resources including human capital, efficient functioning of institutions,
and adequate infrastructure (Klein, 2002). Further, successful adaptation to climate change is
likely to be increasingly important towards poverty reduction (Sperling, 2003). Thus, the need
for mainstreaming not only climate change mitigation, but also climate change adaptation into
developmental planning has been argued by several researchers recently (for example see,
Huq et al., 2003; and Agrawala et al., 2005). Mainstreaming is seen as making more
efficient and effective use of financial and human resources in implementing and
managing climate change policy holistically with sustained development than
undertaking piecemeal activities. This involves building mitigation and adaptation
capacity at both micro and macro economic development level.
This implies that climate change mitigation and adaptation need to be tailored and managed
through coordination and cooperation across the three pillars of the economic system -
different levels of governments, private sector, and community. Of these, government and
private sector play crucial roles to climate change mitigation, while community plays a major
role with respect to climate change adaptation, as the impacts are local and contextual.
Though community and local governments assume responsibility, these institutions depend
more on the support of international resources, which are necessary for effective disaster risk
reduction for the most vulnerable population. For example, it is observed that less
developed countries rely more on ODA than private funds to support most of the
climate change activities. During 1998-2000, ODA accounts for nearly 92% of
financial flows to the less developed countries to finance their development activities
(van Aalst, M. and Agrawala; 2005). It was observed that less than 1% of the ODA is
directed to climate change adaptation activities (World Bank, 2006).
Actions) to slow growth in their carbon emissions. LDS and SIDS may undertake actions
voluntarily and on the basis of (international) support”.
“Adaptation to the adverse effects of climate change and the potential impacts of response
measures is a challenge faced by all countries. Enhanced action and international cooperation
on adaptation is urgently required to ensure the implementation of the Convention by
enabling and supporting the implementation of adaptation actions aimed at reducing
vulnerability and building resilience in developing countries, especially in those that are
particularly vulnerable, especially least developed countries, small island developing States
and Africa. We agree that developed countries shall provide adequate, predictable and
sustainable financial resources, technology and capacity-building to support the
implementation of adaptation action in developing countries”.
Given that international development fund accounts for the large international flows
to less developed countries, ODA could play an important role in increasing the
linkage between climate change and sustainable development in less developed
countries. In fact, international agencies could account for the climate change
activities in their funding criteria thereby mainstreaming climate change into ODA
activities. It is expected that private funding for adaptation and mitigation activities
will be limited and only focused on activities that are “bankable”. In developing
countries, the lack of awareness of climate change and lack of resources are the key
reasons for not incorporating climate change activities in the planning and
development strategies of domestic government. In this case, ODA could play an
important role in internalizing the climate change issues in the mainstream activities
of the government.
Analytical Questions
The objective of this study is to answer the following important questions concerning the
relationship between climate change mitigation/adaptation and ODA:
1. Whether ODA can be used successfully towards promoting climate change mitigation
and adaptation?
2. How effective is the poverty reduction-mitigation/adaptation-ODA nexus across
countries?
3. What policy measures can be effective to strengthen the poverty reduction-
mitigation/adaptation-ODA nexus across countries?
The following section presents a brief critical review towards answering the first question of
how much ODA has been directed towards climate change mitigation and adaptation and
whether ODA has been successful. Poverty reduction-mitigation/adaptation-ODA nexus is
analysed in the next section in a simultaneous equation framework involving climate sensitive
sectors, such as water and CO2 emissions, as major variables using cross-country panel data.
Few case studies are presented in the following section to examine the climate change-ODA
nexus a bit more closely. A final section brings out the policy conclusions to make climate
change mitigation/adaptation and ODA nexus effective across nations.
the outcomes from the Kyoto climate change conference of nations is the recommendation of
clean development mechanism (CDM). Though as on July 2010, 2,303 CDM projects had
been registered, countries involved are very few – Brazil, China, India, and Mexico). The
World Bank’s Carbon Fund (CF) is a public-private partnership, which operates within the
CDM. The climate investment funds (CIF) are the initiative of the World Bank group in terms
of two different funds namely clean technology fund (CTF) and strategic climate fund (SCF)
to help developing countries pilot-low emissions and climate-resilient development. These
funds channeled through the African Development Bank, Asian Development Bank,
European Bank for Reconstruction and Development, Inter-American Development Bank,
and the World Bank Group. CIF has helped so far 44 developing countries with pilot
programmes in clean technology, sustainable management of forests, increased energy access
through renewable energy, and climate resilient development. As of 2010, 13 donor countries
pledged about US$10 billion to finance the two CIF with the mandate that the funds will be
distributed as grants, highly concessional loans, and/or risk mitigation instruments. The
European Commission has pledged a total of US$206.9 million between 2010 and 2012 for
climate finance, while Australia has pledged US$582 million for the fiscal year 2010-2011.
Japan’s pledging of US$7.2 billion is for ODA and of US$7.8 is for official collaboration
with private sector for 2010-2012. The U.S. has pledged for US$3 billion for 2010 and 2011
(WRI, 2010). The interesting question in this context is whether these pledges would achieve
the goal of limiting the increasing of global warming to 2 degrees Celsius.
Several studies have attempted to find an answer to the above question. The Pew
Center’s review of most of these analyses finds that “most show the pledges are
inadequate to achieve a 2-degree goal, and instead imply a global emissions pathway
leading to 3 to 3.9 degrees of warming” (Source: http://www.pewclimate.org/copenhagen-
accord accessed on 1 November 2010). One of the implications of such reviews is that both
technical and financial support to developing countries are not sufficient, which initiated
arguments in favour of using ODA to target climate change related issues. An important
question that arises in this context is whether the amount of ODA going into other socio-
economic development related issues under the Millennium Development Goals (MDGs)
would be affected by ODA targeted at climate change issues. In this context, the
announcement of the developed countries in the Copenhagen Accord to provide US$30
million between 2010 and 2012 in addition to the 0.7% of the ODA target towards Climate
finance is worth noting. The EU has agreed to raise ODA levels, which include climate
change finance limited to a specified percentage. Nevertheless, it agreed to increase in
climate change financing that is not concerned with ODA too. Thus, the main concern
6
is that climate change funding from ODA should not come at the cost of funding to
other important MDGs.
The World Bank and United Nations have been developing carbon funds to support
climate change projects. The World Bank has 13 different carbon funds (see Annex
Table I) that serve to fund climate change projects, increase private sector investor
confidence and also act as an important vehicle for capacity building for climate
change. The United Nation’s Adaptation Fund is capitalized by a 2% tax on Clean
Development Mechanism (CDM) projects. The Least Developed Countries Fund
developed by UNFCCCC framework with US$115 million commitment from 14
donor countries focuses on the climate change adaptation needs of World’s poorest
countries. The World Bank initiative of the Forest Carbon Partnership Facility and
Community Development Carbon Fund is to assist less-developing countries in
managing carbon emissions in their domestic economy. The Forest Carbon
Partnership Facility is to provide assistance in reducing emissions from deforestation
and forest degradation; and the Community Development Carbon Fund with a
funding of US$128.6 million is to support poor countries in adapting to climate
change. Although there are several mechanisms for ODA funds for climate change, it
is important to emphasize the importance of enabling conditions for the successful
outcomes of these ODAs in adaptation and mitigation of climate change in developing
countries. The institutional structure such as good governance, supporting policies and
institutions, clear property rights for land tenure, stable macroeconomic environment,
and well-established agricultural and forestry policies are crucial for ODA to achieve
successful outcomes in less-developed countries.
planning and development assistance activities (World Bank, 2000). On the other
hand, in some countries climate change activities receive priority in terms of
development strategy. For example, in Fiji, several donor agencies actively participate
on programmes focused on sea level monitoring and impact assessments. AusAid’s
climate change and sea level rise monitoring programme and the coastal zone
management project by the Environmental Agency of Japan are some key
programmes in Fiji.
Several reports highlight the lack of coordination between the Aid agencies and the
national government in addressing the climate change activities. For example, there is
lack of coordination among the donor agencies in Nepal with respect to the Tsho
Rolpa project, lowering the level of the lake through drainage of the most dangerous
glacial lakes in Nepal. Also, the lack of domestic capacity to response to the needs of
the donor agencies is also cited as the other reason for not accounting for climate
change activities in the government policy strategies (Agrawala, 2006). This raises the
issue of training and capacity building of the human capital in the developing
countries to address climate change activities.
Thus, it is imperative that the ODA component of climate change need to concentrate
on technology transfer and capacity building for mitigation and adaptation. However,
this ODA component should be new funding and not a part of already existing ODA
given to achieve MDGs. As institutional arrangements are important for achieving
mitigation and adaptation goals, it is vital to mainstreaming not only mitigation, but
also adaptation in the national developmental programmes. In order to avoid
overlapping and lack of coordination between donor agencies, ODA component of
climate change funding needs to be individually project-specific, and program-
specific. Further, given the differing size of climate change issues, the funding needs
to be demand driven rather than quota based.
The concern for environmental protection through carbon mitigation has global
developmental costs. Distressed poverty in this study is measured by the headcount
ratio of people surviving on less than 1.25 dollars. The pace of reduction in this head
count requires faster development in terms of GDP growth; and efficient and cost
effective use of energy and natural resources.
We start this analysis with an a priori selection of variables that are most likely to
reduce poverty. Given the objective of this study, we conjecture that CO2 emission,
ODA per capita, poverty ratio in the earlier period, and growth rate to be important
variables in increasing the pace of poverty reduction besides several others discussed
later. All variables are described in Appendix II.
The decisive factors of production in improving the welfare of poor people are not
space, energy and cropland; but they are the improvement in population quality and
advances in knowledge (Schultz, 1981). Thus, low basic education attainment is an
impediment to strengthen the link between growth and poverty reduction because they
constraint the ability of the poor to participate in opportunities generated in
agricultural and industrial production. Therefore, the literacy rate (LIT0108-LIT9300)
defined as the annual change in the percentage of literate population in total
population of a country between 2001-08 and 1993-2000, is another potential variable
to explain variations in poverty reduction across countries through growth. ODA is
expected to influence poverty reduction directly and indirectly through structural
changes of the economy in terms of changes in environmental variables such as CO2
emissions and renewable water resources. ODA in this study is measured as the net
ODA received per capita in current US$. Other structural changes are proxied by
manufacturing growth (MFG) and the share of agriculture in GDP (AGRZ). However,
these variables are used as instrumental variables in the estimation process.
9
CO2 emission is directly related to (1) Energy use per capita and therefore increases
in energy generation which results in well being of people and better living condition
cannot be undermined; and (2) change in available renewable water resource.
However, efficient energy generation and use is a precondition of faster growth. High
energy intensive countries grow slower due to higher input costs. Therefore, supply
and demand side management of energy is equally important. This is more important
with the fact that GDP growth does help in reducing poverty as do other activities that
generate CO2.
Depleting water resources is bigger problem than increasing CO2 emission. Positive
relationship between CO2 emission and depleting renewable water resource means
increasing pressure on agriculture and fresh drinking water. This brings the need of
better water management in forefront of poverty reduction program.
Model 1.
DPVT1D = C(1)+C(11)*PVT1DVIN+C(12)*ODAPC0105+C(13)*GY9305+C(15)*CO2PC9305
GY9305 = C(2)+C(21)*(LIT0108-LIT9300)+C(22)*ENGYPC9305+C(23)*POP15649305
10
+C(24)*GGFCF9305+C(25) *GPOP9305+C(26)*ODAPC9300+C(27)*FDIZ9300
Model 2.
DPVT1D = C(1)+C(11)*PVT1DVIN+C(12)*ODAPC0105+C(13)*GY9305+C(15)*CO2PC9305
GY9305 = C(2)+C(21)*(LIT0108-LIT9300)+C(22)*ENGYPC9305+C(23)*POP15649305
+C(24)*GGFCF9305+C(25) *GPOP9305+C(26)*ODAPC9300+C(27)*FDIZ9300
disturbance terms across equations, which necessitates the application of the three
stage least squares (3SLS) estimation. Also, our objective of examining the channels
through which ODA influences poverty reduction necessitates the use of three stage
least squares estimation in this study. The instrumental variables used for estimating
the above system of equations are given in Table 1 under each equation. These
DPVT1D, which is the per year deviation of poverty head count ratio between 1993
and 2005 for the country concerned; GY9305, which is the annual growth rate
between 1993 and 2005; CO2PC9305, which is the annual CO2 per capita generation
between 1993 and 2005; and DWTRPCO208, which is the per capita availability of
renewable ground fresh water in 2008. Also, none of the instrumental variables is
included in the equation for DPVT1D, which is consistent with econometric theory of
estimation. Model 2 differs from Model 1 in the sense that ODA appears in all
11
reality. For example, annual growth rate between 1993 and 2005 (GY9305) is
expected to be dependent more on ODA between 1993 and 2000 rather than ODA
Table 1 shows the 3SLS estimates of the above system of equations. The R-square of
individual equations are also presented in Table1, which shows reasonable good fits.
The results have several interesting findings with policy implications with respect to
the pace of poverty reduction- climate change mitigation- ODA nexus as discussed
below.
The interesting results from Model 1 and Model 2 that are similar and consistent are:
2. This means that higher the initial level of poverty, higher is the pace of
poverty reduction, which implies the ‘convergence’ hypothesis.
7. The positive association between ODA and per capita availability of ground
fresh water (significant at 18%) indicates that ODA has the potential to
mitigate negative effects of climate change. However, it should be noted that
per capita availability of ground fresh water positively influences CO2
emission (equation 3). Thus, it is difficult to conclude that ODA can be
effectively used for climate change mitigation and further research with larger
data set is necessary.
It is imperative to examine whether ODA has been effective in the context of climate
change adaptation. As it is difficult to identify a proper measure for adaptation, we
have analysed a few case studies that are published.
The project in Ethiopia partially supported by the Climate Change Fund of the Global
Environment Facility aims to develop range of projects that reduce the vulnerability
of farmers to climate shocks. The project aims to support the farmers in (a) assistance
is given to farmers to cope with drought, providing relevant information and early
warning systems for farmers to cope with climate change, drought preparedness and
adopting of best practices to management negative climate shocks.
Source: GEF. 2005. Medium-sized Project Proposal: Coping with Drought and
Climate Change, Washington, DC.
forest. The size and type of a project determine the quantity of emissions reductions.
Projects are independently assessed and verified.
VERs from this project have been sold to a variety of private and public sector
organizations.
Source: UNCCD, 2008
microcredit to cover the upfront cost of biogas plant construction, thereby enabling
the poorest households to access the technology.
Source: UNCCD, 2008
Conclusions
By 2100, the IPCC TAR forecast an increase in global averaged surface temperature
of 1.4-5.8 degrees Celsius over the period of 1990-2100 (Klein et at, 2005). The IPCC
TAR states that it is very likely that nearly all land areas will warm more rapidly than
the global average (Houghton et al., 2001).
The UNFCCC (United Nations Framework Convention on Climate Change) identifies
to key directions to address climate change. Firstly, mitigation of climate change by
reducing greenhouse gas emissions and secondly to increase the adaptation to the
impacts of climate change. Mitigation policy consists of all human activities aimed at
reducing the emissions of greenhouse gases such as carbon dioxide, methane and
nitrous oxide. Adaptation refers to any adjustments that take place in natural or human
systems in response to actual or expected impacts of climate change by moderating
the harm or exploiting the beneficial opportunities.
Increasingly the linkages between climate change and development are recognized as
important component to reduce poverty and improve the living standards of the poor.
There is a strong causality from human-induced greenhouse emissions that are driven
by socio-economic development patterns driven by economic growth, technology
adoption, governance, and population growth. These economic developments in turn
affect the vulnerability of the poor to climate change in terms of the greenhouse
effects and their capacity for mitigation and adaptation, thereby increasing the poverty
of the poor.
In developing countries, the other key challenges that take priority for the immediate
development such as food security, water supply, sanitation, education and health
care. Thus there is an urgent need to mainstream the key challenges of climate change
into the sectoral and development planning and decision making process to create
sustainable long-term development. Mainstreaming is seen as making more efficient
and effective use of financial and human resources in implementing and managing
climate change policy holistically with sustain development than undertaking
piecemeal activities. This involves building mitigation and adaptation capacity at both
micro and macro economic development level.
16
Climate change is a global phenomenon that requires the participation of both public
and private sector. The importance of the private sector participation is given by a) the
magnitude of the investment to manage climate change; and b) market mechanism
seems to more effective in address climate change than public sector. In fact, the
private sector is perceived to adopt least-cost solutions to environmental problems that
are efficient and effective as compared to public sector. Given that there are potential
to generate revenue, there several climate change projects are not considered
“bankable”. In fact, market mechanism is essential part of the Kyoto Protocol that
serves as the basis for carbon trading.
Public sector involvement is equally important such as grants, overseas development
assistance (ODA) and funding from other countries are equally important in
mitigation and adaptation projects. There are several projects that provide strong
social returns but little private returns. Such projects are unlikely to be undertaken by
the private sector but have large social benefits. In such cases, the government, non-
profit organizations and donor agencies are required to lower risk of investment and
provide incentives for private sector investment. Communities do have a role to play
in adaptation, which can be seen from the case studies cited in this paper.
However, empirical results in this study emphasizes that more caution is needed in
directing ODA towards climate change mitigation and adaptation due to the
interlinkages between various macroeconomic variables related to growth, and
poverty reduction. This implies that ODA given to other important causes concerning
MDGs should not be reduced. The results show that energy-efficient transfer of
technology to developing countries should accompany any efforts of directing ODA
towards mitigation. Without that the impact of ODA on mitigation may have adverse
effect on the pace of poverty reduction across developing countries. Thus, the
involvement of private sector becomes crucial for energy-efficient technological
innovation and transfer. In this context, Japan’s approach of providing ODA and
funding for official collaboration with private sector is a good model for other
developed countries to emulate. This necessitates more and more empirical research
within and across countries.
17
System: Model 1.
Estimation Method: Three-Stage Least Squares
*(FOREST9305)+C(43)*WTRPC02+C(44)*YIELD9305
System: Model 2.
Estimation Method: Three-Stage Least Squares
ODAZ9300 C
R-squared 0.698 Mean dependent var -171.919
Adjusted R-squared 0.626 S.D. dependent var 227.534
S.E. of regression 139.114 Sum squared resid 406408.3
00
21
Appendix II
Variable List
LIT9300 Literacy rate, adult total (% of people ages 15 and above)
LIT0108
LIT9308
DPVT1D
References:
Appendix I
Fonds Français pour The FGEF encourages projects that reduce http://www.ffem
l’Environnement the consumption of fossil or organic .fr/jahia/Jahia/sit
Mondial (FFEM) carbon through: e/ffem/lang/en/p
1) Improved energy efficiency. id/3569
2) Renewable energy and substitution by
energy sources producing fewer CO2
emissions.
3) Carbon sequestration in forests and
soils.
Global Environment Less- Climate change adaptation: GEF supports http://www.gefw
Facility (GEF) developed projects that reduce or avoid greenhouse eb.org/interior.as
countries gas emissions in the areas of renewable px?id=232
energy, energy efficiency, and sustainable
transport. Recently, the UNFCCC asked
the GEF to support pilot and
demonstration projects in the field of
adaptation. Under its strategic priority,
Piloting an Operational Approach to
Adaptation, the GEF supports projects that
provide real benefits and may be
integrated into national policies and
sustainable development planning. In
addition, the GEF supports adaptation
activities through the Least Developed
Country Fund and the Special Climate
Change Fund.
Climate change mitigation: GEF supports
interventions that increase resilience to the
adverse impacts of climate change and
vulnerable countries, sectors, and
communities.
Inter-American Developin Adaptation for Climate Change and http://www.iadb.
Development Bank g Disaster Mitigation in the Caribbean: a org/projects/proj
(IADB) countries study to evaluate the possibilities and ect.cfm?
35
New Zealand AID Pacific The Pacific Regional Environment and http://www.nzai
(NZAID) region Vulnerability Program currently allocates d.govt.nz/progr
NZ$6.5 million a year for regional ammes/r-pac-
programs designed to protect and enhance environment.ht
the Pacific region’s natural resource base ml
for sustainable development and poverty
elimination.
40
Nordic Development Honduras In 2004, Honduras and the NDF signed a http://www.port
Fund (NDF) €6 million loan to support Pro-Bosque, a ofentry.com/sit
multiphase sustainable development e/root/resource
program aimed at increasing the economic, s/industrynews
social and environmental benefits /2223.html
generated by the Honduran forestry sector.
Nordic Investment Post 2012 Carbon Credit Fund: see http://www.eib.
Bank (NIB) European Investment Bank org/projects/to
pics/environme
nt/climate-
change/
Norway Ministry of Tanzania Norway granted NOK 500 million to http://www.regj
Foreign Affairs Tanzania over a period of five years, for a eringen.no/en/
(ODIN) partnership agreement to enhance forest dep/smk/Press
and climate efforts. -Center/Press-
releases/2008/
nok-500-
million-to-
forest-and-
climate-
ef.html?
id=508504
Norwegian Agency To contribute to reaching the goals of the http://www.nor
for Development CDM, NORAD has established a support ad.no/default.a
Cooperation mechanism to enable eligible entities to sp?
(NORAD) prepare the necessary documentation for VITEMID=1750
submission of CDM projects to the
Designated National Authority and the
CDM Executive Board. Developing new
CDM methodologies or adapting existing
methodologies can also be supported. The
guidelines for support to CDM project
development give an overview of criteria
for support, eligible costs, and projects,
and describe how to apply for support.
Organization of the Developin The OPEC fund provides public sector www.opecfund.
Petroleum Exporting g financing, private sector financing, grant org
Countries (OPEC) Countries operations, and trade finance operations.
Fund for In 2001, OPEC released a landmark http://www.ope
International environmental report that provides cfund.org/proje
Development international investment agencies and ctsoperations/c
investors with data indicating baseline ommitments20
41
Appendix II
Variable List
LIT9300 Literacy rate, adult total (% of people ages 15 and above)
LIT0108
LIT9308
PVT1DVI
DPVT1D