Advancing medium and long-term adaptation planning in Madagascar

The Government of Madagascar launched its NAP process in 2012 by consulting key stakeholders in a two-day workshop following COP17. At Madagascar’s request, UNDP and the Global Water Partnership trained key staff in climate information and the monetary costs of adaptation in March 2015. A NAP stocktaking exercise was completed afterwards, and a NAP roadmap was finalised and validated, taking into consideration the LEG Technical Guidelines for the NAP Process. The NAP process was then re-launched and a NAP coordination mechanism was established. Coupled with the country’s history of prioritizing environmental issues, Madagascar is hopeful that the NAP process will be the key to enhancing the country’s ability to achieve its NDC targets. 

The NAP was finalised in 2019 after five inter-regional consultations and with the support of the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ), the Federal Ministry of Economic Cooperation and Development (BMZ) of the Federal Republic of Germany, and the European Union (EU). It focused on three pillars: (i) strengthen the governance and integration of adaptation; (ii) implement a priority sectoral action programme; (iii) Finance climate change adaptation. The NAP was published by UNFCCC in May 2022. 

Madagascar has faced a lack of technical training in ministries and departments responsible for climate change-related work. Despite growing awareness, climate change adaptation is still widely regarded by the population as merely an environmental issue rather than a factor in health and the economy. To address these barriers, the project focused on enhancing the effectiveness of government agencies and integrating climate change adaptation into all facets of national planning and decision-making.

The NAP implementation is addressing concerns outlined in the Stocktaking Report, conducted by UNDP and UNEP under the NAP-Global Support Programme (NAP-GSP). The primary objective is to integrate climate change adaptation considerations into national and local budgeting and planning. Special focus has been directed to addressing weaknesses and threats identified in the Stocktaking Report, such as limited technical skills, a short-term project approach, underfunded agencies, and the lack of coordination between different agencies and donors.

The project focused on agriculture, coastal zone management, human health, and the protection of forests, mangroves, biodiversity, and water resources, aligning with Madagascar’s first NDC (2016). It aimed to highlight that the impacts of climate change adaptation extend beyond the environment. Through assessing the costs and benefits of adaptation methods, the project sought to underscore the economic rationale for climate adaptation interventions, including the costs of inaction. Additionally, by training key personnel and generating private sector interest, the project intended to improve the coordination and competence of key stakeholders involved in Madagascar’s NAP process.

Context

Madagascar, an island country off the East African coast, stands among the most vulnerable African nations to climate change. As of 2022, UNDP's Human Development Report ranks Madagascar at 173 out of 191 countries, reflecting its low human development index marked by poverty, malnutrition, and economic inequality. The national economy is still recovering from the impact of the 2009-2013 political crisis. Moreover, the arid southern region experiences drought and lacks reliable water resources, while challenges such as limited precipitation and contamination from open defecation in the south endanger access to safe drinking water and threaten aquatic ecosystems.

NDCs and NAPs

Madagascar’s vulnerability to climate change requires the integration of adaptation into national and regional decision-making, focusing on agriculture, health, coastal and ecosystem management, and water resources. The Stocktaking Report, a primary source for strategies in Madagascar's NAP process, evaluated the strengths, weaknesses, opportunities, and threats related to adaptation methods. Finalized in 2019, Madagascar's NAP aligns fully with the adaptation component of the country's initial NDC post-Paris Agreement. The NAP's three pillars break down into strategic priorities directly referencing the NDC commitments, particularly addressing programs 3, 5, and 6. The NAP's implementation is a key priority of the NDC, supported by this project.

Madagascar is also engaged in UNDP’s Climate Promise which offers support to over 120 countries in enhancing their NDCs and meeting the challenges of climate change. Madagascar intends to raise the ambition of both its mitigation and adaptation goals in its enhanced NDC, complemented by this NAP project. 

The adaptation component of Madagascar's NDC outlines priority actions to be completed by 2020, such as implementing warning systems for cyclones and floods in coastal regions and creating a National Strategy for Integrated Water Resources Management. Actions spanning from 2020 to 2030 include the development of drought-resilient agricultural practices, strengthening natural protections on erosion-prone coasts, and restoring natural habitats. The NDC's explicit targets reflect Madagascar's commitment to water resources and the coordinated development of strategies by national agencies.

These commitments were echoed in this NAP project: Output 1 directly addressed the NDC's focus on water resource security by evaluating threats to a clean and potable water supply in Madagascar. Outputs 2 and 3 aligned with the NDC's emphasis on the development of national strategies by conducting training programs for government workers, aiming to reduce dependence on international consultants and development partners.

The implementation of Madagascar's NAP is prioritized by the adaptation section of the NDC as the initial phase in developing a coordinated and systematic strategy to address the country's distinct adaptation needs in water resources and bureaucratic organization. The NAP translates the goals outlined in the NDC into specific Outputs and Sub-outcomes and established a set of deliverables for the Government of Madagascar to strive for and utilize as metrics of progress.

Baseline Situation 

Madagascar's NAP, finalized in 2019, has faced challenges in implementation due to limited knowledge of the costs and benefits of adaptation methods for climate resilience. Existing information from risk and vulnerability assessments has proved insufficient to fully integrate climate change adaptation, particularly in understanding the vulnerability of the southern region concerning water security. Government agencies tasked with managing climate change effects have lacked preparedness and have faced budget constraints. The National Climate Change Committee (CNCC), established in 2016, has required increased funds, and all involved government departments have needed enhanced abilities for effective NAP implementation. Strengthening capacities of public institutions, research organizations, CBOs, and NGOs is crucial. Additionally, limited access to funding beyond the Green Climate Fund remains a challenge.

Stakeholder Consultations

The Government of Madagascar is dedicated to maintaining feedback loops between national and international decision-makers on climate change to efficiently achieve the objectives of its NDC. Consultation with key stakeholders has been vital throughout Madagascar's NAP process. After COP17, Madagascar organized a two-day conference involving the Ministry of Environment, Ecology, and Forests (MEEF), the Ministry of Agriculture (MA), the Ministry of Public Health (MSP), the Ministry of Water, Hygiene and Sanitation, the National Committee for Coastal Zone Management (CNGIZC), and the National Environment Office (ONE). Regional conferences engaged local players, particularly in the threatened southern region. National meetings in 2015 expanded stakeholders to include the CNCC, the Ministry of Scientific Research, universities, private sector actors, UNDP, African Development Bank (AfdB), and the European Union (EU) in creating the Stocktaking Report. As the project progressed, stakeholder engagement increased further. 

It remains crucial for these key stakeholders to stay involved and informed about the country's evolving needs. The CNCC, which has been vulnerable and ineffective, must be able to actively participate in the national and international coordination of climate change adaptation methods. Additionally, the increasing need for private sector engagement in Madagascar underscores the importance of accountability and feedback. A consistent flow of constructive communication is essential to attract continued private sector interest.

Key Results and Outputs

The NAP project in Madagascar significantly contributed to the government's climate goals through various initiatives. This includes conducting a Risk and Vulnerability Assessment in the southern part of Madagascar's water sector and evaluating the costs of climate change impacts and adaptation interventions for agriculture, health, coastal and ecosystem management, and water resources. The project presented concept notes for three structuring programs to accelerate the implementation of Madagascar's NAP, focusing on strengthening adaptation in agriculture, enhancing health sector resilience, and protecting coastal infrastructure. The support extended to National Office for Climate Change, Carbon and the Reduction of Emissions due to Deforestation and Forest Degradation (BNCCREDD+), the National Climate Commission (CNCC), and the existing NAP coordinating committee facilitated the NAP process, reaching over 100 stakeholders. A comprehensive capacity-building program, including 11 training modules on economic evaluation, gender, and integrated assessment, was developed and implemented. A Climate Public Expenditure and Institutional Review (CPEIR) assessed opportunities and constraints in integrating climate change concerns into budget processes. The project also produced four tailored information products for the private sector in the South, focusing on improving basic services due to limited purchasing power.