1
Neha RaiDecember 2013Neha Rai
December 2013
The case of the Pilot Programme for Climate Resilience (PPCR) in Bangladesh
Neha Rai, 01.12.2013
Political economy of climate resilient development (CRD) planning
2
Neha RaiDecember 2013Content
• Why do we need a political economy assessment (PEA)?
• Conceptual approach and Methodology• Key steps and findings • Emerging lessons
3
Neha RaiDecember 2013
Political Economy Assessment- What and Why Why do we need to understand the political economy • Climate resilient planning is not an apolitical process
(Tanner). Different actors at different scales bring their own ideology to the table.
• A growing trend in climate finance initiatives has led to changes in incentives & governance structures.
• Different actors coalitions encourage or hinder CRD planning processes. Governments need better understanding of political economy to resolve conflicts or harness coalitions to steer processes.
• It is an evolving discourse due to the complexity associated with climate change. Policy makers understanding is also constantly evolving. PEA is a suited to support a learning by doing approach.
What is political economy?
A PEA therefore establishes that policy decisions are “not just a rational choice, but shaped by new ideas, incentives, power plays and actors”
Solutions/
Decisions
Govt. official
s
Community of Experts
People
4
Neha RaiDecember 2013
Purpose-
Internal PEA to assess the political economy dynamics that shape decisions regarding the use of international climate finance at the national level.
Scope: analysis of interactions between
(a) Actors – their role, interests,
(b) their ideologies and knowledge
(c) and the underlying incentives.
WůĂŶŶŝŶŐ >ĞĂƌŶŝŶŐ /ŵƉůĞŵĞŶƚĂƚŝŽŶ
Decision outcomes/Responses to climate
change
Conceptual approach and Scope WŽůŝĐLJƐƉĂĐĞ
5
Neha RaiDecember 2013
Methodology/ Steps
Step 1: Identify issues/ decision points
Step 2: Actor Analysis/Mapping
Step 3: Discourse analysis to understand ideologies and coalitions.
Step 4: Identify underlying incentives
Step 6: Analyse interactions b/w actors, ideologies & incentives that shape decision
Step 7: Inform policy
6
Neha RaiDecember 2013Climate investment funds and PPCR
Climate Investment Funds
CTF SCF
PPCR FIP SREP
PPCR aims to help countries transform onto a climate resilient development path, consistent with national poverty reduction and sustainable development goals.
8
Neha RaiDecember 2013
Key decision points in different stages of PPCR
Planning/ Conceptualisation
Participation issue: Who to involve in decision making?Financing issue: Loan Vs. Grant
Prioritisation/ Selection outcome
Institutionalisation
Role issue: Where should PPCR be hosted? Who should execute it? • MoE, MoEF? MDBs?• Which line ministries? • Role of private sector vs. state ?
Response priorities: What investments to prioritise? • Why prioritise coastal
infrastructure?
9
Neha RaiDecember 2013
Step 2: Stakeholder analysis
• Map key actors by actor categories• Map their roles in different stages of PPCR stages.• Map their interests in different PPCR stages. • Map their influence.
10
Neha RaiDecember 2013
Key actors and their roles ? Directly involved in
PPCR No direct involvement
Policy leaders
Tech Dept.'s
MDBsDev.
partner
Other Multilaterals
CSOsOther Govt
Stage MDBs Technical (LGED, BWDB)
Policy leaders MoF, MoE
Donors Other multilaterals
Other depts.DM, MoA
CSOs
Planning
Role XXX X XXX X X XX
Influence XXX X XXX XX
Interest XXX X XXX X XXX
Priority setting
Role XXX XXX XXX X X X
Influence XXX XXX XXX X X X
Interest XXX XXX XXX XX XXX XXX
Implementation
Role XXX XXX XXX
Influence XXX XXX XXX
Interest XXX XXX XXX
11
Neha RaiDecember 2013
Step 3: Identify Ideologies/core beliefs of actors.
Discourse analysis using Hajerian Discourse Analysis approach. - Identify dominant discourses: Semi structured interviews
to understand key narratives or worldviews around PPCR objectives/ design principles.
- Observe coalitions around discourses.
12
Neha RaiDecember 2013
Dominant Actor Coalition
MDB
Policy leaders
DPs
Transformational change-
Infrastructure narrative
Developmental Benefits-
Economic growth narrative
Loans in Adaptation- Pro loan narrative
Pvt sector in adaptation-
Market liberalist
Tech Dept.'s
Technical View or Infrastructure development view
- There is an actor coalition around infrastructure investments and economic growth pathway to transformational change and development benefits.
- Loans and private sector is perceived to have a key role in delivering these investments and pathways.
13
Neha RaiDecember 2013
Alternative but dispersed viewsSocial development view • Actor coalition around social development and community
based response pathway towards transformational change and development effectiveness.
• Loans are perceived as unjust financing modalities and private sector is considered less mature in a dominant ‘development state’.
Transformational change- Social
welfare narrative
Developmental Benefits-
Social welfare
Loans in Adaptation- Neutral or Against
loans
Pvt sector in adaptation-
Developmental state or sceptics.
Unengaged Gov. dept.
Civil society
Other Multi
laterals
15
Neha RaiDecember 2013
What incentivises actors to prioritise infrastructure pathways
Knowledge• Shared knowledge or evidence of vulnerability and needs based
on scientific studies. • Shared evidence of urgency- Rising sea level, loss and damage.
Based on climate modelling information, L&D assessments. • Shared expertise of actors: Engineering, technical M&E.• Comparative advantage of the institutions working in coastal
infrastructure. • Need to show results.
Resource interdependencies• Opportunity to top up existing pipeline projects of MDBs. • Resource interdependencies and alliances. History of existing
partnerships between MDBs and Tech departments.• Resource needs. Enormous need for finance to investments in
coastal areas.
16
Neha RaiDecember 2013
Step 5: Analyse interactions b/w actors, ideologies & incentives that shape decision
17
Neha RaiDecember 2013
Dominant coalitions with shared ideologies and incentives shape decisions
• Shape discourse
• Compete
Actors
• Advocate• Impose
Ideologies • Shared knowledge• Resource
interdependencies. • Institutional
expertise/traditions
Incentives
Decisions
• Institutional traditions/expertise, resource interdependencies and shared ideas and knowledge base of actors has shaped the prioritisation of business as usual infrastructure development.
• Resource needs and evidence of urgency drive financing modalities that emphasise use of loans in adaptation.
• Institutional traditions and international drivers drive a strong vision to engage private sector in adaptation-(often by delineating some government actors- e.g. MoA).
18
Neha RaiDecember 2013
Ideological coalitions with dispersed resources knowledge and incentives are less able to influence decisions.
…….However, actors that oppose dominant actions are in a position to deter ongoing actions or complement actions depending on their buy in and available incentives.
20
Neha RaiDecember 2013
Policy suggestions
Learn to use the political economy in different contexts: Each CRD planning decision will have proponents and dissenters depending on ideologies, incentives and resources. In order to achieve timely outcomes, governments and development partners will need to be bold and find context specific pathways towards climate resilience development that work around the political economy at hand, often by reshaping incentives.
Be purposeful in policy and process: More attention is needed to the sequencing of decisions and representation of actors in the policy process. Ensuring that line ministries, such as the Ministry of Agriculture, are engaged in CRD decisions that directly effect them will increase the likelihood of ownerships and alignment during implementation
Tie incentives to context by acknowledging diverse actors/incentives: Consensus often masks the difference that will shape policy implementation. Bangladesh’s experience highlights that a large diversity of viewpoints and incentives shape CRD decisions. Governments and development partners can improve the effectiveness of policies by acknowledging the political economy for CRD and planning to work with diverse actor coalitions to achieve desired policy outcomes that are transformational.
21
Neha RaiDecember 2013
Broad lessons from PEA- Ladder of consensus
Harness dominant coalitions(Actors with shared ideas,
resources, knowledge)
PEA allows decision makers to understand what resources and incentives are needed to strengthen coalitions promoting CRD.
Use an extended participation approach.
Create avenues to develop knowledge and bridge science with indigenous knowledge.
Identifying roles and tying incentives
Integrate alternative coalitions• shared ideas, influence• but dispersed resources
or knowledge
PEA can be used to generate a process to negotiate between competing discourses.
Understand actor influence in diff stages to steer involvement.
Arrive at a holistic discourse. Grievance management
Address contested relations• Diverging views• Resourceful,
influential.
22
Neha RaiDecember 2013
Thank YouNeha Rai
International institute of environment and development (IIED), UK
Top Related