Climate Change: Policy Support for National Adaptation Plans in Sub-
Saharan Africa
AYODELE M. ADETUYI, ABAYOMI B. DAVID, ADESOLA ADEBOWALE
School of Business & Creative Industries
University of the West of Scotland.
Paisley, Scotland
UNITED KINGDOM
Abstract: - The global climate has experienced tremendous change, notably since the industrial revolution.
Beginning from 1880 all through to 2012, the average global temperature increased by 0.85°C. This subtle
increase primarily from anthropogenic contribution has had devastating effects on crop (grains) yields.
Specifically, between 1981 and 2002, major crops like wheat, and maize, among others, have suffered
substantial yield declines of about forty megatons annually, due to a hotter atmosphere. With the oceans equally
warming faster and snow and ice sheets on a dramatic decrease, global average sea levels climbed by 19 cm
from 1901 to 2010.
While climate change is a global phenomenon with varying degrees of consequential implications for different
world regions, Africa South of the Sahara with a negligible contribution to global warming has seen a few of
the worst impacts of climate change in recent years. Temperatures in Africa have risen by at least 0.5°C in the
last 50 to 100 years. As IPPC 5th Assessment concluded, Africa is particularly vulnerable to climate change
(Lisa 2020). Of about 2.1 billion people in the world that require access to drinking and safe water services that
are well-managed, more than eleven million of this population live in Madagascar (World Health Organisation
(WHO) 2017/Liberty supports WaterAid 2015). However, the precarious state of the global climate calls for
serious and well-coordinated action from state and multilateral actors with the capacity to help the world’s
poorest, specifically in Africa, to either mitigate or develop credible adaptation measures.
This paper, therefore, provides a comprehensive literature review on UNDP Climate Change Adaptation
policies for “Supporting Developing Countries to Advance National Adaptation Plans (NAPs)”, using Sub-
Saharan Africa as a case study. The findings of the review suggest the adoption of an evidence-based
policymaking approach as a way of influencing the adoption of NAPs by developing countries.
Key-words: - Climate, change, NAPs, policy, national, Sub-Saharan, Africa, UNDP
Received: June 23, 2021. Revised: April 28, 2022. Accepted: May 24, 2022. Published: June 15, 2022.
1 Introduction
In this report, the objectives and policy thrust of
UNDP Climate Change Adaptation were reviewed
and the impacts of the National Adaptation Plan
policies on Sub-Sahara African Countries were
studied. Also, issues affecting the region as a result
of the policies and operations of the organizations
were identified, and the organisation’s policies were
subjected to tests in a bid to determine success or
failure. Fundamentally, there is no paucity of
literature on the National Adaptation Plan in Sub-
Saharan Africa. However, it was rather scarce to
find enough literature that review the weaknesses of
UNDP and its departments.
Nevertheless, considerable Policy Analysis and
Practice concepts like multilevel governance and
policy, policy measurement, public value and
evidence-based policymaking; among others came
to the fore while reviewing the literature. This
paper, therefore, aims to offer recommendations for
the onward improvement of the UNDP Climate
Change Adaptation policies. It also reviewed the
involvement of policymakers and actors, institutions
and international actors like UNFCC (United
Nations Framework Convention on Climate
Change), Bureau for Policy and Programme Support
of UNDP and Conference of Parties (COP), among
others. Finally, the article closed with the probable
policy window and research works yet to be done to
salvage Sub-Saharan Africa from imminent climatic
cataclysm.
According to UNDP Climate Change Adaptation
(2021), UNDP assists countries in developing and
implementing integrated climate change plans,
gaining access to climate finance instruments, and
developing and consolidating the policies,
institutions, capacities, knowledge, and
transformative change required to achieve a climate-
resilient, zero-carbon future. Between 2008 and the
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current time, the organization has achieved the
following (some still ongoing):
75 countries supported with their NAPs
processes
More than 820 development plans and
policies created: mainstreaming adaptation
and/or climate risks
In 64 nations more than 200 institutional
mechanisms established
In 32 LDCs 58,653 people trained
Portfolios under implementation (as of October
2020):
$935million from VF
$2.2billion co-financing
108 Projects
There are eight programmes under the
Mainstreaming Adaptation (Thematic Area 1), out
of which Supporting Developing Countries to
Advance National Adaptation Plans (NAPs) was
chosen as the subject focus of this paper. Fig.1
below shows the number of nations per continent
which had benefited from the programme (NAPs):
Fig. 1: Graphical representation of Numbers of
nations (per continent) supported by UNDP Climate
Change Adaptation
Source: UNDP-CCA (2021)
Based on the information provided by UNDP
Climate Change Adaptation (2021), the objectives
and the main areas of work are entrenched in the
following policies of the organisation as detailed
below:
o Assisting countries to put into perspective
key factors necessary in integrating climate
change into planning and financial
estimates, as well as developing a course of
action that outlines resources required and
desired goals.
o Establishing entry points for NAP support
by providing in-country and virtual help for
capability gaps and needs assessments,
along with continuous adaptation plan
activities. UNDP provides training on the
NAPs process, adaptation economics, and
comprehending climate data in the context
of development planning to multi-
stakeholder groups.
o Assisting with sectoral and cross-sectoral
evaluation, assessments, and
implementation of applicable tools and
advice along with recommendations on how
to incorporate sensitive sectors, subnational
approaches, thematic areas, and legal
challenges into adaptation planning, key
forecasting and budgeting for developing
nations.
The attainment of these objectives is shown
in the impact of the support of the
organisation for Sub-Sahara African nations
to facilitate NAPs which are significant and
cannot be over-emphasized as the Impact
would be resounding and globally
significant.
-
2
4
6
8
10
12
14
16
Continents
Numbers of nations
supported
Africa
Antarctica
Asia,
Australia/Oceania
Europe
North America
South America
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2 Impacts of UNDP Support and
Policies-NAP
The impacts of UNDP support (in collaboration
with UN Environment) to provide global assistance
to developing countries in a bid to actualize the
National Adaptation Plan (NAP), speak to insight
and policy of UNDP on public value. As elucidated
by Mark Moore (2019), public value is a concept
that focuses on responsiveness to situations in the
world, which require interest to ameliorate. Such
responsiveness to situations might look at
individuals in the state in which they are living and
concerned about their economic welfare or
concerned about aggregate conditions in the society.
Some of which could be the physical conditions of
the society, including the natural and the man-made
environment. UNDP has demonstrated these public
value concerns as detailed below:
a. Regional Training
An all-encompassing training succession and
workshop was organized in the region(of Sub-
Saharan Africa) through the joint efforts of
UNDP and UN-Environment to foster the NAP-
Global Support Programme (NAP-GSP) and to
enhance capability and capacity building and to
share experiences or exchange knowledge on
NAPs. The training programme cum workshop
(hosted in Abidjan, Cote d'Ivoire, in October
2017) for developing nations in Africa, brought
together thirty-two participants, consisting of
twenty-five government officials from twelve
Sub-Saharan African states, plus delegates of the
NAP-GSP and international actors and
institutions who are partners (e.g. GCF,
UNFCCC, WHO). The essence of the training
programme was to enhance nations' awareness of
the series of actions and steps involved in
developing and implementing National
Adaptation Plans as a way of accelerating
adaption planning and execution, as well as
evaluating how nations are doing with their
National Action Plans. Moreover, the workshop
also gave the county delegates the chance to
share lessons learned and experiences, as well as
recognize areas where the NAP needs more help.
The workshop followed an engaging style, with
brief presentations, panel discussions, and
community activities (NAP-GSP 2017).
b. Supports to African Nations
S/N
Nations
Types of
Supports
Details
1
Burkina
Faso
Offered aid in
Preparation of
the initial NAP
Burkina Faso
received the first
evaluation and
assessment of the
final draft of the
NAP document from
NAP-GSP in May
2015. In September
of that year, Burkina
Faso presented the
NAP paper to the
UNFCCC.
2
Chad
Assisted in
building
capacity for
accessing
climate
funding for the
unveiling of
NAP
Chad's National
Action Plan (NAP)
was launched
towards the end of
2019. The Ministry
of the Environment
and Fisheries of
Chad oversees
implementing the
NAP project, which
was supported by the
Global Environment
Facility (GEF) and
UNDP among
others, to raise the
sum of US$27.9
million.
3
Tanzania
Identification
entry for the
NAP
procedures,
with the help
provided to
generate a
stocktaking
report.
All 185 Tanzanian
local council
environment officers
took part in a
complete inventory
of climate data
gathering,
susceptibilities (of
the environment),
capabilities, and
inadequacies with
gaps at the national
and subnational
stages in the year
2017, through to
2018. Tanzania's
National Adaptation
Plan, National
Climate Change
Strategy, and
Zanzibar Adaptation
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Strategy have all
served as strategic
and critical entry
points for the
government's
National Adoption
Plan. Thanks to the
aid from UNDP!
4
Niger
Climate
Finance and
implementatio
n Partners
The Green Climate
Fund contributed
$2,997,282. The
United Nations
Development
Programme
(UNDP), national
governments, non-
governmental
organisations, and
private sector
partners are among
the primary
implementers.
5
Madagasc
ar
Climate
Finance and
implementatio
n Partners
After years of talks
with governmental,
civil and commercial
sector partners which
began in 2012.
Eventually,
Madagascar
presented the NAP
at the COP25 in
December 2019. The
document will be
used as a reference
for national
adaptation planning
for the next 10 years
by the project's
primary
implementers, who
are United Nations
Development
Programme
(UNDP), partners
from the private
sector, Governments
at the national level,
and non-
governmental
organisations. Also,
provisions were
made by Green
Climate Fund (GCF)
to the tune of
US$1,463,624.38.
6
Kenya
Resource
mobilization
The NAPAg
Programmes’
funding were
incorporated into
investment proposals
for the Green
Climate Fund's
(GCF) NAP
Readiness window,
which authorised a
US$3 million NAP
Readiness project to
be implemented
between 2018 and
2020.
7
Mali
Backing and
assistance for
the National
Adaptation
Strategy to
Climate
Change
The UNDP oversees
the weather station
network, which is
being expanded, and
capacities for
analysing and
utilising
meteorological data
are being created.
UNDP also supports
the climate fund's
operationalization so
that it may be
integrated into Mali's
structures. Also, the
organisation
promotes adaption
strategies in selected
towns in close
collaboration with
the GIZ project
team.
8
Senegal
Resource
mobilization
The project's entire
cost was $9 million,
which was co-
financed as follows:
US$6.5 million from
the Ministry of
Finance and
Planning,
US$200,000 from the
Ministry of the
Environment, and
US$2.3 million from
the UNDP.
9
Gambia
Climate
In Gambia, the large-
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Change project
support and
financing
scale Ecosystem-
based Adaptation
(EbA) project, which
is sponsored by the
Green Climate Fund
(GCF) and
supported by UN
Environment, was
launched in 2018,
pioneering
considerable efforts
at conservation,
sustainable resource
use, and rural
enterprise
development.
Source: UNDP Climate Change Adaptation (2021)
c. Integrating Adaptation into Planning:
With UNDP aid, most Sub-Saharan African
countries have made substantial progress in
integrating adaptation into the planning processes
for national development adaptation. These
progressive strides have already begun in the
landlocked nation of Zimbabwe, the Republic of
Côte d'Ivoire, Kenya (the world's 48th largest
country), the Federal Republic of Nigeria, Gabon
(a country located on the Atlantic coast of central
Africa), Republic of Cameroon, Republic of
Ghana, and the island nation of Seychelles,
among other countries (2017 NAP-GSP).
However, there are still observable gaps. For
instance, in the United Republic of Tanzania, (a
country in East Africa) due to institutional
problems such as power imbalances, financial
constraints, and an established sectoral approach.
Cross-sectoral collaboration is still insufficient
for implementing adaptation solutions (Pardoe et
al 2018). Kalame, Kudejira and Nkem (2011)
also, believe that Burkina Faso lacks the
financial resources to finance and implement its
NAPA priority projects. And generally, in
Africa, significant implementation problems
exist, owing in part to the fact that government
ministries and departments frequently work in
relative isolation from one another, with a lack of
coordination, knowledge sharing, and
collaboration (Abson et al 2012).
3 Challenges of UNDP Climate
Change Adaptation and Support to
Advance NAP
a. African land use planning
Planning for land usage in African nations is
becoming a more important and difficult
problem for development and Climate Change
Adaptation (CCA). Land use planning
programmes in many Sub-Sahara African
countries have largely focused on fostering and
encouraging social and economic growth
(Hazell, Poulton, Wiggins & Dorward, 2010).
These systems have not been instituted to
consider CCA and mitigation or disaster risk
reduction (DRR). Although numerous
governments have passed legislation to guide
sustainable land use, but implementation
remains a difficulty. Frequently, procedures for
enforcing regulations are ineffective (NAP-GSP
2017). This made UNDP adaptation strategic
support and quest to integrate DRR and
adaptation, a daunting task.
b. Integration of CCA
According to the Regional briefing on National
Adaptation Plans of NAP-GSP (2017), the
incorporation of CCA into budgeting as well as
developing fiscal planning, spanning sectors and
scales continues to be a challenge in this area.
Different agencies and departments of
government are still exempt from the
procedures of developing NAP and this is
complicating the process of adaptation and
integration. This situation currently demands
consolidated directives, to make sure that
participation and involvement of national
institutions, sub-national tiers, and key
ministries are achieved as soon as possible.
c. Climate Financing
Some of the Nations in the region are still
grappling with how to mobilize adequate
climate finance, especially at the local level.
This is due in part to a lack of coordinated
evaluations, cross-sector planning, and low
national fiscal allocations which may aid in the
improved management of internal and external
climate finances. Project-based, bilateral and/or
multilateral funding sources have been the
primary drivers of climate finance (NAP-GSP
2017). This is parochial and a constraint to the
organisation’s policy of allocating limited
financial resources.
d. Institutional Capacity Challenges
The dearth of reliable and sufficient data in the
sub-Sahara nations makes it difficult to
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guarantee that weather and environmental facts
and figures are efficiently recorded, stored,
analysed, and exchanged. In the region, there is
a shortage of climate details and IT
infrastructure, together with the ability to
produce reliable climate data (NAP-GSP 2017)
due to a lack of reliable sources of data. These
challenges have made the adoption of NAPs in
Sub-Saharan Africa arduous and herculean.
e. Climate Change National Adaptation Plans
One Global Agenda, Different Levels of
Implementation
Most Sub-Saharan African nations do not only
endeavour to implement NAP policy, and/or
adopt the UNDP Climate Change Adaptation
policy of global climate change adaptation, but
they also make efforts to execute local-level and
sectoral plans, as well as evaluation and/or
assessment mechanisms for the NAPs, which
are crucial to its effective implementation.
Almost all the countries in the region have
local-level plans, and most of the States have
sectoral programmes. This factor poses a lot of
challenges to the actualization of the UNDP
Climate Change Adaptation policy (Alves et al
2020)
Moreover, another major bane, according to
(Alves et al 2020) is the homogeneity of
adaptation plans versus heterogeneity of
contexts and vulnerabilities as it relates to
climate change sectoral programmes.
The above-mentioned challenges are no doubt
responsible or partly to blame for the following
issues that have caught the attention of the
Corporate Management Team (CMT) - (Bureau for
Policy and Programme Support of UNDP), as well
as put them under pressure as a result of stakeholder
demand for accountability and stewardship.
4 Climate Change Adaptation-NAP:
Challenging Issues in Sub-Sahara
Africa
The NAP's goals are to lessen susceptibility to
climate change's effects as well as to incorporate
changes and adaptations at all stages of
development programmes and planning (NAP-GSP
2017). However, there are concerns about the effect
of action as well as the inaction of UNDP climate
variability adaptation on Sub-Saharan nations.
First and foremost, interventions focusing on
institutional capacity building, access to capital,
knowledge creation/management, and awareness-
raising were prioritized by African countries. While
infrastructure, natural endowments, food
production, technology and social security were
rarely given the adequate attention they deserved
(Kumamoto and Mills 2012). This orientation is
risky and may not be beneficial to nations in the
region in the long run.
Unbalanced Interventions: Kumamoto and Mills
2012, analysed in accordance with research carried
out, thus: of the 949 interventions prioritized by
the 20 African countries in the Africa Adaptation
Programme (AAP), 98.1% were classified as soft
interventions whereas 1.9% were classified as hard
interventions. And despite not changing the larger
structure of the AAP programme (without
counterpart support), the UNDP's competitive edge
together with its comparative advantage (e.g.
support for strategy/policy/legal frameworks and
institutional capacity building) is mostly tilted
toward soft intervention (i.e. Changing crop
rotation patterns, offering insurance schemes,
putting in place setback zones, or providing
information and expertise), while, it could rather
have convinced participant nations to consider some
hard interventions as well (i.e. structural
adaptations or modifications such as establishing
irrigation technology and coastal zone safety and
protection).
This implies that the UNDP policy is skewed and
not balanced. There should be a threshold for hard
and soft intervention.
Furthermore, to date, the vast majority of
adaptation research has been done in response to
the mitigation issue. The focus of policymakers'
attention and the requirements of the negotiations
has largely been on mitigation rather than
adaptation. Adaptation as a solution to climate
variability concerns has received relatively little
consideration, and where it has been considered to
some extent, it has been in the form of mitigation
deliberations and questioning. However, one crucial
justification for this is that it is broadly
acknowledged that adaptation will not suffice in the
long run. At some stage, greenhouse gas
concentrations in the atmosphere would have to be
stabilised. (Burton et al 2002). Nevertheless, if this
persists, the phenomenon may probably make the
nations in this region be vulnerable.
Monitoring and Evaluation: Owning to the
complexity and size of NAP projects in Sub-
Saharan Africa, systems, and mechanisms for
reporting, scrutinising, and reviewing, as well as
monitoring of NAPs and adaptation progress, are
inadequate and somewhat ineffective. As posited by
Mutimba et al (2019), the National Adaption Plan
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(NAP) process requires monitoring and evaluation
mechanisms to track adaptation outcomes.
Lastly, according to Regional Briefing on National
Adaptation Plans of NAP-GSP (2017), several
nations have emphasized the vulnerabilities and
limitations of institutional management mechanisms
for adaptation. This is a symptom of a lack of
accountability on the issues linked to climate
variation through sectors and climate finance. This
issue and other concerns enumerated above are of
concern to UNDP Climate Change Adaptation
stakeholders and Sub-Saharan African states.
Policy Measurement and Recommendations
As postulated by McConnell (2010), measuring a
policy’s success or otherwise is a function of
process, programmatic and politics. Therefore, it
can be presumed that the UNDP Climate Change
Adaptation policy of Supporting Developing
Countries to Advance National Adaptation
Plans (NAPs), could be deemed somewhat
successful. Firstly, the policy-making process could
be regarded as valid, comprehensive, and founded
on best practices. Empirically, outcomes and various
reports on NAPs globally, showed that objectives
have been attained, efficiently and effectively.
Likewise, it is also evident that the policies have
gained the support of political actors, governments,
as well as new policy actors (private sectors).
However, there are noticeable policy gaps and
weaknesses in the monitoring and evaluation of
NAPs. This was evident in the conference that
draws attention to numerous key challenges that
nations in Sub-Sahara Africa faced in their
monitoring and evaluation systems, which
comprised a deficiency of management among
climate change actors, the absence of relevant
details and the challenges to set pointers by sector
that are affected by climate change (NAP-GSP
webinar 2020)
The UNDP Climate Change Adaptation policy
efficiency and effectiveness are very crucial for the
region and to salvage our world from of impending
tragedy due to climate change. Thus, the following
advocacy:
a) Inclusive Integration.
The Inclusiveness of all key stakeholders and
involvement of ownership of the NAP is
strategic to adopting climate change integration
as a cross-cutting process. This will increase
mutual understanding and provide coherence
across all sectors and scales. Climate change
strategies have frequently been delegated to a
single sectoral ministry (principally the Ministry
of Environment in most of the nations).
Peradventure the ministry directive is
insufficient to exercise effective control and
authority over other government departments,
agencies and ministries. Obtaining top-level
political backing to boost policy-making
procedures at all stages of government and
decentralised adaptation planning, even though
challenging, cannot be overemphasized for
inclusive integrations (NAP-GSP 2017).
b) UNDP Climate Change Adaptation should set
up governance and coordination mechanisms
for adaptation Monitoring and Evaluation
systems across the levels and nations where
NAP is being implemented.
c) The Integration of Adaptation.
The high-level governmental backing, and
institutional management, coupled with the
successful participation of a broad spectrum of
key parties and interest groups, comprising the
business sector and vulnerable populations,
would all help to integrate adaptation into
development planning in whatever stages and
scales (NAP-GSP 2017).
d) Multilevel Governance.
The UNDP programmes used in supporting
developing nations to progress on NAPs is a
comprehensive multilevel governance and
policy model that seeks to make things work, by
involving all levels of stakeholders. As opined
by Meuleman (2019), the standard requisite and
bold decisions necessary to accomplish the
SDGs can only be implemented if people who
rule feel included and understood by those who
govern.
e) Climate Finance.
According to McCarthy (2021), developing
countries currently need $70 billion per year to
adapt to climate change, with the need rising to
$300 billion by 2030. This places a
responsibility on UNDP Climate Change
Adaptation to consider a wide range of finance
options and policies, as postulated in
the Financing Solutions for SDG 13. For
instance, carbon markets, climate credit
mechanisms, crowdfunding, debt for nature
swaps, disaster risk insurance, environmental
trust funds, green bonds, among others (UNDP
2021).
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5 Conclusion
This synthesis paper expounds partly on the UNDP
Climate Change Adaptation policies. It narrows
down to NAPs as focus subject matter, issues
affecting Sub-Saharan African nations, which
presumptuously raise questions from nations and
stakeholders, and that may negate the purposes of
NAPs, to lessen the vulnerability of the effects of
climate change.
However, NAPs are a formidable policy tool for
countries due to their wide-ranging approach to the
climate change challenges and support to central
climate policies, compared with other sectoral
and/or national isolated instruments.
Simultaneously, NAPs are a powerful analytical tool
that allows for systematic comparison and study of
environmental policies and issues across various
countries and the UNDPs support strategy for this
initiative has also been positive. (Alves et al., 2020)
Nonetheless adopting an evidence-based policy-
making approach will enhance and make UNDP
Climate Change Adaptation and its policies more
effective. This will consequently lead to the
elimination of adaptation challenges such as the
issue of monitoring and evaluation mechanisms and
awareness of climate finance options confronting
most sub-Sahara African countries. Furthermore, the
use of evidence in policymaking has several
advantages which include a strong evidence base,
persuasion and framing, straightforward storytelling,
coalition building, knowing the rules of the game in
a variety of systems, the employment of
complementary influencing methods, and a constant
process of review and monitoring (Mayne et al.,
2018). These advantages can aid the successful
adaptation of NAPs in Sub-Sahara Africa.
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WSEAS TRANSACTIONS on ENVIRONMENT and DEVELOPMENT
DOI: 10.37394/232015.2022.18.69
Ayodele M. Adetuyi, Abayomi B. David,
Adesola Adebowale
E-ISSN: 2224-3496
744
Volume 18, 2022
Tanzania. Climate Policy, 18(7), 2018,
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Contribution of Individual Authors to the
Creation of a Scientific Article (Ghostwriting
Policy)
Ayodele Adetuyi: Introduction, the impact of UNDP
support and Challenges of UNDP climate change.
Abayomi. B. David: Climate change adaption and
abstract.
Adesola Adebowale: Conclusion and proofreading
Sources of Funding for Research Presented in a
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WSEAS TRANSACTIONS on ENVIRONMENT and DEVELOPMENT
DOI: 10.37394/232015.2022.18.69
Ayodele M. Adetuyi, Abayomi B. David,
Adesola Adebowale
E-ISSN: 2224-3496
745
Volume 18, 2022