Peru is highly vulnerable to the effects of climate change intensifying poverty, inequality, and the risk of disasters.
Its impact also jeopardizes food and water security, social and productive infrastructure, the sustainable use of natural resources, and the livelihood of the population, particularly of the most vulnerable social groups. As a result, finding a way forward towards a climate resilient development is a truly pressing matter.
Climate resilient development is a process implementing mitigation and adaptation measures underpinning sustainable development that involves everyone, so that the wellbeing of humankind and of the planet can be achieved together with equity and social and climate justice. This makes climate action and sustainable development interdependent¹. Gaining ground in scientific and political circles, it departs form the notion of development historically characterised by being carbon dependent, climate vulnerable and highly unequal².
Currently, the most pressing debate in the Global South is over the best way to move from official climate commitments to drastically reduce impacts while taking social and economic inequality into account. There is a
special sense of urgency in Peru for food and water security as well as disaster risk reduction (through investment in early warning systems and risk management). The current challenge is for this urgency to translate into interventions that meet the country’s needs in terms of adequate funding and of results that could steer political action.
CLIMATE CHANGE MANAGEMENT IN PERU
In the wake of the commitments undertaken in the UN Framework Convention on Climate Change (UNFCCC) and the ratification of the Paris Agreement, Peru developed a regulatory and institutional framework
for comprehensively managing climate change. This process included both establishing and bolstering key instances for decision making, implementing adaptation and mitigation measures in its Nationally Determined Contribution (NDC) as well as establishing connections between local, regional, and national government and other actors such as civil society, the private sector, international cooperation and indigenous peoples³.
The National Climate Change Goals
The national adaptation goal is to contribute to global efforts by reducing damage, potential alterations and the resulting current and future losses generated by hazards linked to climate change for populations and their livelihoods, watersheds, ecosystems, and land, and on infrastructure and goods and services in the country. At the same time, the aim is to seize opportunities for sustainable development posed by climate change. The national mitigation goal is for net greenhouse gas emissions (GHGs) to remain within 208.8 MTCO2EQ in 2030
In addition, Peru considers that greenhouse gas emissions could peak at 179.0 MTCO2EQ depending on the availability of international funding and favorable conditions.
Source: GOVERNMENT OF PERU 2020.
From a regulatory standpoint, enacting the Climate Change Framework Act (Ley Marco sobre Cambio Climático — LMCC) and its Regulation marked a turning point as they define the specific functions of the three tiers of government while establishing the relationship between state and non-state actors to comprehensively manage climate change. This regulation aims to structure national climate action, considering it to be multisectorial, multi-tier and multi-actor, to include a gender perspective and take an intercultural and intergenerational approach.
According to this legislation, comprehensive climate change management in Peru is based on developing, bolstering, and implementing public policies that enhance climate resilience and adaptation capacities, and reduce greenhouse gas emissions (GHGs). Furthermore, it considers that both the response to the climate challenge in the country and the ambition of its goals must be more just and inclusive.
The processes linked to comprehensive climate change management, such as implementing the LMCC and its regulation and adapting its instruments, have been slow and complex, particularly in terms of social participation,
engagement with sub-national tiers, and establishing sectoral policies able to efficiently interact.
¹SCHIPPER et al. 2022.
²TAYLOR et al. 2023.
³MINAM 2020; GOVERNMENT OF PERU 2023.
⁴GOVERNMENT OF PERU 2023.
If Peru intends to meet the goals set forth in the Paris Agreement, integrating and bolstering all public comprehensive climate change policies and ensuring participation of all national, state and non-state actors is
imperative.
THE ROLE OF CIVIL SOCIETY AND ITS ALLIES IN THE PROMOTION OF CLIMATE RESILIENCE IN PERU
Civil society has played a very important role in building climate resilience in Peru. Over the last few decades, environmental and development NGOs have contributed by advising peasant and indigenous groups in their legal
claims and social vindications and collective action to defend their territories and rights. The inclusion of climate change and its impact in international debates has spotlighted climate resilience as an avenue for tackling the environmental problems already faced by these groups. Pre-existing conflicts and threats have come to the fore, showing the need to ensure participation for women, indigenous peoples, and youth, all generally underrepresented.
National and international civil society organizations have advocated and contributed, from several perspectives and methodological proposals and on different levels to : i) strengthening capacity, local organization and
institutional building; ii) practices to establish resilient local economies; iii) risk management in the context of climate change; iv) food and water security; and v) land and natural resource management, among other
processes contributing to attaining climate resilience.
THE CHALLENGES FOR CLIMATE RESILIENCE IN PERU
There are major challenges for implementing the measures in the NDC. The first relates to institutional bolstering at the different tiers of government, including non-state actors. The second concerns developing the means for implementation and ensuring funding. The third has to do with consolidating comprehensive climate change management and its sustainability. In this context and based on the experience of Alliance2015 members in Peru, the main challenges to climate resilience can be divided into three groups: 1) climate change management; 2) social participation;
and 3) means of implementation.
- Climate Change Management
One of the main challenges in achieving climate resilience is to mainstream climate action. In other words, the search for synergies and coherence between climate and development goals as well as other policies that factor in the social and political context whereby both State and non-State actors implement their actions.
This challenge brings various clashes to the fore: i) the discrepancy between the prioritization of action and obtaining results on international, national and local levels. In other words, on one hand, results in reducing
greenhouse gas emissions and, on the other, results in terms of local development, and ii) materializing national and international policies on a local level. At the higher tiers, prioritization of climate issues is done from a
perspective that may be unsuited to priorities on the ground. That is to say that the top-down processes do not always interact with the bottom-up processes. There are local initiatives that are not scaled up and national
initiatives that don’t adjust locally.
Another challenge in climate change management is local policy advocacy, requiring both institutional and capacity strengthening. Also, a systemic approach must be applied to tackle the processes in a more interconnected way.
For instance, in Peru, the existing institutional fora at a subnational level relate primarily to land, farming, and natural and water resource management. Here, the challenge is to include climate change associated risks, but also bolster new fora for climate change management, such as regional Councils, Committees and Working Groups. This must all come in hand with budget allocations and local capacity building in order for
functions to be performed, particularly when it comes to the participation and advocacy capacity of the most vulnerable social groups, including indigenous peoples, women, and small-scale local producers, among others.
2. Social Participation
Another important challenge is to ensure true, representative and effective participation of all stakeholders, including those who are most affected, with real influence on decision-making⁵. Attention needs to be
paid to asymmetric power relations because the difference between stakeholders’ advocacy capacities ultimately affects the choice of which measures to implement, and therefore what development results are
obtained.⁶ To ensure participation of the most vulnerable groups, broader fora and modes of participation are needed, along with ensuring coordination, convergence and productive dialogue among all of the actors, which will also foster synergies between adaptation, mitigation
and sustainable development.⁷ It is also essential to improve how political advocacy is structured to ensure greater civil society representativeness, inclusivity and impact in decisionmaking fora, for instance the National Commission on Climate Change (CNCC)
⁵SINGH & CHUDASAMA 2021.
⁶Schipper et al. 2022.
⁷Schipper et al. 2022.
Given that climate resilient development involves different
stakeholders who follow a plurality of development
trajectories in differing contexts, the search for equitable
solutions for all requires opening a space to different
actors with different forms of knowledge and world visions
for reaching a compromise and for action.
SCHIPPER et al. 2022
3. Means of Implementation
While the State has indeed defined its climate change goals, the challenge remains to ensure the financial resources and enabling conditions needed to effectively implement adaptation and mitigation measures, and also
to fully implement the LMCC. Meanwhile, it is important to ensure policy coherence and not to invest public funds on measures that run against
climate resilience, for instance through investments that foster deforestation. Likewise, alternative models of production fostering sustainable, and climate resilient local economies must be created. This challenge is even greater in the context of illegal activities, such as informal
gold mining and trafficking in timber, representing a means of subsistence for some local groups. Here, fair trade of products free from deforestation and their traceability, entrepreneurship, sustainable value chains
and other income generators for local groups are all necessary initiatives. They all not only require funding, but also capacity-building and social organization.
Channelling international finance and cooperation
also stands as a challenge because of the need to
more directly reach local organizations and
communities, and to invest in the priorities of their
territory and populations.
Another challenge involves how to manage quality technical and scientific information, produced through reliable methods. In addition, establishing baselines and indicators for monitoring and evaluation is important.
Local knowledge and ancestral wisdom are valuable to design future scenarios and suit intervention to local realities on the ground. This poses the challenge of including them when generating public policy.
A DESIRED FUTURE: WHAT DO WE WANT TO ACHIEVE TO CONTRIBUTE TO CLIMATE RESILIENT DEVELOPMENT IN PERU?
Based on Alliance2015 experience in Peru, the following areas need to be prioritized to attain climate resilient development in the country: 1) Forest protection and management, with the development of local economies
based on forest management that curb deforestation; 2) Sustainable food systems that involve local organizations, embed the right to land and value local knowledge; 3) Water security that ensures access to water for irrigation and human consumption for the entire population, particularly those most vulnerable; and 4) of effective policies and functional fora for
participation enabling comprehensive, multi-tier governance for climate resilient development.
Combat Deforestation
Deforestation in Perú is the main factor behind greenhouse gas emissions, therefore confronting this problem stands as one of the most effective mitigation strategies. According to various national and international
NGOs, the recent amendment to the Forestry Act provides direct incentives to farmers and livestock breeders to deforest on their plots/holdings in order to later be able to declare them as agricultural exclusion areas. At the same time, the protection of forests and biodiversity, through for instance supporting local sustainable economic development initiatives, directly contributes to preserving land rights, lifestyles and the ancestral knowledge of indigenous communities. This in turn fosters attaining the mitigation, adaptation and sustainable development goals.
Combatting deforestation requires not only comprehensive, multi-actor strategies but also the development of sustainable activities compatible with the land and linked to participatory land management where all actors come together to build consensus (forest committees, environmental commissions, etc.).
Deforestation and climate change in Perú
47,9% (100,8 MtCO2eq) of greenhouse gas emissions
stem from land use, change in land use and forestry.
(UTCUTS) (2022). 62,1% of that total amount (62,6 MtCO2eq) comes from converting forest land into crop land. 24,3% (24,5 MtCO2eq) comes from converting forest land into grazing land (2022)
Human induced deforestation in the Peruvian Amazon decreased to 120.00 ha in 2023, 22,25% less than in 2019 73% is attributable to farming and 22% to livestock raising).
In 2023, the surface area of Peru’s Amazon rainforest decreased to 67.520.000 ha (87,25% of the surface area of Peru’s Amazon biome).
Source: MINAM 2022, 2023.
Sustainable food systems
A sustainable food system is one that ensures food security and nutrition for all in such a way that the economic, social and environmental underpinnings providing the same for future generations are secured⁸.
Given the increase in the intensity and frequency of extreme weather events, one of the characteristics of these systems should be resilience, in addition to equity and inclusion.
In Peru, land rights of indigenous peoples and peasant communities in their role as stewards of biodiversity and food producers are closely linked to their right to food. Here, the support of sub-national governments (at times not very sensitive to climate resilient development and land rights demands) becomes easier when the issue to be discussed is related to food systems and the right to nutrition, to environmental health and sustainable
economic activities.
CESVI fosters the sustainable management of communa lands and the valuing of standing forests. It enriches forests in the Palma Realand Boca Pariamanu (Madre de Dios) native communal lands with chestnut tree saplings. Stewarding plants and sustainable land management have generated good results for the chestnut production chain. Technical assistance is also for the purpose of organic and fair-trade certification.
WHH strategically ties the right to land to the local food systems
and climate change. This intervention consists of implanting organic gardens, a method for growing food close to the traditional forms of food production. This makes it more broadly accepted locally, thus increasing sustainability and openness to other activities that foster climate resilience. It also enhances agroforestry systems and animal husbandry techniques for smaller animals.
Water security
Given Peru’s geographical situation, climate change impacts have led to a water crisis that affects both the countryside and the city alike. This may have aggravated already existing social conflicts. Furthermore, productive infrastructure is highly vulnerable to risks associated with climate change. Therefore, in all public investment in water both for irrigation and human consumption it is imperative to include risk management that factors in
storage, equitable allocation, and enhanced resilience of current water systems⁹. Sustainable, equitable management of water resources is also a fundamental element for sustainable food systems and for reducing
poverty. Water security is crucial to ensuring that Peru remains on track towards climate resilient development.
Ayuda en Acción has implemented agricultural water
infrastructure for sowing and harvesting water (in the
Cañete watershed in Lima).
-Sowing and harvesting water consists of gathering
rainwater (sowing) and then recovering it and using it
during droughts (harvesting) by building qochas, or
artificial dikes, as well as infiltration ditches. Sowing and harvesting water improves the ecosystem
because it contributes to recovering bofedales, wetlands,
sources of water and natural pasturelands.
Establishing effective policies and functional opportunities for participation
In order to achieve climate resilient development, comprehensive, multi-tier governance must be instated including three main aspects: i) public policy that takes into account the results obtained by non-state actors,
ancestral knowledge and local priorities; ii) opportunities for participation where all stakeholders contribute to building synergies between climate action and sustainable development; and iii) funding to implement measures contributing to meeting national goals and climate resilient development. Of paramount importance here is for the State to ensure public funding and incentivize cooperation funds.
⁸HLPE 2017.
⁹BANCO MUNDIAL 2023.
It is not only necessary for there to be spaces for participation and for them to be institutionalized, but for this participation to be truly functional, representative, and influential in decision-making and formulating public
policies. Given the significance of civil society and international cooperation in spaces for participation, these stakeholders need to be better organized. They need to have a clearer role and to communicate their
results in a way that enables political advocacy. These results usually reflect the realities in areas where civil society covers the gaps left by the State. This means that clear mechanisms to scale up experiences and results
obtained at local level must be established to contribute to formulating public policy. Thus, information so produced could be used, initiatives replicated, and results incorporated in the national climate change and
sustainable development goals.
The Andes Resilientes al Cambio Climático project,
implemented by the Helvetas consortium- Fundación
Avina, is considered to be second tier because it
collaborates with state actors in institution and capacity
building. The project contributed to establishing the Comisión del
Sector Agrario y de Riego sobre Cambio Climático
(CSARCC – Agrarian and Irrigation Sector Commission
on Climate Change), under the Ministry of Agrarian
Development and Irrigation, national counterpart with the
Ministry for the Environment to the Spanish Ministry of
Development and Social Inclusion’s Social Development
Cooperation fund.
Meanwhile, subnational governments must be bolstered and informed about the importance of processes for climate resilient development. This would enable them to define their needs and priorities in such a way as to better dovetail with the national tier of government. Planning, budgeting and capacity-building for local civil servants must all be a part of this process.
RECOMMENDATIONS
To ensure coherence and achieve synergies between
climate and development goals.
For the Peruvian Government:
- In formulating the new Nationally Determined Contribution, updated, ambitious goals should be included that factor in all spheres of the economy, respond to a policy coherence analysis, and promote
synergies between the positive policies that reduce or eliminate climate impacts on the one hand, and counter or cancel those that run against climate efforts on the other. In 2024 a new cycle began for
formulating Nationally Determined Contributions to be adopted at the beginning of 2025. The Peruvian government should engage in inter-ministerial consultations with a view to performing a comprehensive analysis of all sectoral policies that potentially mitigate climate change and foster resilience, as well as those other policies that jeopardize or curb national climate objectives. This
would give rise to new goals in a process that must be democratic, transparent and open to active, broad participation of civil society and local and indigenous communities that are the most impacted.
- Incentivize policies through tax measures, credits, subsidies and so forth to ensure the scaling up of alternative production models fostering socially and economically sustainable local economies resilient to climate change. A good example of this would be to
prioritize the 2025 National Strategic Development Plan as a road map towards the goals in different sectors, including the environment. Other examples to be incentivized are the promotion of trade in
deforestation-free products, the development of traceability rules, the fostering of sustainable value chains and agroecological production systems, as well as the promotion of renewable forms of energy
adapted to the territory.
- Disincentivize – including by gradually eliminating subsidies for fossil fuels and drive a transition towards the elimination of production activities that generate a negative impact, such as the development
of new mining projects and the building of new fossil fue infrastructure, new gas pipelines or coal, gas or oil-fuelled power plants. Close attention must be paid to prioritizing investments that contribute to turning around the extractive economy and other forms of revenue generation through illegal and harmful activities such as informal gold mining or trafficking in timber. These activities often serve as means of livelihood for the most vulnerable groups.
- In the framework of the energy transition, support research and innovation in new technologies that consume less water and have a lower environmental impact. These proposals also have the potential to draw new green investment.
For the European Union:
- In its partnership with Peru, apply the EU legislation already in force that can contribute to driving a just transition in the country.
- In all investments in critical and strategic raw materials, the new Critical Raw Materials Act must be applied with a view to ensuring that the highest environmental standards are met, as well as respect for labour rights and the rights of local communities and indigenous peoples, with appropriate resource and compensation measures in place.
- The EU should not only deploy its action on a national level, but instead ground its programs on a regional and local level while promoting dialogue between the three tiers of government. Under objective 1.2 of the 2021-2027 Multi-annual Indicative Plan, it must both foster contextualized action locally on the one hand, and scale up good local experiences to the other tier on the other.
- Contribute to combatting deforestation in Peru by promoting circular economy and deforestation-free production chains. Here, the EU must effectively apply its Regulation 2023/1115 and conduct comparative evaluations of the risk of deforestation with a scope beyond national legislation, underpinning its actions on reliable evidence from the
field.
Improve connections between national and local policies
For the Peruvian Government
- Invest in capacity-building programs for civil servants at sub-national tiers of government. As indicated in the Paris Agreement commitments, this investment will have the virtue of systemically incorporating the risks associated with climate change at subnational level, enabling making connections between land management, water management, and farming production management as well as other
policies implemented on a regional and municipal level.
For the European Union:
- Optimize the EUROCLIMA program (the EU´s Globa Gateway Flagship Initiative on climate action in Latin America and the Caribbean) to effectively facilitate coordination between different tiers of government with a view to ensuring convergence of climate and
development policies. This involves identifying gaps, solutions and resources to close these gaps, with particular accent placed on capacity-building. Just as with local institutions, local civil society should be broadly involved in adopting, implementing and
monitoring locally-based programs.
CHALLENGE 2 – SOCIAL PARTICIPATION
For the Peruvian Government:
- Bolster representative, effective and mandatory participation of non-State stakeholders, such as indigenous peoples and civil society, in formulating public policy for climate resilient development.
Specifically, the national Climate Change Commission should be bolstered and enlarged to represent different civil society stakeholders. Furthermore, this Commission’s technical reports
should be made binding upon the High Level Committee on Climate Change and the other competent authorities.
- Prioritize institutional, capacity and organization-building of civil society organizations (CSOs), particularly those comprised of the most
vulnerable groups, such as indigenous peoples, women, and local small-scale producers. If the role of civil society participation in public policy formulation is to be strengthened, then lines of funding for
capacity-building must be fostered and put in place. This funding must be made available from the Peruvian Administration International Cooperation, and partnership with the EU.
- Take advantage of and attach value to best practices and results of CSO programs, projects and interventions, considering them as a contribution to meeting national climate goals. The Peruvian government can count these efforts and results which can also serve as an input to improve national public policy and for pilot projects that could be scaled up to regional or national tiers.
For the European Union:
- Foster transparent and effective participation of civil society organizations in the Global Gateway . Enable a true CSO participation mechanism in the approval process of the next Flagship Initiatives funded by the EU that include climate, energy transition, environmental, forestry and water management goals. This mechanism should include a prior information and consultation process for the most impacted groups in order to ensure that the local
communities’ rights are safeguarded while promoting economic opportunities suited to their lifestyle.
- Bolster the connections between non-State stakeholders and grassroots organizations. As provided for in the 2021-2027 Multi-annual Indicative Programme, the access of these groups to political
decision-making should be improved in order to enhance their advocacy role.
CHALLENGE 3 – MEANS OF IMPLEMENTATION
- Share technology and knowledge in recognition of the validity and importance of indigenous peoples’ own sovereign solutions and practices, based on indigenous and peasant knowledge.
- The EU and its member States must meet their climate commitments as per the Paris Agreement including funding and technology transfer, so that adaptation, mitigation and response to land loss and damage in the various territories can be addressed.
For the European Union:
- Stringent due diligence processes should be put in place and the ownership, participation and leadership of local stakeholders in the Global Gateway– EUROCLIMA investment strategy packages should
be ensured.
- Through its EUROCLIMA+ programme, the EU must continue to support Peru in implementing its NDC, its National Biodiversity Strategy and Action Plans (NBSAPs) to meet its global and ambitious mitigation and adaptation targets as well as those contained in
the Kunming-Montreal Global Biodiversity Framework.
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Authors: Alliance2015 based on a A2015 report by Dr. Jorge Calvimontes
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