Synopsis

在REDD+的设计期间，各方认识到REDD+行动可能是不可持续的，除非他们说明当地人和生态系统的作用。结果，各方定义了七个“保障措施”来指导REDD+的实施，其中包括透明度，参与，保护生物多样性和保护当地人民权利。

Governments in REDD+ countries are tasked with providing information on how these safeguards will be “addressed and respected.” One option is to develop a national system focused on implementing the safeguards and to provide information on how the system functions. The purpose of this report is to support this process by providing a framework for what a robust national system to implement the REDD+ safeguards would include.

执行摘要

背景

Around the world, members of governments, civil society, and the private sector are grappling with how to design and implement initiatives that reduce greenhouse gas emissions by slowing, halting, and reversing forest loss. These efforts have been spurred at least in part by the agreements onlong-term cooperative action (LCA) that Parties to the United Nations Framework Convention on Climate Change (UNFCCC) have made since 2007 in Bali, Cancun, and Durban. In these agreements, Parties stated that reducing emissions from deforestation and forest degradation, conservation and enhancement of forest carbon stocks, and sustainable management of forests in developing countries should be recognized as mitigation actions. Parties also agreed that these actions should be at least partially supported by Annex 1 countries. This series of actions, and the related global mechanism for recognizing and supporting them, comprise the global initiative known as REDD+.

Redd+引起了政府，私营部门和民间社会的极大关注，对增加可用于保护森林生态系统和促进可持续发展的资源的潜力特别感兴趣。

但是，为了为森林的可持续管理做出贡献，需要有效，公平，可持续地实施REDD+行动。在坎昆的2010年联合国联合会大会（COP）中，当事方认识到善治在成功实施REDD+行动方面的重要性。必威官网亚洲体育双方同意了七个联合国REDD+保障措施，其中包括透明度，参与，保护生物多样性和保护当地人民权利。如果正确实施，UNFCCC REDD+保障措施可以帮助确保REDD+不会通过加剧现有的不平等而无意中损害社区和生态系统。

UNFCCC REDD+保障措施提供了广泛的指导原则。现在，由那些设计，资金和实施REDD+计划来确定应如何实践这些原则的人。一种选择是在国家一级建立一个系统。实施UNFCCC REDD+保障措施的国家系统为加强目前管理森林土地的规则和机构带来了机会。但是，这些机会带来了挑战，将需要平衡不同的成本和收益。本报告阐述了一个框架，以帮助Redd+国家开发一个国家系统来实施UNFCCC REDD+保障措施。此处介绍的框架没有提供现成的解决方案，但它确实提供了一个路线图，用于导航在国家系统的设计和实施过程中可能出现的一些选择。该报告还提供了有关巴西，印度尼西亚和墨西哥如何沿这条路发展的例子。

A Framework for Designing a National System

The framework laid out in this report comprises four components: goals, functions, rules, and institutions. Safeguard goals define what the safeguards are meant to achieve. Safeguard functions are the processes by which those goals are achieved. A complete safeguard system supports each goal by:

  • anticipating与民族和/或次级REDD+行动相关的潜在风险和机会，例如REDD+策略，活动和项目；

  • 规划通过解决REDD+行动的设计中的社会和环境考虑，避免伤害并为生态系统和人员带来利益；

  • managingREDD+行动通过实施保障计划和程序，以帮助确保所需的社会和环境目标；

  • 监视REDD+流程和结果，以展示目标实现，进行课程校正并处理意外影响；和

  • 回应与REDD+行动的社会和/或环境影响有关的问题和不满。

保障规则和机构确保将保障措施付诸实践。保护系统的规则通过定义应该或不应该发生的内容来概述系统的参数。除了确保参数以透明和参与的方式设计外，系统的机构还确保了它们得到彻底遵循。

创建国家REDD+保障系统

If a REDD+ country chooses to develop a national system, the UNFCCC REDD+ safeguards provide an initial set of goals for that system. Governments, in collaboration with stakeholders, can add to these goals to meet national needs. They will then need to define how their established goals should be implemented. This task will necessitate defining the rules and institutions responsible for ensuring that all functions of the system are met, including everything from anticipating risks to responding if something needs to be changed.

在制定国家制度的新规则和机构之前，政府应与利益相关者一起评估现有规则和机构已经为REDD+保障系统的目标和职能提供的程度以及（b）评估鉴于当前差距，实现保障目标的风险。在了解现有规则和机构之后，政府和利益相关者可以确定如何最好地填补这些空白。作为任何初步评估的一部分，考虑潜在资助者的保障政策以增强协调和连贯性，也可能是有益的。

Many options are available to fill any gaps identified—in some cases, assessments may show that reforming existing rules, or empowering and strengthening existing institutions, may be the best solution. Alternately, new rules and institutions may need to be developed. Under that scenario, new national laws or policies could be created, new regulations put in place, or new procedures instituted by government agencies. Rules can be specific to REDD+ or apply more broadly. In terms of institutions, new government agencies or new positions within existing agencies could be created, or new responsibilities could be given to nongovernmental or private actors. Responsibility for implementing several of the functions of the safeguard system can be consolidated with one body, or spread out across multiple institutions.

Choices related to rules and institutions come with different sets of costs and benefits. For example, putting in place a new law may provide more long-term stability and greater buy-in from multiple sectors. However, new laws can take time to be approved or require a level of political support in the legislature that does not exist. Consolidating responsibility with one agency can help ensure effectiveness by reducing the need for coordination between agencies, but it may place too heavy a burden on one player and reduce the political buy-in often obtained by having multiple government agencies involved.

正确选择实施UNFCCC REDD+保障措施的规则和机构将取决于一个国家的情况，并且可能会随着时间的流逝而改变。以透明和参与的方式对选项进行战略性评估可以帮助参与者更好地利用资源并计划未来。

Conclusion

实施REDD+保障措施的国家系统可以帮助确保一个国家内的所有REDD+活动都涵盖了足够的保障政策。它可能对独特的民族环境更敏感。它可以帮助各国政府协调REDD+活动及其相关的保障政策。尽管政府和利益相关者将做出许多（有时有时很难）的决定，即如何设计和实施一个在REDD+参与的所有参与者之间建立信任的系统，但进行此类过程的价值将远远超出REDD+。这也许是投入时间和精力来设计国家系统以实施REDD+保障措施的最重要原因。许多政府和利益相关者已经表示意图走这条路，支持他们是本文件的意图，并希望将带来进一步的热情和兴趣探索开发国家系统的选择。