Analysis!of!Rainforest!Alliance!Report!on!the!Verification!of!Progress!Related!to!Enabling!Activities! for!the!guyana"norway!redd+!agreement!!!

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1 April14,2011 HansBrattskar Director NorwegianInternationalClimateandForestInitiative(NICFI) TensieWhelan ExecutiveDirector RainforestAlliance AnalysisofRainforestAllianceReportontheVerificationofProgressRelatedtoEnablingActivities fortheguyana"norwayredd+agreement DearAmbassadorBrattskarandMs.Whelan: TheaboveorganizationshaveworkedinGuyanaandhavefolloweddevelopmentstherecloselyfor thepastdecade,andinsomeinstancesevenlonger.beingfamiliarwiththesituationinguyanaand withthenorway"guyanamemorandumofunderstanding(mou),wewouldliketoshareour analysisandconcernswiththerainforestalliance srecentreportontheverificationofprogresson EnablingActivitiesundertheREDD+Agreement.Theobjectiveofthebriefanalysisattachedtothis letteristosupportthestrengtheningofthemouanditsimplementation. Ourover"ridingconcernisthattheRainforestAlliancereportdoesnotprovideanaccuratepictureof progressontheground.itreliesheavilyonstatementsmadebygovernmentofficialsandon governmentdocuments,ratherthanonindependentverificationofthosestatements,oronthe progressoftheenablingactivities.thisisinpartduetothelimitationsofthefieldworkconducted, astheteamspentonlyonedayoutsideofgeorgetownandthereforehadextremelylimited exposuretoinputfromactorsintheinteriorofthecountry.yetthisiswheretheinitiativescurrently beingconsideredbytheguyanaredd+investmentfund(grif)willhavemostimpact.otherkey concernsinclude: Thereportconcludeswithrespecttosomeindicatorsthatframeworksareinplaceandbeing implemented,whilstsimultaneouslyacknowledgingalackofinformationonwhichtobasean assessment. Itpresentsasuperficialassessmentoffundamentalproblemsrelatingtoindigenouspeoples rightsandtenure. Page1of7

2 Itfailstoaccuratelydiagnoseproblemsregardingpublicavailabilityofinformationand incorrectlyequates outreach with consultation. Itunderminesthenotionofindependence,bydecliningtoeitherreviewimportantindependent literature,orraiseconcernsregardingself"censorshipandanonymityofpersonsinterviewed. OuranalysisdoesnotreflectanexhaustiveanalysisoftheRainforestAllianceReport,butaddresses someofourmainconcerns.therainforestallianceconsiderstheframeworkforitsreport,issued March10,2011,asaworkingdraft,andrequestsinputtoimproveit i.weprovideouranalysisasa contributiontoastrengthenedverificationprocessandfuturereporting. Wewouldbehappytodiscussanypointwithyouinmoredetail,andlookforwardtoyourresponse. Sincerely, GlobalWitness ForestManagementTrust ForestPeoplesProgramme RainforestFoundationNorway RainforestFoundationUK RainforestFoundationUS Page2of7

3 AnalysisofRainforestAllianceReportontheVerificationofProgressRelated toenablingactivitiesfortheguyana"norwayredd+agreement WewelcomesomeimportantpointstheReportmakes: ItrightlyverifiesthatrobustsafeguardsarelackinginboththeREDD+process(underthe WorldBank"coordinatedForestCarbonPartnershipFacility(FCPF)andinthePresident slow CarbonDevelopmentStrategy(LCDS)process ii,andrecommendsaddressingtheissuein futureprogressreports. Itrecognizesthat thereducedlevelofconsultationin2010hasalsocreateduncertaintyas tothestateofredd+activitiesoverall iii (thoughasdescribedbelow,itdoesnotaddress seriousflawsintheconsultationprocessitself). ItcallsontheGovernmentofGuyana(GOG)toprovideclearerinformationtothepublic,an issueweandmanyothershavebroughtupseveraltimesincludingthenear"absenceof responsefromthepresident sofficeofclimatechange(occ)toquestionsraisedduringthe initialconsultationsandquestionsandcommentsraisedinthepressontheocc sprogress reports; iv thereportfurtherreferencesthelackofprovisionofinformationonthe constraints,limitations,challenges v relatedtoredd+investments andhowthelackof informationleadstouncertainty. vi ItcorrectlyidentifiestheseriousdisconnectbetweentheGuyanaForestryCommission(GFC) REDD+planningandtheOCCLCDSinitiative. vii However,wearedeeplyconcernedaboutanumberoffundamentalissuesrelatedtotheReport: Itbasesverificationofcompliancewithenablingconditionslargelyonviewsandreportsof governmentrepresentatives,consultantsandmembersofthemulti"stakeholdersteering CommitteeoftheLCDS.Thelistofpersonsinterviewedshowsalargeproportionof governmentofficials viii,whilealmosthalfofallmeetingsduringtheverificationmissionwere alsowithgovernment(11outof23meetings). ix Withoutgoingthroughaconcertedeffortto reachstakeholderswhomaybeintimidatedtocomeforward,thisisinsufficienttoreflectin abalancedwaytheviewsofallstakeholders.ingeneral,thereportseemstosimplytickoff whethersomethingisreportedintheoccprogressreports,withoutevaluatingiftheentry isameaningfulactivitywithrespecttothe enabler.inseveralcases,government documentsarecitedasverificationofactivitiesundertaken,withinsufficientdouble" checkingastowhethertheactivitiesindeedtookplace,orachievedthedesiredresults x.for example,theformationofcommittees,suchasfortheredd"plusgovernancedevelopment Plan,isclaimedasprogressbytheGOG,andRainforestAllianceverifiestheGOGassurance, buttherearenopublicminutestoconfirmthatthesecommitteeshavebeenactive.a methodologybasedonobtaining,cross"checkingandverifyinginformationfrommultiple sourcesshouldhavebeenutilizedandrigorouslyapplied xi. Page3of7

4 Therewasinsufficienttimeinthefield:theRainforestAllianceverificationprocesswas limitedduetotimeandfundingconstraints.thispreventedtheteamfromspendingtimein theinteriorand constrainedfieldworkintheinteriorofguyananecessaryformore definitivereviewofperformancerelatedtoenablingindicators xii.theteamspentoneday visitingtheamerindiancommunityofsaintcuthbertandtheregion10forestproducer s Association,bothrelativelynearGeorgetown.Thelackoftimeintheinteriortherefore underminesthevalidityofthereport,andcontributedtothelackofstakeholdervoicesinit. Itrecognizesalackofcrucialinformationonsomeindicators,yetstilldrawsconclusions: therainforestalliancepointsoutinseveralplacesthatthereisessentiallynoinformationon whichtomeasureprogressontheindicators.thisisparticularlytrueinthecaseofenabling Indicator#1(StrategicFramework),wherenoneoftheindicatorsonfinancialplanningor reportingwereinplace xiii,andinenablingindicator#4(financialmechanism)asfundshad notbeendisbursedthroughthegrifprocessatthetimefieldworkwasconducted.these accuratestatementsshouldnot,however,leadtothereport sconclusionregardingenabling Indicator#1that Astrategicframeworkisinplaceandbeingimplemented. xiv Indeed,the factthatprogressonsomeoftheenablingindicatorscouldnotbeverifiedduetotimingor delaysinfundingmeanstheyshouldnotbeinthescopeoftherainforestalliance verificationreport,butthattheymustberigorouslyaddressedinthenextroundof verification.similarconcernsaretrueforthe Opt"in mechanism;adraftdocumentwas preparedbytheoccinmarch2010,thoughmostpeoplehaveneverseenit,asithasnot beeninthepublicdomain. xv TheverificationofEnablingIndicator#6ontherightsofindigenouspeoplesandlocal forestcommunitiesisdeficient:thesummaryanalysisandassessmentofthisindicatordo notverifywhetherornotrightsarebeingrespectedinreddandlcdsprocessesaslaidout inthemou.theverificationteamwasexpectedtouse writtenrecords toassess attainmentofthisindicator,butdoesnotappeartohaveexaminedindependentreports thatpinpointthefailureofcurrentredd+orlcdsplanstoupholdfundamentalrights(e.g. indigenouspeoples righttofreepriorinformedconsent(fpic)islargelyconfinedtotitled lands,contrarytotheinternationalobligationsofguyanathatitmustalsorespectthisright inrelationtountitledcustomarylands).problemswithrightsframeworksinguyanaare describedinnumerousdocumentsinthepublicdomain xvi,includingonthewebsiteof ForestPeoplesProgramme,andhavebeencommunicatedtotheWorldBank,UNDPand Inter"AmericanDevelopmentBank,includingcommentsontheincompatibilityofnational legislationwithboththenationalconstitutionandinternationalstandards.whilethe RainforestAlliancereportnotesthat...Guyana spolicyonlandrightshasbeencriticizedby theunitednations xvii therootofthismatterandguyana sfailuretoadequatelysafeguard indigenouspeoples landandterritorialrightsarenotspelledoutbytheverificationteam. Thereportappearstosuggestincorrectlythatrightsarebeingaddressedadequately,but thatgogissimplynotcommunicatingthispointeffectively. xviii Independentevidence showstheproblemsaremorefundamentalinnature,andrequireanintegratedapproach includinglegislativereformandtheimplementationofthelong"stallednationalpolicyon integratedlanduseplanning. Page4of7

5 Itfailstoaccuratelydiagnoseproblemsregardingpublicavailabilityofinformation: Althoughinsomeinstancesthereportexpressesconcernaboutthelackofpubliclyavailable information(seeabove),it verifies thatkeydocumentslinkedtothelcdsandguyana" NorwayMoUare publiclyavailable,wheninpracticetheyarenotreadilyavailableinthe publicdomaininguyana xix.assertionsbygovernmentofficialsthatdocumentsare public couldbecross"checkedinastraightforwardwaybytalkingtopeopleatthevillageleveland alsowithorganizationsoutsidethemulti"stakeholdersteeringcommittee(e.g.regarding theseptember2010draftredd+governancedevelopmentplan):auditorsappearnotto havecarriedoutbasictriangulationtocross"checkthevalidityofinformationgathered.as thereportrightlypointsout,thegogreliesoverlyontheuseofwebsitesformaking informationavailable xx butthesesitesgivealmostnoinformationaboutworkinprogress.in addition,reportsandotherdocumentsonthelcdsandgfcwebsitesoftenseemtobe delayed,removed,unavailable,orinaccessible.thelackoftimeintheinteriorisespecially relevanthere,asinformationthatispubliclyavailableontheinternetisnotactuallypublicly availabletocommunitiesintheinteriorwhohavenoaccesstointernet,butwhostandtobe affectedbytheplans,regardlessofwhetherthey opt"in ornot.thisisafundamental shortcomingintheverificationprocess.inthemostrecentminutes(for26january2011)of themulti"stakeholdersteeringcommittee,theoccacknowledgesthatevensomemembers ofthecommitteedonotunderstandsomeoftheissues,despitehavingattended37 meetings. Itincorrectlyequates outreach with consultation :Thereportinseveralplacesseemsto treat outreach (informationsharing)with consultation (i.e.askingpeopleandgroupsfor theirviews,iftheyhavequestionsandansweringthoseandaddressingconcerns). Verificationhasfundamentallyfailedtoassesstowhatextentmeaningfulpublicmulti" stakeholderconsultationhastakenplace,ifany.thereportalsoreliesheavilyonthe previousreportbytheinternationalinstituteofenvironmentanddevelopment(iied),which itselfcameunderpublicscrutiny xxi.theiiedreportconcludedthatthe2009consultations were preliminary only.inannex1totheiiedreport, Opinionontheparticipationof IndigenousPeoplesinLCDSProcess,Multi"StakeholderSteeringCommitteememberDavid Jamesstatedthatthe2009consultations couldbedescribedaspartofthefirststageofthe FPICprocesswhichwasprimarilytoshareinformationwiththecommunitiesandalsoto receiveinitialfeedback.whiletherainforestalliancereportassertsthatintense stakeholderinteraction tookplacein2009,thereismuchevidence xxii toshowthat effectiveconsultationhasnottakenplacesofaroneitherredd+orthelcds.thejobofthe auditoristoassesswhetheranactivityhasoccurredornotandifithas,todeterminethe qualityandeffectivenessoftheaction.again,thisiswherethelackoftimespentinthe interiorofguyanaisafundamentalflawinthereport.fromourexperience,mostlocal peoplehavelittleornounderstandingofthesepoliciesandhavenotbeenconsulted. Finally,theAuditorsseemtomistaketheMulti"StakeholderSteeringCommitteewith multi" stakeholderconsultation,whenthisbodyisjustonemechanismforpublicengagement, whichisinanyeventlimitedinitsabilitytoraisecriticisms(minutesofthemulti"stakeholder SteeringCommitteecanverifythis xxiii ).Thereportdoesnotreviewtheextenttowhichinput fromstakeholdershasbeenaddressedorincorporated forexample,thelackofpublic responsefromtheocctohundredsofstakeholderquestions. Page5of7

6 Itfailstoreviewimportantindependentliteratureandcivilsocietydocuments:Thereport doesnotcitenorlistanypresscoverage,independentngoreportsnorreferenceany statementsbyforestuserssuchasminersorloggers,theamerindianpeoplesassociationor communityleaders xxiv Itdoesnotraiseconcernsregardinganonymityofpersonsinterviewed:requestsfor anonymityaremostlikelyduetothelackofopennesstocriticalquestioninginguyana, wherethosewhodoraisecritiquesarequiteoftenlabeledasanti"government,anti" development,andunpatriotic xxv.thisobviouslyhasachillingeffect,anditisworthnoting thathalfofthosewhorequestedanonymitywereindigenous xxvi. ii RainforestAlliance(2011)VerificationofprogressrelatedtoenablingactivitiesfortheGuyana"Norway REDD+agreement,March10,2011atoverallconclusions,page4 ii Ibid,Indicator#1,page4. iii Ibid.Atoverallconclusions,Indicator#2,page4. iv Ibid,atOtherSummaryObservations,page5. v Ibid,seeSpecificObservation12"2010,page38,forexample. vi Ibid,seeIndicator1.2,pages vii Ibid.atIndicator1.6,page20inVerificationofEnablingIndicators.Indeed,acontinuedsourceofconfusion, notonlyinguyana,isthereferencetoredd+indifferentcontexts.theguyanaforestrycommission(gfc) hasbeeninvolvedintheworldbank"coordinatedforestcarbonpartnershipfacility.inthemay2010version ofthepresident slowcarbondevelopmentstrategy(lcds),thepresident sofficeofclimatechange(occ) listsgfcactivitiesasintegraltothelcds,althoughthelcdsisnowbeingportrayedasrelatedtoavoided deforestation.however,neitherthegfcnortheocchavemadeanyexplicitcommitmenttostabilizeor reduceemissionsofforestcarbon. viii Ibid.atsection3.5,pages14"15 ix Ibid.atsection3.4,pages13"14 x Ibid"seeverificationofEnablingIndicators1.4,1.7,2.3,andtheconclusionsofIndicator2. xi AsimilarmethodologywasrecentlyusedbytheEfecamissionforUSAIDontimberlegalityverification, whichmayproveusefulinfutureverificationreports. xii Ibid,atOtherSummaryObservationsOBS6/10,page6. xiii Ibid,Indicator1,pages xiv Ibid,page23. xv SeeIndicator2.2,page26,andIndicator6.2,page38. xvi Seeforexample:APAlettertoNORAD,March10,2010;CERDrecommendationsontheAmerindianAct, March21,2006. xvii Ibid.atIndicator2.2,page25 xviii Ibid.atIndicator6.1,pages37"38 xix ExamplesincludethefirsttwoversionsoftheLCDS,foursetsofMSSCminutesfrom2010,theFCPFR"PIN andr"planandfirstversionofther"pp,thetrevin/nasi(cifor)andcedergren(fao)consultancyreports from2009,theoriginalmckinsey&companyreportfrom2008,theemptyresponsespageonthelcds website. xx Ibid,seeIndicator6.1,page38. xxi StabroekNews,May4,2010.Membersoftheevaluationteamservedongovernmentdelegationsto FCPF/PC4andCOP"16,andwereseenasmembersofthegovernmentteamsduringconsultationsinthe interior. xxii Forexample:MSSCminutes,letterstothepress,questionstothePresidentviaGlobalWitnessanddirectly inthepress. Page6of7

7 xxiii SeeforexampletheMSSCminutesfrom16Marchand13April2010,whichreferexplicitlytotheneedfor themssctopresentaunifiedfrontincondemningthecriticismraisedinanapaworkshopstatementfrom March2010,aswellastheAPAasawhole.However,thelinksontheLCDSwebsitenolongerwork,further underliningtheproblemsaddressedhere. xxiv e.g.apastatementsmadeinmarch2010inaworkshoponlcdsanddevelopmentplanning;apaletterto NORAD,March2010;FPPbriefingofNovember2009;FPPE"newsletterarticlesof2010;REDDMonitor Articles;analysesbyJohnPalmer,includingStabroekNews4November2010;RainforestFoundation"UK paper.oncost"curves,november2010;andjanettebulkan,stabroeknewson04may2010. xxv Seereports,almostdaily,intheGuyanapress,andthereactionstotherecentlettersenttoMinisterErik SolheimbyGuyaneseacademics,researchers,andpoliticians. xxvi Ibid,page14. Page7of7