Integrating Climate Change and Disaster Risk
Reduction into National Development, Policies
and Planning in Ghana
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Page 2 of 52
Guidebook on Integrating Climate Change and Disaster Risk into National
Development, Policies and Planning in Ghana
Collaboration of
August, 2010
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Foreword
The recent 2010 flooding and destruction of property and infrastructure pose a major challenge to district,
municipal and metropolitan assemblies (MMDAs) in Ghana. The rate at which property was destroyed,
lives were lost and the speed with which infrastructure, like roads, deteriorated gives credence to the fact
that climate change is a major developmental concern for the country. While climate variability is not
new in Ghana’s history, the incidence and severity of extreme weather events, especially floods and
droughts, has increased sharply in recent years, and climate projections indicate that this trend will be
intensified resulting in a rise in the country’s vulnerability.
Unfortunately in Ghana, efforts toward combating the impacts of climate change appear to be unplanned
and adhoc as it is driven by emergency. Planning at various levels and across sectors hardly considers the
long-term rippling implications of climate change. The Guidebook on Integrating Climate Change and
Disaster Risk into National Development, Policies and Planning in Ghana seeks to achieve mainstreaming
climate resilience and disaster risk reduction strategies into the national budget, Medium Term
Expenditure Framework and MMDAs developmental plans and subsequent implementation to reduce the
severity of climate change induced disasters and its attendant costs.
Many are the national and local government plans and strategies that are still awaiting implementation. It
is our hope as Ghanaians in preparing this document, which seeks the welfare of Ghanaians, will guide
mainstreaming climate change activities into the plans and policy of the government successfully since
lives, property and prosperity are at stake. It my hope that students, researchers, planners, project
managers, environmentalists will be this guidebook resourceful in understanding the local context of
climate change and disaster risk reduction and practical ways to make climate-conscious decisions in all
your pursuits.
Mr Jonathan Allotey
The Executive Director
Environmental Protection Agency
Accra, Ghana
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Acknowledgements
This guidebook was prepared through the intense hard work and financial support of some institutions
and individuals and these people need to be accorded the pertinent recognition. The United Nations
Development Programme (UNDP) through the office of the Energy and Environment supported the
preparation of this guidebook through financial assistance for the documentation and publication. The
Environmental Protection Agency (EPA) in collaboration with the National Development Planning
Commission (NDPC) and NADMO wishes to sincerely thank the United Nations Development
Programme for this support.
We earnestly thank the Executive Director of EPA, Mr. Jonathan Allotey, Mr. William Kojo AgyemangBonsu of EPA, Mr. Winfred Nelson, National Development Planning Commission and Mr. Naambuyi
Dokurugu, NADMO for their immerse supervision towards the finalization of this guidebook. This
guidebook would not have been completed and published without the hard work of Mrs. Sarah Agbey,
The Netherlands Development Organisation (SNV) and Ms. Ruby Kissiedu, ISODEC. We are therefore
grateful to them for their hard work. Lastly, the EPA, NDPC and NADMO and are most grateful to the
experts from the Pilot Districts and Guidebook Team Members who contributed in the validation
workshop as well as reviewing of this guidebook.
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List of Contributors
Coordinating Author
William Kojo-Agyemang Bonsu, the UNFCCC focal point/DNA of CDM
Lead Author
Winfred Nelson, National Development Planning Commission
Contributing Authors
Dokurugu Naambuyi, Owusu-Amoah, Joseph Antwi, Sarah Agbey, Alan Boegriba
J. A. Yaro, Juliana Bempah, Oppong Boadi, Jonathan Azasoo, Daniel Tutu Benefoh
and Ruby Kissiedu
Cite As: Nelson et. al., 2010, Guidebook on Integrating Climate Change and Disaster Risk Reduction
into National Development, Policies and Planning in Ghana, Environmental Protection Agency, Ghana
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Table of contents
Foreword ....................................................................................................................................................... 4
Acknowledgements ....................................................................................................................................... 5
List of Contributors ....................................................................................................................................... 6
Table of contents ........................................................................................................................................... 7
Appendices .................................................................................................................................................... 9
List of Acronyms ........................................................................................................................................ 10
List of Tables .............................................................................................................................................. 12
List of Figures ............................................................................................................................................. 13
List of Boxes ............................................................................................................................................... 13
Glossary of Definitions ............................................................................................................................... 14
Chapter One: ............................................................................................................................................... 16
1.0 General Introduction ............................................................................................................................. 16
1.1 Background and Purpose ................................................................................................................... 16
1.2 Approach ........................................................................................................................................... 19
1.3 Scope ................................................................................................................................................. 19
1.4 Structure ............................................................................................................................................ 19
Chapter Two:............................................................................................................................................... 21
2.0 Concepts ................................................................................................................................................ 21
2.1 What is Climate Change? .................................................................................................................. 21
2.1.1 Vulnerability ............................................................................................................................... 22
2.1.2. Adaptation.................................................................................................................................. 23
2.1.3 Mitigation ................................................................................................................................... 25
2.2 Hazard Related Vulnerabilities ......................................................................................................... 26
2.3 Disaster Risk Reduction (DRR) ........................................................................................................ 28
2.4 What is Mainstreaming? .................................................................................................................. 29
Chapter Three:............................................................................................................................................. 31
3.0 Mainstreaming CC/DRR in the National Planning Process .............................................................. 31
3.1 How to Mainstream ........................................................................................................................... 31
3.1.1 Steps in the Climate Change Mainstreaming and Disaster Risk Reduction Cycle ..................... 32
3.1.2 Steps in the National Budgeting Process - MTEF Cycle ............................................................ 34
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3.2. Integrating CC/DRR Issues into District Development Planning Processes ................................... 36
Steps in M & E on Climate Change and Disaster Related Issues ........................................................ 42
Chapter Four ............................................................................................................................................... 45
4.0: Conclusion ........................................................................................................................................... 45
References ................................................................................................................................................... 46
Appendix I: Criteria for the Selection of Pilot Districts .......................................................................... 47
Appendix II: Potential Climate Impacts and Proposed Adaptation and Mitigation Strategies ........... 48
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Appendices
Appendix I: Criteria for the selection of Pilot Districts
Appendix II: Potential Climate Impacts and Proposed Adaptation and Mitigation Strategies
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List of Acronyms
Strategic Environment Assessment
SEA
United Nations Framework Convention on Climate change
UNFCCC
Intergovernmental Panel on Climate Change
IPCC
International Strategy for Disaster Reduction
ISDR AIACC
International Institute for Environment and Development
IIED
The Hyogo Framework for Action
HFA
2005-2015
National Disaster Management Organization
NADMO
Ministry of Food and Agriculture
MoFA
Ghana National Fire Service
GNFS
National Commission on Civic Education
NCCE
Annual Action Plan
AAP
Programme of Action
PoA
District Planning Coordinating Unit
DPCU
Environmental Protection Agency
EPA
Economic Community of West African States
ECOWAS
Provisional National Defence Council Law
PNDCL
Potential, Opportunities, Constraints and Challenges
POCC
Strengths, Weaknesses, Opportunities and Threats
SWOT
Cross Sectoral Planning Groups
CSPGs
Ministries, Departments and Agencies
MDAs
Civil Society Organizations
CSOs
Non-Governmental Organizations
NGOs
Faith Based Organizations
FBOs
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Medium Term Expenditure Framework
MTEF
Public Financial Management Reform Programme
PFMRP
Ministry of Finance and Economic Planning
MoFEP
National Development Planning Commission
NDPC
District Medium Term Development Plans
DMTDPs
Monitoring and Evaluation
M&E
Regional Planning Coordinating Unit
RPCU
New Partnerships for African Development
NEPAD
Large Crude Oil
LCO
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List of Tables
1.1
Figures on Destruction of Displacement of Property and Humans from
Climate Change Impacts
2.1.2
Linkages between Vulnerability and Adaptation
2.1.3
How is Adaptation Different from Coping? Man-made drainage system (Hazard)
2.1.4
Sector Adaptation Strategies
2.1.5
Hazard-Related Vulnerabilities and Capacities of Different Sectors
2.1.6
Levels of Mainstreaming
2.1.7
Mainstreaming CC and Disaster Risk Reduction into District Development Plans
2.1.8
Performance Review Format
2.1.9
Sensitivity/Vulnerability Analysis
2.2.0
Summary of Sector/District Issues Capturing CC/DDR
2.2.1
Application of POCC in Increasing Crop Land under Irrigation
2.2.2
Application of POCC in the Reduction of Risk Associated With Flooding in the District
2.2.3
Application of POCC in the Reduction of Risk Associated With Bushfires in the Districts
2.2.4 Revision from the NADMO Group on the Application of POCC in the Reduction of Risk,
Associated With Flooding In the Districts
2.2.5
Revision from the NADMO Group in the Application of POCC to the Reduction of Bushfires
2.2.6
Examples of Indicators on Risk and Vulnerability
3.1
Performance Review Format in Mainstreaming CC/DDR Issues
3.2
Sensitivity/Vulnerability Analysis of Sector/District Situations Capturing CC/DRR
3.3
Mitigation/Adaptation
3.4
CC/DRR Impact Analysis
3.5
3.6
Application of POCC in the Analysis of the Summary of the Key Issues in the Area of Frequent
Flooding
The Application of POCC Rampant Bushfires
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List of Figures
2.0 Climate Change: An Interactive Process
Figure 2.1: Climate Change as an Interactive Process
Fig 2:2 Linkages between Vulnerability and Adaptation
Figure 2.3: A Man-Made Drainage System (Hazard) In a Slum Setting
Figure: 3.1 Mainstreaming Cc/DRR into National Policy and Planning Process
Figure 3.2: Levels of Mainstreaming.
Figure 3.3 Steps in Integrating CC/DRR into Plan Preparation Process
List of Boxes
Box 1.1 UN Framework Convention on CC
Box 1.2 Climate change impacts are felt worldwide.
Box 1.3 Disasters in Ghana
Box 2.1: UNFCCC Definition of Climate Change
Box 2.2: Temperature rise in all ecological zones
Box 2.3: Adapted from Dodman D, Ayers J., and Huq S. Building Resilience Chp. 5 in State of the World
2009
Box 2.4: Adaptation to Climate Change: An IIED Briefing Paper Hannah Reid and Saleemul Huq 2007
Box 2.5: The interface between DRR and CC Adaptation
Box 2.6: Mainstreaming may not necessarily be cross cutting.
Box 2.7: It is critical to make development plans climate and disaster proof
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Glossary of Definitions
Sensitivity
is the degree to which a built, natural or human environment is
directly or indirectly affected by changes in climate conditions (e.g.,
temperature and precipitation) or specific climate change impacts
(e.g., sea level rise, increased water temperature). If a system is
likely to be affected as a result of projected climate change, it
should be considered sensitive to climate change.
Vulnerability
refers to the degree of susceptibility of a system (population,
infrastructure, land, etc.) to harm from climate change (including
variability and extremes) impacts. It is a function of a system’s
sensitivity to climate and the capacity of that system to adapt to
climate changes. Climate change conditions are determined by
physical, social, economic and environmental factors or processes
that increase a community’s susceptibility to the impact of hazards.
Disaster
is the occurrence of an extreme hazard event that impacts on
vulnerable communities causing substantial damage, disruption
and possible casualties, and leaving the affected communities
unable to function normally without outside assistance.
Disaster risk
is a function of the characteristics and frequency of hazards
experienced in a specified location, the nature of the elements at
risk, and their inherent degree of vulnerability or resilience.
Mitigation
is any structural (physical) or non-structural (e.g., land use
planning, public education) measure undertaken to minimise the
adverse impact of potential natural hazard events.
Preparedness
is activities and measures taken before hazard events occur to
forecast and warn against them, evacuate people and property
when they threaten and ensure effective response (e.g., stockpiling
food supplies).
Relief rehabilitation are any measures undertaken in the aftermath of a disaster to,
respectively, save lives and address immediate humanitarian
and reconstruction
needs, restore normal activities and restore physical infrastructure
and services.
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Climate change
is a statistically significant change in measurements of either the
mean state or variability of the climate for a place or region over an
extended period of time, either directly or indirectly due to the
impact of human activity on the composition of the global
atmosphere or due to natural variability.
Risk
is the probability of harmful consequences or expected losses
resulting from interactions between natural or human induced
hazards and vulnerable conditions.
Resilience
is the capacity of a system, community or society potentially
exposed to hazards to adapt, by resisting or changing in order to
reach and maintain an acceptable level of functioning and
structure.
Hazard
is a potentially damaging physical event, phenomenon or human
activity that may cause the loss of life or injury, property damage,
social and economic disruption or environmental degradation.
Hazards can include latent conditions that may represent future
threats and can have different origins: natural (geological, hydrometeorological and biological) or induced by human processes
(environmental degradation and technological hazards).
Natural Hazard
is a geophysical, atmospheric or hydrological event (e.g.,
earthquake, landslide, tsunami, windstorm, wave or surge, flood or
drought) that has the potential to cause harm or loss.
Exposure
is essentially what is exposed to climate change. For example
population, settlements and infrastructure and natural resources
that can be affected by climate change.


Definitions are taken from ISDR,
Geneva 2005 http://www.unisdr.org/eng/library/lib-terminology-eng-p.htm
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Chapter One:
1.0 General Introduction
1.1 Background and Purpose
Although there is an increasing recognition that the attainment of national development goals could be
seriously hampered by the challenges posed by climate change and climate variability, very little attention
has been paid to integrating climate change and its related disasters into Ghana’s national development
planning and budgeting processes. Current efforts geared towards the minimisation of the impacts of
climate change and disaster risk appear to be ad-hoc as it is driven by emergency; it hardly considers the
long-term rippling implications on life and property.
In the event of extreme climate disasters, such as the 2007 floods in Northern Ghana, Central and Western
regions, the impacts are usually overwhelmingly high as relevant agencies are least prepared or hardly put
structures in place to absorb the shocks. Such impacts could however be minimised through proper
planning and integration of climate change (CC) and disaster risk reduction (DRR) measures into all
facets of national development planning particularly at the district level and across sectors. Below in the
table are figures on destruction and displacement of property and humans from climate change impacts
Damages/Loss Variables
NO.
Quantum or range of
Damage/Loss
1
Generally affected, including displaced persons
2
Deaths
61
3
Houses affected (damaged, collapsed, washed
25,923
317,127
away
4
Bridges collapsed
5
No of feeder roads destroyed
6
Length of feeder roads destroyed
7
Number of culverts damaged
8
Major dams damaged
9
Irrigation dams/affected/destroyed
13
70
1,016 (km)
442
2
39
10
Food destroyed
11
Farmland destroyed
12
Projected cereal production deficit in 2008
13
Schools with collapsed classrooms
14
Number of collapsed classrooms
199
15
Number of schools affected
210
16
Health facilities damaged
17
Drinking water facilities/flooded/contaminated
257,076 MT
97,244 HA
955,050 MT
69
Source: NADMO,
Department of
Feeder Roads,
Architectural
and Engineering
Services
Company.
45
634
Table 1.1 Damage/Loss of life and property due to the 2007 floods in Ghana.
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This guidebook is intended to facilitate the integration of CC and DRR into national, regional, sector
and in particular district plans and programmes. It also offers opportunities for users to objectively set
appropriate national mitigation targets that will not have dire implications on the national economy. An
attempt is made to explain certain portions of the planning processes; however, this guidebook is based on
the assumption that the users should have a fair understanding of the general national planning processes
particularly at the district level. What is vital is to understand the concept of climate change, disaster,
their interrelated issues and how these can be interwoven into the entire national development
planning processes.
Although, this document is also a tool for mainstreaming, it is not another Strategic Environment
Assessment (SEA) manual. It is not intended to duplicate or create parallel processes that may tend
to confuse planning within the entire national planning system. It is meant to facilitate the
preparation of plans and programmes that will greatly incorporate climate and disaster related
issues.
In essence, the guidebook specifically intends to;

create and deepen awareness about the critical
role of climate change and disasters in national
development efforts

ensure that climate change and disaster issues
are fully integrated and sustained in the national
planning processes.

assist pilot districts to integrate climate change
and disaster risk in their District Medium Term
Development Plans
Article 3.4 of the United Nations
Framework Convention on Climate
Change (UNFCCC) states that
“The parties have a right to, and should,
promote
sustainable
development.
Policies and measures to protect the
climate system …should be integrated
with national development programmes,
taking into account that economic
development is essential for adopting
measures to address climate change”
 take up adaptation and mitigation measures
Box 2.1 UN Framework Convention on CC
The preparation of this guidebook has been influenced by a number of factors. First, Ghana is actively
involved in a number of global initiatives on climate change and disasters. Key among the initiatives is
the adoption of the United Nations Framework Convention on Climate Change (UNFCCC) and the
Hyogo Framework for Action. One of the commitments under the UNFCCC is the fundamental role
expected of Parties (national governments) to ensure that climate change issues are taken into
consideration in national development planning. In addition to the above is The Hyogo Framework for
Action (HFA) 2005-2015. This is a ten-year (2005-2015) non-binding legal, comprehensive and action
oriented response to international concern about the growing impact of disaster on individuals’
communities and national development.
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The HFA aims to reduce substantially loss of
life as well as the social, economic and
environmental losses caused to communities
and nations as a result of disasters. In order to
achieve this, the HFA identified three
strategic goals. As a means of achieving
these goals, five priorities for action were
agreed upon. This forms part of the HFA.
The Three Strategic Goals of the Hyogo Framework
for Action
1. The integration of disaster risk reduction into
sustainable development policies and planning at all
levels, with special emphasis on disaster planning,
mitigation, preparedness and vulnerability reduction.
2. The development and strengthening of institutions,
mechanisms and capacities at all levels, especially
the community, to build resilience to hazards.
3. The systematic incorporation of risk reduction
approaches into the implementation of emergency
preparedness, response and recovery programmes.
The HFA generally sets out a well-grounded
technical and organizational requirement for
reducing disaster, whilst leaving the details of
its implementation to the decision of
Five Priorities for Action of the HFA
government and relevant organizations
1. Ensure that disaster risk reduction is a national and
according to their needs and capacities.
local priority with a strong institutional basis for
implementation.
Though, some progress have been made
2. Identify, assess and monitor disaster risks and
especially with regards to the above
enhance early warning.
3. Use knowledge, innovation and education to build a
mentioned global initiatives, there are some
culture of safety and resilience at all levels.
traces of doubt about the far-reaching impacts
4. Reduce the underlying risk factors.
of climate change/climate variability and
5. Strengthen disaster preparedness for effective
response at all levels
disasters on the livelihoods of the citizenry
especially at the local communities in Ghana.
Source: The Hyogo Framework for Action (HFA)
Secondly, Ghana’s economy relies heavily on
climate sensitive sectors mainly on
agriculture, energy and forestry.1
Box 1.2 Climate change impacts are felt worldwide.
About 70% of the population depends directly or indirectly on agriculture (fisheries, crop and animal
farming, etc.) and forest sector for both timber and non-timber forest products. Any anomaly in the
climate therefore tends to affect the economy of Ghana, particularly the vulnerable, majority of whom
live in the rural areas and thrive mainly on rain-fed farming.
The limited use of irrigation facilities and high dependence on unfavourable climatic conditions for the
realisation of good harvest tend to introduce huge instability in the standards of living of the people.
Consequently, rural communities become disproportionately vulnerable since they are most exposed to
hazards such as bush fires, flooding and droughts and are certainly least capable of adapting to such
hazards. This Guidebook therefore aims at developing measures to safeguard livelihoods and minimise
risks associated with climate change and disasters particularly at the local level in Ghana. Finally, Ghana
still has limited capacity to effectively promote lower emission measures and tap into global
opportunities for financing. To facilitate the reduction of risks posed by climatic hazards in a
targeted manner, it is important that capacity of key actors is enhanced. The development of this
1
Agriculture constitutes about 36% of Ghana’s GDP. (See 2005 National Budget)
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tool is therefore critical in not only building
Ghana’s capacity for mainstreaming climate and
disaster risk reduction, but also ensuring that
climate change and disaster risk reduction
activities are mutually supported at all levels of
national development planning.
In Ghana, the usually occurring disasters
are flooding windstorm, rainstorm,
drought and bushfires. It is estimated that
NADMO spends about 85% of its
resources and efforts to address issues
related to hydro-meteorological disasters.
For instance in 2007, the Government of
Ghana spent GH¢6,200,000.00 (62 billion
old Ghana Cedis) on floods relief victims
in the Northern sector, Central and
Western regions of Ghana. This amount
was exclusive of the various contributions
made by the development partners.
Box 1.3 Disasters in Ghana
1.2 Approach
The approach included a review and analysis of key background documents on climate change,
disaster and mainstreaming. Inputs from ten pilot districts (one from each region) through a series
of workshops and consultations with representatives of different organisations within the selected
Assemblies are used for this guidebook. The team had discussions with a number of stakeholders
at the national as well as the district to ascertain their views, validate information on national
planning processes for climate change mainstreaming. An initial draft was prepared and used as a
main document for training personnel from the pilot districts. Based on the lessons emanating
from the workshop, a team was constituted to expand the document to embrace mainstreaming of
climate change and disaster not only at the district level but also at the national level. Subsequently,
a validation workshop was held with a wide network of stakeholders ranging from the national,
regional, sector and districts with varied and wide experiences in climate change disaster and
national development planning processes. Comments from the relevant stakeholders were
incorporated into the draft and finalised.
1.3 Scope
This document is meant to guide the integration of climate change and disaster in all facets of
national development policy and planning processes, from national, sector, regional and districts.
1.4 Structure
The document, which has four chapters, provides an understanding of climate change and disaster
risk management in Ghana and how to mainstream CC/DRR issues at the district level and across
sectors. The first chapter is a general introduction to the Guidebook. It contains the background,
purpose, approaches scope and the structure of the guidebook. It is widely acknowledged that
climate change, hazard and disaster, vulnerability, adaptation terminologies are used
interchangeably across the sectors. For this reason, the meanings of concepts have been explained
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in the second chapter. The third chapter focuses on mainstreaming climate change and disaster risk
reduction activities into national development policy formulation, planning, budgeting,
implementation, monitoring and evaluation. These processes are discussed at three main levelsnational, sector and district. The fourth chapter summaries and concludes the guidebook.
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Chapter Two:
2.0 Concepts
2.1 What is Climate Change?
Human activities, particularly, the burning of fuels2, cutting down of forests and other agricultural
activities such as the application of fertilizer in addition to natural processes, release gases including
carbon dioxide (CO2) methane (CH4) and nitrous oxide (N2O) and into the atmosphere. These gases,
which have the ability to trap the infrared radiation (sun’s energy), help in maintaining an average global
temperature balance of about 1.6oC without which would have resulted in very cold atmospheric
temperature, perhaps not suitable for human habitation. However, what has aroused concern is the
increasing amount of these atmospheric gases3 as a result of the intensification of human activities on the
surface of the earth. The resultant effects are increases in the earth’s surface temperature, sea level rise,
more precipitation, droughts and floods. These in
UNFCCC Definition of Climate Change
turn have impacts on human and natural systems
brought about by human activities which have a
The UNFCCC defines Climate Change as a change
dual effect on greenhouse gas emission and a
of climate which is attributed directly or
indirectly to human activity that alters the
direct effect on human and natural systems. Figure
composition of the global atmosphere and which
2.1 shows climate change as an interactive process
is in addition to natural climate variability
observed over comparable time periods
involving human and natural components
.
Box 2.1: UNFCCC Definition of Climate Change
Vulnerability to climate change has been defined as the degree to which a system is susceptible to, or
unable to cope with, adverse effects of climate change, including climate variability and extremes.
Vulnerability is a function of the character, magnitude, and rate of climate variation to which a system is
exposed, its sensitivity, and its adaptive capacity.4
Fuels include coal, oil, gas and biomass (such as the plant and animal material as fuel)
The gases also have the ability to stay in the atmosphere for a long period of time hence compounding the heat
trapping potential and causing global warming.
2
3
4
Intergovernmental Panel on Climate Change (IPCC) Working Group 2, 2001. Third Assessment Report, Annex B: Glossary of Terms.
Page 21 of 52
Figure 2.1: Climate Change as an interactive process
The occurrences of climate change coupled with extreme climate variability affect several sectors of the
economy and make certain groups of the populace more vulnerable. Appendix II details the various
sectors and the likely impacts as a result of climate change and climate variability.
2.1.1 Vulnerability
Exposure to climate variation is primarily a function of geography. For example, communities along the
banks of rivers or located in very low lying areas will
have higher exposure to flooding, while communities in
Evidence abounds in Ghana that temperatures in
very dry regions areas may be most exposed to drought.
all the ecological zones are rising whereas
Sensitivity is the degree to which the community is
affected by climatic stresses. A community dependent
on rain-fed agriculture is much more sensitive than one
where the main livelihood strategy is labour in a mining
facility, for instance.
Adaptive capacity is defined as the ability of a system
to adjust to climate change (including climate
variability and extremes) to moderate potential
damages, to take advantage of opportunities, or to cope
with the consequences5
rainfall levels and patterns have been generally
reducing and increasingly becoming erratic. The
national economy stands to suffer from the
impacts of climate change because it is
dependent on climate sensitive-sectors such as
health, energy, agriculture, forestry, etc.
Based on a 20-year baseline climate observation,
it is forecasted that maize and other cereal crop
yields will reduce by 7% by 2050. Other studies
have also revealed a strong correlation between
climate, poverty and health
(Agyemang-Bonsu et al., 2008)
Box 2.2: Temperature rise in all ecological zones
5Intergovernmental
Panel on Climate Change (IPCC) Working Group 2, 2001. Third Assessment Report, Annex B: Glossary of Terms.
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LINKAGES BETWEEN VULNERABILITY, ADAPTATION
Climate Variability
CLIMATE IMPACTS
• Reduced Agricultural &
Natural Resources
•Water Stress
•Less Secure Livelihoods
•Increased Prevalence
of Disease
•Constrained Economic
Opportunities
WHY?
Climate Events
Climate Change
Policy Responses
Community Responses
ADAPTIVE CAPACITY
VULNERABILITY
ADAPTATION
Economic Shocks
Inability to Respond
To Shocks
Exposure to Shocks
Capacity to Anticipate
Shocks
Reduced Access to
Infrastructure
Increased Health
Risks
Traditional Coping Mechanisms
•Individual, Household and
Community Based
Public Policy Induced Coping Mechanisms
• Market Based and Publicly Provided
Increasing Resistance
Increasing Resilience
Strengthening Persistence
Fig 2:2 linkages between vulnerability and adaptation
2.1.2. Adaptation
In the quest for survival, societies essentially have to develop mechanisms to deal with climate change,
adjusting to its impacts and reducing greenhouse gas emissions (mitigation) thereby reducing the rate and
magnitude of climate change. The Intergovernmental Panel on Climate Change (IPCC) defines adaptation
as adjustments in ecological, social or economic systems in response to actual or expected climatic
stimuli and their effects (Smith et al, 2001). It includes adjustments to moderate harm from, or to benefit
from, current climate variability as well as anticipated climate change.
Effective adaptation strategies imply reducing present and future vulnerability to climate change and
include coping strategies or changes in practices and processes in light of the perceived climatic change.
Such actions can be taken by individuals, households, governments and other stakeholders. Adaptation
may include policy measures that reduce vulnerability and enhance adaptive capacity, or the ability of
people and systems to adjust to climate change. Adaptation can be a specific action, such as a farmer
switching from one crop variety to another that is better suited to anticipate conditions. It can be a
systemic change such as diversifying rural livelihoods as a hedge against risks from variability and
extremes. It can be an institutional reform such as revising ownership and user rights for land and water
to create incentives for better resource management. The process of adaptation includes learning about
risks, evaluating response options, creating the conditions that enable adaptation, mobilizing resources,
implementing adaptations, and revising choices with new learning.
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A Stitch in Time Lessons for Climate Change Adaptation Leary Neil et al. May 2007 pg.7
How is Adaptation different from Coping?
The term ‘adaptation’ and ‘coping’ are sometimes used interchangeably, leading to
confusion about the similarities and differences between these two important concepts.
The following lists of characteristics are a compilation of brainstorming sessions by
groups of development practitioners in Ghana, Niger and Nepal.
Coping
Short-term and immediate
Oriented towards survival
Not continuous
Motivated by crisis, reactive
Often degrades, resource base
Prompted by a lack of alternatives
Adaptation
Oriented towards longer term livelihoods
security
A continuous process
Results are sustained
Uses resources efficiently and sustainably
Involves Planning
Combines old and new strategies and knowledge
Focused on finding alternatives
Source: Care Hand Book ‘Climate Vulnerability and Capacity Analysis’
Table 2.1 AIACC Working Papers No 48:
Specific adaptation measures may differ from sector to sector depending on its anticipated incremental
benefits in terms of climate change, environmental and sustainable development. In Ghana, for example,
farmers who are experiencing changes in productivity have been adapting to it in their own diverse ways.
Examples of some of these measures are; diversification of crops and livestock as well as the
management practices’, planting and conservation of trees, application of chemical fertilizers, outmigration of people etc. These kinds of adaptive measures though are targeted at increasing reliance of
affected people to climate change, is still perceived as reactionary and could not effectively address
impacts that are anticipated in the future. To be able to strategize and fully adapt to the future impacts of
climate change, societies must plan ahead on how to deal with the impact without compromising on their
socio-economic needs. Adaptation activities can be of different types, from the purely technological (such
as sea defence construction), through behavioural (such as shifts in choice of food or recreation),
managerial (such as changes in farming methods) and policy (such as planning regulations).
Page 24 of 52
Sector
Adaptation Strategies
Water
Expand rainwater harvesting
Water storage and conservation techniques
Desalination
Increased irrigation efficiency
Agriculture
Adjustment of planting dates and crop variety
Crop relocation
Improved land management (such as erosion control and soil
protection through tree planting
Infrastructure and Relocation
settlement
Improved seawalls and storm surge barriers
Creation of wetlands as buffer against sea level rise and
flooding
Human health
Improved climate-sensitive disease surveillance and control
Improved water supply and sanitation services
Tourism
Diversification of tourism attractions and revenues
Transport
Realignment and relocation of transportation routes
Improved standards and planning for infrastructure to cope
with warming and damage
Energy
Strengthening of infrastructure
Improved energy efficiency
Increased use of renewable resources
Table 2.2:
2.1.3 Mitigation
Mitigation on the other hand defines the scope of
human interventions that are aimed at reducing the
sources and enhancing sinks of greenhouse gases
(IPCC, 2007) for slowing or stopping future climate
change. There are two main approaches that drive
the formulation of mitigation measures. The first
approach aims at evolving mitigation interventions
result in direct net reduction in greenhouse gas
(GHG) emission.
NB:
The types and scales of adaptation
activities are extremely varied and
particular strategies will depend on the
nature and context of climatic
vulnerability. Whereas vulnerability is a
particular state, adaptation is a set of
activities in response to it.
Box 2.3: Adapted from Dodman D, Ayers J., and Huq S.
Building Resilience Chp. 5 in State of the World 2009
Page 25 of 52
The attention is now on adaptation for two
reasons. First, it is increasingly being realised that
some climate change impacts are inevitable. Even
if emissions of all greenhouse gases were to stop
immediately, average temperatures would continue
to rise for some time because of lags in the Earth’s
natural processes. As a result, adaptation and
mitigation are not alternative strategies but rather,
complementary ones: both need to be pursued
together.
Secondly, while scientists are clear on the need to
reduce greenhouse gas emissions to stop global
warming, action on the ground by politicians,
businesses and individuals has been slow.
Inadequate mitigation therefore makes the need to
adapt to climate change impacts all the more
pressing.
Mitigation actions tend to focus on
transport, industry, and energy, while
adaptation decision makers usually focus on
the most immediately vulnerable sectors
such as agriculture, land use, forestry, and
coastal zone management.
What is
important is to realise that there are some
potential for overlaps at the sectoral level.
For example adaptation policies on
agriculture, land used, and forestry have
implications
for
carbon
dioxide
sequestration
and
avoided
methane
emissions. Dodman D, Ayers J., and Huq S.
Building Resilience Chp 5 in
State of the World 2009
Box 2.4: Adaptation to Climate Change: An
IIED Briefing Paper Hannah Reid and Saleemul
Huq 2007
2.2 Hazard Related Vulnerabilities
A hazard is a potentially damaging physical event, phenomenon or human activity that may cause the loss
of life or injury, property damage, social and economic disruption or environmental degradation. Hazards
can include latent conditions that may represent future threats and can have different origins: natural,
(geological, hydro-meteorological and biological) or induced by human processes (environmental
degradation and technological hazards). Hazards can be single, sequential or combined in their origin and
effects. Each hazard is characterised by its location, intensity, frequency, and probability. (Bhavnani et al
2008)
Page 26 of 52
Figure 2.3: A man-made drainage system (hazard) in a slum setting
Table 2.3 Climate-related hazards – Prone areas
Page 27 of 52







Wind/Rain storm (Country wide especially rural areas) Flooding (low lying and riverine
areas) - e.g. Accra, Kumasi, Northern Ghana, Western Region, Central Region
Tidal waves/Sea rise (Eastern Coast especially, Keta and Ada)
Bush/Wild Fires – Northern sector and transitional zone- Brong Ahafo, Northern Volta and
Afram Plains
Drought/famine (Northern sector and transitional zone
Extreme temperatures (northern regions)
Pest infestation (northern, Ashanti, (Ejura), Volta)
Desertification (northern regions especially Upper East)
2.3 Disaster Risk Reduction (DRR)
Disaster may be defined as any occurrence, natural or man-made, that causes damage to life and
property, ecological disruption, loss of human lives, deterioration in utility facilities and services on
a scale sufficient to warrant a response from outside community’(UN definition).Disaster Risk
reduction is perceived as the conceptual framework of elements considered with the possibility to
minimise vulnerabilities and disaster risks throughout society, to avoid (prevent) or to limit
(mitigate and prepare for) the adverse impacts of hazards, within the broad context of sustainable
development’ (ISDR).Climate Change related risks can be explained as ‘The probability of the
harmful consequences or expected losses resulting from interaction between natural or human
induced climate change hazards, and vulnerable conditions’ (ISDR, 2005).
CC and Disaster are serious developmental issues that must be taken into consideration and
integrated during policy formulation, planning, budgeting, implementation and evaluation of
development programmes at the national, regional and district levels in order to protect life,
livelihoods, property and the environment for sustainable development. It should be acknowledged
that a single disaster could wipe away decades of development, through environmental
degradation, flooding, drought and bushfires resulting in deforestation, land infertility, loss of land
and its ecology, water sources and resources, and infrastructure.
Resilience is ‘the capacity that communities and individuals have developed in their culture to maintain
certain structures and functions despite major disturbances. It includes also the capacity to return to
stable equilibrium after major disturbances’ (ISDR). Factors that determine resilience include the level of
awareness of hazards, and knowledge about how to manage them, the level of poverty, physical and
health states, and the degree of closeness to hazards. DRR involves practical use and management of
ecosystems, land, natural resources, the promotion of food security, protection of economic and social
facilities, the implementation of safety nets; and it includes land use planning and implementation of
building codes.
Risk is measurable and depends on the hazards, vulnerability, and the degree of resilience. The degree of
resilience determines the level of risk. For instance, where the degree of resilience is high, the risk is low,
but where the people have low resilience the risk is high.
Page 28 of 52
1. For example, during flooding the elements at risk include human beings, farms, food stores,
utility and service facilities, livestock, buildings.
2. It should be realized that projects such as roads, dams and buildings can create hazards and
risks; it is imperative therefore to know the climate change related hazards and risks, with the
view to integrating them in development planning so as to minimize their occurrences and
impacts on the socio-economic development of the districts. Effective management of current
risk serves as a means of preventing and mitigating future ones by undertaking corrective
development planning measures such as land use planning/management, building/construction
controls and retrofitting of socio-economic infrastructure
DRR and Adaptation: Adjustments or changes
in an individual or a group’s behaviour and
characteristics that enhance ability to cope with
moderate or reduce the impact of climate change
in order to realise positive effects or to avoid
danger. DRR and Adaptation consist of complex
human, structural and technological adjustments
aimed at reducing the impacts of disaster and
climate change.
Both disaster risk reduction and
adaptation to climate change aim to
address vulnerability to hazards.
Although adaptation to climate change
focuses on responding to both extreme
weather events and slow-onset changes
in climates, disaster risk reduction
focuses more widely, not just on
climate-related disasters. The interface
however is that this document looks
more at hydro-meteorological disaster.
Thus disaster risk reduction could in a
narrow sense be limited as Adaptation
to climate change. (See Action Aid on
Implementing the HFA p2)
Box 2.5: The interface between DRR and CC
Adaptation
2.4 What is Mainstreaming?
Mainstreaming is a vague concept applied to a wide range of issues in both private and public circles.
The first part of the word ‘main’ connotes dominance and constancy. The second ‘stream’ with its
aquatic origin demonstrates to “go with the flow” [Robert Picciotto]. (Tearfund 2005). Mainstreaming
climate change is thus not just adding on CC and DRR themes in the national development
framework, but rather creating a comprehensive integration and interweaving of CC and DRR
issues with other environment issues and socio-economic themes and dealing with the trade-offs in
the whole process of decision making or the complete planning cycle. It thus includes processes of
assessing the implications of any planned action (legislation, policies, etc.) in any area and at all
levels and calls for an assessment of the mandate of the institutions on one hand, and on their
relationship with other institutions and structures (e.g. line ministries, local government structures,
Page 29 of 52
At the budget level the critical
thing is to make “green” the plans
or make them climate and disaster
proof.
This will facilitate
implementation as it might be
very difficult to perhaps devote an
appreciable amount of money
solely for climate change.
communities, private sector, civil society organization
etc.) on the other.6 The focus of this Guidebook is on
integrating and interweaving both CC and DRR
measures into practical actions policies or initiatives to
minimise vulnerabilities and contribute to the general
standards of living of the Ghanaian particularly at the
local level. This will require climate risk and climate
Box. 2:6. Mainstreaming May not
necessarily be cross cutting
friendly measures into real decision making measures
such as disaster management, water management,
Agriculture and food security, health, livelihoods, coastal zone management, land use planning and
infrastructure designing. The main objective therefore is to assist the districts to implement actions
that enhance adaptive capacity, reduce vulnerabilities with climate-related risk so that climate
change (mitigation and adaptation) become part of, or consistent with, other, well established
programmes, particularly sustainable development planning.7
For mainstreaming to be effective, it should be infused
into all levels of the planning frameworks that give effect
to the implementation of climate change and disaster
issues in particular (e.g. policies, laws, standards,
institutions,
technologies,
funding
mechanisms,
programmes, projects, plans, etc.,) while at the same time
permeating the different stages followed from the
beginning to the end (i.e. conceptualization and
identification,
design,
appraisal,
budgeting,
8
implementation, monitoring and evaluation).
Mainstreaming may not necessarily
mean cross-cutting. Cross-cutting
issues such as climate change may
lose its focus since it has the
tendency to be left open and not
specifically followed. Alternatively,
concentrating all or most of the
issues under one chapter does not
necessarily mean mainstreaming.
Either way, it should be the
concerted effort to influence
processes, policies and programmes
that have a significant bearing on
climate change with the aim of
making
them
more
“climate
friendly”.
Box 2.7: It is critical to make
development plans climate and
disaster proof
UNEP, The Global Mechanism and UNDP Generic Guidelines for Mainstreaming Environment with a particular Focus
on Drylands into National Development Frameworks Draft 1st Edition August 2007
7
Smit B. Centre for Environmental Economics and Policy in Africa, CEEPA, Pretoria, South Africa and Benhin J University
of Geulph, Canada September 04 2004
8
UNEP, The Global Mechanism and UNDP Generic Guidelines for Mainstreaming Environment with a particular Focus
on Dry-lands into National Development Frameworks Draft 1st Edition August 2007
6
Page 30 of 52
Chapter Three:
3.0 Mainstreaming CC/DRR in the National Planning Process
3.1 How to Mainstream
This chapter details the processes involved in the integration of CC/DRR issues in the National
Development Planning Process as well as in the preparation of District Development plans. For
integration to be effective, it should be infused into all levels of the planning frameworks that give effect
to the implementation of climate change and disaster issues in particular (e.g. policies, plans,
programmes, projects, etc.) while at the same time permeating the different stages followed from the
beginning to the end (i.e. conceptualization and identification, design, appraisal, budgeting,
implementation, monitoring and evaluation).9 Figure 2.6 depicts the various levels of integrating CC/DRR
issues.
Review of
Policies, Plans,
programmes and
projects
Dissemination of
Final National
Approval of
National Policy
Composition of
the CSPGs
Public
Consultation
Figure 3.1: Mainstreaming CC/DRR into National Policy and Planning Process
UNEP, The Global Mechanism and UNDP Generic Guidelines for Mainstreaming Environment with
a particular Focus on Drylands into National Development Frameworks Draft 1st Edition August 2007
9
Page 31 of 52
Application
National
Climate change
mainstreaming
and disaster risk reduction
Climate
mainstreaming
reduction
and
Monitoring and Evaluation
Budgeting and implementation
Planning
District
Climate change mainstreaming and
disaster risk reduction
Policy formulation
Sector
LEVELS OF MAINSTREAMING
change
disaster risk
Figure 3.2: Levels of Mainstreaming
The under-listed steps serve as a guide in the integration of CC/DRR issues into National Development
policy and planning processes.
3.1.1 Steps in the Climate Change Mainstreaming and Disaster Risk Reduction Cycle
Step 1: Review of Policies, Plans, programmes and projects.
Assessment of immediate policies, plans, programmes and projects to decide which of them to roll over in
the new policy framework. This involves the review of all policies, plans, programmes and projects with
the view of identifying gaps and proposes new initiatives. In the review consideration are given to
recommendations in the annual progress report, Poverty and Social Impact Assessment, Strategic
Environmental Assessment and other sector strategies and studies which might have been conducted.
Page 32 of 52
Issues on domestic and international policy initiatives (MDG’s, NEPAD, MCA, MDBS, Gender,
Government manifesto etc.) are also assessed. National priorities for thematic/focal areas within the draft
national policies are identified. Relevant strategies for achieving outlined objectives are formulated, as
well as the identification of the implementing and collaborating agencies.
Expected Output
The output of the above process is a draft national policy framework which sets the stage for engaging
relevant stakeholders. Considering the importance of the above process, it is very critical to assess and
integrate CC/DRR issues in the process especially considering the international recognition of the impact
of CC/DRR on national development. The review process should identify the impact of CC/DRR on the
level of achievement of policies, plans, programmes and projects.
Step 2: Composition of the CSPG
The Cross Sector Planning Groups (CSPGs) are made up of representatives from a cross-section of
Ghanaian society. Typically, CSPG membership is drawn from the Ministries, Departments and Agencies
(MDAs) of central government, professional bodies, tertiary institutions, non-governmental
(development) organizations (NGO), community-based organizations (CBO), development partners,
private sector, other specialized institutions and outstanding individual professionals in related fields.
This group is provided with the review of the policies and other national, regional and international policy
documents that are of relevance to Ghana’s policy formulation process. Members of the groups also bring
along their sector draft policies for consideration and inclusion. Other strategic partners including NGOs
also share their field experiences to enrich the output.
To mainstream CC/DRR into the process, each CSPG should include a specialist in field of CC/DRR. The
aim for including the CC/DRR specialist is to ensure that members are educated on CC/DRR issues to
enable them integrates such issues into the review process.
Expected output
The output of the above process is a review draft national policy framework with CC/DRR issues
incorporated.
Step 3: Public Consultation
The public consultation involves organisation of workshops, meetings and seminars for various
stakeholders including CSOs, NGOs, FBOs, organised professional groups, (nurses, teachers, Persons
with Disabilities) as well as trade Associations, Traditional Authorities. As part of the public
consultation, the arms of Government (Executive, Legislature and Judiciary) are also consulted. To
mainstream CC/DRR, this group should be educated on the impacts of CC/DRR on national
development to enable members make an input and take a policy direction.
Page 33 of 52
Step 4: Approval of National Policy Framework
Finalisation and approval of National Policy Framework. It is important to make sure that issues of
CC/DRR are clearly highlighted before approval is given.
Step 5: Dissemination of Final National Policy
The approved National Policy Framework is disseminated Nation-wide to create awareness on the
policies. It is also to inform citizens on government priorities within the plan period. The dissemination
enhances ownership and participation during implementation.
3.1.2 Steps in the National Budgeting Process - MTEF Cycle
Prior to 1999, Ghana practised the Line Item Budgeting System in which expenditures allocated to
expenditure heads were already established.10 The expenditures were not linked with policies. In 1999 as
part of the Public Financial Management Reform Programme MTEF budget process which link budget to
policy was adopted. The MTEF therefore serve as platform for implementing the policies of Government.
The annual MTEF budget cycle consist of four main phases as follows:
Step 1: Preparation








Revision of economic indicators with CC/DRR indicators captured.
Determination of revenue envelop including CC/DRR funds.
Preparation and circulation of budget guidelines with sectoral/MDAs ceilings approved by
Cabinet – This must include CC/DRR issues.
Revision of MDAs policies programmes and project implementation including CC/DRR
programmes.
Cross sectoral policy hearing at MoFEP should highlight CC/DRR issues.
Preparation of draft estimates including CC/DRR estimates.
Technical/estimates hearing at MoFEP should highlight CC/DRR issues.
Preparation of economic and budget policy statement and speech with inputs from MDAs
including CC/DRR issues.
The line item budget simply listed nine categories of expenditure:
Item No. Expenditure
1. Personal Emoluments;
2. Travelling and Transport Expenditure;
3. General Expenditure, Maintenance, repairs and renewals;
4. Maintenance, repairs and renewals;
5. Other Recurrent Expenditure;
6. Subvention;
7. Constructional Works;
8. Plant, Equipment, Furniture and Vehicles; and
9. Other Capital Expenditure
10
Page 34 of 52
Step 2: Approval





Presentation and approval of economic and budget policy statement in Parliament with CC/DRR
issues included.
Parliamentary hearing of MDAs estimates highlighting/ raising awareness of CC/DRR issues
Presentation of estimates and passage of appropriation bill by parliament should include CC/DRR
issues.
Preparation of Procurement/work/and cash plans also including CC/DRR activities
Budget information dissemination by Budget Development Unit highlighting CC/DRR issues.
Step 3: Implementation


Preparation of general warrant for Personnel Emoluments and Administration and monthly cash
ceiling based on work plan, procurement plan and cash plan for service and investment including
CC/DRR issues.
Request for and release of funds for activity implementation including CC/DRR issues.
Step 4: Monitoring, Auditing and Evaluation


Weekly, monthly, mid-year review highlighting CC/DRR issues.
End of year review of budget and economic indicators in preparation for the new budget capturing
CC/DRR issues.
Page 35 of 52
3.2. Integrating CC/DRR Issues into District Development Planning Processes
The under-listed steps serve as a guide in the integration of CC/DRR issues into District Development
planning process.
Steps/Things to Do
STEP
1
STEP
2
DISTRICT PROFILE
AND
CURRENT
SITUATION
DISTRICT
DEVELOPMENT
PRIORITIES
STEP
3
DISTRICT
DEVELOPMENT
GOALS, OBJECTIVES
& STRATEEGIES
STEP
4
DEVELOPMENT OF
PoAs & AAPs
STEP
5
IMPLEMENTATION
&
MONITORING
OF AAPs
Step 1
 Awareness creation on
CC/DRR.

Performance Review
highlighting
on
CC/DRR issues

Conduct Situational
Analysis
capturing
District Vulnerability
to CC/DRR

Summarise District
Development issues
including CC/DRR
issues

Conduct POCC on
District Development
issues
including
CC/DRR issues.

Step 2

Prioritise
District
Development
issues
Step 3
Development of Goal/obj.
&
strategies
with
CC/DRR issues included.
Step 4
Develop of PoA, AAPs and
Budget with CC/DRR
issues captured.
Step 5
CC/DRR integrated in
the implementation &
M&E of AAPs
Expected deliverables
Responsibility

Planning team and
other stakeholders




Key
stakeholders
awareness
on
CC/DRR created.
CC&DRR
issues
reflected
in
performance review.
Situational Analysis
report
reflects
District vulnerability
to CC/DRR.
District Development
issues
captures
CC/DRR issues.
POCC
analysis
highlights
CC/DRR
issues.
Prioritised
Development
incorporates
DRR issues
District
issues
CC and
Planning
team,
political leaders and
other stakeholders
CC and DRR incorporated
in
District
goals,
objectives and strategies.
Planning team and
other stakeholders
CC/DRR
incorporated
in
AAPs and Budget.
Planning team and
other stakeholders
issues
PoAs,
CC/DRR issues reflected
in the implementation
and M&E of AAPs.
Planning
Departments
district
of
team,
the
Step 1: Prepare District Profile and Current Situation
A. Create Awareness on CC/DRR
The normal practice has been the preparation of district development plans with limited or no conscious
efforts of mainstreaming CC/DRR. However, considering the growing overwhelming effects of CC/DRR,
it has now becoming urgent to pay attention to CC/DRR in district development planning. This cannot be
done effectively without creating awareness among the key stakeholders involved in district development
planning. The purpose of the awareness creation is to increase their understanding on CC/DRR issues.
Page 36 of 52
This should facilitate a buy-in from all relevant stakeholders and enhance their participation in
mainstreaming CC/DRR in district development planning.
How awareness creation should be done?
The awareness creation should be done at district level and should target all members of DPCUs11 and the
District Chief Executive that constitute the technical wing of the Assembly. The initial awareness creation
should target the DPCUs as they are the key primary actors in collating district plans and training other
stakeholders. For effective understanding and participation in the mainstreaming process, the DPCUs
should acquaint themselves with the concepts in Chapter 2 of the Guidebook to enhance their capacity in
guiding other stakeholders to incorporate CC/DRR in district plans. The Assembly could engage the
services of a facilitator with clear terms of reference in a situation where the capacity does not exist
within the district.
B. Performance Review
Why perform review?
As part of the planning process, all districts are expected to review the performance of their previous
plans. The review is to enable them assess the level and status of implementation of planned activities,
document challenges and lessons learnt. In addition, the outcome of the review is to inform the
development of future plans. As part of the review, districts should make conscious efforts to assess the
implications of CC/DRR issues on the achievement of plan implementation.
How to mainstream CC/DRR issues in performance review?
Districts are supposed to review the status of programme/project objectives and activities in their annual
action plans. In the review, districts are expected to indicate the status of implementation of each activity.
As part of mainstreaming CC/DRR in the review, districts should indicate in the remarks column of the
NDPC format how CC/DRR issues influenced the status of achievement of the planned activities.
Year ………………………………..
DPCU is made up of District Coordinating Director, District Planning Officer, District Budget Officer, District Finance
Officer, District Engineer, District Directors of Agriculture, Health and Education, NGO Representative, Assembly
Representative, District Gender Desk Officer,
11
Page 37 of 52
Objective
Activity
Status of
implementation
Remarks (Capture how
CC/DRR influenced status of
implementation)
Table 3.1: Performance review format
Situational Analysis capturing CC/DRR
In the preparation of the plan, districts are expected to report on the profile of the district with respect to
the following:







Physical and Natural Characteristics
Demographic characteristics
Culture
Spatial analysis
District Economy
Governance
Social Services
In describing the above characteristics, the DPCU should conduct a sensitivity analysis on each of the
characteristics and indicate how vulnerable the district is to CC/DRR.
District Characteristics Sensitivity Issues on CC/DRR
Remarks
Physical and Natural
Characteristics
Demographic
characteristics
Culture
Spatial analysis
District Economy
Governance
Social Services
Table 3.2 Sensitivity/ Analysis
From the district profile, identify CC and disaster related issues in the district.
Page 38 of 52
Note: The sensitivity analysis per each characteristic should be done with reference to the various
components of each characteristic. (e.g. Physical and Natural Characteristic - location and size,
climate, vegetation, conditions of the natural environment, conditions of the built environment, relief
and drainage, soil, impact of human activities including farming and bush fires, disaster, aesthetic
features and land management)
Summary of development issues capturing CC/DRR
The DPCU should summarise all the actual impacts and the potential effects of CC/DRR from the
performance review and the district profile respectively. This is critical and important as it forms the basis
for mainstreaming CC/DRR issues in goal and objective formulation, planning and budgeting,
implementation, monitoring and evaluation.
Note: The summarised district CC/DRR related issues should be further integrated into the identified
district development issues. This should be done by assessing the potential impact of CC/DRR issues on
the identified district key development issues.
CC/DRR key Issues
District
development issues
key
Table 3.3: POCC analysis on the summary of key development issues including CC/DRR
Identified priorities should be further refined by subjecting them to the analysis of the Potentials and
Opportunities, Constraints and Challenges (POCC) or (Strength, Weaknesses, Opportunities and Threats
[SWOT]) of the District with respect to each of the Growth and Poverty Reduction Strategy thematic
areas. This will enhance formulation of appropriate strategies for more implementation-oriented plans. An
example of the application of the POCC is presented below;
Page 39 of 52
Issue to
addressed
be
Potentials (from
Baseline situation Opportunity
etc.)
Increase crop Acreage
of
land
under available
irrigation
arable/irrigable
land, availability
of
irrigation
facilities, volume
of water
Central
government
support
to
agriculture as a
priority issue.HIPC Initiative
Constraints
Challenge
- Land litigation,
- Inability of central
government
to
inadequate
mobilize and release
innovative farming
funds timely.
practices
inadequate
marketing avenues
- Bushfires
- Volume of water
for irrigation
Conclusion: Increase crop land under irrigation is a feasible/viable project. Significant potentials and
opportunities exist to support the Project. Constraints can be addressed through developing synergies
in programme design; Challenges can be managed through dialogue with central government.
e.g. To reduce
the risk of
flooding in the
district.
Existence of a
legal regime.
Existence
of
relevant
institutions,
Human resource
capacity
Logistics
and
equipment.
Willing
and Inadequate
Ignorance of CC and
resourceful
funding,
DRR issues,
collaborators, Inadequate
Non-compliance
International
enforcement,
with DRR issues,
technical and Weak institutional e.g.
hazard
financial
collaboration and development,
support.
coordination.
Inadequate
National
Poor data base on information among
technical and CC
and
DRR governmental
financial
issues.
institutions.
support.
Conclusion: The existence of a legal regime for the prevention of disasters coupled with the
existence of relevant institutions and resourceful collaborators at both international and
national level will help offset the constraints and challenges militating against disaster risk
reduction resulting from climate change.
To reduce the Legal regime – High
Inadequate
International
risk of bushfires PNDCL
229 community
equipment for fire protocols
against
response,
fighting
including
bushfires,
international
Inadequate
ECOWAS
Relevant
technical
and enforcement laws treaties for free
institutions, i.e. financial
and byelaws
movement of
Ghana National support
Financial resources people
and
fire
Service,
are not adequate
animals
Forestry Service
Accessibility to fire
Division,
prone areas
NADMO MOFA,
Inaccessibility
to
Page 40 of 52
EPA,
Dist.
most
vulnerable
Assemblies,
communities
CSOs
Conclusion: The existence of a legal regime for the prevention of disasters coupled with the
existence of relevant institutions and resourceful collaborators at both international and
national level will help offset the constraints and challenges militating against disaster risk
reduction resulting from climate change.
Table 3.4 Application of POCC
Undertake a POCC analysis on the summary of key CC and disaster risk reduction related issues
identified to determine the district’s capacity to cope with and mitigate their impact on the district’s
development process.
Issues to be Potentials
Opportunity
addressed
(From baseline
situation)
To reduce
the risk of
flooding in
the district.
Constraints
Existence of
legal regime.
a Willing
and Inadequate
resourceful
funding.
Existence
of collaborators.
Inadequate
relevant
International
enforcement.
and
national Weak
institutions.
and institutional
Human resource technical
financial
collaboration
capacity
support.
and
Logistics
and
National
coordination.
equipment.
technical
and Poor data base
financial
on CC and DRR
support.
issues.
Challenges
Ignorance of CC
and DRR issues.
Non-compliance
with DRR issues,
e.g.
haphazard
development.
Inadequate
information
among
governmental
institutions.
Conclusion: The existence of a legal regime for the prevention of disasters coupled with
the existence of relevant institutions and resourceful collaborators at both international
and national level will help offset the constraints and challenges militating against
disaster risk reduction resulting from climate change.
Table 3.5 Revision from the NADMO group on the POCC
Step 2: Prioritisation of summarised key issues including CC and disaster risk reduction
Adopt a participatory approach to prioritise the key CC and disaster related issues to support the district in
allocating resources to support adaptation and mitigation of the CC and disaster related issues. This
should be done at a stakeholders’ workshop.
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Step 3: CC/DRR incorporated into the Development Goal, Objectives and Strategies
Develop one broad Goal that incorporates CC and disaster related issues in the district. Formulate specific
objectives and strategies to aid adaptation and mitigation of the identified CC and disaster related issues.
Step 4: Development of PoAs and AAPs





CC/DRR incorporated into the development of composite programmes with indicative financial
plan.
Use the approved plan preparation format (annex) to prepare the PoA that integrates CC and
disaster related issues for the implementation period.
Use the approved plan preparation format (annex) to prepare the AAP on CC and disaster risk
reduction on annual basis for the duration of the plan.
Communication strategy - Design a strategy to communicate the results of the implementation of
CC and disaster related activities to relevant stakeholders and also receive feedback from them.
Incorporate CC/DRR into the implementation arrangements of PoAs/AAPS with budget and
communication strategy.
Step 5: Implementation, monitoring and evaluation
Incorporate CC/DRR issues into the implementation, Monitoring and Evaluation system of the Assembly.
Steps in M & E on Climate Change and Disaster Related Issues
Step 1a:
Stakeholder identification
Identify all stakeholders needed for the implementation and management of the CC and disaster related
projects and activities. These stakeholders should be derived from those to be involved in the
implementation of the PoAs and AAPs.
Step 2a:
Identification of roles and responsibilities of stakeholders
Identify specific roles and responsibilities to be performed by each stakeholder in respect of the
implementation of activities in the AAP under the CC and disaster related issues. Efforts should be made
not to exclude critical stakeholders as their absence may hinder the achievement of the expected output
e.g. NADMO, NCCE etc.
Step 3a:
Capacity assessment
It is important to assess the capacities of stakeholders in relation to the performance of their roles and
responsibilities during the implementation of AAPs. Capacity assessment should not be limited to training
only but should include the provision of necessary logistics, equipment as well as other needed resources
to support smooth implementation of activities. In a situation where gaps are identified, efforts should be
made to bridge these gaps in order to enhance their effectiveness and efficiency during implementation.
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Step 4a:
Identification of Indicators
There is a need to identify two sets of indicators; indicators for risks/vulnerability and performance
indicators. This will enable the DPCU identify and formulate appropriate interventions and monitor CC
and DRR interventions within the district plan. The identification and selection of indicators should bear
in mind the level of vulnerability of the region, population or sectors to CC and DRR related issues. This
will facilitate the decision-making process. In identifying the appropriate adaptation measures or options
at the various levels, i.e. district, sub-district, community and household level, the needs and perspectives
of the various stakeholders should also be considered. There is the need to identify a specific method for
the selection, aggregation and assessment of indicators and this method must be transparent and
understandable. This will ensure that the results are used and can be verified by experts and stakeholders
and validated in the field. The ultimate aim is to ensure that information derived from the indicators is
turned into concrete action.
ENDA: Capacity strengthening in climate change vulnerability and adaptation strategy assessment
Risk/Vulnerability
Bio-physical
Options/Responses
Social
Bio-physical
Risk of flooding
Income levels of people
Land use systems
Risk of drought
Level of access to basic
services
Agricultural
diversification
chain)
Pest infestation
Agricultural lands at risk
Urban areas at risk
Bushfires
Population at risk
Loss per disaster
Excluded
marginalized
Insurance
climate risks
(value
Production
systems(small
to
medium scale industrial
production)
Infrastructure at risk
and
Social
against
Building codes
Early warning systems
Project relocation
Reafforestation
Crop adaptation
Ecosystem rehabilitation
Access to micro-credit)
Table 3.6 Example of indicators
These indicators are meant to identify the specific risk or vulnerability confronting the population,
geographic area or sector in question and thus help the DPCU to identify relevant options or responses
to address the risks. The responses identified should result in concrete actions/interventions within the
AAP. Performance indicators should also be identified for each intervention within the AAP on CC and
disaster risk reduction related activities. These indicators should further be categorized in terms of
input, output, outcome and impact. The purpose of these indicators is to enable stakeholders assess the
achievement of set targets in relation to the interventions.
Step 5a:
Preparation of Calendar of events
Page 43 of 52
Develop a Calendar of events to indicate when critical events and outputs would be expected. This
should include but not limited to when monthly/quarterly reports, mid and annual reviews would take
place. It should also include when stakeholders should expect reports from implementing agencies.
Step 6a:
Development of Reporting Format
CC and disaster risk reduction related issues are cross-cutting and therefore should be captured in all
reports on the development of the district. The report should highlight the challenges and lessons learnt
in the implementation process. Some of the salient issues should include the impact of CC and disaster
related issues on the following:











The vulnerable, Coastal zones
Education
Health
Agriculture
Socio-cultural
Environment
Energy
Water and Sanitation
Tourism
Industry
Population
Page 44 of 52
Chapter Four
4.0: Conclusion
Climate change is a major developmental issue for the country. It has brought massive destruction of the
country’s infrastructure, agriculture and other key economic sectors. This situation has arisen as a result
of ad-hoc measures of mainstreaming climate change into district development plans. The preparation of
this guidebook has provided direction on long-term measures to mainstream climate change and disaster
risk reduction into district development plans. The steps for drawing national and district plans that is
provided in this Guidebook is a major step in mainstreaming climate change and disaster risk reduction
into district development plans.
It is also interesting to note that the simple language used and the arrangements of the chapters make it
easier for the understanding of the guidebook by all users particularly those at the district level.
Furthermore the steps that have been designed to monitor and evaluate the CC/DRR are very SMART
and could be rapidly used in this process. Judging from the participatory approach used in the preparation
of the Guidebook it believed that the information provided would be useful in the mainstreaming
CC/DRR fist at the ten (10) pilot districts and later to other districts in the country.
Page 45 of 52
References
1. Agyemang Bonsu et al; correlation between climate ,poverty and health
2. Care Hand BooK. Climate vulnerability and Capacity Analysis
3. Climate change:an integrative process ,modified IPCC,2001
4. Contribution of agriculture to Ghana’s GDP. (2005 National Budget)
5. Davis, Haghebaert and Peppitt, Hazard-related vulnerabilities and capacities of different
sectors (2004)
6. Definition of mitigation (IPCC,2007)
7. Dodman D. Ayers J, and Hugs. ‘In State of the World 2009’ Building Resilience clip5
8. Hannah Reid and Saleemul Hug, ‘Adaptation to Climate Change’ An HED Briefing paper, 2007
9. Intergovernmental panel on climate change (IPCC) working group, third Assessment
Report.AnnexB;Glossary of ters,2001
10. ISDR climate change related risk, (2005)
11. ISDR Disaster and risk reduction
12.
Leary Neily et al, AIACC Working Paper No 48: a stitch in time Lessons for Climate Change
Adaptation for climate change Adaptation May 2007 pg.7
13. Smit B. Center for Environmental Economics and Policy in Africa, CEEPA, Pretoria. South Africa
and BenhinJ University of Geulph, Canada September 04, 2004
14. Smith et al, intergovernmental Panel on climate change (IPCC) definition and adaptation.2001
15. The Hyogo Framework for Action (HFA) 2005-2015
16. UN definition of Disaster
17. UNEP, ‘The Global Mechanism and UNDDP; Generic Guidelines for mainstreaming Environment
with a particular focus on Drylands into National Development Framework Drafts., 1 st Edition
August 2007
18. UNFCCD Definition of climate change
Page 46 of 52
Appendix I: Criteria for the Selection of Pilot Districts
District
Fanteakw
a
Atwima Kwawuma
LedzekukuKrowor
Atebubu Amantin
Ket
Eco zone
Climate
change
Poverty
incidence
Semi-deciduous
forest
Rainforest
Coastal
Forest
Guinea
/Sudan
Coastal
45
Deforestati
on
45
Deforestati
on
Assembly
Type
DA
DA/New
New
Region
E/R
ASH/R
G/A
Municipality
Desertific
ation
SLR/Coastal
erosion
69
46
DA
Municipality
B/A
V/R
C/R
Gomoa
Apam
Aowin
Suaman
Coastal
Rain Forest
Deforesta
tion
Page 47 of 52
58
DA
29
DA
W/R
Appendix II: Potential Climate Impacts and Proposed Adaptation and Mitigation
Strategies
Potential Climate Change
Vulnerability
Sectors
Agriculture





Harvest failures from improper
adaptive strategies
Reduce biological productivity
and loss of forest cover
Progressive loss of non-timber
forest products
Increased land degradation and
loss of arable land
Reduction in livestock size and
nutrition.
Adaptation Strategies







Marine

ecosystem
and coastal
zone

infrastructure





Potential risk from sea level rise
such as coastal inundation and
erosion
Salt water intrusion into fresh
water resources
Disruption
of
sources
of
livelihoods e.g. fishing and
agriculture
Population displacement
Invasion and destruction of
mangrove ecosystem, coastal
wetlands and beaches along with
their associated economic and
social importance such as being
sites for migratory birds
Loss of habitat of several species
including marine turtles
Risk to life, structures and
property









Development of drought tolerant and
flood resistant varieties.
Breeding of early or extra early
maturing genotypes.
developing food insurance schemes;
Educating farmers to plant in low
population densities so as to reduce
competition for scarce or limited soil
moisture
Encourage farm level adaptation such
as shift in planting dates and
modifying the amount and timing of
fertilizer application
Shifts in natural production centres
for various food crops areas where
comparative advantage can be
obtained.
Enhancing food security measures by
storing food in national banks
negotiating regional water-sharing
agreements;
providing efficient mechanisms for
disaster management;
developing desalination techniques;
planting mangrove belts to provide
flood protection;
planting salt-tolerant varieties of
vegetation;
improving drainage facilities;
establishing setback policies for new
developments;
Devising flood early warning
systems.
The use of set back policies for all
underdeveloped areas within the
coastal zone. This would prevent the
construction
of
immovable
structures within hazard areas.
Human

Health
and
Settlement
Possibility of emergence of new 
disease vectors in some areas

establishing setback policies for new
developments
improving drainage facilities
Energy,

Industry and
Financial

Services
Disruption
in
industry
productivity due to possible
crises in the energy sector
Disruption in the supply of raw
materials e.g. from agriculture,
fisheries and forestry
Potential impact on interregional trade
Disruption of rainfall patterns
will affect Akosombo dam (30%
of our energy sources)
Higher
risk
of
property
insurance
Possible disruption of banks’
lending portfolios
Possible
reduce
biological
productivity
Alteration of species (flora and
fauna) composition in the
different ecological zones.
Alteration
of
vegetation
structure
Loss of biological diversity
Pollution
of
fresh
water


Development of woodlot
Promote and develop energy
efficient technologies
Promotion of energy conservation
especially in large energy consuming
industries.
Monitor and control emissions from
industries and transport sectors
Promote and develop alternative
energy sources such as biomass,
wind, biomass, mini-hydro etc.




Biodiversity



Water
Resources









Reafforestation
Ensure the cultivation of species in
the environment that they are
adapted to.
Establish land use plan for hot spots
Devise flood/drought early warning
systems
Page 49 of 52
and wetlands.




resources

Disruption of fishing activities
Reduction in underground Water 
levels
Drying up of river courses
resulting from forest losses in
headstream areas
Threat to biodiversity e.g.
migratory birds
Provide alternative skill training for
fishing communities
Desalinization of water
Adaptation to climate change refers to adjustment made in natural or human systems in
response to actual or expected climate stimuli or their effects in order to moderate harm or
make use of beneficial Opportunities.1 this may be achieved through addressing the current
sources of vulnerability among the different groups. By virtue of being a party to the United
Nations Framework Convention on Climate Change (UNFCCC), the government of Ghana
recognizes and supports the need to address climate change.
Vulnerability refers to the potential to be adversely affected by an event or change. The UN
Intergovernmental Panel on Climate Change (IPCC) considers vulnerability to be a function of
three aspects of a system: its exposure; sensitivity; and adaptive capacity.15 Exposure refers to
the physical hazards or changes that a system experiences due to global warming. The
sensitivity of a system and its economic activities to particular climatic changes, such as
reduction in rainfall, also shapes vulnerability. The existent state or performance of individuals,
groups or systems in terms of ability to secure livelihoods or basic needs like health, education,
food and income is emphasized by some authors as the most important aspect of vulnerability,
however.16 A system that is already performing poorly in these aspects may find that the
additional stress of a climatic change triggers severe effects in terms of loss of lives, health,
income and welfare. In addition, the ability to cope with or recover from impacts, as well as the
capacity to adapt to longer term changes, may be poor. Vulnerability may be considered at many
levels, including individual, household, village and national levels. Adaptation to climate change
refers to responses to actual or expected climate changes or their effects. 17 According to the
IPCC18 such responses include changes in processes, practices or structure either voluntarily or
planned to minimize potential damages or to take advantage of opportunities associated with
changes in climate.
Effective adaptation strategies imply reducing present and future vulnerability to climate
change19 and include coping strategies or changes in practices and processes in light of the
perceived climatic change.20 Such actions can be taken by individuals, households, governments
and other stakeholders. Adaptation may include policy measures that reduce vulnerability and
enhance adaptive capacity, or the ability of people and systems to adjust to climate change.21
Page 50 of 52
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Fig 3… Examples of Impacts of climate change on communities
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