Governance for Ecosystem based Adaptation:

Sixaola river basin

The Sixaola River basin has an extension of 2.848 km² and is shared by Costa Rica (81%) and Panama (19%). This is a culturally

wealthy area with high biodiversity that has various protected areas, among them the La Amistad International Park, which was declared a World Heritage site, a Biosphere Reserve and recognized as an Important Bird and Biodiversity Area (IBA) and Key Biodiversity Area (KBA). The San San Pond Sak Wetland and the coastal lagoon, Gandoca-Manzanillo at the National Wildlife Refuge of the same name with renown Ramsar sites. Also, it is an area with conservation areas such as the Palo Seco Forest Reserve in Panama, the Chirripó National Park and the Biological Reserve of Hitoy-Cerere in Costa Rica.

Approximately 33,000 inhabitants live in the Talamanca (Costa Rica) and Changuinola (Panama) municipalities, which classify with the lower human development indexes nationwide for each country. The majority of the population is mestizo and there exists groups of indigenous people such as the Bribri and Cabécar in Costa Rica and the Bribri, Naso an Gnäbe in Panama. The principal livelihoods are the banana, plantain and cocoa production, as well as farming and organic production geared toward the smaller local markets. Culturally, the land use system of the indigenous people is based on a model of polyculture or agroforestry systems.1 There are also economic activities such as tourism, local trade, and fishing.

UBICACIÓN

Location

Panama

Costa Rica

81%

19%

2.848,3 km2Area:

1 Deutsch, N. et al. (2016). The Sixaola River Basin, Costa Rica/Panama: People in Nature Interdisciplinary Situation Analysis. People in Nature. Working Paper, No.4. Gland, Switzerland: IUCN and CEESP.

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World Heritage and Biosphere Reserve

International Park – La Amistad(Costa Rica - Panama)

Gandoca-Manzanillo National Wildlife Refuge*Biological Reserve

Hitoy-Cerere ChirripóNational Park

* Sitio Ramsar

Protective ForestPalo Seco

WetlandSan San Pond Sak*

Protected Areas

Lari River

Urén River

Coen River

Telire River

Yorkín RiverSixaola River

According to the climate change scenarios for the Sixaola river basin, an increase in the average temperature and rainfall is expected for the period 2071-2100, based on the PRECIS model in the A22 emission scenario. According to this, the main climatic threats will be the increase in floods, as well as the loss of crops associated with changes in rainfall patterns that affect flowering and the increase of pests and diseases (such as the monilla in cocoa production).3 It is noteworthy that the basin records socio-environmental problems derived from unsustainable agricultural practices, such as the use of agrochemicals in large areas cultivated with bananas and the unplanned expansion of the tourism industry.4

The inadequate multilevel and multisectoral coordination for watershed management and limited knowledge about the benefits that ecosystems provide for adaptation make integration difficult for effective joint actions to address climate change. That is why the Project AVE (Adaptation, Vulnerability and Ecosystems) has worked on: 1) awareness of various actors on climate change and the benefits of good management and restoration of ecosystems for adaptation, 2) the implementation of actions for Ecosystems based Adaptation (EbA), 3) generation of evidence on the effectiveness of the EbA and 4) the strengthening of the binational governance structure for the management of the basin, that is, of the Binational Commission of the Sixaola River Basin (CBCRS). Everything is part of an escalation strategy that seeks the incorporation of EbA measures into adaptation plans and programs at different levels of government.

Socioeconomic activities

HIGH BASIN: Subsistence agriculture

MIDDLE BASIN: Cocoa, banana and plantain

LOWER BASIN: Banana, plantain and tourism

TURISMO, COMERCIO Y PESCA Otras actividades socioeconómicas

1production without chemical applications.2production with agrochemicals.

ANCESTRAL AND TRADITIONAL USE¹/ CONVENTIONAL²

Actividades socioeconómicas

CUENCA ALTA: Agricultura de subsistencia

CUENCA MEDIA: Cacao, banano y plátano

CUENCA BAJA: Banano y plátano

TURISMO, COMERCIO Y PESCA Otras actividades socioeconómicas

1producción sin aplicaciones químicas.2producción con agroquímicos.

USO ANCESTRAL Y TRADICIONAL1/ CONVENCIONAL2

Actividades socioeconómicas

CUENCA ALTA: Agricultura de subsistencia

CUENCA MEDIA: Cacao, banano y plátano

CUENCA BAJA: Banano y plátano

TURISMO, COMERCIO Y PESCA Otras actividades socioeconómicas

1producción sin aplicaciones químicas.2producción con agroquímicos.

USO ANCESTRAL Y TRADICIONAL1/ CONVENCIONAL2

Población

INHABITANTS33.650 High Basin:

Middle Basin:

Lower Basin:

< 1 inhabitant per km2

16 inhabitants per km2

72 inhabitants per km2

2 National Meteorological Institute (IMN) (2012). Regionalized climate change scenarios for Costa Rica. San José Costa Rica: IMN.

3 O’Neal, X. (2016). Experts warn about the effects of climate change on food security, [website], (October 19, 2016). https://www.ucr.ac.cr/noticias/2016/10/19/experts-alert-about-effects-of-climate change-in-the-food-security.html Consulted June 15, 2018.

4 EPYPSA-INCLAM (2006). Regional Strategy for the Sustainable Development of the Binational Basin of the Sixaola River Basin. San José, Costa Rica: EPYPSA-INCLAM.

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The CBCRS was established in 2009 as the maximum body for the implementation of the Integrated Ecosystem Management project in the Binational Sixaola River Basin, known as the Sixaola Binational Project, which was under the scope of the Costa Rica-Panama Border Development Agreement and it sought to achieve greater binational coordination for the integral development of the cross-border region. To achieve this, it counted, among others, on the support of the Inter-American Development Bank (IDB). In 2012, a strategic alliance was formed between the Executive Secretariats

of the Costa Rica-Panama Border Development Agreement, the Sixaola Binational Project and IUCN, with the aim of contributing to the strengthening of the CBCRS as an instance of promotion and leadership of the good governance and sustainable development in the basin once the Sixaola Binational Project had been completed. The CBCRS is attached to the Costa Rica-Panama Border Development Agreement.

Presently, the CBCRS has 35 members in Costa Rica and Panama:

Strengthening governance structures:Binational Commission for the Sixaola River Basin (Spanish: CBCRS)

5 Porras, N. (2016). The Sixaola River Basin: Costa Rica and Panama. San José, Costa Rica: IUCN.

COSTA RICA MEMBERS PANAMA MEMBERS

1. Ministry of Environment and Energy 1. Ministry of Environment

2. Ministry of Health 2. Ministry of Health

3. Ministry of Public Works and Transportation 3. Ministry of Public Works

4. Ministry of Planning and Economic Policy 4. Ministry of Economy and Finance

5. Ministry of Agriculture and Farming 5. Ministry of Agricultural Development

6. National Commission on Risk Prevention and Emergency Attention

6. National System of Civil Protection

7. Costa Rican Tourism Board 7. National Authority of Tourism

8. Department of Immigration 8. National Immigration Service

9. Customs Administration 9. National Customs Authority

10. Municipality of Talamanca 10. Municipality of Changuinola

11. Executive Secretariat of the Agreement 11. Municipality of Bocas del Toro

12. Executive Secretariat of the Agreement

One Representative from the Organized Civil Society:

12. Producers Association

13. Community Development Organizations or Associations

14. Tourism Associations

One Representative from the Organized Civil Society:

13. Producers Association

14. Community Development Organizations or Associations

15. Tourism Associations

Indigenous Representation from:

15. ADITIBRI

16. ADITICA

17. Keköldi

Indigenous Representation from:

16. Ngäbe

17. Naso

18. Bribri

Also, various institutions with projects within the Boarder Agreement participate in the meetings of the CBCRS, such as the Secretariat for the SICA Agricultural Council, the National Institute for Rural

Development of Costa Rica, the Institute for Agricultural Research of Panama, the University of Panama and IUCN. Its representatives do not contribute to the quorum.

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The objective of the CBCRS is “the coordination and development of the necessary actions for the integrated management of the binational basin of the Sixaola River, the conservation of natural resources and biodiversity, the promotion of sustainable production and the strengthening of the binational institutional framework, under the Border Agreement and the national legislation on basin management in both countries”.6 As alluded to in this citation, the CBCRS Internal Regulation reflects in its Article 6 the ecosystem approach as part of a management strategy.

The CBCRS has a broad membership and participation of various sectors of government, civil society and the local private sector of both countries. This institution facilitates the approach of common challenges in a coordinated way at the binational level, for example: through joint patrols of park rangers throughout the La Amistad International Park (PILA) or emergency care, such as floods, in a coordinated manner between institutions of the two countries.

6 Regulations of the CBCRS (2017). Article 6. San José, Costa Rica.

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The actions to strengthen the CBCRS to improve multisectoral and multilevel coordination for the adoption of adaptation measures included: 1) awareness of the EbA, 2) exchanges of experiences on adaptation between local governments and 3) the socialization of the Internal Regulations of the CBCRS, as well as support for the preparation of a Strategic Plan for Transboundary Territorial Development (PEDTT, for its acronyms in Spanish) 2017-2021.

Among the stakeholders that were prioritized in the intervention strategy are farmers, indigenous authorities, young people, educators, municipalities, ministries and government institutions. Knowledge was provided to farmers on Ecosystem based Adaptation (EbA) measures for integrated farms7, multisectoral and multilevel coordination spaces were promoted for the organization of the V Agrobiodiversity Fair8 and the IV Conference on Binational Reforestation. The bet is that these activities are supported by the CBCRS member institutions based on the commitments reached in the organizing committees of the fair and the reforestation days.

The municipalities of the basin have also been involved in the activities of the project, through their participation in the Meetings of Natural Solutions and Governance to face Climate Change, whose objective has been to raise awareness about the benefits of the EbA approach and the legal and policy frameworks existing publicly in both

countries, which facilitate multidimensional integration to face climate change. In addition, the municipalities were part of the Gathering of Local Governments against Climate Change, held in Panama City on December 6 and 7, 20179, where they exchanged adaptation experiences with representatives of 30 local governments in the Mesoamerican region.

The project also provided support and technical inputs for the preparation of the PEDTT 2017-2021. The PEDTT is the result of an extensive process of multisectoral and multilevel participation of actors of the binational basin. The Environmental Dimension of the PEDTT includes the strengthening of actions for the conservation of the basin through a proposal of cross-border ecological connectivity as an adaptation measure.

Because the adaptation actions implemented in the basin are geared towards the development of agroforestry systems, a close coordination has been sought with the ministries and agencies of the agricultural sector, which has led to the creation of a farm network where the EbA measures are shared. All these activities have promoted dialogues with the directorates for climate change in the ministries of environment of both countries, which coordinate the climate agenda. The objective is that the apprenticeships on the implementation of solutions based on nature for adaptation are incorporated into public policies.

Multisectoral and multilevel coordination

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7 Cruz Marín, E., Pérez de Madrid, M., McCarthy, R. (2019). ´Fincas integrales de la cuenca del Río Sixaola´. Catálogo de Adaptación basada en Ecosistemas: Serie 4 Evidencia, N° 10. San José, Costa Rica: UICN.

8 Cruz Marín, E., Pérez de Madrid, M., McCarthy, R. y Marín Cabrera, M. (2019). ´Feria de la agrobiodiversidad de la cuenca del Río Sixaola´. Catálogo de Adaptación basada en Ecosistemas: Serie 4 Evidencia, N° 9. San José, Costa Rica: UICN.

9 IUCN (2017). Panama hosted Meeting of local governments on climate change, [website], (December 7, 2017). https://www.iucn.org/es/node/29510 Accessed March 11, 2019.

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Greater recognition and ownership of the benefits of nature-based solutions for multiple-level adaptation of basin governance.

• At a local level, the producing families have acquired an understanding on EbA and have set up a network of more than 40 farms (horizontal coordination). This network has been set up in conjunction with the ministries of agriculture, such as the Ministry of Agriculture and Livestock of Costa Rica and the Agricultural Research Institute of Panama (IDIAP) (vertical coordination).

• At a subnational level with a regional scaling up, the municipalities of Talamanca, Changuinola, Bocas del Toro and the Development Association of the Bribri Indigenous Peoples (ADITIBRI, for its acronym in Spanish), signed together with another 30 local governments, the Declaration of Local Governments for Climate Change, during the event carried out in Panama City in December 2017.

• At a national level, the experiences generated in the basin through the implementation of the EbA measures advise on public-private policies and initiatives related to climate change.

• In Panama, the Agrobiodiversity Fair was replicated after a technical visit from the provincial Governors.

• In Costa Rica, the technical inputs and lessons learned from EbA contributed to the document National Policy on Adaptation. This policy10 incorporates the EbA approach as one of its transversal axis and is accompanied by Executive Decree N°41091-MINAE, which promotes community and ecosystem based adaptation.

• At an international level, actions of the AVE project contribute to the fulfillment of the obligations before the Paris Agreement of Costa Rica and Panama:

• The Nationally Determined Contribution (NDC) of Costa Rica includes implementing sustainable productive systems, protecting water sources and increasing forest cover.11

• The NDC of Panama contains Mitigation commitments associated with Land Use and Forestry. In particular, the actions contribute to the advancement of the initiative “Alliance for One Million”12 in relation to establishing agroforestry and water protection13 systems over an area of one million hectares.

• The actions of the binational basin also contribute to the Sustainable Development Goals (SDG):

10 Ministry of Environment and Energy of Costa Rica (MINAE). (2018). National Policy on Adaptation of Costa Rica. San Jose, Costa Rica: MINAE.

11 Government of Costa Rica and Ministry of Environment and Energy of Costa Rica (MINAE). (2016). Nationally Determined Contribution (NDC). San Jose, Costa Rica.

12 This initiative seeks to restore one million hectares in the next 20 years: www.alianzaporelmillon.org

13 Government of the Republic of Panama. Nationally Determined Contributions to the Mitigation of Climate Change (NDC) before the United Nations Framework Convention on Climate Change (UNFCCC). Panama City, Panama: Government of the Republic of Panama

Clean water and sanitation, in the integral management of water resources through cross-border cooperation.

Action for the weather, in the integration of climate change measures into national policies, strategies and plans.

Peace, justice and solid institutions, by promoting inclusive decision-making processes, participatory and representative at all levels.

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Results and Scaling Up

Local government’s representatives during the Gathering of Local Governments against Climate Change.

• At a binational level, the CBCRS has a strategic plan (PEDTT) for the 2017-2021 period, with an strategic line coined Protection and Environmental management that supports EbA actions.

• In addition, the EbA´s implementation lessons learned are introduced in new projects of integral farms that propel the CBCRS at the middle and lower parts of the basin.

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Challenges and next stepsIn order to consolidate the advances in governance for the adaptation to climate change and the scaling up of the actions of EbA, it is important to reinforce investments in the project portfolio of the PEDTT. In the “economic-productive” development dimension, the strategic objective of promoting agricultural diversification at the binational level must be strengthened. In the “environmental” dimension it is necessary to support the actions of protection and conservation of the basin through the cross-border ecological connectivity as a measure of adaptation to climate change, as well as the management of the water resource in the basin jointly.

In addition, regarding the “institutional policy” dimension, it is necessary to continue consolidating CBCRS capacities through technical and financial support, in such a way that actions within the framework of the PEDTT can be carried out effectively. Finally, it is necessary to provide accompaniment to the municipalities to implement solutions based on nature with a multisectoral approach in territorial planning as a measure of adaptation and reduction of disaster risk in the binational territory.

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Governance for EbA: DefinitionGovernance for EbA refers to the norms, institutions and processes that determine the way in which power is exercised and responsibilities are distributed, and how decisions are made to moderate potential harms, take advantage of beneficial aspects or resist the negative consequences of climate change, making use of solutions based on nature. This model of governance must be flexible, multidimensional, participatory and ecosystemic.

The norms and institutions, as well as the decision-making processes, are essential to address the various social and environmental problems that contribute to socio-ecological vulnerability to climate change. For this reason, the AVE project seeks to improve governance for EbA (see Booklet No.1, Governance Series).

AuthorsMauricio Luna Rodríguez and Elías Cruz Marín.

EditionLorena Martínez Hernández, Alejandro Iza and Marta Pérez de Madrid.

About the AVE projectThe AVE project: Adaptation, Vulnerability & Ecosystems seeks to scale up the Ecosystem-based Adaptation (EbA) approach through the strengthening of capacities to address climate change, the integration of political, legal and institutional frameworks and the gathering of evidence on their multiple benefits to increase resilience and reduce the vulnerability of people and nature. Its implementation is carried out since 2015 in six Mesoamerican countries (Mexico, Guatemala, Honduras, El Salvador, Costa Rica and Panama) with the support of the Federal Ministry of the Environment, Nature Protection and Nuclear Safety (BMU) of Germany, and executed by the Environmental Law Centre (ELC) and the Regional Office for Mexico, Central America and the Caribbean (ORMACC) of the International Union for Conservation of Nature (IUCN), and in coordination with member organizations and partners such as the Honduran Environment Foundation and VIDA Development, the Salvadoran Ecological Unit, the Natural History Society of Soconusco, the Talamanca Caribe Biological Corridor Association and the Trinational Commission of the Trifinio Plan.

For more information visit: https://www.iucn.org/node/594 - Contact: ebagovernance@iucn.org

About IUCNIUCN is a membership Union composed of both government and civil society organisations. It harnesses the experience, resources and reach of its more than 1,300 Member organisations and the input of more than 10,000 experts. IUCN is the global authority on the status of the natural world and the measures needed to safeguard it.

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International Unionfor Conservation of Nature (IUCN)

Regional Office for Mexico, Central America and the Caribbean (ORMACC) San José, Costa Ricaormacc@iucn.org

www.iucn.org/ormacc

Environmental Law Centre (ELC)Bonn, Germany

ELCSecretariat@iucn.org

www.iucn.org/law