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InfoBrief 44 VN Web
InfoBrief 44 VN Web
g 1 nm 2012
CIFOR
www.cifor.org
Cc ni dung chnh
Ba xut v cp hoc quy m a l cho vic hch ton v khuyn khch REDD hin vn ang trong qu trnh tho lun: h tr trc tip cho cc d n (cp a phng), cho cc nc (cp quc gia), hoc lng ghp c hai hnh thc. Tip cn a phng hay tip cn d n c th to iu kin cho ngi dn tham gia rng ri ngay t ban u v c sc hp dn i vi cc nh u t t nhn. Tuy nhin, n c th to ra r r (tng lng kh pht thi bn ngoi ranh gii vng d n) v khng gii quyt c cc nguyn nhn su xa ca nn ph rng v suy thoi rng. Tip cn quc gia cho php thc hin cc chnh sch su rng hn, gii quyt c vn r r cc b v to quyn s hu trong nc. Tuy vy, trong tng lai ngn v trung hn, cch tip cn ny ch kh thi mt vi quc gia, do n kh c th t hiu qu trong nhng trng hp m qun l nh nc d tht bi ; v n cng kh vn ng c u t t khu vc t nhn hay khuyn khch s tham gia ca chnh quyn a phng. Tip cn lng ghp l mt c ch kh thi hn c. N cho php cc nc trin khai REDD thng qua cc hot ng a phng v tin dn theo hng tip cn quc gia, hoc c hai hnh thc ny song hnh trong mt h thng m trong cc khon tn dng REDD c to ra bi c cc d n v cc c quan chnh ph, nh nng cao hiu qu tim nng ca c hai cch tip cn. Tuy nhin, kh khn ca tip cn ny l phi phi hp hi ha c c hai cp .
Gim pht thi do ph rng v suy thoi rng (REDD) l mt c ch ti chnh c xut khuyn khch cc n lc gim pht thi trong ngnh lm nghip cc nc ang pht trin. REDD s c th tr thnh mt b phn ca mt iu c quc t v kh hu v iu ny ang c tho lun trong khun kh Cng c Khung ca Lin Hip Quc v Bin i Kh hu (UNFCCC). Cu hi chnh c t ra khi tho lun l quy m hch ton c th thc hin v mc khuyn khch c th p dng vi cc hot ng REDD. Liu c nn gii hn vic hch ton quc t cc hot ng cp a phng (hoc d n), hay vic gim pht thi cp quc gia, hay c hai (tip cn lng ghp) khng? Vic la chn cp hoc quy m a l cho vic hch ton v cp tn dng cho REDD s tc ng su sc n hiu qu, hiu sut v s cng bng ca c ch REDD (xem Hnh 1).
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Th hi n nh ng ng i mua tn d ng REDD
Ti p c n a phng
Ti p c n qu c gia
Ti p c n l ng ghp
Hnh 1. Ba gii php la chn cho vic hch ton v phn b tn dng REDD (cc ng mi tn th hin dng tin t nhng ngi mua quc t v lung thng tin xut pht t cc thc th a phng
cng nh mt cp quc t (vi mt c quan gim st v mt d n tp trung, v ng k tn dng). Nhng th thc v th tc c xy dng cho C ch Pht trin Sch (CDM) theo Ngh nh th Kyoto c th c coi l m hnh mu cho vic thit lp th ch thc hin REDD a phng. C ch CDM cho php cc nc pht trin (Ph lc I) thc hin vic bi hon cho lng kh nh knh m h thi ra bng vic h tr cc d n gim pht thi cc nc ang pht trin. Trong ngnh lm nghip, hin ch c cc d n trng mi v trng li rng l p ng c yu cu ny, nhng n nay cng mi ch c mt d n c ph duyt. C ch CDM c p dng thnh cng hn trong nhiu ngnh khc, c bit l ngnh nng lng vi gi tr ca th trng chnh nm 2007 l 7,4 t USD (Hamilton et al. 2008). Nguyn nhn chm tr ca cc d n CDM A/R l do cc lut l, phng php lun phc tp cng vi ph ng k khin chi ph giao dch tng cao; cc khon tn dng tm thi t cc d n khng c kh nng chuyn nhng; v vic loi nhng khon tn dng ny ra khi H thng Thng mi Kh thi ca EU (ETS). Hin nay ETS l th trng carbon ln nht vi tng gi tr 50 t USD nm 2007 chim 78% kim ngch trao i carbon ton cu (Hamilton et al. 2008).
Mt v d khc v tip cn a phng l cc d n ngn chn ph rng hot ng trn th trng carbon t nguyn. Cc giao dch trn th trng carbon t nguyn t kim ngch 330 t USD vo nm 2007, chim cha y 5% gi tr th trng CDM chnh. 80% giao dch trn th trng carbon t nguyn c s tham gia ca nhng ngi mua t nhn (Hamilton et al. 2008). Nhn vo cc thnh cng ca CDM cc ngnh khc, c cu t chc hin ti ca n v nhng kh khn m mt s nc c th gp phi khi trin khai cch tip cn quc gia i vi REDD, mt s thnh vin Cng c UNFCCC s cho rng c ch kiu d n cn c lng vo khun kh REDD ton cu. Vic a REDD vo CDM cng ang c tho lun trong cc cuc m phn v giai on hu 2012 trong khun kh Ngh nh th Kyoto (iu 3.9), cho d nhng thnh cng t i ca cc d n A/R cho thy cch tip cn REDD da trn d n s khng d gip nhn rng m hnhCDM.
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Tip cn quc gia ph hp hn vi vic gii quyt cc ng c su xa hn dn n ph rng v suy thoi rng: t rng lm nng ry ti Riau, Indonesia (nh: Ryan Woo)
vn ch quyn v tha nhn rng cuc chin chng nn ph rng i hi nhng thay i ln v chnh sch v nh vy, n c tim nng gim pht thi trn quy m ln hn. Cc chnh ph ng h tip cn quc gia d nh thnh lp mt h thng MRV quc gia v sau s thng cho cc mc gim pht thi tng ng vi mt mc tham chiu nh sn. Vic gim pht thi c th thc hin nh phn b cc khon tn dng carbon trao i c trn c s cc khon ti chnh chuyn giao t mt qu ton cu hay nhng c ch khc. S khng c khon tn dng no c cp ra th trng quc t cho cc hot ng gim pht thi quy m a phng. Ty theo iu kin ring, mi nc tham gia s phi chu trch nhim thc hin cc chnh sch v bin php gim pht thi do ph rng v suy thoi rng trn ton lnh th nhm c c cc khon tr cp quc t, trong c th bao gm mt h thng cung cp tn dng (chi tr dch v mi trng PES) cho cc cng ng a phng.
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quc t ng thi c hai cp : a phng v quc gia. Ngoi ra, cng mt thi im, cc nc khc nhau c th s dng cc c ch cp tn dng khc nhau. Theo hng lng ghp ny, th tc MRV v cc mc tham chiu cn phi hi ha gia cc cp quc gia v cp a phng. Vic chia s s lng tn dng gia 2 cp ny c th c m hnh ha da trn C ch ng thc hin theo Ngh nh th Kyoto. Sau mi giai on hch ton, quc gia s phi khu tr ton b s lng tn dng cp a phng nhn v cam kt ch thc hin trong tng s tn dng quc gia phn nh mc gim pht thi ton quc (xemhp1). Nu cp quc gia khng to ra c li ch v mt carbon th nhng hot ng c kim chng v xc minh c lp cp a phng s vn c thanh ton.
Tip cn a phng cho php s tham gia rng ri hn ca cc cng ng a phng v c sc hp dn hn i vi cc nh u t t nhn: nh gi cnh quan a ngnh, Ty Papua, Indonesia (nh: Manuel Boissiere)
nh gi cc hng tip cn
Hiu qu
i vi cc mc tiu v hiu qu carbon v gim kh pht thi, c s khc bit r rng gia 3 hng tip cn 3 gc chnh: (i) kh nng gii quyt vn r r; (ii) mc tham gia vn s nh hng n kh nng gim pht thi tng th s t c; v (iii) vic ci cch chnh sch ni chung vn s nh hng n chiu su, chi ph v s n nh ca vic gim pht thi. V tim nng, phm vi a l ca tip cn quc gia v tip cn lng ghp ln hn kh nhiu so vi phm vi ca tip cn a phng, nh vy c th gii quyt c vn r r cc b trong qu trnh hch ton v t c hiu qu cao hn (M-Co, Bo co T vn 2008). Tuy nhin, hin nay hu ht cc nc ang pht trin cha kh nng tham gia
theo hng tip cn quc gia v thiu c s h tng MRV v iu ny lm pht sinh vn r r quc t. Tuy vy, tnh linh hot ca tip cn lng ghp cho php hu ht cc quc gia c th tham gia sm hn v nh vy gim thiu (nhng cng khng th loi b hon ton) s r r quc t. Ci cch quyn hng dng t v ci tin qun tr l nh l nhng th d v hnh ng c th tr thnh nhn t chnh trong mt chin lc REDD quc gia. Tuy nhin, nh hng ca chng s kh quy v cc khu vc a l c th. Mt khc, nhng ci cch nh vy ni chung thng vt qu phm vi ca cc tip cn a phng hay tip cn theo d n. V th, tip cn quc gia c th s khuyn khch cc chnh sch c tnh chin lc v bao qut hn, em n kt qu su rng v lu di hn v gim pht thi. Cc nh u t khu vc t nhn c th lng l khi tr tin cho cc hot ng gim pht thi quy m quc gia v thng la chn u t vo cc khu rng c th cc a bn d n, tc l cc khu rng c lin h trc tip vi vic gim pht thi cng nh cc li ch khc, chng hn nh a
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dng sinh hc v xa i gim ngho. H t quan tm u t vo nhng khon chi tr xa vi cp trung ng v h kh kim sot c cc ri ro c th xy ra ti quc gia ni h u t. iu ny s khin cho s tham gia ca quc gia cng kh khnhn.
Hiu sut
Hiu sut chi ph ca cc hng tip cn REDD vi quy m khc nhau c th b nh hng bi 3 loi chi ph: (i) chi ph MRV; (ii) chi ph thc hin chnh sch; v (iii) hiu sut trong thanh ton chi ph c hi. Pht trin h tng MRV quc gia c th to hiu qu kinh t ng k v mt quy m. iu ny c ngha l hng tip cn quc gia c th em li hiu sut cao hn v chi ph trn mi n v gim pht thi i--xt cc-bon hoc trn mt n v din tch. V d, tip cn quc gia thun ty khng nht thit i hi phi tch s liu n cp tnh v cp huyn, nh gim c kch thc mu (s tiu chun) cn theo di. Hng tip cn lng ghp i hi nhiu chi ph hn v phi theo di v hch ton c cp quc gia v a phng. Yu t th hai nh hng n hiu sut l chi ph thc hin chnh sch REDD. Vic thc hin mt h thng theo di tn dng chi cho cc n v a phng (h thng PES quc gia) s lm pht sinh chi ph ng k d n vi cc c quan trung ng, kim chng v xc minh cng nh qun l cc hp ng. Tnh kinh t ca cc quy m khc nhau cng nghing v vic thc hin cp quc gia. Tuy nhin, mt h thng trn ton quc c th c tim nng gim pht thi nhiu hn vi chi ph thp hn, nhng n cng c th lm gim hiu sut do t quan liu v tham nhng. Hng tip cn a phng c th tn nhiu chi ph hn cho cc giao dch ni chung trn mi n v gim pht, nhng li c th hot ng vi hiu sut cao hn nh quy m nh hn v kh nng c qun l bi cc thc th t nhn c kinh nghim trong cc c ch th trng carbon v lun u tin cho cho ph v hiu qu. Cch tip cn quc gia c th bao gm nhng ci cch su rng v vic thc hin cc ci cch ny nhiu khi s tn km hn so vi vic thc hin cc chnh sch kiu PES. Trong mt s trng hp, cc ci cch c th cng l c hi tit kim chi ph, chng hn nh qua vic xa b cc hnh thc tr gi cho cc hot ng c nguy c lm gia tng ph rng v suy thoi rng.
Cc chi ph c hi ca vic bo tn rng (in hnh l li tc t nng nghip v khai thc g m t rng em li) m nhng ngi s hu quyn s dng rng thu c cng rt khc nhau. Nu bi thng cho ngi c quyn s dng ng theo cc chi ph c hi c th ca h, th chi ph chung s gim ng k. Theo kt qu nghin cu Brazil, cc tc gi Brner v Wunder (2008) c tnh mc tit kim chi ph ca cc khon chi tr c hch ton chi tit mt cch hon ho so vi vic bi thng mt mc c nh dao ng t 45-75%. S thit thc hn nu a vic hch ton chi tit cho cc khon chi tr vo cc tip cn a phng v c th vo mt phn ca tip cn lng ghp, do vic thc hin n mt h thng quc gia s rt tn km. Thc t cho thy khng d loi b nhng hot ng khng c tnh b tr (dn n nhng khon chi khng hiu qu) nh v d i vi h thng PES quc gia Costa Rica (Karousakis 2007). a dng ha cc mc chi tr l iu kh thi trong h thng quc gia, nhng s c s nh i gia vic thanh ton chi tr cho chi ph c hi vi cc chi ph giao dch, v cng c th l nh i gia vic thanh ton chi ph
Tip cn lng ghp c th linh hot hn trong vic gii quyt cc yu cu trong tng bi cnh c th: lm nghip cng ng Cam-pu-chia (nh: Cecilia Luttrell)
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+ C th trin khai ng b cc chnh sch rng hn Tip cn quc gia + Gii quyt c vn r r cc b + Quc gia ni thc hin REDD c t chhn Cc vn cha c gii quyt v mc tham chiu
+ Kt hp u im ca c 2 hng tip cntrn Tip cn lng ghp + Linh hot theo bi cnh ring tngnc + C th chuyn nhng vi khi lng lnhn Cc vn cha c gii quyt v mc tham chiu
+ C c cc chnh sch v chi tr bi thng c hch ton chi tit v ct gim chi tiu tngth Chi ph MRV cao (v i hi phi bc tch chi tit s liu qucgia) Kh khn trong vic iu ha gia 2 cp quc gia v aphng
+ Tng kh nng tham gia cho quc gia cng nh chuyn nhng vi khi lng ln hn cho cc nc ngho + C th hng ti cc nhm i tng ngho
c hi vi cc mong mun v tnh cng bng, do nhiu khi cc i tng hng quyn thuc nhm ngho nht li c chi ph c hi thp nht.
nng lc v cng c th ch quc gia, v gc chung hn l tng cng hiu qu qun l v trch nhim gii trnh ca cc quc gia bo m cho nhng nc ngho nht cng iu kin thamgia. i vi tnh cng bng trong phm vi quc gia, tip cn quc gia mang tnh tp trung c th lm hn ch s tham gia ca cng ng nng thn vo vic thit k v thc hin REDD. iu ny c th gy ra s bt bnh ng trong phn chia li ch cng nh qu trnh quc hu ha cc quyn v carbon. Cc dng ti chnh ln v mi c th lm tng nn tham nhng v thao tng nh nc, khin cho ngi ngho cng kh hng li. Cc chnh ph cng ch pha trn thng tin c sy cho tin trnh n phng ra quyt nh. (Foti et al. 2008), v t quan tm n vic dnh ra cc khon h tr bo m s tham gia rng ri ca a phng vo tin trnh REDD. Do , cch tip cn quc gia c nguy c to ra cc kt qu bt bnh ng t cc tin trnh
S cng bng
Mt c ch REDD nu ch p dng tip cn quc gia s c c th khng ph hp vi hu ht cc nc c thu nhp thp do h khng c c s h tng dnh cho MRV trong khi hiu qu qun l nh nc cn thp. V th, dng tin quc t c th s b ht v pha cc nc c thu nhp trung bnh nh Brazil chng hn. Tuy vy, hng tip cn a phng cng khng hn s tt hn trong trng hp ny theo kinh nghim rt ra t vic trin khai CDM. Nm 2007, khong 73% tng s tn dng CDM bn ra c c mc sn xut ti Trung Quc (Hamilton et al. 2008). iu ny cho thy mt yu cu bt buc, khng ph thuc vo bt c quy m tip cn no, i vi cng tc chun b nng cao
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thc hin bt bnh ng. Nhng mt khc, cch tip cn quc gia c th lng ghp tt hn vi cc chin lc pht trin ca t nc v em li nhng li ch pht trin lu di. Nhng cch tip cn a phng quy m nh hn v tip cn lng ghp c th s linh hot hn trong vic gii quyt cc nhu cu c th cc bi cnh c th. Bng chng t cc d n lm nghip cc-bon cho thy chng c th gip nng cao nng lc a phng, ci thin vic ra quyt nh c s tham gia ca ngi dn v qun l ngun li da vo cng ng (Corbera 2005). Tuy nhin, cc nh u t t nhn v cc t chc phi chnh ph lm cng tc bo tn li pha trn thng tin khi phn tch cc mi quan tm ca cng ng trong cc d n ca h. Cc th trng carbon ch yu c tc ng bi cc mc tiu bo v kh hu ton cu ch khng phi l phc v cc mc tiu kinh t - x hi a phng (May et al. 2004). V mt ny c cch tip cn quc gia ln a phng u i mt vi nhiu thch thc, tuy nhin, nhng yu t quyt nh mc tham gia cng nh cc i tng tham gia v qu trnh lin quan tng cp tip cn l rt khc nhau.
h tng, th ch v c ch qun tr cn thit cc khon tn dng quc gia. V l do , tip cn lng ghp s bo m s linh hot v p ng c s a dng v hon cnh cc quc gia khc nhau.
Kt lun
C ba hnh thc tip cn u c nhng u, nhc im v nhng ci gi ca n xt trn cc kha cnh hiu qu carbon, hiu sut chi ph v tnh cng bng. Tuy nhin, mt h thng lng ghp c l s em li nhng kt qu tt nht da trn tt c cc tiu ch ny. N cho php mt quc gia c th tham gia vo REDD bng mt d n hoc bng cch tip cn quc gia, bo m s tham gia rng ri ca quc t v nh c th gim pht thi tng th nhiu hn trong tng lai gn. Cc hn ch ca cch tip cn a phng (v c th l r r cc b) c tnh n thng qua vic n nh thi hn cho vic p dng cch tip cn quc gia trong tng lai, cho php cc nc c thi gian thit lp c s
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c thm thng tin, xin lin h: Arild Angelsen arild.angelsen@umb.no Charlotte Streck c.streck@climatefocus.com Leo Peskett l.peskett@odi.org.uk Jessica Brown j.brown@odi.org.uk Cecilia Luttrell c.luttrell@cgiar.org Nhng kin chung xin gi v: cifor@cgiar.org
Bn tin ny c dch t A., Streck, C., Peskett, L., Brown, J and Luttrell, C. 2008. u s l quy m ph hp cho REDD? Nhng tc ng ca hng tip cn quc gia, tip cn a phng v tip cn tng hp. Bn tin s 15. Infobrief No. 15. CIFOR, Bogor, Indonesia. Bn tin ting Vit ny l do Nguyn Song H dch, do Nguyn c T bin tp v chnh sa. Phm Thu Thy v Phm Quang Ha cng hiu nh bn ting Vit ca bo co.
CIFOR
D n c ti tr t Qu David v Lucile Packard
www.cifor.org
www.ForestsClimateChange.org
CIFOR
Trung tm Nghin cu Lm nghip Quc t CIFOR thc y s phn vinh cho nhn loi, bo tn mi trng v bnh ng thng qua vic trin khai cc hot ng nghin cu nhm cung cp thng tin v chnh sch v cc phng thc hot ng nh hng n rng cc nc ang pht trin. CIFOR l mt trong 15 trung tm trc thuc Nhm T vn Nghin cu Nng nghip Quc t (CGIAR). CIFOR c tr s ng ti Bogor (Indonesia) v cc vn phng ti chu , chu Phi v Nam M.