GLOBAL ENVIRONMENT FACILITY
UNITED NATIONS ENVIRONMENT PROGRAMME
Proposal for funding for the preparation of
A National Adaptation Programme of Action (NAPA)
Country Name: Lesotho
Project Title: Enabling activities for the preparation of a National Adaptation Programme of Action (NAPAs) for Lesotho
GEF Implementing Agency: UNEP
GEF operational focal point: Mr. S.M. Damane,Ministry of Tourism, Culture
and Environment
Climate change focal point: Mr. Bruno Sekoli,Lesotho Meteorological Services, Ministry of Natural Resources
National executing agency: Lesotho Meteorological Services (LMS), Ministry of Natural Resources
Country eligibility:
(i)LDC country:ECOSOC Approved List
(ii)Date of UNFCCC ratification: February, 1995
GEF financing: US$ 190,000
Government contribution: US$ 30,000
In kind contribution (office space, transport, printing and administrative support)
Estimated total budget: US$ 220,000
Estimated starting date: February 2003
Duration: 18 months
A - Introduction
1Lesotho is the only country in the world with all its territory above 1000 metres. Entirely surrounded by South Africa, it is situated at the highest point of the Drakensberg escarpment on the eastern rim of the South African plateau.
2Lesotho is a landlocked with an area of about 30,000 km2 . The country is divided into 4 ecological zones: the lowlands (17%), the foothills (15%), the mountains (59%), and the Senqu River valley (9%). Economic activities are largely confined to the lowlands, foothills and the river valley, while the mountainous regions are more ideal for grazing and water resource development, especially hydropower development.
3Lesotho’s population is essentially made up of one homogeneous ethnic grouping (Basotho), and is estimated to be 2 million. The population growth rate is 2.3%. Over 80% of the population in Lesotho reside in rural areas. GNP per capita is estimated at US$ 550, which is relatively high compared to other Eastern and Southern African countries. However, a significant portion (49.2%) of the population in Lesotho lives under the poverty line. The poor are more vulnerable to climate change since they do not have sufficient incomes to prepare and protect themselves from the adverse effects of climate change.
Economy
4Small, landlocked, and mountainous, Lesotho's primary natural resource is water. Its economy is based on subsistence agriculture, livestock, remittances from miners employed in South Africa, and a rapidly growing apparel-assembly sector. The number of mineworkers has declined steadily over the past several years. A small manufacturing base depends largely on farm products that support the milling, canning, leather, and jute industries. Agricultural products are exported primarily to South Africa. Proceeds from membership in a common customs union with South Africa form the majority of government revenue. Although drought has decreased agricultural activity over the past few years, completion of a major hydropower facility in January 1998 now permits the sale of water to South Africa, generating royalties for Lesotho. The pace of privatisation has increased in recent years. In December 1999, the government embarked on a nine-month IMF staff-monitored program aimed at structural adjustment and stabilisation of macroeconomic fundamentals. The government is in the process of applying for a three-year successor program with the IMF under its Poverty Reduction and Growth Facility.
5Lesotho’s economy is made up of the following key sectors: agriculture – 10%; industry – 48.8%; and, services – 40.8%. Sectoral distribution of real GDP reveals that the primary sector (mainly agriculture) accounted for only 12.7% of GDP in 1997. This was mainly due to recurrent droughts. The tertiary and secondary sectors account for 44.1% and 43.3% of GDP, respectively. Lesotho relies heavily on remittances from its citizens in South Africa.
Climate Change
6Sectors and activities that are directly or indirectly dependent on climate include health, agricultural production, renewable energy resources development and tourism.
7The climate of Lesotho is characterised by the occurrence of dry spells and wet spells over recorded time. These climatic fluctuations have had serious impacts on the environment. The impacts associated with dry spells include food shortages, famine, disease epidemics, invasion by exotic plants and destructive insects, dust bowls and the initiation of down cutting by rivers. The longest dry spell in the 200-year record occurred between 1991 and 1995. The occurrence of dry spells has been found to be correlated to the ELNiño phenomenon-an abnormal increase in sea surface temperature-while wet spells are related to La Niña conditions.
8Lesotho is expected to experience a change in temperature and precipitation patterns, toward dryer and hotter conditions. In addition, the intensity and frequency of extreme events such as floods and drought are expected to increase, especially in the western and northern lowlands. The impacts of climate change in Lesotho will vary from sector to sector. Water resources will be affected negatively by the reduction of precipitation and increase in temperature. This will result in an increase in evaporation losses and a decrease in runoff and groundwater recharge. Rangeland conditions may deteriorate-and ultimately be destroyed-by changes in climate, leading to a change in the quality of livestock and livestock products. The present indigenous forests may change into semi-arid types, while agricultural production will decline, resulting in food shortages.
Agriculture
9Agriculture employs 50% of the population workforce in Lesotho. Maize is the major staple food in Lesotho, and dominates crop production (63%), followed by sorghum (28%), wheat (12%), beans (5%) and peas (3%). Productivity fluctuates with variations in rainfall, although yield levels are generally low.
10The vulnerability of agriculture to climate change in Lesotho as identified in previous vulnerability assessments include soil erosion; low soil fertility; inadequate use of organic fertilisers; insufficient water flow in streams for livestock; and, recurrent droughts. These factors have had significant impacts on Lesotho’s agricultural sector to date. At independence, agriculture accounted for 40% of GDP. This figure has been declining over the years, and averaged 11.3% in 1990-1996. Although the decline could be attributed to the rapid growth of the secondary sector, it has also been as a result of climatic and agro-ecological changes.
11Some of the adaptation measures that have been proposed for the agricultural sector include the development and adoption of drought resistant crops; crop diversification; irrigation development; and, soil conservation.
Rangeland and Livestock
12The analysis of the range-livestock complex in the “State of the Environment in Lesotho” published by the National Environment Secretariat states that, while the condition of Lesotho's rangelands has been progressively deteriorating, changes in livestock populations have been fluctuating only slightly. Although this situation may suggest that an equilibrium has been reached between the state of rangelands and the livestock they support, the equilibrium is a negative one given the fact that productivity of livestock has been declining. This is evident for the more readily quantifiable indicators, such as wool and mohair yields and quality, and less so for beef, as its quality is difficult to monitor because of sales in various outlets.
Water and Sanitation
13About 55% of the population in Lesotho has access to safe drinking water. An estimated 47% of access is through house connections, while the rest is mainly standpipes or communal water points. Attempts have been made at establishing access to clean water in rural and urban areas by district, as shown in the table below. Districts that rely heavily on surface water and springs are likely to be adversely affected.
Table 1: Water Supply in Urban Areas of Lesotho, 1994
District / % Water supply coverage / Water sourcesMokhotlong / 71 / Surface and Spring
Butha-Buthe / 33 / Borehole and Surface
Hlotse / 55 / Surface and Wells
Maputsoe / 58 / Borehole and Surface
Teyateyaneng / 69 / Borehole and Surface
Mapoteng / 78 / Springs
Peka / 55 / Surface
Maseru / 37 / Surface and Wells
Roma / 3 / Borehole and Surface
Morija / 65 / Borehole and Surface
Mafeteng / 41 / Borehole and Surface
Mohale’s Hoek / 56 / Borehole and Surface
Quthing / 80 / Surface
Qacha’s Nek / 38 / Surface and Springs
Thaba-Tseka / 34 / Borehole and Surface
Source: Lesotho’s First National Communication
14In terms of access to sanitation, only 20% of the population have access to adequate sanitation. Pit latrines are the most common type of sanitation, and only 3-4% of the population has access to sewer toilets. Excessive rainfall could flood pit latrines resulting in contamination of drinking water.
Table 2: Rural Sanitation Coverage 1994
District / Household Coverage (% of population)Improved Pit Latrine / Other Latrines / Total Coverage / Unserved
Butha-Buthe / 32 / - / 32 / 68
Leribe / 14 / - / 14 / 86
Berea / 5.6 / 0.4 / 5.9 / 94.1
Maseru / 33 / - / 33 / 67
Mafeteng / 38 / 10 / 48 / 52
Mohale’s Hoek / 46.4 / - / 46.4 / 54
Quthing / 5 / 5 / 30 / 70
Qacha’s Nek / n.a. / 3 / 8 / 92
Mokhotlong / n.a. / n.a. / 7 / 93
Thaba-Tseka / n.a. / n.a. / 7 / n.a.
15Increased incidence of droughts could lead to lower sub-surface flows, resulting in dry springs and wells, lower water tables and therefore higher borehole costs, reduced yields of many water sources, and severe water stress, particularly for the rural population which mainly depends on ground water. Adaptation measures would be to establish sufficient surface storage and reticulation infrastructure, improved forecasting, flood diversion and pump drainage.
Energy
16Energy consumption in Lesotho is dominated by dependence on biomass (75% of the population uses firewood). Petroleum accounts for 14% of total energy consumption, while electricity accounts for 2%. Dramatic changes in the climate such as longer droughts could result in reduction of tree stocks. The fragility of Lesotho’s forest cover is demonstrated by the heavy use of agricultural residues and small bushes for meeting household energy needs. For instance, some species are more vulnerable to climate change than others particularly those with limited geographical range, low germination rates, low seedling survival rates, and limited seed dispersal capabilities.
17Lesotho imports most of her commercial energy requirements, including firewood and charcoal. This is as a result of deforestation and a poor resource base. In addition, Lesotho used to import most of its electricity from South Africa, but with the commissioning of the ‘Muela’ Hydro Power plant in 1998 Lesotho became self sufficient. The dependence on hydro-based electricity exposes Lesotho to negative impacts of increased incidence of long and prolonged droughts. Significant reduction in rainfall could disrupt power supply. Flooding and heavy rains could destroy electricity transmission lines. Some of the proposed adaptation measures is the use of higher efficiency thermal electricity generation (with low emissions) and enhanced demand-side management measures that would reduce peak demand for electricity, and reinforcing electricity infrastructure.
Transport and Infrastructure:
18The total road network in Lesotho is 4,955km, of which 887km is paved. Roads and associated infrastructure are vulnerable to changes in climate patterns, for example increased flooding. Heavy rains and floods damage seasonal roads that are critical in the marketing of agricultural produce in rural areas, an activity mostly undertaken by women. Very heavy rains can damage telephone (landlines) and electricity infrastructure.
19Possible response measures include construction of specially reinforced roads, bridges and culverts, improving drainage capacity of the infrastructure by increased reliance on opened drains as opposed to closed drains, reinforcing telephone poles and greater reliance on mobile and wireless technology and other physical infrastructure and socio-economic development to save lives and property.
Health
20Life expectancy in Lesotho is 57 years for women and 54 years for men. This compares favourably with other LDCs (e.g. Uganda’s is 42years for men and 44 years for women). The infant mortality rate is 144 per 1000, and about 10% of children born in 1988 recorded low birth weights. Severe malnutrition is prevalent in about 16% of children under five years, while this figure is 44% when the entire population is considered. A significant proportion of the population would, therefore, be seriously affected by food shortage arising out of increased occurrence of droughts.
21A vulnerability assessment conducted in Lesotho revealed that the health sector would mainly be vulnerable due to increases in temperature, leading to increased cases of tropical diseases. In addition, dry weather conditions are likely to lead to increases in incidence of respiratory tract infections and water borne diseases. Although the assessment did not recommend specific adaptation measures, some of the measures that could be proposed include aggressive anti-malarial campaigns and effective distribution of medicinal drugs to affected areas.
B- Evolution of Environmental Policies and Legislation in Lesotho
22Several phases are identified in the types of institutional framework for land and environmental resources in Lesotho. Each had its own guiding principles and institutional arrangements for the management, protection and use of land resources.
23The first phase was guided by the principle that land and environmental resources were communally held by the citizens, who had an inalienable right of access to the resources governed by an unwritten code of laws and traditions. The system of land resource administration was decentralised and depended on self-sustaining chieftaincy.
24The second phase was initiated by foreign incursions into the lands of the Basotho, which culminated in the declaration of Lesotho as a Crown colony, and in a reduction in the land area. The new institutions of district commissioners undermined and weakened the chieftaincy. Laws relating to land management were passed without public consultation, and imposed in written form on illiterate people. The new institutional arrangements radically altered the relationship between the people and their environment, alienating them from their land resources by putting Lesotho permanently into the global money economy.
25The third phase came with Lesotho's Independence in 1966. Although very little changed in the infrastructural arrangements for natural resources management, the coming of independence raised several expectations. These included self-sufficiency in food production, industrial development, and increased wealth through employment opportunities. Two strategies were followed to realise these expectations, namely programmes to improve arable agriculture and the establishment of LNDC to initiate, promote and facilitate industrial development and thus raise the level of income and employment.
26The fourth phase was initiated as a follow-up to the 1987 publication of the Brundtland Commission's report, Our Common Future. The guiding principle for this phase was the incorporation of environmental concerns in economic development in order to ensure sustainable development. The road to achieving sustainable development for Lesotho started with the United Nations Conference on Environment and Development and the formulation of the National Environmental Action Plan (NEAP). This has been refined and modified by subsequent documents, such as the National Paper on Environment and Development in Lesotho (1992), the National Action Plan to Implement Agenda 21, the National Environment Policy (1996), and the Environment Bill of 1997.
C- Institutional Framework
27The Ministry of Natural Resources plays a pivotal role specifically in climate change issues in Lesotho. This is mainly through the Lesotho Meteorological Services (LMS), which is under this Ministry. LMS is charged with the responsibility of monitoring and reporting on weather and climate. In addition, the LMS is the focal point in the planning and co-ordination of activities for Lesotho’s commitments under the UNFCCC. Other major responsibilities of the LMS include implementation of the Vienna Convention and Montreal Protocol on Substances that deplete the ozone layer; participation in activities of other international conventions like the Convention on Drought and Desertification and the Convention on Biodiversity.
28The Ministry of Tourism, Culture and Environment is charged with implementation and co-ordination of environment programmes in Lesotho. The Ministry of Public Works and Transport with other line Ministries, by appointing liaison officers who ensure those environmental issues are integrated at sectoral levels. It also has links at the district, ward, and village/local level. This networking could be instrumental in the preparation of the NAPA in Lesotho.
Table 3: Institutional Structure
29The Ministry of Agriculture, Co-operatives and Land Reclamation is also a key Ministry in the implementation of the national climate change action plan. Its activities are mainly geared towards reducing the agricultural sector’s vulnerability to climate change, and monitoring the country’s adaptation to negative impacts of climate change.
30There are a number of other Government and non-government organisations and institutions involved in climate change issues in the country. These will also be involved in the NAPA exercise.
D- Objectives, and linkages to ongoing activities
31The objectives of NAPAs are:
-To serve as simplified and direct channels of communication for information relating to the urgent and immediate needs for adaptation
-To facilitate capacity building for the preparation of initial national communications, and addressing urgent and immediate adaptation needs.
Status of past and ongoing climate change activities
32Lesotho has signed and ratified the following international conventions:
-United Nations Framework Convention on Climate Change (UNFCCC)
-Kyoto Protocol to the Convention on Climate Change
-United Nations Convention to Combat Desertification (UNCCD)
-United Nations Convention on Biological Diversity (UNCBD)
-Vienna Convention for the Protection of the Ozone Layer
-Montreal Protocol on substances that Deplete the Ozone Layer
33Under the United Nations Convention on Biological Diversity (UNCBD), Lesotho has undertaken two (2) studies. In 1996, a biodiversity enabling activity was commissioned by the United Nations Development Programme (UNDP) and implemented by the National Environment Secretariat. The study prepared the Biodiversity Strategy and Action Plan (BSAP) and a country report that was presented at the Conference of the Parties (COP). The BSAP outlines the options and actions that will ensure conservation and sustainable use of biodiversity in Lesotho. The BSAP complements the National Environment Action Plan (NEAP) and provides a link to the watershed management and biodiversity activities undertaken through Lesotho Highland Water Project (LHWP).
34An ongoing project, under the framework of the UNCBD, is addressing the conservation of mountain biodiversity in Lesotho. The project covers 70% of the Drakensberg-Maloti Mountains, which are found in Lesotho. Under the project, the National Environment Secretariat (NES) has established a network of small, community-managed protected areas that conserve the full range of mountain biodiversity. The project has two key activities, namely setting up of a protected area network and improving natural resource management. The setting up of the protected area network involved the following activities: