IMPACT EVALUATION OF THE MACEDONIA MUNICIPAL CLIMATE CHANGE STRATEGIES INTEGRATION PILOT: MUNICIPAL PILOT PROJECT MINI CASE STUDIES March 24, 2015 This publication was produced for review by the United States Agency for International Development. It was prepared by Marija Nashokovska of Tetra Tech, Nils Junge of Development & Training Services, Inc. ( dTS), Nancy Peek of dTS, and Rees Warne of dTS. This study was carried out with support provided by the United States Agency for International Development (USAID), Global Climate Change Office (GCCO), Bureau for Economic Growth, Education, and Environment (E3), through the Global Climate Change Monitoring and Evaluation Project (GCC M&E), Contract Number AID-RAN-1-00-09-00015, Task. Order Number AID-OAA-T0-12-0000 I. Development & Training Services, Inc. (dTS) 1s an international development company that leads initiatives in social and economic development with a view to promoting equality, accountability, and sustainability. For information about dTS and its projects worldwide contact Development & Training Services, Inc. (dTS), 4600 North Fairfax Drive, Suite 402, Arlington, VA 22203, USA. Phone: +I 703-465-9388; Fax: +I 703-465-9344; Email: info@onlinedts.com; Internet: www.onlinedts.com. Cover Photo: Pechevo Municipal Administration Building; Photo Credit: Ambrozija dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies IMPACT EVALUATION OF THE MACEDONIA MUNICIPAL CLIMATE CHANGE STRATEGIES INTEGRATION PILOT: MUNICIPAL PILOT PROJECT MINI CASE STUDIES March 24, 20 15 DISCLAIMER The authors' views expressed in this publication do not necessarily reflect the views of the United States Agency for International Development or the United States Government. AUTHORS Marija Nashokovska (Tetra Tech), Nils Junge (Development & Training Services, Inc. [ dTSJ), Nancy Peek (dTS), and Rees Warne (dTS) dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies ACRONYMS cso CCI dTS E3 EEP GA GCC M&E GCCO GEF GHG LMG MCCS MKD MKM SDSM USAID USD Civil Society Organization Center for Civic Initiatives Development & Training Services, Inc. Bureau for Economic Growth, Education, and Environment Energy Efficiency Program Green Agenda Global Climate Change Monitoring and Evaluation Project Global Climate Change Office (USAID) Global Environment Facility Greenhouse Gas Local Monitoring Group Municipal Climate Change Strategies (USAID-funded adaptation pilot activity) Macedonian Denar (currency unit) Milieukontakt Macedonia Social Democratic Union of Macedonia United States Agency for International Development United States Dollar VMRO-DPMNE Internal Macedonian Revolutionary Organization - Democratic Party of Macedonian National Unity WG Working Group dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies i EXECUTIVE SUMMARY BACKGROUND AND PURPOSE In 2012, USAID's Global Climate Change Office (GCCO) funded the USAID/Macedonia climate change integration pilot, Municipal Climate Change Strategies (MCCS). The MCCS integrates climate change concerns into a more traditional democracy and governance programming approach. The pilot employs an innovative participatory planning process - the Green Agenda (GA) - to develop municipal-level strategies and action plans that facilitate climate change adaptation and mitigation. As part of the larger MCCS pilot project, a series of small, individual municipal pilot projects (less than USD I 00,000 in MCCS funding) are being implemented. GCCO contracted Development & Training Services, Inc. ( dTS), through the Global Climate Change Monitoring and Evaluation (GCC M&E) task order, to undertake an impact evaluation of the MCCS integration pilot As part of the impact evaluation (for which dTS produced a baseline impact evaluation report), 1 this report presents mini case studies of the first two municipal pilot projects completed under MCCS. The mini case studies are designed to provide a picture of GA participants' experience with the municipal pilot project prioritization and implementation process from the perspectives of selected evaluation questions. They also provide qualitative and contextual information that is an important part of the mixed methods impact evaluation design. The mini case studies help to illuminate explanatory factors for the final impact evaluation statistical analysis. THE GREEN AGENDA AND DEVELOPMENT OF MUNICIPAL PILOT PROJECTS According to MCCS project documents, the Green Agenda is a participatory method for developing and implementing local sustainable development strategies and plans. Compared with other approaches that have similar aims, the GA method is unique in focusing on identifying and protecting local values rather than fixing problems. The GA process pays special attention to building the capacity of local stakeholders (particularly municipal government staff, CSOs, and citizens) with a view toward providing the local population with the tools to participate effectively in both the process of designing and the implementation of actions.2 At the start of the GA, community members identify the values of their community by focusing on things people are proud of. To prepare for GA work, MKM advertises an initial community stakeholder meeting. At that meeting, participants select priority values and local Working Groups (WGs) are formed. Each WG focuses on one of the values in detail. The WGs analyze the status of the values and come up w ith ideas for actions and projects related to the community values. Based on the information provided by the WGs, an agreed-upon municipal climate change strategy for protecting and supporting community values is adopted by the Municipal Council. MCCS then funds a municipal pilot project to carry out a priority action from the municipal climate change strategic plan. 1 Warne, Rees, Nancy Peek, Nils Junge, and Marija Nashokovska. 20 15. Impact Evaluation Baseline Report Macedonia Municipal Climate Change Strategies Integration Pilot. Arlington, Virginia, USA: Development & Training Services, Inc. (dTS). 2 MKM MCCS Quarterly Report, April- June 2014 and Milieukontakt lntemational website: http://www.greenagenda.net/wp/?page_id=2 dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies iv RESEARCH DESIGN The mini case studies are qualitative examinations of the process of identifying and implementing municipal pilot projects through the lens of impact evaluation questions related to climate change actions and stakeholder engagement. Data collection consisted of key informant interviews, focus group discussions, and reviews of relevant documents. The stakeholders interviewed include municipal government staff, local CSO staff, participants in the GA process, and intended direct beneficiaries of the municipal pilot projects. KEY FINDINGS - PECHEVO MUNICIPAL PILOT PROJECT According to key informants interviewed 1n Pechevo Munic1pal1ty, the Green Agenda process for selecting an appropriate municipal pilot project was followed as intended and considered useful for decision-making. The municipal pilot project that was selected (municipal energy efficiency in public buildings) appears to have produced some early benefits and cost savings. Municipal government staff reported lower electricity bills from the public lighting system as a result of installing energy efficient light bulbs 1n public street lights 1n September 2014; municipal government staff reported that their January 2015 electricity bill was 24% less than their January 2014 electricity bill. Municipal representatives said that the municipal government had previously done work on addressing energy efficiency and climate change issues, but that the participatory GA process had been a useful activity leading to prioritizing the municipal pilot project that was implemented. The GA work and the funding provided by MCCS enabled the municipal government to take action more quickly. The Green Agenda was regarded as a helpful process for both citizens and the local government because it provided a more systematic and inclusive approach to defining priorities and actions. Municipal government representatives said they are planning to invest savings from the municipal pilot project in other climate changed-related projects, and have already done so for the construction of a new boiler building for the kindergarten. Key informants (including people who participated in GA working groups) said they believed that the MCCS and Green Agenda had an impact on people's awareness of climate change (more so on direct part1c1pants and beneficiaries and less on indirect beneficiaries). especially regarding the local effects of climate change and how these can be addressed. The municipal government of Pechevo is now working on other climate change-related projects (in line with activities planned in the municipal strategy on climate change designed through the GA) supported by other donors, including the Swiss Development Cooperation and the Global Environment Facility (GEF). Overall, key informants reported satisfaction with the levels of engagement and participation in the GA process and in the planning of the municipal pilot project. Collaboration among citizens and between citizens and the municipal government was said to be open and effective, regardless of people's background or political party. KEY FINDINGS- KRIVOGASHTANI MUNICIPAL PILOT PROJECT The mun 1c1pal pilot project in Krivogashtani was completed as planned 1n October 2014, with participation by citizens and the municipal government. and it was reported to have been well received by the municipal government. Using the GA process, a number of projects related to climate change mitigation and adaptation were identified and prioritized. The municipal pilot project selected was increased energy efficiency at a school building. The municipal government's pilot project proposal indicated an expectation that this municipal pilot project would lead to an estimated 30% decrease in energy consumption by the school, significant cost savings, and dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation Municipal Pilot Mini Case Studies v     - - - -  - - - - plans that address climate change mitigation and adaptation. The stages of the Green Agenda process are described below in Box I . A central outcome of the MCCS GA process is the creation and adoption of a municipal climate change strategy by each participating Municipal Council. The municipal climate change strategy is an official municipal government document describing action plans for municipal-level measures related to climate change mitigation and adaptation for the period 2014-2020. The MCCS-funded municipal pilot projects, which are the subject of the mini case studies, address priority measures from the municipal climate change action plans, and are an important product of the GA process. To track implementation of the municipal climate change strategy, the MCCS facilitates the fonmation of a Local Monitoring Group (LMG) 1n each municipality. The LMG is an official body formally established by the Municipal Council. The responsibilities of the LMG include I) monitoring the inclusion of activities from the municipal climate change strategy 1n the municipality's annual program; 2) assessing whether money is allocated to climate change activities in the municipal budget; 3) reporting to the Municipal Council twice a year on progress in implementation of planned climate change activities; 4) seeking additional funding for prioritized climate change activities; and 5) preparing project proposals for the activities in the municipal climate change strategy's action plan. The composition of an LMG varies by municipality. Box I. Green Agenda Principles and approach Green Agenda (GA) is a participatory method for developing and implementing local sustainable development strategies and plans. The method 1s unique, compared with other approaches that have similar aims (e.g., Local Environmental Action Plans (LEAP); Local Agenda 21; Community Forums), in three main aspects: I) the process begins by identifying local values rather than problems; 2) participation is not limited to experts or certain stakeholder groups but is open to all; and 3) the process and its results are owned by the local population. The process pays special attention to building the capacity of local municipal governments, CSOs, and citizens to effectively take part in the process and implementation of municipal government actions. The process At the beginning of GA work in the community, local stakeholders identify the values of their community by focusing on the things people are proud of instead of focusing on the problems. To compile an initial list of local values, a small survey of citizens is conducted. Examples of such community values are things associated with the cultural heritage (e.g., buildings, folk crafts), and environmental features like water resources (lakes, rivers, drinking water supply). Local stakeholders are invited (through posters put up in shops, cafes, and other well-visited places or through local media, if local media outlets exist) to participate in the first stakeholder meeting where the GA process is explained. The 1nit1al list of local values from the survey is also presented, discussed, prioritized, and condensed to a list of four to five values. After the selection of priority values, local Working Groups (WGs) are formed, made up of attendees of the first stakeholder meeting whom opt 1n to part1c1pate in the WGs. Each group is assigned one of the values to examine in detail. In addition to analyzing the status of the values, these groups are charged with coming up with ideas for actions and projects. Based on the WG findings, an agreed-upon strategy - in the case of the MCCS pilot, a municipal climate change strategy - for protecting and improving dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 5  Like many climate change activities, MCCS is complex. It incorporates multiple objectives relating to democracy and governance on one hand and climate change adaptation and mitigation on the other; it is supported in different municipalities and regions by different MCCS CSO partners; 1t engages and affects three primary stakeholders: municipal-level government, CSOs, and citizens; 1t includes a wide range of interventions; it involves municipal pilot pr0Jects that differ 1n each municipality, according to priorities defined through GA interventions; and it covers diverse populations and conditions in the municipalities. The mini case studies serve as an important component of the impact evaluation in that they contribute to the understanding of municipality-specific Green Agenda processes and pilot projects. dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 7   priority values were: I) water resources; 2) forests; 3) agriculture and rural development; and 4) energy efficiency. As part of the process of mapping key stakeholders in the municipality, Ambrozija identified individuals as potential WG coordinators based on their knowledge, experience in facilitating groups, and interest in being engaged. Those who expressed an interest in being WG coordinators were presented as candidates at the first public stakeholder meeting and selection was made by the citizens who were present. WG members were also established at the first stakeholder meeting. Anyone interested 1n participating in the WGs who attended the first stakeholder meeting could sign up to join. There was a list for each WG, and people at the meeting wrote dow n their names on the list for the WG in which they wanted to participate. Twenty￾nine of the participants of the WGs belonged to the Maced onian ethnic group, while one part1c1pant belonged to the Turkish ethnic group. See Table 2 for additional information on WG members. T ABLE 2: CHARACTERISTICS OF PECHEVO WORKING GROUP PARTICIPANTS Gender Participants by Stakeholder Group Education Level Working Total Male Female Public Private CSOs Citizens High University Groups Participants Institutions/ Sector School Local Government Water 11 6 5 5 3 I 2 6 5 Resources Forests 6 6 0 3 0 I 2 5 I Agriculture and 7 2 5 5 0 0 2 0 7 Rural Development Energy 6 0 6 3 0 I 2 I 5 Efficiency Total 30 14 16 16 3 3 8 12 18 Members of the WGs were almost equally divided by gender ( 16 women and 14 men); however, three of the four WG coordinators were men. While two of the four WGs were gender balanced, a third WG had only women as members and the fourth had only men as members. Just over half of the WG members ( 16 of the 30 core participants) were government employees - some from the municipal government and others from other public institutions - and I I of the participants were either local residents (including high school students and retirees) or members of CSOs (one from AmbroziJa. two from other local CSOs). Because part of MCCS' aim is to increase engagement between the municipal government, CSOs, and citizens, it will be important to assess the proportion of different stakeholder groups in WGs in other MCCS municipalities. A key informant from Ambrozija, the local CSO partner, reported that Ambrozija took gender balance into account w hen the WGs were established and was prepared to encourage and motivate more women to participate. Since many women joined the WGs on their own, it was considered unnecessary to use special measures to encourage their participation. However, only one of the four WG coordinators was a woman. dTS GCC M&E Macedonia Municipal Climate Change Strat egies Impact Evaluation: Municipal Pilot Mini Case Studies I 3 20 WG members ranked potential municipal pilot project priorities based on the five criteria (technical feasibility, urgency, effectiveness, economic efficiency, and affordability) set out in the draft municipal climate change strategy they had developed21 (see Section 4.1.2.4). This activity produced a shortlist of potential pilot projects that were then assessed based on a second set of criteria specific to the MCCS-funded municipal pilot I) 1t had to be able to be completed w1th1n six months; 2) it had to encompass a complete activity from beginning to end; 3) it was not to be part of a larger, more complex activity; 4) the municipality must contribute 20% of the cost; and 5) the total funding requested from the USAID-supported MCCS activity could not exceed USD I 00,000.n Based on ranking of the potential pilot projects according to the first set of criteria, construction of a sediment tank on the Pisa River, which fiows through Pechevo, emerged as the top priority on the shortlist. Sedimentation build-up in the riverbed near the town of Pechevo had led to fiooding in the past. The expectation was that construction of a tank would allow sand, stones, and mud to be collected and emptied at regular intervals, thus reducing the risk of flooding.2l This had been a long-term problem in the municipality, and addressing it was seen as a priority. However, when the sediment tank project was assessed according to the second set of criteria (MCCS criteria for municipal pilot projects), it was found that the sediment tank construction would not be feasible under MCCS - it would require too much time for implementation, especially taking into consideration the number of local and national permits required. Furthermore, GA project funds would cover only a fraction of the total cost of constructing the sediment tank Finally, there were concerns that the results might not be visible to citizens, and citizens therefore might not perceive that the GA process resulted in tangible benefits to the municipality and its citizens. After the first priority pilot project was deemed infeasible, the second priority pilot project - increasing the energy efficiency of public buildings and lighting - was selected because it met all the criteria. As noted in Section 4.1.2.5, the components of the selected municipal pilot project included: installation of thermostatic valves in five buildings (to regulate temperatures); replacement of fai;ades (adding thermal insulation to the outside walls) on two buildings (the municipal administration building and the House of Culture); installation of a central heating system in the House of Culture; and replacement of 340 light bulbs in the street lighting system with energy saving light bulbs. In prioritizing this municipal pilot project, non-economic benefits to the community were also considered. For example, children in primary school and kindergarten were seen as key beneficiaries. Installing thermostatic valves to maintain constant temperatures was expected to help protect children's health by reducing their exposure to wood smoke24 and cold (or overheated) rooms. Also, the people who work at the school, the House of Culture, and other municipal buildings were expected to be more productive and effective when working in offices with constant and comfortable temperatures. ! I At this point. the municipal climate change strategy had not yet been adopted; it was officially adopted by the Pechevo Municipal Council on May 14, 2014. Prior to this, the draft was used for guidance on selection of pilot pro1ects. n MCCS provided some flexibility around the total budget and municipal contribution figures, and the actual amounts spent by MCCS and the municipal government were different from this. as noted by the figures 1n Section 4. I .2.5. 23 Municipal stakeho lders attribute increased rCJ.infall. with heavy storms in short periods, coupled with deforestation in the mountains, to increased nsk of flooding and believe this 1s linked to climate change. 2 L According to the US Energy Department. "Wood-burning appliances and fireplaces may emit large quantities of air pollutants. Wood smoke contains hundreds of chemical compounds including nitrogen oxides, carbon monoxide, organic gases, and particulate matter, many of which have adverse health effects." US Energy Department. energy.gov: http://energy.gov/ ene rgysave r/ articles/wood-an d-pel I et-heating. dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies I 6 Early energy efficiency and mitigation results All of the components associated with the Pechevo municipal pilot project are designed for reduced energy use (and therefore GHG emissions), while resu lting in cost savings and greater comfort. The expected energy savings for each intervention was calculated previou sly for the municipal Energy Efficiency Program (EEP).25 For example, the interventions for the municipal administration building (installation of thermostatic valves to regulate heat and replacement of building fac;ades to add external insulation) were expected to yield a yearly savings of 36,872 kilowatt hours (kWh), which is approximately a 38% decrease in annual energy use (see T able 3). T ABLE 3: ESTIMATED A NTICIPATED SAVINGS FROM PECHEVO ENERGY EFFICIENCY INTERVENTIONS Consumption Building/infrastructure Actual after targeted for Heating consumption intervention Savings Decrease in intervention source (kWh/year) (kWh/year) (kWh/year) enerjN use Municipal building wood 95,825 58,953 36,872 38% Primary school wood/oil 277,021 249,521 27,500 10% Kindergarten oil 80.000 75, 154 4,846 6% Sport Hall wood 143.733 135,853 7,880 5% House of Culture wood 114,990 77,690 37.300 32% Public lighting system - 179.410 91.736 87,674 49% Total 890,979 688,907 202,072 23% Source: Data from the Pechevo municipal pilot project pmposal The information collected for the Pechevo case study suggests that implementation of the energy efficiency pilot has produced positive results- at least in terms of costs savings. Key informants said that the new fac;ades and insulation in public buildings have contributed to heat-loss reduction (as well as reduced wasteful overheating)6 ), warmer premises, and lower electricity bills. Additional energy savings are expected due to the replacement of traditional light bulbs on the streets with energy efficient light bulbs; I 00% of street lighting now uses energy efficient light bulbs. According to municipal government representatives, energy consumption in the municipal buildings (this year compared with last year) has fallen and the electricity bills for public lighting are lower. For example, in January 2014, the electricity bill for public lighting was MKD 21 1,388 (USD 4,638); in January 2015, the electricity bill for public lighting was MKD 160,262 (USD 3.516). The difference 1s a savings of MKD 5I,126 (USD I, 122) on the cost of public lighting for the month of January (24% reduction). A basic assumption for this municipal pilot project is that the ultimate effect of lower energy use will be lower GHG emissions. MCCS supports municipalities to develop and maintain GHG inventories and calculate !~. The data for expected energy savings were taken from the municipal Energy Efficiency Program (EEP), which is an official document of Pechevo Municipality adopted by the Municipal Council on March 3. 2.0 14. The EEP and allocation of funds from municipal budgets became a requirement in 2.012. under a new Macedonian law. This program 1s not related t o MCCS. In Pechevo, the development of t he municipal climate change strategy and the adoption of EEP just happened to t ake place at approximately the same time. 6 Before themiostat1c valves were installed, there was no mechanism to regulate the temperature in the offices of the bu1ld1ngs. Sometimes 1t would be too cold, and sometimes it would be too warm, so people would open windows and heating was wasted. Now, the temperature can be regulated. so people have less need to open windows. dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 17 changes in GHG emissions. The Pechevo municipal pilot project proposal included a target of emissions reduction of 129.52 metric tons of C02 equivalent annually from the full municipal pilot project intervention. It should be noted that electricity in Macedonia is generated or obtained from a variety of sources: coal￾powered plants, hydropower, wind power, and imports. Hydropower, which is a renewable energy source, accounts for approximately 15% of known generation,27 while the source of imported electricity is unknown. Since it is connected to the national power grid, the mix of energy sources used to provide Pechevo with electricity cannot be exactly determined.To accurately estimate the impact on GHG emissions of installing energy efficient light bulbs, the contribution of hydropower to electricity production would need to be known. (The larger the share of hydropower used to generate electricity, the lower the GHG impact: the more fossil fuels used to generate electricity, the higher the impact). In the case of street lighting, the reduction in kWh (the municipal government estimated 87,674 kWh less would be consumed on an annual basis) may not be substantial in terms of the GHG impact, but if it is assumed that most of the generation comes from fossil fuels, there will be some impact. That said, it may be expected that the most substantive reductions in GHGs come from reducing the amount of wood or oil used to heat the public buildings that received energy efficiency improvements. 28 According to a key informant from the municipal government, the savings from the municipal pilot project interventions funded by MCCS will be used for additional interventions prioritized in the Pechevo municipal climate change strategy (as is required by the MCCS funding agreement), thereby contributing to further local actions on climate change mitigation and adaptation. This has already been initiated through the cost share for a GEF-funded project to install a new boiler 1n the kindergarten. The municipal government representative noted that "With the implementation of the pilot project, our financial position was improved because we now have the financial resources available to reinvest in other energy efficient activities. As benefloories of the project, we are finally worm in our offices, yet our electricity bills ore significantly lower" When taking into account the people working in the buildings that received energy efficiency improvements, it was noted that there were more female (79) than male ( 40) beneficiaries to the project. The ratio of females to males is largely because school and kindergarten employees in Pechevo (and in Macedonia as a whole) are predominantly women. There are about as many girls as boys among the school children benefiting from the improved stab ii ity of the temperature in the classrooms. The knowledge gained from participating in the GA process has reportedly motivated WG members to undertake energy efficiency improvements in their own homes, and led them to promote energy efficiency ideas to relatives, friends, and neighbors. One municipal government key informant reported that he has changed both the windows 1n his home and the far;:ade and that he has talked with other people 1n the municipality, encouraging them to improve the energy efficiency of their homes. Influence on municipal government administration and climate change planning/actions Key informants were asked to assess any effects that participating in the GA process and 1mplement1ng the energy efficiency pilot may have had on how the municipal government planned to prioritize and address climate change issues in the community. 11 UNIDO, (20 I 3), "World Small Hydropower Development Report 20 I 3: The Former Yugoslav Republic of Macedonia." Available at: http//www.smallhydroworld.org/fileadmin/user _upload/pdf/Europe_Southern/WSHPDR_20 I 3_FYROM.pdf 1'' Calculating changes in GHG emissions is beyond the scope of the mini cases studies; at the time this research was conducted, there was insufficient 1nformat1on available (such as from long-term changes in electricity bill and changes in heating fuel use vis a vis outdoor temperatures) to allow for accurate calculations of incurred GHG impacts. dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 18 The GA process includes an educational component for muniopal residents as well as for those directly involved in the GA process, which is not typical of other programs. The GA uses a series of steps to focus the attention of WG members on the process of selecting a municipal pilot project that meets clearly defined criteria. The GA process repeatedly asks WGs to consider why a value is important, what positive results will come from implementing a municipal pilot project, and who will benefit from the project. The WG members and WG coord 1nators interviewed reported that they came out of the GA process confident in their decisions, which were made using objective mechanisms for assessing local priorities. They also said they had gained new knowledge by being participants in the process. Civil society WG members who were interviewed reported that the selection process for the municipal pilot project was conducted with transparency, and they expressed satisfaction with their role in assessing and selecting the municipal pilot project. The WG members noted that the WG coordinators communicated well with the municipal administration and with members of their own WG. They said that decisions within the WGs were made by consensus and were based on objective criteria and reported that the dynamics of the WGs created a social environment that was conducive to listening to the opinions of others, analyzing values, and ranking the pilot projects for the municipal climate change strategy. The Pechevo Municipal House of Culture received energy efficiency renovations, including a new fat;ade, as part of the MCCS municipal pilot project. Photo credit Ambroz1Ja WG coordinators who were interviewed said that an important aspect of the success of the process was that WG members brought technical expertise and relevant knowledge to the process of selecting a priority pilot project, and they were happy to share their skills and knowledge with the other members of the WG. It was also mentioned that the different backgrounds of the Local Monitoring Group members (three were from the municipal government, three from civil society organizations, and one was an unaffiliated resident of Pechevo) was helpful in engaging the support of the necessary institutions in developing the pilot project. Members from the municipal administration had easy access to decision-makers in the local government and a continuous flow of information, which was said to be helpful in obtaining support when needed. Members from civil society had a track record of collaboration with local institutions such as the school and kindergarten on previous projects implemented by local CSOs. The established trust and communication during these previous activities assisted in achieving support and collaboration for the implementation of the MCCS municipal pilot project. Informants said that the WG members and municipal staff had benefited from acquiring new knowledge, sharing experiences, doing something important for the community, and contributing to the development of a municipal climate change strategy. The mayor participated personally in some of the WGs. An informant from the municipal government characterized WG members as "very enthusiastic and ambitious." One key informant said "I was positively surprised that the whole Green Agenda process was token seriously by the citizens and the municipality. They were convinced they were doing something for themselves, and were really committed.'' dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 2 I Green Agenda compared with other participatory civic processes in Pechevo While this is not the first time that community members have had the opportunity to participate in priority￾setting with the municipal government, the experience with the GA process appears to have been particularly good. The municipal government part1c1pated in the Swiss-funded Community Forum Program (2012-2014). Regarding this program, one key informant said that, while the Community Forum program provided an opportunity for citizens to be involved in making a decision on which of a set of predetermined possible small projects to implement, the GA gave citizens the opportunity to define local priorities and potential pilot projects, prior to the selection process. A member of the Local Monitoring Group said, 'The whole process of the Green Agenda was very interesting for us because we started from a different point from what we ore used to. 'What is the value of the things that we have and how we can protect them?' instead of 'What ore our problems and how we con solve them?"' Public and municipal government enthusiasm for the municipal pilot project Interviewees reported that most people 1n Pechevo were supportive of the energy efficiency pilot project that was selected. However, in most interviews, informants noted that not all residents of Pechevo agreed that the municipal pilot project chosen was the highest priority; some residents criticized the choice, saying that other municipal problems (for instance street repairs or f1ood control), should have been given higher priority. One informant reported that citizens who had become aware of climate change through the course of the MCCS implementation in the municipality had more positive views on the selection of an energy efficiency pilot project A WG coordinator said that people generally accepted the process through which the decision was made. The coordinator attributed that acceptance in part to GA's optimistic focus, which contrasted w ith other processes that tended to focus on problems. Another informant noted that an important aspect of the GA and M CCS was that citizens wanted to find out what was going on, whether or not they viewed the selected energy efficiency pilot project as a priority. The pilot project triggered interest in the citizens and got them asking questions. A municipal government key informant pointed out that the municipal government staff were both implementers of and beneficiaries to the energy efficiency pilot Because of the improvements to the municipal buildings, the municipal government was not only saving money, the municipal staff were warmer at work than in previous winters. Evaluation Question 9: Did the MCCS integration pilot result in changes in stakeholders' levels of engagement with each other? Stakeholder engagement in the GA process and municipal pilot project planning and implementation WGs are an important part of the GA process. As discussed in Section 4. I .2.3, the early GA activities in Pechevo resulted in the formation of four WGs focused on priority values, one each for water resources, forests. agriculture and rural development, and energy efficiency. While active participation in the WGs varied, there were about 30 core members (see Table 2, Section 4.1.2.3 for the characteristics of the core members of these WGs). Active membership in the WGs appears to have f1uctuated. A key informant who was a WG coordinator noted that those who were active throughout the process "really gave their best" to support the development of a high quality strategic plan. Another said, "There was a need for many meetings, but citizens were interested, and we hod 25-30 people that were always present." Another pointed out that the continuity of WG members' part1cipat1on for the duration of the process was important. dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 22  – – TABLE 6: WEIGHTS ASSIGNED TO CRITERIA FOR INCLUSION IN THE STRATEGY, BY WORKING GROUP Working Group Technical Urgency Effective- Economic Afford￾Feasibility ness Efficiency ability Water and water resources 30% 30% 20% 10% 10% Local agricultural products 20% 20% 30% 15% 15% Local infrastructure 20% 25% 20% 25% 10% Source Strategy on Climate Change in Krivogashtani Municipality 2020 Six people (three WG coordinators and three representatives from CCI) used information and data received from the WGs to develop the municipal cl imate change strategy. Other municipal government documents were consulted during the preparation of the climate change strategy, including the Development Program for Water Supply and the Energy Efficiency Program 20 I 3-20 I 5.'16 (Preparation of these latter documents by the municipality was not related to MCCS.) At end of the process, a total of 19 proposed projects/measures were included in the municipal climate change strategy. Each project consisted of several activities, all of which were assigned an estimated budget. The total estimated budget for all projects was MKD 556,799,889 (USO 12,216,471 ), ' 11 which far exceeded the municipal government budget. The municipal climate change strategy did not include information on other potential funding sources for implementation of projects, but it was understood that other sources would be sought. According to key informants, the resulting municipal climate change strategy was well received. Prior to adoption of the municipal climate change strategy, a stakeholder meeting and public hearing was held, after which citizens had 15 days 1n which to submit comments. After final revisions, the document was submitted to the Municipal Council and was adopted on May 23, 2014. An integral part of the municipal climate change strategy (as well as the MCCS pilot) was the development of a local inventory of greenhouse gas (GHG) em1ss1ons.48 The municipal GHG inventory provides data needed by the municipal government to make decisions about prioritizing mitigation interventions and to assess the effectiveness of GHG reduction measures. It was expected to assist the municipality in managing risks, addressing inefficiencies of implemented measures, and educating stakeholders about climate change mitigation and the municipal pilot project. The inventory for Krivogashtani revealed that the largest share of GHG emissions come from energy use (i.e., utilization of electricity and fuel - 79.4%). Agricultural practices contribute I 3.2% and waste disposal contributes 7.4%. Around the time of the adoption of the climate change strategy by the Council, the Local Monitoring Group (LMG) members were nominated by the municipal government and also approved by the Krivogashtani 11, As noted for Pechevo, a 2012 law requires that each municipality develop a municipal Energy Efficiency Program (EEP) and allocate funds in its budget t o implement the EEP. 47 USD-MKD exchange rate based on the June 16, 20 14 rate of the Macedonian National Bank (USO I = MKD 45.6). 4 ' According the municipal climate change st rategy. t raining on GHG inventories was given to the municipal and local CSO representatives. The knowledge was then transferTed to the WG responsible for the data collection related t o local inventory of GHG. Data were collected through a questionnaire included in the manual for the WG, w hich includes guidelines for the type of data to be collected. In addition, official requests were submitted to the municipal government and businesses. a survey of citizens was taken, and information on the private sector from existing national databases was incorporated. For the preparation of the inventory, a tool in MS Excel was created with predefined emission factors for each type of activity in the municipality. Calculations were made by the MCCS climate change expert, based on the collected data, and compiled 1n a report on GHG emissions within the municipality. dTS GCC M&E Macedonia Municipal Climat e Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 29 52 55 side, implementing the same intervention again could have impeded giving serious consideration to other types of potential interventions. Early energy efficiency and mitigation results The proposal for t he municipal pilot project estimated that total energy consumption at the school would decrease by 30% following the pilot project interventions. 56 Municipal government representatives interviewed stated that the school building's annual heating expenses are expected to fall by 50%. Krivogashtani Primary School received energy efficiency upgrades, including a new energy efficient fac;ade. Photo credit: Mari1a Nashokovska Prior to instal lation of the central heating system as part of t he municipal pilot project, the school used wood-burning stoves in all the classrooms, which required large quantit ies of wood for fuel (halls, bathrooms, and other areas were not heated). With the change t o use of pellet fuel and a central heating system, municipal representatives interviewed said that energy consumpt ion at the school has fallen. Furthermore, a municipal government key informant reported that significant ly less ash waste is produced w ith the new heating system. A further benefit of the munici pal pilot project, according to municipal representatives, is that now only one school employee is required to maintain the heating system instead of five employees (four of whom can now spend their t ime on other tasks requiring their attention). Previously, these employees had to arrive very early at school during cold weather to light t he wood fires in t he stoves in each classroom. Municipal representatives described this as an added economic benefit of t he municipal pilot project investment The case study team was told that financing for the interventions at other schools is expected to come from the municipal budget and to be made possible by t he savings resulting from the municipal pilot project intervention. Note that, at the time if this writing, it was not clear whether budget savings from the results of the municipal pilot project were being realized. The information provided by the municipal government indicates that it is now spending more money to heat the school. This is due to two factors: I) a larger area is being heated, including hallways, bathrooms, and the kindergarten, compared to before the pilot project and 2) the new boiler also requires electricity, which was not previously a heating cost Therefore, while the heating is more efficient and cost effective, t his has not seemed to translate into budget savings. Municipal staff who were interviewed said that the municipal government plans to make use of the local GHG inventory that was developed as part of MCCS to assess GHG emissions reductions. The changes to the school building are visible to all Krivogashtani residents and key informants said that the have generated considerable interest on the part of people 1n Krivogashtani. Members of the WGs reported that they had become better informed about the benefits of the energy efficiency intervention and said they felt motivated to undertake energy efficiency measures on their own houses, alt hough none had done so yet Key informants interviewed reported that some residents had changed the fac;:ades and windows/doors :,,, According to the Krivogashtani EEP 20I3-2015, the school's energy consumption in 20 12 was 25.338 k.Wh. dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation Municipal Pilot Mini Case Studies 32 on their houses as energy efficiency measures, but there was no evidence that the municipal pilot project motivated them to undertake these changes. Municipal representatives who were interviewed said they believed that employees in the muniopal administration were more aware of the benefits of energy efficiency measures because they benefitted directly from the urgent action (replacement of the municipal building's roof, windows, and doors) implemented early 1n the project. Municipal representatives noted that in previous winters they did not use the offices on the north side of the building because "1t was freezing inside." This winter all the offices are being used. Some key informants said that as a result of participating 1n the GA they now recognized the importance of clean riverbeds and irrigation channels, which could reduce the fiooding that happened early in 2015. Some said that they have been talking with other people from Krivogashtani's villages, telling them that the river and irrigation channels should not be used as dumpsites (a common problem). On a side, note, other benefits were remarked upon. The selection of the energy efficiency project was embraced by school personnel because it resulted 1n an improvement of their working conditions. Classrooms are no longer full of smoke from the use of wet wood fuel, nor is there a draft from the chimney and windows. They no longer have concerns regarding poorly heated classrooms and the effects on teaching and learning. Teachers and students not only appreciate the new heating system, but are pleased by the school's new appearance (previously a somewhat worn looking building with a faded yellow exterior) with its dark grey and purple outside walls noticeable from afar. Influence on municipal government administration and climate change planning/actions Key informants were asked to assess the infiuence of the GA and municipal pilot implementation process on how the municipality plans to address local climate change issues in the future. Overall, a variety of key informants said that, thus far, the MCCS has had some positive infiuences on the way the municipality approaches climate change issues. The Local Coordinator noted that the municipal administration was motivated by the results of the urgent action implemented early in the GA process, which replaced the windows, doors, and roof of the municipal building. One key informant noted that a positive element in the process was building awareness in the municipal government of the potential for energy efficiency 1n municipal buildings. (e.g .. if the roof of the municipal building had not been modified and insulated, energy efficiency would not have been achieved). Interviewees felt that the urgent action and municipal pilot project successfully demonstrated to the municipal government that energy efficiency measures can generate multiple benefits. A municipal government representative noted that, because of the GA activities, the municipal government had started planning the implementation of projects that no one thought would get done, such as the irrigation system project. Although improving the inrigation system was beyond the scope of the municipal pilot project, the GA process prompted the municipal government to begin taking action. According to municipal administration representatives, the local strategy on climate change is a "wonderful document" that can be used in different sectors of the municipal administration's work, such as local economic development and promotion of agricultural products. A municipal government representative reported that there is wide application of the municipal climate change strategy; the same key 1nfonmant said that he "opens the municipal climate change strategy [document] every day" to consult the data and information. A Working Group member said that, 'The GA and the pilot project in~uenced the thinking process dTS GCC M&E Macedonia Municipal Climate Change Strategies Impact Evaluation: Municipal Pilot Mini Case Studies 33 potential projects for implementation, we receive fewer negative comments." A key informant from a CSO said, "Citizens of Krivogashtani were already infected with citizens' engagement at the time when the Green Agenda started, which triggered large participation in the working groups." These statements, along with others made during interviews, indicate that attitudes towards engagement were already positive enough on the part of those who actually did participate that a substantive increase would be difficult to identify through t he mechanism of a mini-case study. This quest ion will be further explored t hrough the endline research. It is worthy of note that Krivogashtani was (partially concurrently) participating in the Swiss-funded Community Forum program (2013-201 4). Reponses from key informants indicated that t hey particularly appreciated the positive, value-based approach used by the GA. Public and municipal government enthusiasm for the Green Agenda and the municipal pilot project WG members reported that at the beginning of the process almost all of them were skeptical of the GA approach and what it could achieve. As one reported, "We knew before ~ about identifying problems and that was okay. But values? Why would someone work to protect or promote values?" However, key informants felt t he results from both the urgent action and the municipal pilot project helped citizens recognize the benefits of t he approach, and WG members said that participants were proud of their contributions to the development and implementation of GA activities. According to the Local Coordinator, WG members demonstrated strong commitment to the GA process, and a core group of motivated young people was established. About one-quarter of WG members, including all the WG coordinators, were under 28 years of age. From the local school, teachers who taught biology and environmental issues joined the working groups and provided creative input. The WG coordinators were said to be very supportive and good at providing guidance to WG members, especially during the process of ranking potential intervention activities and creating a joint list of priorities. Members of the WGs said it was important that they were able t o work first within their own WG, prioritizing potential interventions, and then share A new boiler room was constructed at the primary school as part of the Krivogashtani energy efficiency municipal pilot project. Photo credit: Marija Nasho kovska their views and decisions with t he other WGs. They said this gave t hem ample opportunity to implement the knowledge received at t he beginning of the GA. They said t hat the process gave them the information, data, and space for discussion they needed to engage 1n the process of selecting the municipal pi lot project. Evaluation Question 9: Did the MCCS integration pilot result in changes in stakeholders' levels of engagement with each other? Stakeholder engagement in the GA process and municipal pilot project planning and implementation Krivogashtani key informants reported t hat participants actively contributed to t he discussions, sharing their knowledge and opinions. CCI provided introductory presentations before each meeting in order to assist the members and coordinators in shaping the discussions. All three WGs had opportunit ies to ask clarifying dTS GCC M&E Macedonia Municipal Climate Change Strat egies Impact Evaluation Municipal Pilot Mini Case Studies 35 questions, or provide additional information on the topic discussed before they started with the work in their group. The input from the older participants, usually retirees, was considered particularly valuable during WG discussions relating to priorities. Younger participants valued the opportunity to learn about how the municipality has changed over t he years, such as rivers in the municipality having dried up,58 the change in rainfal l patterns, and previous actions taken to clean the river beds. Younger WG members reported how interesting it was to learn about "how things were done 30 years ago." According to WG members, t he atmosphere during the meetings stimulated their thinking. For example, they reported that it was interesting to learn new things at t he beginning of every meeting, especially to learn about climate change and how individuals can contribute. Some of the WG members had more expertise than others (e.g., in biology, environmental issues, hydro-civil engineering) and proved to be helpful in providing additional informat ion on the topics under discussion. Six employees of the school actively participated in the WG activities throughout the process. According to WG members, t he teachers were particularly valuable members, a resource for additional information about the topics under discussion, such as plants and natural weather phenomena. One WG member noted that, "the success of the Green Agenda depends largely on Entrance to the Krivogashtani Primary School, which underwent energy efficiency renovations as part of a MCCS municipal pilot project. Photo credit: Marija Nasho kovska participation of citizens; more citizens participating means more discussions and more ideas of how to address the issues related to climate change." A challenge for the coordinators of the WGs was organizing the GA meetings in the middle of the agricultural season; Steps 2 through 6 of the Green Agenda took place between June and September, t he busiest time for those engaged 1n agriculture. At this time of year, people spend much of their t ime outside in the fields, so arranging meetings was difficult. According to the WG coordinators and some WG members, W Gs demonstrated fiexibility in scheduling meetings to accommodate everyone. However, WG members recommended scheduling this type of participatory program outside of the agricultural season, noting t hat then "participation and discussions would be more valuable." Coordinators of the working groups collaborated with each ot her frequently to share what was done in their groups, what needed to be prepared for the next meeting, and t he t iming of upcoming religious holidays. Members of the working groups expressed their satisfaction with the organization of the meetings. In addition to t he Green Agenda WGs, MCCS planned and implemented a number of events in Krivogashtani encouraging involvement in climate change issues, including: 5" Krivogashtani key informants reported that in earlier years, when it snowed heavily in t he mountains, the rivers held water for lo nger periods during the year. They said that nowadays nvers only bnng water in the springtime (during snow melt) and during intense rainfalls. such as occun-ed in February 2015 causing severe flooding in the municipality. dTS GCC M&E Macedonia Municipal Climat e Change Strategies Impact Evaluation Municipal Pilot Mini Case Studies 36  Evaluation Question 2: Did the MCCS integration pilot result in changes in stakeholders' awareness of local impacts of climate change? A key informant from a CSO reported that at the beginning of the Green Agenda process, people were not very aware of climate change issues. They did not recognize climate change as a phenomenon that had any influence over their lives; instead, they saw it as natural events that were occurring elsewhere in the world. However, as the Green Agenda process unfolded, WG members began not1c1ng and commenting on various local changes, e.g .. "there used to be a river there but now it is gone," or "it used to rain more frequently.'' A CSO informant said that the GA process encouraged people to think differently about local climate change issues. Ideas generating included introducing more frequent public transport in the municipality to reduce GHG emissions from private vehicles. This person also said that, prior to implementation of the Green Agenda, the municipal government and citizens were not aware of the potential savings to be had from making the school building energy efficient; nor were they aware of potential health impacts for school children of an action like installation of central heating in the school (rather than having wood-burning stoves in the classrooms). They also though that, if the GA approach had not been used, the municipal government would probably have prioritized repairing several streets in the municipality, as they did in the Swiss Development Corporation supported-Community Forum program. It should be noted that another informant said that some residents of le<:ialisi 01r~"ization Oevelvpn1ent & T1.:iinll'l1J Sc1vioo:o, lni.;. C11:)f1Aliun ~ition? 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