Peru’s National Institute for Research on Glaciers and Mountain Ecosystems (INAIGEM) is taking steps forward in developing the country’s National Policy for Glaciers and Mountain Ecosystems, one of its principal mandates. INAIGEM recently published an article in its institutional journal titled, “Specific Guidelines for Formulation of the Proposal for the National Policy of Glaciers and Mountain Ecosystems of Peru,” which serves as the first publicly available content that could be included in the final policy. The goal of the document is to support INAIGEM and the Ministry of Environment with an initial framework for subsequent policy development. Meanwhile, it also aims to set a foundation for an inclusive policy-making process that is representative of the people and landscapes within its purview.
As a Fulbright Public Policy Fellow and then consultant for CARE Peru, I produced this document in collaboration with INAIGEM’s leadership and diverse external stakeholders. To generate its content, I interviewed a variety of experts across government agencies, NGOs, and academia, did a case study of local community perspectives via surveys in the field, and then translated their responses into its policy lines. Meanwhile, via a database I built, I analyzed existing normative environmental structures in Peru on international, national, and subnational scales to determine how a new policy for glaciers and mountain ecosystems would integrate with, complement, or fulfill said structures.
Although there are a number of normative environmental mechanisms that incorporate some aspect of glaciers or mountain ecosystems across Peruvian governance, there is no specific apparatus for such topics despite their critical importance to human well-being and economic production. Being that there are many sectors and populations that depend on glaciers and mountain ecosystems in a variety of ways, disjointed management of these landscapes has been a major problem. Thus, with the creation of INAIGEM in December 2014, the government determined the policy will be a necessary tool to ensure the sustainable management of glaciers and mountain ecosystems for populations that live within or benefit from them.
INAIGEM’s leadership recognized that developing the policy and its subsequent implementation must be a collaborative effort for it to achieve positive socio-environmental outcomes in the Andes. According to former executive president, Engr. Benjamín Morales, “A national policy must be made with national participation … I believe that being a policy, the most important part is the country. The country must intervene. The whole Ministry [of Environment] and the other ministries should be involved in this policy.”[ Engr. Morales’s sentiment was based on avoiding a lack of buy-in across institutions, which is characteristic of Peruvian bureaucracy.
Meanwhile, INAIGEM’s heads of research activities echoed Engr. Morales’s point. Former Director of Information and Knowledge Management Engr. Ricardo Villanueva emphasized, “It is not only about doing isolated activities, but to develop an integrated and coordinated strategy of action for different institutions with interests in glaciers and mountain ecosystems.” As an example of the need for greater institutional coordination and integration, Engr. David Ocaña, the former head of research on mountain ecosystems said, “I think a policy is necessary because there are many gray areas between institutions. For example, [there are] gray areas between ANA and INAIGEM or with the Ministry Agriculture. The policy is going to be a tool that may not so much eliminate these gray areas but it will be clearer for each actor what their role and function is within what is glaciers and mountain ecosystems.”[
The need for clarity and coordination across institutions is a reflection of how multifaceted a Peruvian policy for glaciers and mountain ecosystems must be. There is a regional trend in developing such normative frameworks; for example, with Argentina having its law for protecting glaciers while Chile is developing a policy for mountains. However, Peru’s aim for the policy is unique in the region in terms of mountain-centered normative frameworks. For instance, it must be every bit about forests as glaciers to reflect the dramatic and diverse montane landscapes where glaciated peaks and tropical cloud forests can neighbor each other. Furthermore, the policy must address the country’s notorious tendency for major natural disasters in the Andes as well as an uncertain future in the face of climate change. INAIGEM’s area for intervention is anywhere 1,500 meters in altitude and above, therefore there are numerous issues that the policy will need to incorporate across varying environmental, social, and economic dimensions.
Thus, this initial document aims to be as holistic and comprehensive as possible in covering such dimensions and comes in the form of a potential national policy. Its framework has policy lines that address necessary outcomes across Peru’s diverse mountain landscapes, with four specific policy axes:
- Management and Conservation of Glaciers and Andean Water Resources
- Recovery and Sustainability of Mountain Ecosystems
- Adaptive Capacity Against Climatic, Geological, and Glaciological Risks
- Institutionality, Knowledge, and Socio-Environmental Andean Culture
Within each axis, there are general objectives that link to more specific policy lines. The policy lines were constructed in a coordinated and integrated fashion, with the intention of being transversal within the framework as well as with the existing normative environmental mechanisms of the country. The next steps for developing the policy will be to secure appropriate funding then carry out public consultations to engage various interested stakeholders throughout the country to assure that the end result is representative of their needs and generates applicable solutions to many complex problems. Such consultations should ensure that the policy is human-centered, with a specific focus of strengthening the rights and resilience of marginalized Andean populations. Dr. Jorge Recharte, the director of the Andes Program for the Mountain Institute highlighted that, “Peru is a cradle … of several civilizations centered on issues [within the] mountains … The concept of mountains has … a deep historical value in Peru … Peru needs to generate a mountain policy [that] … has to do with values of the country and has to do with … the identity of the nation.”
Once a final policy proposal is complete, it needs approval from the Ministry of Environment and then the Council of Ministers of the Presidency. Hopefully with their backing, the policy can help generate the necessary political will to acknowledge and address the many problems that pertain to glaciers and mountain ecosystems in Peru. Engr. Villanueva emphasized this as he warned, “If the politicians who make decisions are not aware of the importance of glaciers and mountain ecosystems … investments that are required to be made at the level of these territories will be very limited.”
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