Governing Climate Adaptation in the Local Arena: Challenges of Risk Management and Planning in Sweden

Abstract

This paper directs attention to conditions for climate adaptation as an important part of governing climate change in the local arena. Empirical focus is put on attempts to manage flood risks by means of risk management and planning in two Swedish municipalities. Following the need to widen our understanding of how, when and under what conditions climate adaptation occurs, three challenges are particularly emphasized from the case studies: facing the safety vs. scenery conflict where political priorities and reducing societal vulnerabilities prove difficult; the process of deciding what to adapt to, in which the troublesome role of knowledge is striking; and finally, taking responsibility for measures of flood protection. At the end of the paper, analytical generalizations illustrate the need to give increased attention to institutional challenges and challenges emanating from the science–policy interface in order to come to terms with the implementation deficit in governing climate change in the local arena.     

Adapting to Climate Change at the Local Level: The Spatial Planning Response

Abstract

Climate change is a major issue for all levels of government, global, national and local. Local authorities' responses to climate change have tended to concentrate on their role in reducing greenhouse gases. However, the scientific consensus is that we also need to adapt to unavoidable climate change. Spatial planning at a local level has a critical anticipatory role to play in promoting robust adaptation. This paper reviews the shift in local authorities' planning policies for climate change adaptation in the UK since 2000, and provides evidence of underlying attitudes amongst planning professionals to climate change. It shows that, while the issue of climate change is becoming recognized with respect to flood risk, the wider implications (for instance, for biodiversity and water resources) are not yet integrated into plans. The reasons for this lie in lack of political support and lack of engagement of the planning profession with climate change networks. But the paper also argues there are difficulties in acknowledging the need for adaptation at the local level, with the short-term horizons of local plans at odds with perceptions of the long-term implications of climate change.     

Governing Climate Adaptation in the Local Arena: Challenges of Risk Management and Planning in Sweden

This paper directs attention to conditions for climate adaptation as an important part of governing climate change in the local arena. Empirical focus is put on attempts to manage flood risks by means of risk management and planning in two Swedish municipalities. Following the need to widen our understanding of how, when and under what conditions climate adaptation occurs, three challenges are particularly emphasized from the case studies: facing the safety vs. scenery conflict where political priorities and reducing societal vulnerabilities prove difficult; the process of deciding what to adapt to, in which the troublesome role of knowledge is striking; and finally, taking responsibility for measures of flood protection. At the end of the paper, analytical generalizations illustrate the need to give increased attention to institutional challenges and challenges emanating from the science-policy interface in order to come to terms with the implementation deficit in governing climate change in the local arena.     

“There is nothing political in it”: triggers of local political leaders' engagement in climate adaptation

Local government is attributed a vital role in climate-change adaptation. Previous studies contend that conflicting priorities, insufficient institutional incentives and knowledge of risks, and inadequate resources all impede local climate adaptation. Though the importance of local political support in enabling climate adaptation is widely acknowledged, the views of local politicians have rarely been analysed. Drawing on semi-structured interviews with local politicians in Sweden, we explore what affects their engagement in climate adaptation. The study claims that climate adaptation contrary to mitigation is not viewed as political beyond directing attention and sanctioning guidelines set by officials. A limited number of interviewees claim a more strategic political role in adaptation. The combined effect of institutional incentives (e.g. fragmented national guidelines, unappealing goals, and lack of funding), relative weight in local politics, and ability to exercise political leadership (e.g. campaign value, public and media pressure, and lack of ideology) is perceived as too insignificant to trigger strong political engagement. In less-populous municipalities, adaptive measures were highly valued for demonstrating political action.     

Exploring the autonomous adaptation strategies to climate change and climate variability in selected villages in the rural northern savannah zone of Ghana

Evidence abounds attesting to changes in the global climate. In Ghana, climate change and climate variability have brought several exposure-sensitivities on different people and at different times. Due to the multiplicity of climate change and climate variability effects, adaptation strategies invariably could be influenced by several factors. This paper assesses the adoption of adaptation strategies in the rural northern savannah zone of Ghana as a result of climate change and variability. Using two villages each from Savelugu Nanton, West Mamprusi and Kassena Nankana East Districts, which are slightly different as case studies, the paper unearthed panoply of varied adaptation strategies in each of them including intensification of irrigation; integration of livestock production; changes in tillage practices; fertiliser application on farms; shift from agriculture to non-farm jobs; seasonal migration and purchase of drought insurance for maize. The results indicate that the relativity in adoption and utilisation of the different adaptive strategies are interlinked with geographical, social, economic, institutional and political factors and processes in the villages. The findings drum home the essentiality of location-specific planned adaptation strategies for climate change through a bottom-up approach, in order to ensure their effectiveness and sustainability.     

The Value of Linking Mitigation and Adaptation: A Case Study of Bangladesh

There are two principal strategies for managing climate change risks: mitigation and adaptation. Until recently, mitigation and adaptation have been considered separately in both climate change science and policy. Mitigation has been treated as an issue for developed countries, which hold the greatest responsibility for climate change, while adaptation is seen as a priority for the South, where mitigative capacity is low and vulnerability is high. This conceptual divide has hindered progress against the achievement of the fundamental sustainable development challenges of climate change. Recent attention to exploring the synergies between mitigation and adaptation suggests that an integrated approach could go some way to bridging the gap between the development and adaptation priorities of the South and the need to achieve global engagement in mitigation. These issues are explored through a case study analysis of climate change policy and practice in Bangladesh. Using the example of waste-to-compost projects, a mitigation-adaptation-development nexus is demonstrated, as projects contribute to mitigation through reducing methane emissions; adaptation through soil improvement in drought-prone areas; and sustainable development, because poverty is exacerbated when climate change reduces the flows of ecosystem services. Further, linking adaptation to mitigation makes mitigation action more relevant to policymakers in Bangladesh, increasing engagement in the international climate change agenda in preparation for a post-Kyoto global strategy. This case study strengthens the argument that while combining mitigation and adaptation is not a magic bullet for climate policy, synergies, particularly at the project level, can contribute to the sustainable development goals of climate change and are worth exploring.     

Adapting to Climate Change at the Local Level: The Spatial Planning Response

Climate change is a major issue for all levels of government, global, national and local. Local authorities' responses to climate change have tended to concentrate on their role in reducing greenhouse gases. However, the scientific consensus is that we also need to adapt to unavoidable climate change. Spatial planning at a local level has a critical anticipatory role to play in promoting robust adaptation. This paper reviews the shift in local authorities' planning policies for climate change adaptation in the UK since 2000, and provides evidence of underlying attitudes amongst planning professionals to climate change. It shows that, while the issue of climate change is becoming recognized with respect to flood risk, the wider implications (for instance, for biodiversity and water resources) are not yet integrated into plans. The reasons for this lie in lack of political support and lack of engagement of the planning profession with climate change networks. But the paper also argues there are difficulties in acknowledging the need for adaptation at the local level, with the short-term horizons of local plans at odds with perceptions of the long-term implications of climate change.     

“In common nature”: an ethnography of climate adaptation in the Lesotho Highlands

In Lesotho, climate change adaptation funding is being managed and distributed by the same mechanisms which have traditionally operationalised humanitarian aid and international development assistance in the country. Lessons from the HIV/AIDS disaster, along with insights into the value of participatory approaches foregrounding the expertise of indigenous communities, must be heeded in order to ensure that those most affected by climate change have a say in how adaptation is carried out. This paper proposes that indigenous people have developed and actively maintained resilience strategies, encoded in social practices and farming techniques, designed out of long experience with climatic variability. Through case studies, indigenous resilience strategies are explored, with emphasis on the anarchistic, improvisational nature of traditional ecological knowledge. Future directions for policy-makers and practitioners dealing with climate change adaptation are suggested, namely the need to foreground indigenous knowledge and the experiences of frontlines experts in key policy arenas.     

Perceptions of climate change on the Island of Providencia

Climate change-related impacts have the capacity to substantially influence Small Island Developing States (SIDS) in the Caribbean. Currently, many SIDS are engaged in large-scale vulnerability assessments that aim to identify, analyse, and inform solutions to mitigate climate change-related impacts. Many of these assessments, while useful, place little emphasis on the local stakeholders' perceptions of climate change. One such Caribbean community impacted by climate-related change is Providence Island in Colombia. Using a vulnerability assessment framework (Marshall, P.A. et al. 2010. A framework for social adaptation to climate change: sustaining tropical coastal communities and industries. Gland: IUCN Publication Services), researchers interviewed island residents (N = 23) about their perceptions of climate change, impacts on the local environment, and how the island community may adapt. All interviews were transcribed and analysed using a priori and open coding to identify patterns of and relationships between stakeholders' responses. Results indicate that local perceptions of climate change are linked to (1) environmental knowledge, (2) environmental awareness, attitudes, and beliefs, and (3) perceptions of risk. Implications for local adaptive strategies, education, communication, and suggestions for engagement at the local level are discussed.     

Adapting to Climate Variability and Change: Experiences from Cereal-Based Farming in the Central Rift and Kobo Valleys, Ethiopia

Small-holder farmers in Ethiopia are facing several climate related hazards, in particular highly variable rainfall with severe droughts which can have devastating effects on their livelihoods. Projected changes in climate are expected to aggravate the existing challenges. This study examines farmer perceptions on current climate variability and long-term changes, current adaptive strategies, and potential barriers for successful further adaptation in two case study regions—the Central Rift Valley (CRV) and Kobo Valley. The study was based on a household questionnaire, interviews with key stakeholders, and focus group discussions. The result revealed that about 99 % of the respondents at the CRV and 96 % at the Kobo Valley perceived an increase in temperature and 94 % at CRV and 91 % at the Kobo Valley perceived a decrease in rainfall over the last 20–30 years. Inter-annual and intraseasonal rainfall variability also has increased according to the farmers. The observed climate data (1977–2009) also showed an increasing trend in temperature and high inter-annual and intra-seasonal rainfall variability. In contrast to farmers’ perceptions of a decrease in rainfall totals, observed rainfall data showed no statistically significant decline. The interaction among various bio-physical and socio-economic factors, changes in rainfall intensity and reduced water available to crops due to increased hot spells, may have influenced the perception of farmers with respect to rainfall trends. In recent decades, farmers in both the CRV and Kobo have changed farming practices to adapt to perceived climate change and variability, for example, through crop and variety choice, adjustment of cropping calendar, and in situ moisture conservation. These relatively low-cost changes in farm practices were within the limited adaptation capacity of farmers, which may be insufficient to deal with the impacts of future climate change. Anticipated climate change is expected to impose new risks outside the range of current experiences. To enable farmers to adapt to these impacts critical technological, institutional, and market-access constraints need to be removed. Inconsistencies between farmers’ perceptions and observed climate trends (e.g., decrease in annual rainfall) could lead to sub-optimal or counterproductive adaptations, and therefore must be removed by better communication and capacity building, for example through Climate Field Schools. Enabling strategies, which are among others targeted at agricultural inputs, credit supply, market access, and strengthening of local knowledge and information services need to become integral part of government policies to assist farmers to adapt to the impacts of current and future climate change.     

The Role of Community Participation in Climate Change Assessment and Research

There is currently a gap between assessment and intervention in the literature concerned with climate change and food. While intervention is local and context dependent, current assessments are usually global and abstract. Available assessments are useful for understanding the scale of the effects of climate change and they are ideal for motivating arguments in favor of mitigation and adaptation. However, adaptation projects need assessments that can provide data to support their efforts. This requires the adoption of a more local and context-sensitive approach to assessments. I suggest that Community-Based Participatory Research has the potential to be a tool for such an approach.     

Climate change adaptation planning for Global South megacities: the case of Dhaka

Megacities in low- and middle-income countries face unique threats from climate change as vulnerable populations and infrastructure are concentrated in high-risk areas. This paper develops a theoretical framework to characterize adaptation readiness in Global South cities and applies the framework to Dhaka, Bangladesh, a city with acute exposure and projected impacts from flooding and extreme heat. To gather case evidence from Dhaka we draw upon interviews with national and municipal government officials and a review of planning documents and peer-reviewed literature. We find: (1) national-level plans propose a number of adaptation strategies, but urban concerns compete with priorities such as protection of coastal assets and agricultural production; (2) municipal plans focus on identifying vulnerability and impacts rather than adaptation strategies; (3) interviewees suggest that lack of coordination among local government (LG) organizations and lack of transparency act as barriers for municipal adaptation planning, with national plans driving policy where LGs have limited human and financial resources; and (4) we found limited evidence that national urban adaptation directives trickle down to municipal government. The framework developed offers a systematic and standardized means to assess and monitor the status of adaptation planning in Global South cities, and identify adaptation constraints and opportunities.     

Nepalganj,the centre of the world: local perceptions of environmental change and the roles of climate-change adaptation actors

This paper explores community perspectives of environmental change and the role development actors in the regional Nepali town of Nepalganj. Understanding these perceptions is crucial for planning future adaptation to climate change and ensuring that these measures are sustainable and in line with community priorities. Firstly, I contend that whilst the local community in Nepalganj may be experiencing the impacts of climate change, they are unfamiliar and disassociated with the concept. Secondly, I identify a number of risks and opportunities around the role of local government, international development organisations and local non-government organisations in future adaptation actions. Participant perceptions of these institutions in their community reinforce a number of established critiques of development around themes such as poor consultation and short project timelines. The long-term success of adaptation actions will be shaped by the ability and willingness of development actors to evolve their practices by listening to local communities.     

Farmers’ Perceptions of Climate Change and Agricultural Adaptation Strategies in Rural Sahel

Farmers in the Sahel have always been facing climatic variability at intra- and inter-annual and decadal time scales. While coping and adaptation strategies have traditionally included crop diversification, mobility, livelihood diversification, and migration, singling out climate as a direct driver of changes is not so simple. Using focus group interviews and a household survey, this study analyzes the perceptions of climate change and the strategies for coping and adaptation by sedentary farmers in the savanna zone of central Senegal. Households are aware of climate variability and identify wind and occasional excess rainfall as the most destructive climate factors. Households attribute poor livestock health, reduced crop yields and a range of other problems to climate factors, especially wind. However, when questions on land use and livelihood change are not asked directly in a climate context, households and groups assign economic, political, and social rather than climate factors as the main reasons for change. It is concluded that the communities studied have a high awareness of climate issues, but climatic narratives are likely to influence responses when questions mention climate. Change in land use and livelihood strategies is driven by adaptation to a range of factors of which climate appears not to be the most important. Implications for policy-making on agricultural and economic development will be to focus on providing flexible options rather than specific solutions to uncertain climate.     

Smallholder farmers’ coping and adaptation strategies to climate change and variability in the central highlands of Ethiopia

This study describes the different coping and adaptation strategies used by smallholder farmers to mitigate the adverse impacts of climate change and variability in the central highlands of Ethiopia. A distinction was made between coping and adaptation strategies, respectively, as short-term and longer term measures. The study surveyed 200 farm households in three districts, and three focus group discussions and three key informant interviews were conducted in each district. All the surveyed farmers perceived at least one aspect of change in the local climate. Their perception of an increasing trend of temperature was supported by meteorological records, while their perception of declining annual rainfall was not supported by actual records in two of the three districts, where positive trends in rainfall were observed. Farmers identified changes in rainfall and drought as their major climate change-related risks. In response, farmers used different strategies to mitigate the adverse effects of climate change and variability. The most widely used coping strategy was selling livestock (85% of the respondents), followed by changing consumption pattern (76% of the respondents). Changing crop planting dates was the most preferred adaptation option (89% of the respondents), while irrigation as an adaptation strategy was used only by 10% of the surveyed farmers. Shortage of water for irrigation (83% of the respondents) and shortage of money to buy necessary inputs (77% of the respondents) were the major barriers to effective adaptation frequently cited in the study area. We conclude that adaptation policy should build on existing coping and adaptation strategies and focus on addressing barriers to the adoption of coping and adaptation measures at different scales.     

Barriers and enablers to climate change adaptation in hierarchical governance systems: the case of Vietnam

Governments fulfil important roles in increasing the adaptive capacity of local communities to respond to climate change impacts, particularly in developing countries. Existing studies on how governments enable and constrain the ways in which local level communities learn and build their adaptive capacity, however, generally adopt network or market-oriented types of governance. However, the most vulnerable regions to climate change impact in the world are generally governed through hierarchical policy systems. This research aims to understand how the hierarchical policy system in Vietnam creates enables and/or constrains the policy capacity of policy actors to contribute to effective climate change adaptation. We conducted interviews (n?=?26) with key actors at multiple levels of government. Our findings show the importance of clear legal institutions, available financing for implementing policies, and the training of governmental staff, particularly at district and commune levels where the policy capacities are generally too low to deal with climate change impacts. We conclude that any efforts to support local actors (i.e. smallholder farmers) should include investments in policy capacity to ensure uptake and upscaling of adaptation actions more broadly.     

A question of ‘fit’: local perspectives on top-down flood mitigation policies in Vermont

Despite consensus on the need to adapt to climate change, who should adapt, and how, remain open questions. While local-level actions are essential to adaptation, state and federal governments can play a substantial role in adaptation. In this paper, we investigate local perspectives on state-level flood mitigation policies in Vermont as a means of analysing what leads top-down adaptations to be effective in mobilizing local action. Drawing on interviews with town officials, we delineate local-level perspectives on Vermont's top-down policies and use those perspectives to develop a conceptual framework that presents the ‘fit’ between top-down policies and the local-level context as comprised of three components: Receptivity, Ease of Participation, and Design. We explain how these components and their interactions influence local-level action. This analysis points to how careful consideration of the components of ‘fit’ may lead to greater local-level uptake of top-down adaptation policies.     

Climate change and indigenous natural resource management: a review of socio-ecological interactions in the Alinytjara Wilurara NRM region

This article examines key socio-ecological interactions identified during a climate change vulnerability assessment in the Alinytjara Wilurara natural resources management (NRM) region of South Australia. The complex local socio-ecological interactions are highlighted to guide a response to the challenge of adapting to climate change within the region. Recognising several key desert drivers which perpetuate degraded socio-ecological systems, this article recommends that a range of strategies be employed simultaneously to enhance local environmental management in association with remote indigenous communities, including: linking people and NRM more closely; tracking funding but ensuring systems can withstand periods of limited financial support; developing cross-sectoral and cross-institutional links; empowering and engaging communities; communicating effectively; and actively supporting local and traditional environmental knowledge. Unless climate change adaptation responses within the region are conceptualised and enacted within the context of complex local socio-ecological systems, NRM will not improve and social vulnerability will increase.     

Climate change adaptation at different levels of government: Characteristics and conditions of policy change

Climate change adaptation strategies that aim to minimize harm and maximize benefits related to climate change impacts have mushroomed at all levels of government in recent years. While many studies have explored barriers that stand in the way of their implementation, the factors determining their potential to mainstream adaptation into various sectors are less clear. In the present paper, we aim to address this gap for two international, six national, and six local adaptation strategies. Based on document analyses and 35 semi‐structured interviews, the 14 case studies also explore in how far the factors facilitating climate change adaptation are similar across levels of government or level‐specific. Although located at three different levels of government, we find that the 14 adaptation strategies analyzed here represent “one‐size‐fits‐all governance arrangements” that are characterized by voluntariness and a lack institutionalization. Since adaptation strategies are relatively weak coordination hubs that are unable to force adaptation onto sectoral policy agendas, they rely mainly on sectoral self‐interest in adapting to climate change, largely determined by problem pressure. We conclude that one‐size‐fits‐all governance arrangements are rarely adequate responses to complex challenges, such as climate change. Although climate change adaptation depends more on framework conditions such as problem pressure than on administrative or governance features, the findings presented here can help to understand under what circumstances adaptation is likely to make progress.     

Sustainability in the USA and New Zealand: explaining and addressing the implementation gap in local government

This paper describes the frustrating reality of sustainability implementation in the USA and New Zealand (NZ), an early adopter of sustainability mandates. Local government has a key role in implementation, but has been slow to uptake sustainable practices. We surveyed senior planners in small to medium-sized local government agencies in both countries to identify which features of local government support (or hinder) sustainability in practice.

Environmentally sustainable practices are not well entrenched in either country. In the USA, the framing of sustainability and public support are significant predictors of implementation. However, sustainability is rarely a priority. In NZ, local government capacity is the main driver of implementation. We recommend that planners promote sustainability values, reconcile economic development goals with sustainability (e.g., green economy model), and translate public support for sustainability into institutional priorities. NZ localities also need increased capacity and US localities need continued Federal and State support.