Adaptive urban governance: new challenges for the second generation of urban adaptation strategies to climate change

The task of adapting cities to the impacts of climate change is of great importance—urban areas are hotspots of high risk given their concentrations of population and infrastructure; their key roles for larger economic, political and social processes; and their inherent instabilities and vulnerabilities. Yet, the discourse on urban climate change adaptation has only recently gained momentum in the political and scientific arena. This paper reviews the recent climate change adaptation strategies of nine selected cities and analyzes them in terms of overall vision and goals, baseline information used, direct and indirect impacts, proposed structural and non-structural measures, and involvement of formal and informal actors. Against this background, adaptation strategies and challenges in two Vietnamese cities are analyzed in detail, namely Ho Chi Minh City and Can Tho. The paper thereby combines a review of formalized city-scale adaptation strategies with an empirical analysis of actual adaptation measures and constraints at household level. By means of this interlinked and comparative analysis approach, the paper explores the achievements, as well as the shortcomings, in current adaptation approaches, and generates core issues and key questions for future initiatives in the four sub-categories of: (1) knowledge, perspectives, uncertainties and key threats; (2) characteristics of concrete adaptation measures and processes; (3) interactions and conflicts between different strategies and measures; (4) limits of adaptation and tipping points. In conclusion, the paper calls for new forms of adaptive urban governance that go beyond the conventional notions of urban (adaptation) planning. The proposed concept underlines the need for a paradigm shift to move from the dominant focus on the adjustment of physical structures towards the improvement of planning tools and governance processes and structures themselves. It addresses in particular the necessity to link different temporal and spatial scales in adaptation strategies, to acknowledge and to mediate between different types of knowledge (expert and local knowledge), and to achieve improved integration of different types of measures, tools and norm systems (in particular between formal and informal approaches).     

Legitimacy of urban climate change adaptation: a case in Helsinki

While there is general agreement on the necessity for local adaptation, there is a wide range of different understandings of what type of adaptation is seen as legitimate. It is often contested who should actively steer and take part in local adaptation, for which reasons and based on what kind of mandate, and with which methods. Planning theory can serve as a helpful reference point for examining the sources of legitimacy for adaptation in an urban context. From a planning perspective, adaptation is concerned with climate change as one out of many issues planning has to respond to. The layered co-existence of planning paradigms in practice suggests diverse, sometimes contradictory sources of legitimacy for urban planning and—as we claim here—also for climate change adaptation. This study examines the legitimacy of adaptation from a planning theoretical perspective in Helsinki, drawing on semi-structured interviews and social network analysis to show how adaptation is commonly understood from a rationalist perspective as an apolitical activity with local authorities’ experts designing and implementing adaptation. Nevertheless, some of the central actors understand adaptation as a communicative activity and a common deliberation of solutions. The co-occurrence of disparate paradigms results in ambiguous legitimacy that can impede the successful implementation of local climate change adaptation.     

Institutional capacity for long-term climate change adaptation: evidence from land use planning in Albay,Philippines

Mainstreaming climate change adaptation (CCA) into plans and programs is still a new approach in adaptation and thus there is limited information on how to operationalize it on-ground. This paper addresses this gap by investigating the challenges in mainstreaming CCA into the local land use plans in the province of Albay, Philippines. Specifically, this paper developed 20 quantitative “mainstreaming indicators” to assess the state-of-play and the challenges for local mainstreaming. These indicators were classified under three groupings, namely, the information, institutional, and resource capacities of systems. Qualitative analysis of the indicator scores suggested that developing the institutional capacities of local governments is crucial in the local mainstreaming process. Likewise, the results highlighted the “institutional issues” indicator as the primary barrier in operationalizing the approach. These institutional issues are: fragmented laws and regulations; overlapping policy requirements; and the lack of guidelines for mainstreaming CCA into the local land use plans. Meanwhile, the “leadership” indicator, as signified by a climate change champion in Albay, was evaluated as an opportunity for local mainstreaming. The champion effectively led the CCA efforts because the existing institutional mechanisms supported the champion’s capacity to influence the behavior of people and produce collective action towards CCA.     

An integrated decision-support process for adaptation planning: climate change as impetus for scenario planning in an agricultural region of Canada

The amount of information required to adapt to climate change is vast: downscaled climate projections, information on environmental impact, sectoral performance, external drivers, regional strategies, policies and practices. It can be argued that most of this information is accessible at the community/regional level, and thus, the important challenges to adaptation are not information gaps, but constraints created by fragmented planning decisions and a sector-by-sector basis for financial and human resource allocations. To strategically address this through adaptation planning, we developed and tested a place-based decision-making framework that creates an integrated platform for considering regional and global sectoral drivers in Eastern Ontario, Canada. Using available socioeconomic and biophysical information from regional authorities, alternative future scenarios were used to describe the range of socioeconomic futures and their vulnerabilities to climate change. We found that: (1) integration of diverse sets of available data (rather than narrowly focused sectoral assessments) helped identify shared common objectives (maximizing the long-term environmental, economic, social well-being within the region), (2) a high degree of congruence existed as the key drivers of change, irrespective of sector, (3) exploring the future scenarios highlighted shared regional priorities and helped identify adaptation priorities requiring more integrated regional planning.     

Toward legitimate governance strategies for climate adaptation in the Netherlands: combining insights from a legal,planning, and network perspective

In general, the issue of climate change is characterized by uncertainty, complexity, and multifacetedness. In the Netherlands, climate change is in above highly controversial. These characteristics make it difficult to realize adaptation measures that are perceived as legitimate. In this article, we analyze the main difficulties and dilemmas with regard to the issue of legitimacy in the context of climate adaptation. We conceptualize legitimacy from a legal, a planning, and a network perspective and show how the concept of legitimacy evolves within these three perspectives. From a legal perspective, the focus is on the issues of good governance. From a planning perspective, the focus is on the flexibility, learning, and governance capacity. From a network perspective, issues of dialogue, involvement, and support are important. These perspectives bring in different criteria, which are not easy compatible. We describe and illustrate these legitimacy challenges using an in-depth study of the Dutch IJsseldelta Zuid case. From our case study, we conclude that, from a legitimacy perspective, the often acclaimed necessity to be adaptive and flexible is quite problematic. The same holds true for the plea to mainstream adaptation into other policy domains. In our case study, these strategies give rise to serious challenges in relation to good governance and consensus—two indispensable cornerstones of legitimacy.     

The research-policy nexus in climate change adaptation: experience from the urban water sector in South East Queensland,Australia

Despite an exponential growth in the volume of adaptation research over the last decade, there is still a research gap in regard to the provision of suitable information to adequately inform climate change adaptation policy makers. Contributing to this gap is a paucity of research reporting on the effectiveness of implemented adaptation strategies. This paper reports on the success, failures and future risks of the responses taken by the South East Queensland (SEQ) water sector during the Millennium Drought. The adaptation strategy employed a portfolio approach mixing ‘hard’ and ‘soft’ adaptations. Strategies included the following: large-scale water manufacturing facilities and distribution networks; the exploitation of local water resources; regulatory instruments; institutional reforms; support for research and training and a range of demand management programmes. The strategies employed were innovative and in many cases required rigorous scientific evidence for their development, implementation and follow-up assessments. However, we show that there has been considerable disparity between anticipated and actual policy outcomes, which points to maladaptive consequences. By revisiting the effectiveness of implemented adaptation strategies in the SEQ water sector, our paper provides evidence for the need for integrative studies with genuine policy integration.     

A guide towards climate change adaptation in the livestock sector: adaptation options and the role of robust decision-making tools for their economic appraisal

Economic appraisal and technical effectiveness of adaptation options are key criteria for judging climate change adaptation investment decisions in all sectors. Yet relatively little methodological guidance exists for determining the most appropriate appraisal techniques for different adaptation options. This paper provides adaptation options and scopes relevant appraisal methods in agriculture focussing on livestock production specifically. We find that for many adaptation options for livestock agriculture, standard (expected) cost-benefit analysis is an appropriate tool. For adaptation options requiring long lead times or those with long lifetimes, techniques incorporating uncertainty (‘robust’ methods) are more suitable, including real options analysis, portfolio analysis and robust decision-making. From a comprehensive list of adaptation options in the livestock sector, we identify the most appropriate appraisal technique for each option and describe how the robust appraisal tools could be applied to heat stress, flood risk and water management.

     

Climate capacity:the measurement for adaptation to climate change

This article proposed the concept of"climate capacity"as a way of measuring human’s adaptiveness to climate change.This article also focused on the related concepts like ecological carrying capacity,water resources carrying capacity,land carrying capacity as well as population carrying capacity.The concept of climate capacity was articulated against a background of global climate and environmental change.Essentially,China’s efforts to adapt to climate change was a matter of improving climate capacity,which is the ecosystem as well as the frequency,the intensity and the scale of human’s social activities that the climatic resources of a particular geographic area were supposed to support.The climate capacity has two components.One is the natural climate capacity,which includes temperature,sunlight,precipitation,extreme climatic events,etc.The other is the derived climate capacity,which includes water resources,land resources,ecological systems,climatic risks,etc.The climate capacity can be developed or be transferred between regions by taking engineering,technology or regime-based adaptive measures.However,these adaptive measures must be implemented under the principle of economic rationalism,ecological integrity,climate protection,and social justice.It is expected that by combining the climate capacity and its threshold value with the assessment of climate change risks,we are able to predict the optimal population carrying capacity and the scale of socioeconomic development,and furthermore,provide policy support for the socioeconomic development strategy and adaptive planning.In the regions with high climate capacity,there is a symbiotic relationship between adaptation and socioeconomic development.But,in the regions with limited climate capacity,irrational development may further damage the environment.Taking the Yangtze River delta,a region with high climate capacity,and a region of Ningxia,a region with limited climate capacity,as illustrative examples,the authors of this article analyzed the policy implications of climate capacity and further made suggestions on the problems of capacitylimited adaptation and development-driven adaptation.This article argued that the concept of climate capacity can not only be used as an analytical instrument of climate change economics,but also it can provide research support for planning regional adaptation and development with climate change impact and risk assessments.     

Indicators of climate change adaptation from molecules to ecosystems

Regional Environmental Change -     

Communicating climate change for adaptation in rural communities: a Pacific study

The academic literature on climate change communications is growing. However, the majority of this literature focuses on the issue of climate change mitigation in a developed country context, and there is little published material regarding communication in a developing country and adaptation context. Similarly, despite community-based approaches to climate change adaptation and disaster risk reduction increasing in the Pacific Islands region, there is very limited guidance on how to effectively communicate climate change in a way that enhances people’s resilience. This paper documents the experiences of organisations, including local and international non-government and faith-based organisations, governments, regional technical organisations and donor agencies in communicating climate change for adaptation in the Pacific region. Three key climate change communication challenges are highlighted and suggestions made for overcoming them based on results from interviews, a focus group discussion and an online forum. Finally, recommendations are made for good practice guidance in climate change communication that is empowering and culturally relevant.     

Agronomic adaptation strategies under climate change for winter durum wheat and tomato in southern Italy: irrigation and nitrogen fertilization

Agricultural crops are affected by climate change due to the relationship between crop development, growth, yield, CO₂ atmospheric concentration and climate conditions. In particular, the further reduction in existing limited water resources combined with an increase in temperature may result in higher impacts on agricultural crops in the Mediterranean area than in other regions. In this study, the cropping system models CERES-Wheat and CROPGRO-Tomato of the Decision Support System for Agrotechnology Transfer (DSSAT) were used to analyse the response of winter durum wheat (Triticum aestivum L.) and tomato (Lycopersicon esculentum Mill.) crops to climate change, irrigation and nitrogen fertilizer managements in one of most productive areas of Italy (i.e. Capitanata, Puglia). For this analysis, three climatic datasets were used: (1) a single dataset (50?km?×?50?km) provided by the JRC European centre for the period 1975–2005; two datasets from HadCM3 for the IPCC A2 GHG scenario for time slices with +2°C (centred over 2030–2060) and +5°C (centred over 2070–2099), respectively. All three datasets were used to generate synthetic climate series using a weather simulator (model LARS-WG). Adaptation strategies, such as irrigation and N fertilizer managements, have been investigated to either avoid or at least reduce the negative impacts induced by climate change impacts for both crops. Warmer temperatures were primarily shown to accelerate wheat and tomato phenology, thereby resulting in decreased total dry matter accumulation for both tomato and wheat under the +5°C future climate scenario. Under the +2°C scenario, dry matter accumulation and resulting yield were also reduced for tomato, whereas no negative yield effects were observed for winter durum wheat. In general, limiting the global mean temperature change of 2°C, the application of adaptation strategies (irrigation and nitrogen fertilization) showed a positive effect in minimizing the negative impacts of climate change on productivity of tomato cultivated in southern Italy.     

The role of ad hoc networks in supporting climate change adaptation: a case study from the Southeastern United States

To examine the factors that support adaptation within a regional and sectoral context, this article explores five climate-sensitive sectors in North and South Carolina (Forestry, Government Administration, Tourism, Water Management, and Wildlife Management) and the role of partnerships, collaborations, and networks in facilitating climate adaptation and related activities. Drawing from 117 online questionnaires and interviews with sector leaders across the Carolinas, the article highlights several key functions of networks in regard to supporting adaptation—intra-sector information sharing; monitoring, data collection, and research; and education and outreach. Furthermore, the analysis examines how climate networks in the region have facilitated the development of bonding, bridging, and linking social capital while also noting factors that have constrained the growth and success of both intra- and cross-sector collaboration. Although no formal, or discrete, state or regional cross-sector climate change network exists in the Carolinas, climate adaptations and capacity-building efforts have been supported by ad hoc and decentralized networks, emerging collegial partnerships within and across sectors, and collaborative efforts to pool expertise and resources. The role of different forms of social capital within these networks is discussed in the context of a contentious political environment where support for activities designed to address climate change is limited. These findings enhance our understanding of the social factors and relational processes that shape and influence capacity to adapt to climate change.     

Collaborative governance for climate change adaptation in Canada: experimenting with adaptive co-management

The search for strategies to address ‘super wicked problems’ such as climate change is gaining urgency, and a collaborative governance approach, and adaptive co-management in particular, is increasingly recognized as one such strategy. However, the conditions for adaptive co-management to emerge and the resulting network structures and relational patterns remain unclear in the literature. To address these identified needs, this study examines social relationships from a network perspective while initiating a collaborative multiactor initiative aimed to develop into adaptive co-management for climate change adaptation, an action research project undertaken in the Niagara region of Canada. The project spanned 1 year, and a longitudinal analysis of participants’ networks and level of participation in the process was performed. Evidence of support for climate change adaptation from the process included the development of deliberative and adaptive responses to opportunities presented to the group and the development of a strong subgroup of participants where decision-making was centered. However, the complexity of the challenge of addressing climate change, funding constraints, competing initiatives, and the lack of common views among participants may have contributed to the group, highlighting the finding that beneficial network structural features and relational patterns are necessary but not sufficient condition for the development of an adaptive co-management process. The context of climate change adaptation may require a different social network structure and processes than other contexts for adaptive co-management to occur, and there may be limitations to adaptive co-management for dealing with super wicked problems.     

Governance and networks for health co-benefits of climate change mitigation: Lessons from two Indian cities

Health has been the main driver for many urban environmental interventions, particularly in cases of significant health problems linked to poor urban environmental conditions. This paper examines empirically the links between climate change mitigation and health in urban areas, when health is the main driver for improvements. The paper aims to understand how systems of urban governance can enable or prevent the creation of health outcomes via continuous improvements in the environmental conditions in a city. The research draws on cases from two Indian cities where initiatives were undertaken in different sectors: Surat (waste) and Delhi (transportation). Using the literature on network effectiveness as an analytical framework, the paper compares the cases to identify the possible ways to strengthen the governance and policy making process in the urban system so that each intervention can intentionally realize multiple impacts for both local health and climate change mitigation in the long term as well as factors that may pose a threat to long-term progress and revert back to the previous situation after initial achievements.     

Improving cross-sectoral climate change adaptation for coastal settlements: insights from South East Queensland,Australia

Climate change impacts affecting coastal areas, such as sea-level rise and storm surge events, are expected to have significant social, economic and environmental consequences worldwide. Ongoing population growth and development in highly urbanised coastal areas will exacerbate the predicted impacts on coastal settlements. Improving the adaptation potential of highly vulnerable coastal communities will require greater levels of planning and policy integration across sectors and scales. However, to date, there is little evidence in the literature which demonstrates how climate policy integration is being achieved. This paper contributes to this gap in knowledge by drawing on the example provided by the process of developing cross-sectoral climate change adaptation policies and programmes generated for three coastal settlement types as part of the South East Queensland Climate Adaptation Research Initiative (SEQCARI), a 3-year multi-sectoral study of climate change adaptation options for human settlements in South East Queensland, Australia. In doing so, we first investigate the benefits and challenges to cross-sectoral adaptation to address climate change broadly and in coastal areas. We then describe how cross-sectoral adaptation policies and programmes were generated and appraised involving the sectors of urban planning and management, coastal management, emergency management, human health and physical infrastructure as part of SEQCARI. The paper concludes by discussing key considerations that can inform the development and assessment of cross-sectoral climate change adaptation policies and programmes in highly urbanised coastal areas.     

Costs and benefits of adapting spatial planning to climate change: lessons learned from a large-scale urban development project in the Netherlands

Climate change increases the vulnerability of low-lying coastal areas. Careful spatial planning can reduce this vulnerability, provided that decision-makers have insight into the costs and benefits of adaptation options. This paper addresses the question which adaptation options are suitable, from an economic perspective, to adapt spatial planning to climate change at a regional scale. We apply social cost–benefit analysis to assess the net benefits of adaptation options that deal with the impacts of climate change-induced extreme events. From the methods applied and results obtained, we also aim at learning lessons for assessing climate adaptation options. The case study area, the Zuidplaspolder, is a large-scale urban development project in the Netherlands. The costs as well as the primary and secondary benefits of adaptation options relating to spatial planning (e.g. flood-proof housing and adjusted infrastructure) are identified and where possible quantified. Our results show that three adaptation options are not efficient investments, as the investment costs exceed the benefits of avoided damages. When we focus on ‘climate proofing’ the total area of the Zuidplaspolder, when the costs and benefits of all the presented adaptation options are considered together, the total package has a positive net present value. The study shows that it is possible to anticipate climate change impacts and assess the costs and benefits of adjusting spatial planning. We have learned that scenario studies provide a useful tool but that decision-making under climate change uncertainty also requires insight into the probabilities of occurrence of weather extremes in the future.