Ronald D. Brunner and Amanda H. Lynch
Adaptive governance is defined by a focus on decentralized decision-making structures and procedurally rational policy, supported by intensive natural and social science. Decentralized decision-making structures allow a large, complex problem like global climate change to be factored into many smaller problems, each more tractable for policy and scientific purposes. Many smaller problems can be addressed separately and concurrently by smaller communities. Procedurally rational policy in each community is an adaptation to profound uncertainties, inherent in complex systems and cognitive constraints, that limit predictability. Hence planning to meet projected targets and timetables is secondary to continuing appraisal of incremental steps toward long-term goals: What has and hasn’t worked compared to a historical baseline, and why? Each step in such trial-and-error processes depends on politics to balance, if not integrate, the interests of multiple participants to advance their common interest—the point of governance in a free society. Intensive science recognizes that each community is unique because the interests, interactions, and environmental responses of its participants are multiple and coevolve. Hence, inquiry focuses on case studies of particular contexts considered comprehensively and in some detail.
Varieties of adaptive governance emerged in response to the limitations of scientific management, the dominant pattern of governance in the 20th century. In scientific management, central authorities sought technically rational policies supported by predictive science to rise above politics and thereby realize policy goals more efficiently from the top down. This approach was manifest in the framing of climate change as an “irreducibly global” problem in the years around 1990. The Intergovernmental Panel on Climate Change (IPCC) was established to assess science for the Conference of the Parties (COP) to the U.N. Framework Convention on Climate Change (UNFCCC). The parties negotiated the Kyoto Protocol that attempted to prescribe legally binding targets and timetables for national reductions in greenhouse gas emissions. But progress under the protocol fell far short of realizing the ultimate objective in Article 1 of the UNFCCC, “stabilization of greenhouse gas concentrations in the atmosphere at a level that would prevent dangerous anthropogenic interference in the climate system.” As concentrations continued to increase, the COP recognized the limitations of this approach in Copenhagen in 2009 and authorized nationally determined contributions to greenhouse gas reductions in the Paris Agreement in 2015.
Adaptive governance is a promising but underutilized approach to advancing common interests in response to climate impacts. The interests affected by climate, and their relative priorities, differ from one community to the next, but typically they include protecting life and limb, property and prosperity, other human artifacts, and ecosystem services, while minimizing costs. Adaptive governance is promising because some communities have made significant progress in reducing their losses and vulnerability to climate impacts in the course of advancing their common interests. In doing so, they provide field-tested models for similar communities to consider. Policies that have worked anywhere in a network tend to be diffused for possible adaptation elsewhere in that network. Policies that have worked consistently intensify and justify collective action from the bottom up to reallocate supporting resources from the top down. Researchers can help realize the potential of adaptive governance on larger scales by recognizing it as a complementary approach in climate policy—not a substitute for scientific management, the historical baseline.
Climate change adaptation is the ability of a society or a natural system to adjust to the (changing) conditions that support life in a certain climate region, including weather extremes in that region. The current discussion on climate change adaptation began in the 1990s, with the publication of the Assessment Reports of the Intergovernmental Panel on Climate Change (IPCC). Since the beginning of the 21st century, most countries, and many regions and municipalities have started to develop and implement climate change adaptation strategies and plans. But since the implementation of adaptation measures must be planned and conducted at the local level, a major challenge is to actually implement adaptation to climate change in practice. One challenge is that scientific results are mainly published on international or national levels, and political guidelines are written at transnational (e.g., European Union), national, or regional levels—these scientific results must be downscaled, interpreted, and adapted to local municipal or community levels. Needless to say, the challenges for implementation are also rooted in a large number of uncertainties, from long time spans to matters of scale, as well as in economic, political, and social interests. From a human perspective, climate change impacts occur rather slowly, while local decision makers are engaged with daily business over much shorter time spans.
Among the obstacles to implementing adaptation measures to climate change are three major groups of uncertainties: (a) the uncertainties surrounding the development of our future climate, which include the exact climate sensitivity of anthropogenic greenhouse gas emissions, the reliability of emission scenarios and underlying storylines, and inherent uncertainties in climate models; (b) uncertainties about anthropogenically induced climate change impacts (e.g., long-term sea level changes, changing weather patterns, and extreme events); and (c) uncertainties about the future development of socioeconomic and political structures as well as legislative frameworks.
Besides slow changes, such as changing sea levels and vegetation zones, extreme events (natural hazards) are a factor of major importance. Many societies and their socioeconomic systems are not properly adapted to their current climate zones (e.g., intensive agriculture in dry zones) or to extreme events (e.g., housing built in flood-prone areas). Adaptation measures can be successful only by gaining common societal agreement on their necessity and overall benefit. Ideally, climate change adaptation measures are combined with disaster risk reduction measures to enhance resilience on short, medium, and long time scales.
The role of uncertainties and time horizons is addressed by developing climate change adaptation measures on community level and in close cooperation with local actors and stakeholders, focusing on strengthening resilience by addressing current and emerging vulnerability patterns. Successful adaptation measures are usually achieved by developing “no-regret” measures, in other words—measures that have at least one function of immediate social and/or economic benefit as well as long-term, future benefits. To identify socially acceptable and financially viable adaptation measures successfully, it is useful to employ participatory tools that give all involved parties and decision makers the possibility to engage in the process of identifying adaptation measures that best fit collective needs.
Indigenous experiences with climate change have become increasingly visible through media stories of rising sea levels, heavy storms, and coastal erosion due to climate change in places as different as Tuvula in the South Pacific and Shishmaref in the Alaskan Arctic. Despite these bursts of attention, indigenous concerns and experiences have not been well or diversely represented in media coverage, nor have they been consistently studied in media scholarship—nor until recently, have indigenous people or knowledge been mentioned in major climate agreements and scientific assessments. There is, however, a growing body of interdisciplinary scholarship that draws on indigenous knowledge, experiences, and activism related to climate change.
Indigenous peoples comprise 5% of the world’s population and live in over 90 countries around the world. Because indigenous communities are often located outside major urban centers, indigenous peoples are likely to suffer disproportionately from the impacts of climate change. Many indigenous people live in close connection with the ecosystems in their region, and collectively held Traditional Ecological Knowledge (TEK) is passed down through multiple generations, providing in-depth, systematic, meaningful, and historically informed views of climate change and potential pathways for resilience and adaptation.
Indigenous people have often been portrayed in media coverage as victims with little attention paid to TEK, communal resilience, human rights and climate justice frameworks, or the historical contexts that may amplify climate change impacts. While indigenous people have diverse circumstances and histories, many are likely to have suffered enormous upheaval in recent centuries due to colonialism, resource development, economic shifts, loss of human rights, and lack of self-determination. Climate change often intensifies existing vulnerabilities and risks. These deeply intertwined social and environmental crises create distinct challenges for considering how and what climate change means for diverse indigenous peoples, how to address it at all levels of governance, and how media can and should be accountable to and represent indigenous publics.
Philipp Pattberg and Oscar Widerberg
In 1992, when the international community agreed on the United Nations Framework Convention on Climate Change (UNFCCC), the science of climate change was under development, global greenhouse gas (GHG) emissions were by and large produced by developed countries, and the concentrations of CO2 in the atmosphere had just surpassed 350 ppm. Some 25 years later, climate change is scientifically uncontested, China has overtaken the United States as the world’s biggest emitter of CO2, and concentrations are now measured above 400 ppm. Against this background, states have successfully concluded a new global agreement under the UNFCCC, the 2015 Paris Agreement. Prior to the Paris Agreement, the climate regime focused on allocating emission reduction commitments among (a group of) countries. However, the new agreement has turned the climate regime on its feet by introducing an approach based on Nationally Determined Contributions (NDCs). Under this approach, states decide their ambition levels independently instead of engaging in negotiations about “who does what.” The result is a more flexible system that for the first time includes all countries in the quest to reduce GHG emissions to keep temperature increase below 2°C compared to preindustrial levels. Moreover, the international climate regime has transformed into a regime complex, denoting the broad activities of smaller groups of states as well as non-party actors, such as cities, regions, companies, and non-governmental organizations along with United Nations agencies.
Susanne C. Moser
Communicating the impacts of climate change and possible adaptive responses is a relatively recent branch of the larger endeavor of climate change communication. This recent emergence, in large part, is driven by the fact that the impacts and policy/planning/practice responses have only recently emerged in more widespread public consciousness and discourse, and thus in scholarly treatment. This article will first describe the critical and precarious moment of when impacts and adaptation communication becomes important; it will then summarize proposed approaches to do so effectively; and discuss key challenges confronting climate change communication going forward. These challenges may well be unique in the field of communication, in that they either uniquely combine previously encountered difficulties into novel complexities or are truly unprecedented. To date, scholarship and experience in climate, environmental, or risk communication provide little guidance on how to meet these challenges of communicating effectively with diverse publics and decision makers in the face of long-term degradation of the life support system of humanity. The article will conclude with an attempt to offer research and practice directions, fit at least to serve as appropriately humble attitudes toward understanding and engaging fellow humans around the profound risks of an utterly uncertain and far-from-assured future.
Community-based adaptation (CBA) to climate change is an approach to adaptation that aims to include vulnerable people in the design and implementation of adaptation measures. The most obvious forms of CBA include simple, but accessible, technologies such as storing freshwater during flooding or raising the level of houses near the sea. It can also include more complex forms of social and economic resilience such as increasing access to a wider range of livelihoods or reducing the vulnerability of social groups that are especially exposed to climate risks. CBA has been promoted by some development nongovernmental organizations (NGOs) and international agencies as a means of demonstrating the importance of participatory and deliberative methods within adaptation to climate change, and the role of longer-term development and social empowerment as ways of reducing vulnerability to climate change. Critics, however, have argued that focusing on “community” initiatives can often be romantic and can give the mistaken impression that communities are homogeneous when in fact they contain many inequalities and social exclusions. Accordingly, many analysts see CBA as an important, but insufficient, step toward the representation of vulnerable local people in climate change policy, but that it also offers useful lessons for a broader transformation to socially inclusive forms of climate change policy, and towards seeing resilience to climate change as lying within socio-economic organization rather than in infrastructure and technology alone.
For several decades, the Sahelian countries have been facing continuing rainfall shortages, which, coupled with anthropogenic factors, have severely disrupted the great ecological balance, leading the area in an inexorable process of desertification and land degradation. The Sahel faces a persistent problem of climate change with high rainfall variability and frequent droughts, and this is one of the major drivers of population’s vulnerability in the region. Communities struggle against severe land degradation processes and live in an unprecedented loss of productivity that hampers their livelihoods and puts them among the populations in the world that are the most vulnerable to climatic change. In response to severe land degradation, 11 countries of the Sahel agreed to work together to address the policy, investment, and institutional barriers to establishing a land-restoration program that addresses climate change and land degradation. The program is called the Pan-Africa Initiative for the Great Green Wall (GGW). The initiative aims at helping to halt desertification and land degradation in the Sahelian zone, improving the lives and livelihoods of smallholder farmers and pastoralists in the area and helping its populations to develop effective adaptation strategies and responses through the use of tree-based development programs. To make the GGW initiative successful, member countries have established a coordinated and integrated effort from the government level to local scales and engaged with many stakeholders. Planning, decision-making, and actions on the ground is guided by participation and engagement, informed by policy-relevant knowledge to address the set of scalable land-restoration practices, and address drivers of land use change in various human-environmental contexts. In many countries, activities specific to achieving the GGW objectives have been initiated in the last five years.