
Coherence in Climate Policies – Products
Coherence in Climate Policies
Problem Statement
In the policy field, different topics, all of them very relevant issues of our time, compete over shrinking public budgets. An added challenge, especially for climate change adaptation, is the dispersion of responsibilities across a variety of actors. Adaptation policy is generally under the responsibility of the Ministries of the Environment. Its implementation, on the other hand, depends on actions and funding decisions on the sectoral and sub-national level. This challenge has been recognised. It is reflected by the increased importance of sector ministries in the climate change negotiations. However, this awareness of a need for closer coordination has yet to fully translate into policy coherence between climate-change and infrastructure-related polices. Many countries still struggle to combine their efforts of improving the availability and reliability of public services with their efforts of combating climate change.
Looking at Climate Services, a core ingredient for evidence-based decision-making, the efforts of aligning different interests seems to be even less advanced. Like it used to be with climate policy for the Ministries of the Environment, the responsibility for enhancing Climate Services, if the need to do so is even recognised, is often solely placed on the shoulders of the National Meteorological and Hydrological Services (NMHS) (also compare chapter 5). While they certainly assume a core role in this, they lack the political clout that would be needed in order to influence national policies and budget allocations. But this would be required to make serious headway on the issue. To ensure that the resources and paradigm shifts necessary for enhancing climate service occur, Climate Services need to become part of the agendas of climate and infrastructure policy. As discussed in chapter 5, to achieve this, more actors along the Climate Service value chain need to be involved in devising a strategy for enhancing Climate Services.
Solution
The climate-resilient transformation of infrastructure requires both horizontal and vertical policy coherence. Horizontal policy coherence refers to the coherence between climate and infrastructure policy. Vertical policy coherence refers to the coherence between national and sub-national policies. This means that infrastructure resilience needs to become part of any adaptation plans and that climate change adaptation needs to be integrated into the infrastructure planning and investment cycle across all government levels (chapter 7 delves deeper into how this is done). If considerations of climate resilient infrastructure stop at the level of national or subnational climate policy, they are not going to be implemented. Horizontal policy coherence also requires that goals in terms of enhancing Climate Services need to become part of both climate and infrastructure policy to ensure that the necessary resources are allocated for making the necessary Climate Services for risk-informed decision-making available.
The notion of the need for policy coherence certainly is not new (Sources/ references). Still, the quest for achieving it has proven elusive. One reason for this is that formal and informal coalitions between actors advocating for more resilience are still at a premature state. What is needed are new alliances and bargaining arenas for negotiating the process of bringing infrastructure and climate policy together, while at the same time building the necessary evidence-base for doing so.
How to get there
Ideally, policy coherence is created from the onset of elaborating new adaptation and/ or infrastructure policy. However, the process may also start later. The important part is that of identifying an appropriate action track around which an adaptation coalition can be formed. There may be opportunities in terms of new laws and strategies, like National Adaptation Plans or, as in the case of Costa Rica, the official request by the Controller General to act . These actions tracks do not necessarily need to be based on official calls to action, they may also stem from an intrinsic sense of urgency felt by private and public sector institutions due to mounting losses, like in the example of the semi-public electricity provider Electrosul in Brazil.
Based on the identified action track, adaptation coalitions can be formed. These can range from informal working groups to committees with an official mandate. As said, there are a variety of inciting incidents, which may lead to the creation of adaptation coalitions. Experience from the CSI project has shown that identifying change agents that become catalysts of the transformation process plays a crucial role in this. They assume a variety of roles. There are the rule setters with the will and mandate to change the regulatory framework. It may be institutions like the Controller General in Costa Rica or the Ministry of Planning and Investment (MPI) in Vietnam that have the power to create incentives for considering climate change in planning via adapting the regulatory framework (reference to success story). It may be sectoral champions willing to test new approaches and thereby create best practices for other sectors and institutions to follow. In the CSI context, the role sectoral champions was assumed by Electrosul (Energy Sector) and Itajai Port (Transport Sector) in Brazik , the Ministry of Public Works and Transport (MOPT) and National Council for Roads and Bridges (CONAVI) (Transport Sector) in Costa Rica or the Ministry of Agriculture and Rural Development (MARD) in Vietnam (Water and Agriculture Sector) (reference to success story). Other important change agents are potential multipliers that have a cross-sectoral or regional function of creating and spreading best practices, like the Nile Basin Initiative (NBI) or the Federated College of Engineers and Architects (CFIA) in Costa Rica (reference to success story). In the case of CSI, different types of change agents were vital for creating awareness of the need for evidence-based adaptation and for having the awareness penetrate sectoral and disciplinary boundaries.
As stated in Establishing Climate Services, Climate Services and consequently adaptation solutions are developed along a value chain. Hence, besides having change agents as drivers within an adaptation coalition, it necessary to incorporate all relevant actors along the whole value chain into such networks. An initial step can be the formation of informal working groups, as CSI has done in all its partner countries.
Independently of the cooperation mechanism that is established, it also needs to be clarified which actor is going to steer the process. Generally, though formalised cooperation mechanisms may offer a higher degree of certainty, as their sustainability or durability in terms of resources and stakeholders devoting their time is secured by official mandates. However, this does not mean that informal forms of cooperation may not be as suitable. They provide the advantage of a higher flexibility and are also more easy to establish. Over the time, these types of governance structures have gained recognition under the heading of network governance .
Independently of the degree of formalisation, one key actor with chance of taking up the role as honest broker and process facilitator that provides advisory is the Ministry of the Environment. This is exemplified by the work of CSI in both Brazil and Costa Rica. In both countries, the Ministries of the Environment took on the role of steering the established working groups. This helped in establishing them not only as process facilitator but also as advisors to stakeholders form the infrastructure field that are still new to the topic of climate change adaptation. It also led to a closer cooperation between sector ministries and Ministries for the Environment reflected in more policy coherence. One example for this is the importance of infrastructure in the National Adaptation Plans/ Policies of both countries.
Finally, when all the other necessary framework conditions are in place in terms having an action track, an adaptation coalition and proper governance in place, those intending to make infrastructure more resilient towards climate change need the right tools that allow harmonising the objectives of infrastructure development with those of climate resilience. In many of the countries CSI works with one of the reasons given by the partners for not acting upon adaptation goals was that though there was regulation, they did not possess the tools or the information to act upon it. Chapter 7 delves into how to develop tools that allow to translate the foundations of policy coherence into practice
Coherence in Climate Policies – Success Stories
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Coherence in Climate Policies – Success Factors
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Climate Proofing
Background
Although there is general agreement that infrastructure needs to become more resilient towards climate change, action in terms of actually considering climate change in the planning and management of infrastructure is lacklustre at best. There are many reasons for this. One is, that in times of a gaping infrastructure gap there is the perception that there are simply more pressing issues to deal with. The challenge of getting and using Climate Services, that is discussed in chapter 5, is another reason often cited. A lack of climate information adds knowledge uncertainty, i.e. uncertainty that could be reduced with having more and better information, to the unavoidable natural uncertainty that comes with climate change projections. Either challenge makes the planning of infrastructure supposed to last for up to 100 years particularly difficult. Another major reason for not considering climate change cited by the partners of the CSI project was missing regulatory incentives to do so. Given the resources necessary both for adaptation planning and for its implementation, decision-makers are only willing to invest in adaptation based on a sound regulatory foundation (c.f. (OECD, 2009)).
The challenges may be plenty, but there still is no alternative to taking action to climate-proof infrastructure. The earlier in the planning process adaptation measures are considered, the lowest the cost of adaptation can be expected to be (sources: (Hallegatte, Rentschler, & Rozenberg, 2019), UNDP). Generally, climate-proofing retroactively is always more expensive (UNDP/source) and costs are much higher if climate change is not considered at all (c.f. (Hallegatte, Rentschler, & Rozenberg, 2019) other sources?). (Example). In addition to saving money, considering climate change adaptation early-on in the planning process also offers the opportunity to identify and reap co-benefits. This becomes especially apparent when considering Ecosystem Based Adaptation options. For example, if mangroves are rehabilitated in addition to building a dyke, this does not only provide added protection from flooding that would otherwise need to be dearly bought via an even higher dyke, it also provides a habitat to local fauna, reduces sediment loss and can serve as carbon sink.
The realisation that climate proofing is necessary is not new. Many have set themselves upon developing tools for the climate-proofing of infrastructure (sources/ examples: ADB, OECD, World Bank, see ToT manuals). This plethora of tools and approaches, though potentially overwhelming, also provides infrastructure planners with a treasure chest full of tools to mix and match based on their needs. However, infrastructure planners and managers are often left alone with the question of how to adapt these tools to their contexts. Moreover, few approaches provide any guidance on how to get the Climate Services necessary for implementing the climate proofing. Likewise, Climate Services providers are seldom systematically incorporated into climate proofing processes, making it hard for them to know and deliver upon what is needed from them. The CSI project has set out to providing guidance both on how to tailor approaches to different decision-making contexts and on how to develop and use the Climate Services that go along with this.
The Challenge
Throughout the infrastructure planning and investment cycle, the actors involved face different decision-making contexts (reference/ Box/ Link to entry-points). At the beginning are decisions like what the appropriate infrastructure is to reply to a given service demand, where this infrastructure is to be located and so on. Further along the process, feasibility, detailed design and financing of a given project need to be clarified. Analogously, the decisions that need to be made in terms of climate proofing are different for each step of the planning process. This implies that decision-makers need climate information tailored to these different steps.
The Solution
Lines of Action 1 and 2 describe how to create the necessary framework conditions for the climate proofing of infrastructure. Ideally, it is based on as well as an instrument for the implementation of a coherent policy framework that unites infrastructure and climate policy. At the same time, climate proofing is a tool that helps to identify which policies and strategies need to incorporate climate change considerations.
As applying the climate-proofing approach needs time and resources, it is generally not possible to climate-proof the entire infrastructure planning and investment cycle at once. Even though adaptation is generally cheapest the earlier in the planning process it takes place, it will always come at some cost – which is not saying that it is not cost-benefit positive in the majority of times (sources). Nonetheless, a priorisation and the identification of opportunities is necessary. CSI identified such entry-points together with its partners leading to a variety of approaches suited to the contexts of the different partner countries. In Cost Rica, on the other hand, road infrastructure was identified as priority sector due to the high losses that occurred in this sector in the past. At the same time, the official request by the Controller General to make road infrastructure more resilient (reference to success story) created the incentives that pushed the Ministry of Public Works and Transport (MOPT) into action. [NBI und Vietnam]
Applying the climate proofing approach (reference/ link/ box) requires bringing together a broad spectrum of actors. It needs a multidisciplinary group of people from climate and infrastructure policy as well Climate Services. Similar to the Climate Service value chain change agents, these actors need to fulfil a variety of roles throughout the different steps of the climate proofing process.
Climate Proofing – Products
Climate Proofing – Success Stories
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Climate Proofing – Success Factors
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Establishing Climate Services
Background
The relevance of climate information for decision-making is not a new topic. There are scores of weather proverbs that have been used by farmers for centuries to plan seeding and harvest. They use the weather conditions at specific dates throughout the year as indicators for expected weather conditions later on. However, when we go beyond the seasonal scale, long-term projections about climate change in the past have mainly served the purpose of creating awareness for the need to mitigate climate change by reducing greenhouse gas emissions. But we already know that mitigation alone will not be enough. We will also need to manage the climate risks expected for a warming of at least two degrees. In order to make this adaptation effective and efficient, we rely on Climate Information and Services (CIS) to inform our decisions.
Need for customised CS
Realising that climate information is needed for effective adaptation is not enough. There also needs to be a shift in how this information is produced and used. Looking at the example of the infrastructure sector, this quickly becomes apparent. Infrastructures are often created for a lifetime of 75 to 100 years. We even still use infrastructure build throughout the time of the roman empire today [source/ picture]. Infrastructure is also highly influenced by local conditions. A heavy local rain can put a whole sewage system out of service. A thunderstorm may cut off the power of a whole village or district [Examples, sources/ picture]. How the infrastructure interacts with different events depends on the thresholds it was designed for. For example, a bridge is build having a specific maximum river discharge in mind. It gets even more complicated taking into account that each component of an infrastructure has different thresholds and vulnerabilities, that then have implications for the structure as a whole. For example, while electricity towers may be quite sturdy, withstanding storms without problem, power lines may be easily disrupted by falling tree branches during a storm above a certain strength.
Keeping all this in mind during the design process has always been a challenge, leading engineers to apply safety margins to ensure the service continuity of their works. It gets even more complicated no w, that the climate of the past can no longer be a guide in designing for the future. For this, infrastructure planners need climate information suited to the different decision-making contexts throughout the infrastructure planning process [link to explanation/ Box for infrastructure planning process]. While a hazard map may already help to guide the decision where to place an infrastructure, more detailed information on expected trends for extreme events is necessary in making design decisions. Currently, getting such tailored information is a challenge. On the demand side, either the awareness for the need to use such information does not exist or infrastructure planners do not have a sufficient understanding of what exactly they need and how to get it. On the supply side, providers of Climate Services have so far mainly relied on the top-down development of products and services, not taking into account what users actually need. The elaboration of projections, for example, is often rather research than demand-driven. This leads to the products developed not being suitable to using them in the planning of infrastructure.
The Challenge
So far, the development of Climate Services has focused mainly on agriculture. Though all countries face the challenge of needing to develop a new market for Climate Services for infrastructure, each country is at a different step in the process. Efforts to assess capacity gaps in terms of Climate Services have been conducted in the past to inform strategies for enhancing them (examples, links, sources: WMO, Future Climate for Africa, World Bank).
The CSI project has conducted studies as basis for devising its Capacity Development Strategy. These studies are unique insofar as (1) they focus on infrastructure and (2) they combine the user and provider perspective to get a more holistic insight (reference to product, link to studies). A summary of the results is provided in [reference to product box]. As a general observation CSI’s work in Brazil, Costa Rica, the Nile Basin and Vietnam has shown that to develop the necessary capacities for Climate Services, it is necessary to take a holistic view taking into account all different aspects that make a good Climate Service. It also means that all actors involved along the value chain [reference/ link to box on CS value chain] from climate data to adaptation decisions need to take part in this effort if it is to be successful. Only this way it can be guaranteed that (1) the products and services developed are suitable to user needs, (2) that they are understood by users and (3) that users have the capacities to use them appropriately.
Lastly, one of the main challenges is related to the institutional or governance framework for Climate Services that allows for a larger group of actors to co-create and work jointly on the advancement of Climate Services. However, so far instead of formalised relationships of continuous cooperation along the value chain, what we find is a dispersed and confusing landscape of providers and users only cooperation on a contract-to-contract basis.
The Changing Role of NMHS
A crucial question that needs to be resolved in answering the question of how to create lasting structures of cooperation in the field of Climate Services is that of the role of the National Meteorological and Hydrological Services (NMHS). They are looked upon by many as key stakeholder in the provision of Climate Services. This seems to make them the natural leader in the process towards an institutional and governance framework. However, this is far beyond their current role in most countries, where they are mainly in charge of collecting and managing data and providing weather services. The questions is, whether without additional resources and extensive capacity development, NMHS have the ability to take the lead in the development of Climate Services.
Most importantly, as Climate Services are produced in a value chain involving a multitude of actors, focusing on the NMHS in their development is short-sighted. If we think about a Climate-Service-value-chain [link to explanation/ Box] like the value chain for cotton-fabrics, for example, for some Climate Services, the role of the NMHS may be limited to providing the raw cotton. Looking at the value chain approach, it becomes apparent that not only are NMHS incapable of driving the advancement of Climate Services on their own, it also is not desirable for them to do so. There are other stakeholders involved in the development of Climate Services, such as the private sector, line ministries and their subordinated authorities as well as climate science. Accordingly, the enhancement of Climate Services calls for a coordinated effort of dedicated networks and for a that unite all these actors.
The Solution
GFCS
The Global Framework for Climate Services (GFCS) [link to explanation/ Box] was launched in 2009 as a response to the need for user-oriented climate information. Its secretariat is stationed at the World Meteorological Organisation (WMO). Recognising that good Climate Services require the consideration of a variety of aspects, the GFCS breaks down Climate Services into five functional components.
Though one may argue whether these 5 pillars capture the entirety of what makes good Climate Services, the GFCS at least provides a framework around which capacity development efforts can be organised.
One element that is arguably missing from the five pillars of the GFCS is governance. Like capacity development, governance is a cross-cutting topic. New institutional frameworks and governance structures are needed in order to build the necessary foundations for Climate Services to thrive. The GFCS covers this with the concept of a National Framework for Climate Services (NFCS) [link to step-by-step guideline]. The idea is to clearly determine the roles in responsibilities of institutions in providing and enhancing Climate Services along the five pillars of the GFCS. However, for the elaboration of a NFCS, it is first necessary to identify which institution will take the lead in the advancement of Climate Services.
Establishing Climate Services – Products
Establishing Climate Services – Success Stories
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Establishing Climate Services – Success Factors
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