Michael James Howes

Interrogating resilience: toward a typology to improve its operationalization

In the context of accelerated global change, the concept of resilience, with its roots in ecological theory and complex adaptive systems, has emerged as the favored framework for understanding and responding to the dynamics of change. Its transfer from ecological to social contexts, however, has led to the concept being interpreted in multiple ways across numerous disciplines causing significant challenges for its practical application. The aim of this paper is to improve conceptual clarity within resilience thinking so that resilience can be interpreted and articulated in ways that enhance its utility and explanatory power, not only theoretically but also operationally. We argue that the current confusion and ambiguity within resilience thinking is problematic for operationalizing the concept within policy making. To achieve our aim, we interrogate resilience interpretations used within a number of academic and practice domains in the forefront of contending with the disruptive and sometimes catastrophic effects of global change (primarily due to climate change) on ecological and human-nature systems. We demonstrate evolution and convergence among disciplines in the interpretations and theoretical underpinnings of resilience and in engagement with cross-scale considerations. From our analysis, we identify core conceptual elements to be considered in policy responses if resilience is to fulfill its potential in improving decision making for change. We offer an original classification of resilience definitions in current use and a typology of resilience interpretations. We conclude that resilience thinking must be open to alternative traditions and interpretations if it is to become a theoretically and operationally powerful paradigm.

Towards networked governance: improving interagency communication and collaboration for disaster risk management and climate change adaptation in Australia

Major disasters, such as bushfires or floods, place significant stress on scarce public resources. Climate change is likely to exacerbate this stress. An integrated approach to disaster risk management (DRM) and climate change adaptation (CCA) could reduce the stress by encouraging the more efficient use of pooled resources and expertise. A comparative analysis of three extreme climate-related events that occurred in Australia between 2009 and 2011 indicated that a strategy to improve interagency communication and collaboration would be a key factor in this type of policy/planning integration. These findings are in accord with the concepts of Joined-up Government and Network Governance. Five key reforms are proposed: developing a shared policy vision; adopting multi-level planning; integrating legislation; networking organisations; and establishing cooperative funding. These reforms are examined with reference to the related research literature in order to identify potential problems associated with their implementation. The findings are relevant for public policy generally but are particularly useful for CCA and DRM.

Powered by the state or finance? The organization of China’s carbon markets

This paper reviews the progress of carbon trading in China and examines the involvement of the state and financial sectors. China witnessed proliferation of domestic carbon markets before attempting to institutionalize the carbon trading regime. Direct and strong government intervention is a key feature of this process. The domestic carbon markets are primarily created, shaped, and operated by the central and local governments supported by a cohort of macro-economic planners, local economic agencies, state-owned financial institutions, and business organizations with government backing. Key market players are institutionally dependent on the state – much more so than in capitalist economies. Private investments have not been adequately and effectively mobilized due to unfavorable economic, regulatory, and policy conditions. Non-state financial actors are not an active and influential player. This indicates a hierarchical relationship between the state and finance and a clear asymmetry of power in the organization of China’s carbon markets. These observations constitute a notable difference to the international carbon markets, which are subject to the strong influence of private finance. China has put the market-based policy instrument of carbon trading under a substantial concentration of state power. The findings have important implications for understanding the rise of carbon markets in non-traditional capitalist economies.

Adapting ecological modernisation to the Australian context

This article uses a broad range of ecological modernisation (EM) literature to derive five core theoretical themes: technological innovation; engaging with economic imperatives; political and institutional change; transforming the role of social movements; and discursive change. These themes are then developed into an analytical framework and adapted to suit the Australian context. The underlying argument is that while key elements of weak EM can be found in most environmental and sustainability policies, stronger versions have more transformative potential. Care must be taken, however, in transplanting the theory from the European political and economic environment to the Australian context.

Tempering growth: planning for the challenges of climate change and growth management in SEQ

Abstract South East Queensland (SEQ) has experienced voracious growth over the past five decades. Spanning some 200 km, this sprawling subtropical coastal conurbation is beginning to reach its ecological and socio-political limits. Over the last decade there have been concerted efforts to manage this growth with a new regime of plans and policies, but climate change has significantly complicated the challenge. This paper offers a preliminary analysis of the situation. The major climate adaptation challenges for the region are identified, including: rising sea levels, storm surges, higher temperatures, and increased freshwater scarcity. These will impact most on the elderly, sick and disadvantaged who have lower levels of resilience. The key plans and policies that address these issues are then reviewed, including: ClimateQ; the SEQ Regional Plan; and, the Draft SEQ Climate Change Management Plan. The overall planning regime is appraised in light of five core themes of strong ecological modernisation (technological innovation; engaging with economic imperatives; political and institutional change; transforming the role of social movements and discursive change) and the principles of environmental justice. It is argued that together these schools of thought could provide criteria for a more effective and equitable climate adaptation response for the region.

Power and Carbon Sovereignty in a Non-Traditional Capitalist State: Discourses of Carbon Trading in China

Carbon markets devolve governance to external institutions and displace power from sovereign states. Major producers in these markets, notably China, have expressed concern about the adverse implications for national interests and sovereignty associated with selling off the rights to emit carbon emissions abroad. This article suggests that such concern has shaped the discursive context in which emission trading schemes have gained popularity in the country. Our discourse analysis shows that notions of market power are made manifest as a powerful storyline. In the Chinese language, “power,” “sovereignty,” and “rights” all use the same character. The storyline captures all these expressions and allows for a positive view about active engagement in carbon trading as a way to protect development rights and redeem carbon sovereignty. Thus, the contested policy of emissions trading becomes embedded in the more appealing narrative of national development and made politically attractive, despite unfavorable realities against it.

The politics of evidence-based policy: A comparative analysis of climate adaptation in Australia and the UK

This paper presents a comparative analysis of the use of climate science for adaptation policy in Queensland, Australia and the UK. We examine policy players’ perceptions of climate science alongside prevailing political influences on evidence-based policy making. In Queensland, the evidence-based mandate has been weakened by partisan politics so that the political acceptability of evidence is a foremost concern for policy makers. In the UK, the evidence-based mandate is enshrined in the Climate Change Act (2008), yet here too political forces have sought to limit the acceptable use of climate science for policy making. Both cases reveal normative and political tensions in the interpretation and use of climate science, suggesting that important political challenges must be overcome by the scientific community to ensure the ongoing utility of climate science for policy making.

Not Waving, Drowning: Can Local Government Policies on Climate Change Adaptation and Disaster Resilience Make a Difference?

Abstract Climate change will increase the intensity, duration and/or frequency of some climate-related hazards. Responsibility for adapting to such impacts of climate change in Australia has, in the main, fallen on local governments which have paid varying degrees of attention to the issue. This paper takes an integrated approach to compare the climate adaptation and disaster resilience policies and plans of local governments of two low-lying coastal cities in Australia to understand whether (and how) local governments can make a difference. The findings indicate that local governments can significantly contribute to building resilience and adapting to climate-related hazards, however a number of factors such as the attitudes of local governments on climate change, environmental activism, and the recent experiences of climate-related disasters are instrumental for shaping a better local response. Local action also needs to be supported by a more integrated approach by all levels of government.

The Problem of Inclusion in Deliberative Environmental Valuation

The idea of inclusive collective decision-making is important in establishing democratic legitimacy, but it fails when citizens are excluded. Stated-preference methods of valuation, which are commonly used in economics, have been criticised because the principle of willingness to pay may exclude low-income earners who do not have the capacity to pay. Deliberative valuation has been advocated as a way to overcome this problem, but deliberation may also be exclusive. In this review, two deliberative valuation frameworks are compared. The first is grounded on the idea of rational discourse that emphasises argument at the expense of other communicative strategies. It seeks to secure inclusion through procedural rules and prerequisites, but fails to address the underlying democratic limitation of argumentation. The second does not rely on the distinction between rational and rhetorical speech, and therefore admits alternative forms of communication. This approach recognises differences in the communicative capacities and practices of those who take part in deliberation, and so is better equipped to improve, though not to guarantee, inclusion.

A brief history of commonwealth sustainable development policy discourse

This article argues that although the discourse of sustainable development initially had some potential to protect the environment, it has been systematically redefined at the national level to pro...