Robbert Biesbroek

Barriers to climate change adaptation in the Netherlands

Review of recent literature on adaptation to climate change and general literature on policy processes shows that there are a large number of barriers that hamper the development and implementation of climate change adaptation strategies. To reduce and manage the number of barriers and combine both streams of literature, we propose seven clusters of barriers to adaptation. Little is known, however, about the relative importance of these barriers to climate change adaptation policies and practices. An online survey was conducted between March 2010 and July 2010 among 264 scientists, policymakers, and private actors from different sectors and levels who are involved in climate change adaptation projects and programmes in the Netherlands. The survey aimed to gather their experiences with, and perceptions of, the barriers identified in the literature and encountered in their daily work. Both climate-related and non-climate-related barriers were included in the survey. Data were subjected to both qualitative and quantitative analysis. A survey feedback workshop was organized to discuss the results with several of the survey respondents. Results of this study revealed that respondents considered conflicting timescales as the most important cluster of barriers to adaptation. Other highly ranked barriers include conflicting interests; lack of financial resources; unclear division of tasks and responsibilities; uncertain societal costs and future benefits; and fragmentation within and between scales of governance. Furthermore, the analysis demonstrated that scales matter in understanding the barriers to adaptation: actors from lowlevels of governance seem to consider the barriers as more severe than actors from high levels of governance.

Science of adaptation to climate change and science for adaptation

Adaptation to climate change has gained a prominent place next to mitigation on global, national and local policy agendas. However, while an abundance of adaptation strategies, plans and programmes have been developed, progress in turning these into action has been slow. The development of a sound knowledge basis to support adaptation globally is suggested to accelerate progress, but has lagged behind. The emphasis in both current and newly proposed programmes is very much on practice-oriented research with strong stakeholder participation. This paper supports such practice-oriented research, but argues that this is insufficient to support adaptation policy and practice in a productive manner. We argue that there is not only a need for science for adaptation, but also a science of adaptation. The paper argues that participatory, practice-oriented research is indeed essential, but has to be complemented by and connected to more fundamental inquiry and concept development, which takes into account knowledge that has been developed in disciplinary sciences and on issues other than climate change adaptation. At the same time, the level and method of participation in science for adaptation should be determined on the basis of the specific project context and goals. More emphasis on science of adaptation can lead to improved understanding of the conditions for successful science for adaptation.

What does the Paris Agreement mean for adaptation

The Paris Agreement takes a significant step forward in strengthening the adaptation pillar of global climate policy. By widening the normative framing around adaptation, calling for stronger adaptation commitments from states, being explicit about the multilevel nature of adaptation governance, and outlining stronger transparency mechanisms for assessing adaptation progress, the Agreement is a milestone in ongoing efforts to make adaptation an equal priority with mitigation. Significant work remains to be done, however, to clarify how the long-term goal for adaptation set out in Article 7 will be meaningfully realized. The challenge for Parties in implementing the Paris Agreement will be to establish credible commitments from state and non-state actors with regard to adaptation planning, implementation, and financing. Policy relevance This article provides a critical view on what the Paris Agreement means for the trajectory of adaptation policy at the international and state levels in light of the stated aim of the UN Framework Convention on Climate Change to make adaptation an equal priority with mitigation.

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

ABSTRACT 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.

Opinion: Big data has big potential for applications to climate change adaptation

The capacity to collect and analyze massive amounts of data is transforming research in the natural and social sciences (1). And yet, the climate change adaptation community has largely overlooked these developments. Here, we examine how “big data” can inform adaptation research and decision-making and outline what’s needed from the adaptation community to maximize this opportunity. We contend that careful application of big data could revolutionize our understanding of how to manage the risks of climate change.

Public Health Adaptation to Climate Change in OECD Countries

Climate change is a major challenge facing public health. National governments play a key role in public health adaptation to climate change, but there are competing views on what responsibilities and obligations this will—or should—include in different nations. This study aims to: (1) examine how national-level public health adaptation is occurring in Organization for Economic Cooperation and Development (OECD) countries; (2) examine the roles national governments are taking in public health adaptation; and (3) critically appraise three key governance dimensions of national-level health adaptation—cross-sectoral collaboration, vertical coordination and national health adaptation planning—and identify practical examples suited to different contexts. We systematically reviewed publicly available public health adaptation to climate change documents and webpages by national governments in ten OECD countries using systematic web searches, assessment of self-reporting, and content analysis. Our findings suggest national governments are primarily addressing infectious disease and heat-related risks posed by climate change, typically emphasizing capacity building or information-based groundwork initiatives. We find national governments are taking a variety of approaches to public health adaptation to climate change that do not follow expected convergence and divergence by governance structure. We discuss practical options for incorporating cross-sectoral collaboration, vertical coordination and national health adaptation planning into a variety of contexts and identify leaders national governments can look to to inform their public health adaptation planning. Following the adoption of the Paris Agreement and subsequent increased momentum for adaptation, research tracking adaptation is needed to define what health adaptation looks like in practice, reveal insights that can be taken up across states and sectors, and ensure policy orientated learning.

Measuring Progress on Climate Change Adaptation Policy by Dutch Water Boards

The Netherlands is particularly vulnerable for the impacts of climate change on the water system. Regional water authorities, or water boards, are given an important role to design and implement specific adaptation policies and measures to manage these impacts. From the early 2000s onwards water boards are starting to adapt to climate change impacts, yet no systematic assessments exist to assess whether or not progress is being made and what explains similarities and differences across water boards. This paper aims to address these critical questions by analyzing the progress of all Dutch water boards for the period 2005–2016. We systematically collected and analyzed three consecutive water management plans for all 23 water boards in the Netherlands. We use content analysis methods to analyze progress by looking into their vulnerability and three levels of adaptation: recognition, groundwork and adaptation action. The results show that over time the number of reported climate change adaptation initiatives by the water boards is increasing, but most climate change adaptation is still at the recognition or groundwork level. Our findings reveal a diversity of efforts to adapt to climate change among Dutch water boards. We conclude that while (inter)national water and climate change adaptation policies have called for more adaptation action at regional levels, the unequal progress across the Netherlands suggests that existing ‘soft’ policy measures to push for adaptation might not be sufficient to ensure progress on adaptation across all water boards.

Mechanism-based explanations of impasses in the governance of ecosystem-based adaptation

Many climate change adaptation scholars recognise the complexities in the governance of adaptation. Most have used the concept of ‘barriers to adaptation’ in an attempt to describe why governance of adaptation is challenging. However, these studies have recently been critiqued for over simplifying complex governance processes by referring to the static concept of barriers, thereby ignoring dynamic complexity as a root explanatory cause. This paper builds the argument that how barriers are currently used in the literature is insufficient to explain why the governance of adaptation often proves difficult. We adopt a so-called mechanism-based approach to investigate how and why the governance of ecosystem-based adaptation (EbA) reaches impasses in five cases in Thailand and the Netherlands. Our findings show six causal mechanisms that explain impasses in the five case studies: (1) frame polarisation, (2) timing synchronisation, (3) risk innovation, (4) rules of the game, (5) veto players and (6) lost in translation. Several of these causal mechanisms are recurring and emerge under specific contextual conditions or are activated by other mechanisms. Our findings provide valuable insights into the impasses in the governance of EbA and allow for critical reflections on the analytical value of the mechanism-based approach in explaining why the governance of adaptation proves difficult and how this can be overcome.

Nine lives of uncertainty in decision-making: strategies for dealing with uncertainty in environmental governance

ABSTRACT Governing complex environmental issues involves intensive interaction between public and private actors. These governance processes are fraught with uncertainties about, for example, the current state of environmental affairs, the relevant set of decision alternatives, the reactions of other actors to proposed solutions or the future developments likely to affect an issue. Uncertainty comes in different shapes and sizes and different strands in the literature, which has placed emphasis either on the substance of the issue (e.g. in environmental sciences) or on the decision-making process (e.g. policy sciences). In this paper, we bring together these different strands of literature on uncertainty to present a novel analytical framework. We build on the argument that the nature of uncertainty consists of three types: epistemic uncertainty (involving the lack of knowledge about a particular system), ontological uncertainty (irreducible unpredictability due to inherently complex system behavior) and ambiguity (conflicts between fundamentally different frames about the issue at hand). Scholars have also argued the importance of differentiating between three different objects of uncertainty: substantive uncertainty (uncertainty about the content of decisions or policy issues), strategic uncertainty (uncertainty about the actions of other actors in the strategic game of decision-making) and institutional uncertainty (uncertainty about the rules of the game in decision-making). The framework is useful for analyzing and addressing the nine lives of uncertainty in decision-making. Better understanding of the range of uncertainties is crucial to design more robust policies and governance arrangements and to deal with wicked environmental problems.

Using a social learning configuration to increase Vietnamese smallholder farmers’ adaptive capacity to respond to climate change

ABSTRACT Social learning is crucial for local smallholder farmers in developing countries to improve their adaptive capacity and to adapt to the current and projected impacts of climate change. While it is widely acknowledged that social learning is a necessary condition for adaptation, few studies have systematically investigated under which conditions particular forms of social learning are most successful in improving adaptive capacity of the most vulnerable groups. This study aims to design, implement and evaluate a social learning configuration in a coastal community in Vietnam. We make use of various methods during four workshop-based interventions with local smallholder farmers: interviews with key farmers and commune leaders, farmer-to-farmer learning, participatory observations and focus group discussions. The methods for evaluation of social learning configuration include in-depth interviews, focus group discussions and structured survey interviews. Our findings show that the social learning configuration used in this study leads to an increased problem ownership, an enhanced knowledge-base with regard to climate change impacts and production adaptation options, improved ability to see connections and interdependencies and finally, strengthened relationships and social cohesion. The results suggest that increased social learning in the community leads to increase in adaptive capacity of smallholder farmers and improves both their economic and environmental sustainability. We discuss the key lessons for designing learning configurations that can successfully enhance adaptive capacity and smallholder farmers’ agency and responsiveness to the challenges posed by climate change impacts.