Sofie Storbjörk

Governing Climate Adaptation in the Local Arena: Challenges of Risk Management and Planning in Sweden

Abstract This paper directs attention to conditions for climate adaptation as an important part of governing climate change in the local arena. Empirical focus is put on attempts to manage flood risks by means of risk management and planning in two Swedish municipalities. Following the need to widen our understanding of how, when and under what conditions climate adaptation occurs, three challenges are particularly emphasized from the case studies: facing the safety vs. scenery conflict where political priorities and reducing societal vulnerabilities prove difficult; the process of deciding what to adapt to, in which the troublesome role of knowledge is striking; and finally, taking responsibility for measures of flood protection. At the end of the paper, analytical generalizations illustrate the need to give increased attention to institutional challenges and challenges emanating from the science–policy interface in order to come to terms with the implementation deficit in governing climate change in the local arena.

‘It Takes More to Get a Ship to Change Course’: Barriers for Organizational Learning and Local Climate Adaptation in Sweden

In working with local climate adaptation, questions are raised of how to increase the capacity for integrating climate considerations in planning and decision-making. As part of the institutional dimension of adaptive capacity, how to foster processes of learning and reflexivity among different administrative units and actors is particularly essential. The aim of this paper is to analyse how the call for systematic organizational learning is manifested in local climate adaptation in two Swedish municipalities, illustrating what forms of learning occur and what learning challenges are identified. Despite the distinct and often contrasting approaches to climate adaptation adopted in the two municipalities—reflecting a variety of learning approaches—there are striking similarities in terms of difficulties in moving beyond the specialized few and reaching general acceptability as well as in the inability to mediate tensions between local sector interests, values and priorities and thus bringing about reflexive learning through experience. The paper shows that the cross-cutting nature of climate change needs to be further acknowledged in practice, including to what extent learning takes place among a specialized few key actors or as part of a systematic and cross-sectoral organizational mainstreaming as well as to what extent learning ‘on paper’ is actually embraced as ‘learning in use’ in concrete working practices.

“There is nothing political in it”: triggers of local political leaders' engagement in climate adaptation

Local government is attributed a vital role in climate-change adaptation. Previous studies contend that conflicting priorities, insufficient institutional incentives and knowledge of risks, and inadequate resources all impede local climate adaptation. Though the importance of local political support in enabling climate adaptation is widely acknowledged, the views of local politicians have rarely been analysed. Drawing on semi-structured interviews with local politicians in Sweden, we explore what affects their engagement in climate adaptation. The study claims that climate adaptation contrary to mitigation is not viewed as political beyond directing attention and sanctioning guidelines set by officials. A limited number of interviewees claim a more strategic political role in adaptation. The combined effect of institutional incentives (e.g. fragmented national guidelines, unappealing goals, and lack of funding), relative weight in local politics, and ability to exercise political leadership (e.g. campaign value, public and media pressure, and lack of ideology) is perceived as too insignificant to trigger strong political engagement. In less-populous municipalities, adaptive measures were highly valued for demonstrating political action.

“Sometimes Climate Adaptation is Politically Correct”: A Case Study of Planners and Politicians Negotiating Climate Adaptation in Waterfront Spatial Planning

Abstract Today, spatial planning is expected to deliver climate adaptation and to manage, merge and balance various societal interests and priorities. To what extent proactive shaping of change is enabled by spatial planning practice is less explored. This paper illustrates how the ideals and ambitions of climate adaptation are manifested in waterfront spatial planning via a case study of Norrköping, Sweden. Based on interviews with spatial planners and politicians responsible for strategic urban development planning, our study identifies a divergence in ambitions, approaches and positions. In local development plans, the position taken has less to do with climate risk severity than with an areas perceived political and economic attractiveness. When perceived attractiveness is low, precautionary climate adaptation serves as a pretext not to develop, whereas high perceived attractiveness leads to negotiated pragmatism allowing continued waterfront exploitation. We also identify a fragmentation in spatial planning, with weak interplay between municipal comprehensive planning and local development plans, resulting in ad hoc, case-by-case planning. Furthermore, different planning actors are organizationally compartmentalized, creating unfortunate intra-sectoral silos. We conclude that the integrative, proactive and reflexive potentials of spatial planning to deliver climate adaptation have yet to be realized.

The practice of settling and enacting strategic guidelines for climate adaptation in spatial planning: lessons from ten Swedish municipalities

Abstract Spatial planning is increasingly expected to address climate change adaptation. In a Swedish context, this has meant a predominant focus on risks of flooding, erosion and sea-level rise. Gradually, regulatory mechanisms and concrete strategies are evolving to support practical mainstreaming. The aim of this paper was to analyze how frontline planners approach climate change adaptation in an urban context, emphasizing the process of settling and enacting strategic guidelines in spatial planning. The study suggests that municipalities are being preactive, i.e., preparing to act by settling guidelines rather than proactively implementing change when planning for new settlements. Further, the process of accommodating climate risks involves problems. Settling strategic guidelines and determining appropriate levels for what to adapt to are but the start of approaching climate change. Guidelines represent more of an endeavor than settling absolute limits and actually applying the guidelines involves challenges of accessibility and esthetics where the new waterfront limits meets older city structures. Further, guidelines are seen as negotiable since an overarching principle is to maintain flexibility in planning to allow for continued waterfront planning. Pursuing this path is motivated by current demand and previous urban settlement patterns. Also, as future protective measures are needed to secure existing urban areas at risk of flooding and erosion, planners see no use in preventing further waterfront development. Although settling guidelines are important in preparing to act, their practical effectiveness all fall back to how they are actually implemented in daily planning. This leads us to problematize the role of strategic guidelines to secure a climate-proof spatial planning.

Creating Transformative Force? The Role of Spatial Planning in Climate Change Transitions Towards Sustainable Transportation

Abstract Informed by the concept of strategy making, this paper analyses the ability of spatial planning to support local climate change transitions towards sustainable transportation in two case studies of planning in Swedish municipalities with comparatively high climate ambitions. The analysis shows that the expectations on planning to effect change need to be moderated. Not even in these climate-ambitious municipalities did transportation planning result in strategic reorientation. While climate change was clearly filtered into local strategy making, no new climate frame was established. Rather in goals, it was linked to an overall attractive city storyline. Transportation planners have sought to mobilize force through developing new tools and routines to strengthen the role of climate change. In detailed planning, however, when plans become legally binding, agency in relation to climate change was limited by allowing private actors a pivotal position. Also, tools were used selectively and when settling priorities, climate change was subordinate to economic growth interests. While the planning observed can be regarded as weak, its ability to support climate transition would have been even weaker had it not been linked to the attractive city storyline. Consequently, to facilitate climate transition mobilizing force needs to be generated within the current local implementation structure.

“Learning is our Achilles heel”. Conditions for long-term environmental policy integration in Swedish regional development programming

The aim of this paper is to explore how the capacity to integrate environmental sustainability in Swedish regional development programming has evolved over time, particularly focusing on what facilitates and restricts change in different stages of implementation. The study builds on focus group and individual interviews in four Swedish regions carried out in 2005 and 2011. The results suggest temporary and partial, rather than enduring and substantial, environmental policy integration (EPI). In 2005 the main challenges were to allocate support, focus and prioritise beyond the national policy rhetoric of regional sustainable development, to identify regional applications beyond singular ‘pockets of good practice’ and to spread ownership and engagement for EPI from specific ambassadors to organisational mainstreaming. In 2011 we found evidence of a more mainstreamed approach of regional sustainable development, but with new challenges of policy diffusion and sectorisation as well as a strong sense of projectification. There is a need to develop arenas and processes for inter-sectoral exchange, interaction and learning to achieve a more systematic change – which is, in essence, what policy integration is all about.

‘We cannot be at the forefront, changing society’ : exploring how Swedish property developers respond to climate change in urban planning

ABSTRACT It is increasingly expected that private actors play the role as entrepreneurs and front-runners in implementing climate measures, whereas empirical studies of the position, role and engagement of private actors are scarce. Situated in the context of urban planning, a critical arena for triggering climate transitions, the aim of this paper is to explore how Swedish property developers respond to climate change. Qualitative analyses of corporate policy documents and semi-structured interviews with property developers reveal a vast divergence between the written policies, where leadership ambitions are high, and how the practice of property development is discussed in interviews. In the latter, there is little evidence of property developers pursuing a forward-looking or cutting-edge climate change agenda. Instead, they are critical of increased public regulation for climate-oriented measures. Explanations both confirm previous studies, highlighting lack of perceived customer demand, uncertainty of financial returns and limited innovations, and add new elements of place-dependency suggesting that innovative and front-runner practices can only be realized in the larger urban areas. Municipalities seeking to improve their climate-oriented profile in urban planning by involving private property developers need to develop strategies to maneuver the variance in responses to increase the effectiveness of implementation.

Using Public–Private Interplay to Climate-Proof Urban Planning? Critical Lessons from Developing a new Housing District in Karlstad, Sweden

While strengthening public–private interplay is expected to improve the climate profile of urban planning in terms of mitigation and adaptation, less is known about the practice of such new interactive modes of governing. The paper critically examines the role, benefits and limitations of extended public–private interplay in developing a new housing district in Sweden. The developer dialogue between municipal officials and property developers confirms mutual interests, shared understandings and the added value of interacting. However, the closer the dialogue comes to settling agreements, the more difficult it gets for municipal officials to steer the process and its outcomes in favor of climate proofing. Complications with adapting to the new interactive setting means that municipal officials balance between acting as facilitators and/or regulators and property developers between acting as partners, competitors and/or defenders. Refining steering-strategies for sustaining commitments and securing formal agreements are pertinent for using public–private interplay to climate-proof urban planning.