Tony Matthews

Institutional perspectives on operationalising climate adaptation through planning

Adaptation to climate change is an imperative and an institutional challenge. This paper argues that the operationalisation of climate adaptation is a crucial element of a comprehensive response to the impacts of climate change on human settlements, including major cities and metropolitan areas. In this instance, the operationalisation of climate adaptation refers to climate adaptation becoming institutionally codified and implemented through planning policies and objectives, making it a central tenet of planning governance. This paper has three key purposes. First, it develops conceptual understandings of climate adaptation as an institutional challenge. Second, it identifies the intersection of this problem with planning and examines how planning regimes, as institutions, can better manage stress created by climate change impacts in human settlements. Third, it reports empirical findings focused on how the metro-regional planning regime in Southeast Queensland (SEQ), Australia, has institutionally responded to the challenge of operationalising climate adaptation. Drawing on key social scientific theories of institutionalism, it is argued that the success or failure of the SEQ planning regimes response to the imperative of climate adaptation is contingent on its ability to undergo institutional change. It is further argued that a capacity for institutional change is heavily conditioned by the influence of internal and external pathways and barriers to change, which facilitate or hinder change processes. The paper concludes that the SEQ metro-regional planning regime has undergone some institutional change but has not yet undergone change sufficient to fully operationalise climate adaptation as a central tenet of planning governance in the region.

Could urban greening mitigate suburban thermal inequity?: the role of residents’ dispositions and household practices

Over the past decade research on urban thermal inequity has grown, with a focus on denser built environments. In this letter we examine thermal inequity associated with climate change impacts and changes to urban form in a comparatively socio-economically disadvantaged Australian suburb. Local urban densification policies designed to counteract sprawl have reduced block sizes, increased height limits, and diminished urban tree canopy cover (UTC). Little attention has been given to the combined effects of lower UTC and increased heat on disadvantaged residents. Such impacts include rising energy expenditure to maintain thermal comfort (i.e. cooling dwellings). We used a survey of residents (n=230) to determine their perceptions of climate change impacts; household energy costs; household thermal comfort practices; and dispositions towards using green infrastructure to combat heat. Results suggest that while comparatively disadvantaged residents spend more on energy as a proportion of their income, they appear to have reduced capacity to adapt to climate change at the household scale. We found most residents favoured more urban greening and supported tree planting in local parks and streets. Findings have implications for policy responses aimed at achieving urban climate justice.

Responding to climate change as a transformative stressor through metro-regional planning

This paper characterises climate change as a “transformative stressor”. It argues that institutional change will become increasingly necessary as institutions seek to reorientate governance frameworks to better manage the transformative stresses created by climate change in urban environments. Urban and metropolitan planning regimes are identified as central institutions in addressing this challenge. The operationalisation of climate adaptation is identified as a central tenet of a comprehensive urban response to the transformative stresses that climate change is predicted to create. Operationalisation refers to climate adaptation becoming incorporated, codified and implemented as a central tenet of urban planning governance. This paper has three purposes. First, it examines conceptual perspectives on the role of transformative stressors in compelling institutional change. Second, it establishes a conceptual approach that characterises climate change as a transformative stressor requiring institutional change within planning frameworks. Third, it reports emergent results and analysis from an empirical inquiry which examines how the metro-regional planning regime of Southeast Queensland has responded to climate change as a transformative stressor via institutional change and the operationalisation of climate adaptation.

Storylines of institutional responses to climate change as a transformative stressor: the case of regional planning in South East Queensland, Australia

Institutional responses to climate change stresses through planning will require new and amended forms of governance. Institutional framing of change imperatives can significantly condition associated governance responses. This paper builds on scholarly conversations concerning the conceptual role of ‘storylines’ in shaping institutional responses to climate change through governance. I draw on conceptual perspectives of climate change as a ‘transformative stressor’, which can compel institutional transformation within planning. The concepts of storylines and transformative stressors are conceptually linked. The conceptual approach is applied to an empirical enquiry focused on the regional planning regime of South East Queensland (SEQ), Australia. In this paper I report on and examine three institutional storylines of responding to climate change through planning governance in SEQ. I conclude that the manifestation of climate change as a transformative stressor in SEQ prompted institutional transformation, leading to a dominant storyline focused on climate adaptation as an important facet of regional planning governance.

Do 'city shapers' really support urban consolidation? The case of Brisbane, Australia

Cities all over the world have activated policy support for urban consolidation in recent decades. Rationales for urban consolidation focus on its perceived ability to achieve sustainability goals, including decreased automobile dependence, increased social cohesion and greater walkability. Despite this, there are few international examples of urban consolidation policy implementation that has achieved its stated aims. This paper explores the nature and character of perceptions of urban consolidation held by urban planners, developers, architects and local politicians. The perspectives held by these ‘city shapers’ are integral to urban consolidation debates and delivery, yet the nature and character of their specific views are underexplored in urban studies literature. This paper combines the theoretical lens of Social Representations Theory with the methodological approach of Q-methodology to understand the common sense understandings of urban consolidation held by city shapers in Brisbane, Australia. It identifies, synthesises and critically discusses the social representations employed by city shapers to understand, promote and communicate about urban consolidation. Findings indicate that urban consolidation debates and justifications diverge significantly from stated policy intentions and are based on differing views on ‘good’ urban form, the role of planning and community consultation and the value of higher density housing. We conclude that there is utility and value in identifying how urban consolidation strategies are influenced by the shared beliefs, myths and perceptions held by city shapers. Understanding these narratives and their influence is fundamental to understanding the power-laden manipulation of policy definitions and development outcomes.

Shaping urban consolidation debates: Social representations in Brisbane newspaper media

Recent international trends towards urban consolidation, intended to reduce outward urban sprawl by concentrating growth within existing neighbourhoods, can cause contention in cities. Understanding how the mass media represents urban consolidation can lead to more informed and democratic planning practices. This paper employs Social Representations Theory to identify and understand representations of urban consolidation in newspaper media. The theory recognises that the media is a key purveyor of public discourse and can reflect, shape or suppress ideas circulating in society. This novel approach has not previously been applied to understanding social representations of urban consolidation strategies in the mass media. The rapidly growing and changing city of Brisbane, Australia, is utilised as a case study. Brisbane is situated in South East Queensland, the fastest growing region in Australia, and is governed by regional and local planning policies that strongly support increased densities in existing urban areas. Findings from a quantitative textual analysis of 449 articles published in Brisbane newspapers between 2007 and 2014 reveal key clusters and classes of co-occurring words that represent dominant social representations apparent in the newspaper corpus. The paper provides two key conclusions. The first is that social representations occurring in mass media represent an important source of information about ‘common sense’ understandings and evaluations of urban consolidation debates. The second is that urban consolidation is represented as a multifaceted issue, including interrelated themes of housing, sustainable population growth, investment strategies and the interplay between politics and planning.

Planning for climigration: a framework for effective action

The phenomenon of ‘climigration’ is an emerging and increasing challenge to human settlements. Climigration refers to community relocation undertaken in response to climate change impacts. This paper adds to early but critical scholarly discussions by providing a land-use planning framework for organising and responding to the governance, policy, institutional and cultural implications of climigration. This paper argues that land-use planning will be increasingly required to manage climigration events over the coming decades and will rely on input and guidance from other disciplines to do so effectively. Climigration is conceptualised as an end-point of climate change adaptation in this paper. Empirical content derives from a multidisciplinary systematic quantitative literature review of international case studies of community relocations. Planning factors with critical, moderate or negligible influences on relocation success are synthesised. These are linked to the roles and functions of land-use planning systems to provide a framework for approaching climigration. The paper provides three interlinked conclusions. The first is that spatial planning systems have potential and capacity to respond to climigration as an extreme form of climate change adaptation. The second is that anticipatory policy frameworks offer the greatest advantages for successful climigration planning. The third conclusion is that maladaptation is a potential but avoidable threat connected to climigration planning.

Connecting social and environmental policy in Australia: Collateral gains or collateral damage?

Climate change research relating to ‘co-benefits’ suggests that the facilitation of social-welfare outcomes through environmental policy offers a powerful means of incentivising climate change action. Concerns about social-welfare, however, are often used to undermine climate change policies, typically through political claims that low-to-middle-income households should not shoulder the costs of greater policy alignment between social and environmental objectives. Integrating the social into the environmental can therefore, on the one hand, lead to ‘co-benefits’ as each agenda promotes the other in political discourse, or alternatively to collateral damage if the policy objectives are framed as incompatible. This article explores both scenarios through two case studies of energy policy in Australia. The findings show that social-welfare concerns can be a powerful discursive tool with the potential to facilitate political consensus, but also that this potential is not being fully realised, primarily because environmental concerns suffer when attempts are made to integrate the two areas discursively.

Heat islands: understanding and mitigating heat in urban areas

Heat islands are a significant problem in urban spaces worldwide. The phenomenon occurs when air and surface temperatures in urban areas significantly exceed those experienced in nearby rural areas. There are two main causes of heat islands. The first is the use of highly absorptive construction materials in buildings and infrastructure, which soak up heat and radiate it back into the immediate surroundings. These materials, including but not limited to concrete, steel, asphalt and stone, are usually impermeable and so do not embody moisture that could dissipate some of the absorbed heat. The second cause relates to urban form, where the canyon-like configurations of buildings and streets channel and trap heat from the sun. In both cases, an absence of greenery and other soft landscaping can compound the problem by lowering capacity for cooling through shading and evotranspiration. Incidences of heat islands increase as urban areas swell in size and cover more land area, making the phenomenon an unwelcome side effect of global trends towards increased urbanisation. Heat islands create serious problems, including increased energy demand for cooling, declining air quality and heat stress for people and animals. In very severe cases, heat islands can compound the effects of high urban temperatures, leading to increased human mortality...

Spatial planning and climate change

Spatial planning and climate change, Elizabeth Wilson and Jake Piper, Abingdon, UK, Routledge, 2010, 445 pp.,