Diffusion of global climate policy: National depoliticization,local repoliticization in Turkey

Although climate policy diffusion is widely studied, we know comparatively little about how these global policies and the norms that surround them are used by various political actors seeking to advance their own agendas. In this article, we focus on how global climate norms are diffused differently at national and local scales and used to repoliticize or depoliticize climate change. We focus on the case of Turkey, which carries the stark contrast of showing willingness to achieve global climate goals in the international arena but less so in domestic politics and actions. The article employs a novel methodological approach, using topic modeling and network analyses on a range of climate change–related policy documents, and interviews with high-level officers, conducted at the three jurisdictional levels in Turkey. The findings reveal that although global climate policy is diffused to both national and local governments, it is used in different ways at these levels. The national government uses climate policy diffusion to depoliticize climate change by creating ad hoc climate coalitions and limiting local climate actions to seeking external climate-related funds. Meanwhile, the metropolitan municipalities replicate nationally adopted climate goals, whereas the district municipalities domesticate ambitious climate norms and repoliticize climate change via local climate entrepreneurs and civic action. The paper contributes to understanding how climate policy diffusion and norm domestication can have different political outcomes in achieving global climate goals and argues for increased policy attention to the strategic use of climate policy diffusion for the depoliticization of climate change.     

The implications of climate policy for the impacts of climate change on global water resources

This paper assesses the implications of climate policy for exposure to water resources stresses. It compares a Reference scenario which leads to an increase in global mean temperature of 4 °C by the end of the 21st century with a Mitigation scenario which stabilises greenhouse gas concentrations at around 450 ppm CO₂e and leads to a 2 °C increase in 2100. Associated changes in river runoff are simulated using a global hydrological model, for four spatial patterns of change in temperature and rainfall. There is a considerable difference in hydrological change between these four patterns, but the percentages of change avoided at the global scale are relatively robust. By the 2050s, the Mitigation scenario typically avoids between 16 and 30% of the change in runoff under the Reference scenario, and by 2100 it avoids between 43 and 65%. Two different measures of exposure to water resources stress are calculated, based on resources per capita and the ratio of withdrawals to resources. Using the first measure, the Mitigation scenario avoids 8-17% of the impact in 2050 and 20-31% in 2100; with the second measure, the avoided impacts are 5-21% and 15-47% respectively. However, at the same time, the Mitigation scenario also reduces the positive impacts of climate change on water scarcity in other areas. The absolute numbers and locations of people affected by climate change and climate policy vary considerably between the four climate model patterns.     

Racing climate change: Collaboration and conflict in California's global climate change policy arena

Media accounts routinely refer to California's Assembly Bill 32 (AB 32), the Global Warming Solutions Act of 2006, as “landmark” climate change legislation. On its surface, this label is an accurate reflection of the state's forward-thinking stance across many environmental issues including pesticides, toxic substances, solid waste, and air quality. For all its promise, however, AB 32 can also be considered a low point in the landscape of conflict between state environmental regulators and California's environmental justice movement. While the legislation included several provisions to address the procedural and distributive dimensions of environmental justice, the implementation of AB 32 has been marked by heated conflict. The most intense conflicts over AB 32 revolve around the primacy of market mechanisms such as “cap and trade.” This article examines the drivers and the manifestations of these dynamics of collaboration and conflict between environmental justice advocates and state regulators, and pays particular attention to the scalar and racialized quality of the neoliberal discourse. The contentiousness of climate change politics in California offers scholars and practitioners around the world a cautionary tale of how the best intentions for integrating environmental justice principles into climate change policy do not necessarily translate into implementation and how underlying racialized fractures can upend collaboration between state and social movement actors.     

基于自然的解决方案：中国应对气候变化领域的政策进展、问题与对策

基于自然的解决方案（NbS）在应对气候变化领域的重要作用日益受到国际社会的关注。本文将NbS在应对气候变化领域的生态系统划分为森林、草地、农田、湿地、海洋、城市,采用传统环境政策工具分类,将六大生态系统的政策工具划分为命令控制型、经济激励型、自愿参与型三类。在此基础上,梳理构建NbS在我国应对气候变化领域的政策框架。结果表明,我国初步形成了以命令控制型政策为主,重视通过经济激励型政策引导,并逐步完善自愿参与型政策的NbS政策体系。然而,NbS在我国应对气候变化领域的政策仍存在诸多问题,包括NbS尚未成为应对气候变化的主流措施、缺乏自上而下的管理机制、未形成理论与实践的有机统一、资金来源单一、技术支撑和能力建设薄弱、公众参与度有待进一步加强等。为发挥NbS在我国应对气候变化领域的潜力,建议将NbS纳入我国下阶段国家自主贡献更新文件中,争取提出有关NbS的定量承诺,推动NbS成为应对气候变化的主流措施,构建自上而下的管理机制,建立多元化的资金投入机制,加强从理论到实践、从路径到政策的研究,提升能力保障和公众参与度。     

The quiet opposition: How the pro-economy lobby influences climate policy

The lack of ambitious climate change policies in large anglophone countries, such as the United States, has been explained by the strong media presence of denialist arguments against climate science. Such counterarguments are less visible in the news media of most European countries. Why do many of these countries nevertheless fail to enact ambitious climate change policies? This paper suggests that influential organizations may block ambitious climate change policies in corporatist countries without an extensive media strategy or a strong denialist message. We draw from theories on the policy process, policy networks, influence strategies, and comparative politics to formulate hypotheses about the existence, influence, and strategies of organizations that oppose ambitious climate policy. We test these hypotheses using an original combination of media data and survey data on the national climate policy network in Finland, a corporatist European country that has long lacked ambitious climate policies. The findings show that a coalition that prioritizes economic competitiveness over climate change mitigation is influential and occupies a central position in the policy network. This pro-economy lobby does not question the validity of climate science or actively seek media visibility. Rather, it influences the policy process using other strategies, such as inside lobbying, and appears in the news media less often than other climate policy organizations. Our results suggest that opponents of climate change mitigation can be powerful despite a weak media presence. This implies that studies on climate politics should pay more attention to strategies of influencing beyond the media spotlight.     

It's political: How the salience of one's political identity changes climate change beliefs and policy support

Previous research has demonstrated a striking difference in climate change beliefs and policy support between people who identify with the right-wing of politics and with the left-wing of politics. But are we destined to continue with this divergence? We suggest that there is movement around these differences based on the politicization of climate change and we conducted two experimental studies with 126 and 646 people, respectively, to examine this effect. We found that those people whose political identity was made salient were less likely to believe in an anthropogenic cause of climate change and less likely to support government climate change policies than those whose identity was not made salient; particularly when those people were aligned with the right-wing of politics. The results demonstrate the importance of the salience of one's political identity in determining attitudes and beliefs even for scientific facts such as climate change. Our research also identifies some ways forward in dealing with climate change-based on depoliticizing the issue.     

适应气候变化政策机制的国际经验与启示

中国高度重视适应气候变化工作,实行减缓与适应并重的应对气候变化原则,已出台适应气候变化相关的战略、规划等一系列政策文件。但总体来看,中国适应气候变化政策与行动尚处于起步阶段,面临着法规制度缺位、监测评估不足、组织协调机制不完善等挑战,适应气候变化政策的类型、数量和力度都明显弱于减缓。为完善中国适应气候变化政策与机制的框架设计,文中梳理了相关研究、《联合国气候变化框架公约》下的适应气候变化国际机制及主要国家经验,提出了一套完整闭环的适应气候变化核心决策流程及关键支撑机制,并重点从开展法制建设、制定适应战略（计划）、建立监测评估机制、构建协调机制和完善资金机制等五方面,归纳了主要国家的经验与启示,最终研究提出完善我国适应气候变化政策与机制框架设计的建议,包括加快建立和完善适应气候变化法制建设、加快构建国家适应气候变化的政策体系、加快完善国家适应气候变化的机制设计、加强适应气候变化支撑能力建设、推动适应气候变化的国际合作等。     

Thirteen plus one: a comparison of global climate policy architectures

We critically review the Kyoto Protocol and thirteen alternative policy architectures for addressing the threat of global climate change. We employ six criteria to evaluate the policy proposals: environmental outcome, dynamic efficiency, cost-effectiveness, equity, flexibility in the presence of new information, and incentives for participation and compliance. The Kyoto Protocol does not fare well on a number of criteria, but none of the alternative proposals fare well along all six dimensions. We identify several major themes among the alternative proposals: Kyoto is “too little, too fast”; developing countries (DCs) should play a more substantial role and receive incentives to participate; implementation should focus on market-based approaches, especially those with price mechanisms; and participation and compliance incentives are inadequately addressed by most proposals. Our investigation reveals tensions among several of the evaluative criteria, such as between environmental outcome and efficiency, and between cost-effectiveness and incentives for participation and compliance.     

Thirteen plus one: a comparison of global climate policy architectures

We critically review the Kyoto Protocol and thirteen alternative policy architectures for addressing the threat of global climate change. We employ six criteria to evaluate the policy proposals: environmental outcome, dynamic efficiency, cost-effectiveness, equity, flexibility in the presence of new information, and incentives for participation and compliance. The Kyoto Protocol does not fare well on a number of criteria, but none of the alternative proposals fare well along all six dimensions. We identify several major themes among the alternative proposals: Kyoto is “too little, too fast”; developing countries (DCs) should play a more substantial role and receive incentives to participate; implementation should focus on market-based approaches, especially those with price mechanisms; and participation and compliance incentives are inadequately addressed by most proposals. Our investigation reveals tensions among several of the evaluative criteria, such as between environmental outcome and efficiency, and between cost-effectiveness and incentives for participation and compliance.     

Advising national climate policy makers: A longitudinal analysis of the UK Climate Change Committee

Despite the recent proliferation of national climate change advisory bodies, very little is known about what advice they provide, to whom, and when. To address these gaps in the literature, this article systematically analyses all 700 of the recommendations made by the UK Climate Change Committee (CCC) in the period 2009–20. The CCC is one of the oldest climate change advisory bodies of its kind in the world and its design has been widely emulated by other countries. For the first time, this article documents how the CCC’s mitigation and adaptation recommendations have changed over time with respect to their addressee, sectoral focus and policy targets. It reveals that they became: more numerous per year; more cross-sectoral in their nature; clearer in targeting a specific addressee; and more focused in referring to specific policy targets. By drawing on Fischer’s synthesis of policy evaluation to derive a measure of policy ambition, it also reveals that despite many of its recommendations being repeated year after year, the CCC has become more willing to challenge the policy status quo. It concludes by identifying future research needs in this important and fast-moving area of climate governance, notably understanding the conditions in which the recommendations of advisory bodies (do not) impact national policy.     

Nationalizing a global phenomenon: A study of how the press in 45 countries and territories portrays climate change

This study investigates the news coverage of climate change in 45 different countries and territories. Using the news framing approach, this study identifies the connections between several national socioeconomic, governance, and environmental traits and the portrayals of climate change. Although climate change is a global issue that affects every country in the world, how the news media frame it varies from country to country. Such a variation is related to each country’s economic development, climate severity, and governance. The findings of this study contribute to framing literature by assessing frame use in national contexts, filling in the gap in the application of this theoretical framework.     

Interface bureaucrats and the everyday remaking of climate interventions: Evidence from climate change adaptation in Zambia

When climate change policies are implemented in practice, they travel through the hands of a range of practitioners who not only mediate but also potentially transform climate interventions. This article highlights the role of a group of actors whose practices have so far received little attention in the study of climate change governance, namely the public servants who are responsible for the everyday implementation of national climate change policies and associated programmes on the ground. Situated at the frontline of the state and often engaging directly with citizens, these “interface bureaucrats” occupy a complex position in which they must balance their role as representatives of the state with the need to accommodate the pressures, interests and practical challenges associated with everyday policy implementation. In this article we examine how interface bureaucrats in Zambia seek to navigate this role as they go about implementing national climate change adaptation policies in practice, and what this means for the nature and outcome of these interventions. We identify key dilemmas of the interface bureaucrats in our study areas, namely (i) intervening with limited reach, (ii) implementing generic policies, and (iii) managing conflicting interests. We show how they address these dilemmas through highly pragmatic practices involving informal agreements with community members, discretionary adjustments of official policies, and negotiation of contested interventions. As a result, the nature and outcomes of climate change adaptation interventions end up differently from the official policies and the underlying governance interests of the central state. Our findings suggest a need for greater attention to the role of interface bureaucrats as everyday climate policy makers and point to the significance of pragmatism and compromise in the interaction between state actors and citizens in environmental interventions.     

A global estimate of carbon stored in the world's mountain grasslands and shrublands,and the implications for climate policy

Carbon market and climate finance schemes (e.g. the CDM, REDD+ and the Green Climate Fund) are being investigated for their ability to achieve enhanced sustainability outcomes in terrestrial forests, lowland grasslands and marine ecosystems, all which store large amounts of carbon (C). To date however climate policy discourse has largely overlooked the conservation of existing C stored in mountain grasslands and shrublands. These ecosystems provide critical ecological goods and services to humanity yet are increasingly at risk from anthropogenic stressors including agricultural intensification, mining and climate change. The absence of a global estimate for these C stocks is likely to be one reason for their exclusion from climate change policy discussions, both on a political and scientific basis. This represents a missed opportunity in two respects: firstly, by conserving and restoring existing C stocks the impacts of climate change can be lessened; and secondly, carbon finance and climate finance might provide the necessary financial support to address the aforementioned stressors. In this paper we use spatial analysis and estimate there to be between 60.5 Pg C and 82.8 Pg of C contained within biomass and soils of the world's mountain grasslands and shrublands. To put this in perspective, globally tropical Savannas and grasslands, temperate forests and tropical peatlands are estimated to contain 326–330 Pg C, 159–292 Pg C and 88.6 Pg C respectively. Our review of existing empirical studies and of United Nations Framework Convention on Climate Change (UNFCCC) national greenhouse accounts suggests that this C is not reliably accounted for in international carbon budgets. Our estimate is the first to provide a global point of reference, useful in developing future research and in climate policy discussions. We conclude by briefly discussing how climate finance might be leveraged to support the sustainable management of these C stocks, and in so doing uphold the other important socioeconomic benefits provided to humanity.     

Implementing a knowledge system: Lessons from the global stewardship of climate services

Knowledge systems are mechanisms that can drive climate adaptation through the pursuits of enhancing resource sharing, collaboration, and learning, while at the same time helping to develop trust and credibility among individuals and intuitions. While these goals are widely discussed, less is known about the activities and strategies that knowledge systems undertake to achieve these goals. We analyze the Global Framework of Climate Services (GFCS) as a knowledge system organized around the translation of weather and climate information for decision-making. The GFCS brings together the World Meteorological Organization, national meteorological and hydrological services, and some of the world’s largest multilateral scientific, humanitarian, and development organizations. Our analysis draws on key informant interviews, focus groups conducted in African countries, and an online survey of GFCS participants. We describe the main activities pursued by the GFCS that shaped the vision of climate services, built capacity in national climate adaptation, and created connections among diverse actors and organizations worldwide. We show how these activities generated tensions about the purpose of the GFCS and how influence among the knowledge system was distributed. Based on our results, we illustrate new ways to conceptualize the strategies of knowledge systems, which we describe as (1) theorizing the norms of practice and mechanisms of change, (2) legitimizing actors, and (3) managing knowledge. These strategies identify pathways for, and pitfalls to, a knowledge system’s pursuit of its goals, providing guidance to managers of knowledge systems and an analytical framework to evaluate their impacts.     

绿色气候基金在全球气候治理体系中的作用和展望

作为《联合国气候变化框架公约》(简称公约）和《巴黎协定》资金机制最大运营实体,绿色气候基金(GCF)不仅是发达国家兑现1000亿美元长期资金承诺的重要平台,亦是公约和《巴黎协定》目标达成的关键因素。文中系统总结了GCF在推进气候变化国际合作进程、为发展中国家应对气候变化提供资金支持、推动私营部门参与应对气候变化行动等方面的积极作用。提出在当前多边合作面临挑战的复杂背景下,GCF亦面临美国退群、缺乏有效决策机制、项目质量及秘书处能力有待提高等系列问题。文章认为,一个持续有效运营的GCF是国际社会落实《巴黎协定》实施细则的重要保障,各方应尽快凝聚政治共识,推动GCF在全球气候治理体系中继续发挥积极作用。首先,应通过引入投票权决策机制、完善政策缺口、创新业务模式等措施提升基金治理和运营效率;其次,通过尽快完成正式增资进程、拓宽资金渠道、加强剩余资金管理等方式确保充足及可持续的资金来源;最后,还应通过强化与现有气候基金的协调互补、加大与多边发展银行的合作等途径与各方资金形成合力,推动资金流向低碳和气候韧性发展领域。文章还提出,中国应在有效发挥发达国家和发展中国家桥梁作用的基础上,引导GCF投票权改革以消除政治因素对GCF长远发展的负面影响,同时通过积极争取获得下届董事席位,推进与GCF全方位合作、参与GCF正式增资进程等举措,服务生态文明建设及全球应对气候变化目标。     

The political sustainability of climate policy: The case of the UK Climate Change Act

This paper assesses the forces working for and against the political sustainability of the UK 2008 Climate Change Act. The adoption of the Act is seen as a landmark commitment to action on climate change, but its implementation has not been studied in any depth. Recent events, including disagreements over the fourth carbon budget and the decarbonisation of the electricity sector, shows that while the Act might appear to lock in a commitment to reducing emissions through legal means, this does not guarantee political lock-in. The assumption, made by some proponents of the Act, that accountability of political leaders to a public concerned about climate change, via Parliament, would provide the main political underpinning to the Act is criticised. An analysis of alternative sources of political durability is presented, drawing on a framework for understanding the sustainability of reform developed by Patashnik. It is argued that the Act has helped create major institutional transformations, although the degree to which new institutions have displaced the power of existing ones is limited. The Act has produced some policy feedback effects, especially in the business community, and some limited investment effects, but both have been insufficient to withstand destabilisation by recent party political conflicts. The Climate Change Act remains at risk.     

The contribution of future agricultural trends in the US Midwest to global climate change mitigation

Land use change is a complex response to changing environmental and socioeconomic systems. Historical drivers of land use change include changes in the natural resource availability of a region, changes in economic conditions for production of certain products and changing policies. Most recently, introduction of policy incentives for biofuel production have influenced land use change in the US Midwest, leading to concerns that bioenergy production systems may compete with food production and land conservation. Here we explore how land use may be impacted by future climate mitigation measures by nesting a high resolution agricultural model (EPIC – Environmental Policy Indicator Climate) for the US Midwest within a global integrated assessment model (GCAM – Global Change Assessment Model). This approach is designed to provide greater spatial resolution and detailed agricultural practice information by focusing on the climate mitigation potential of agriculture and land use in a specific region, while retaining the global economic context necessary to understand the far ranging effects of climate mitigation targets. We find that until the simulated carbon prices are very high, the US Midwest has a comparative advantage in producing traditional food and feed crops over bioenergy crops. Overall, the model responds to multiple pressures by adopting a mix of future responses. We also find that the GCAM model is capable of simulations at multiple spatial scales and agricultural technology resolution, which provides the capability to examine regional response to global policy and economic conditions in the context of climate mitigation.     

Response of the mean global vegetation distribution to interannual climate variability

The impact of interannual variability in temperature and precipitation on global terrestrial ecosystems is investigated using a dynamic global vegetation model driven by gridded climate observations for the twentieth century. Contrasting simulations are driven either by repeated mean climatology or raw climate data with interannual variability included. Interannual climate variability reduces net global vegetation cover, particularly over semi-arid regions, and favors the expansion of grass cover at the expense of tree cover, due to differences in growth rates, fire impacts, and interception. The area burnt by global fires is substantially enhanced by interannual precipitation variability. The current position of the central United States’ ecotone, with forests to the east and grasslands to the west, is largely attributed to climate variability. Among woody vegetation, climate variability supports expanded deciduous forest growth and diminished evergreen forest growth, due to difference in bioclimatic limits, leaf longevity, interception rates, and rooting depth. These results offer insight into future ecosystem distributions since climate models generally predict an increase in climate variability and extremes. CCR Contribution # 941     

Evaluating the economic damage of climate change on global coral reefs

This paper evaluates the global economic damage arising from the effects of climate change and associated carbon dioxide concentrations on the loss of coral reefs. We do this by first estimating the effects of sea surface temperature and carbon dioxide concentrations on coral cover. We develop a statistical relationship between coral coverage and sea surface temperature that indicates that the effects are dependent on the temperature range. For example, we find that increasing sea surface temperature causes coral coverage to decrease when sea surface temperature is higher than 26.85 °C, with the estimated reduction being 2.3% when sea surface temperature increases by 1%. In addition, we find that a 1% carbon dioxide increase induces a 0.6% reduction in global coral coverage. We also estimate the resultant loss in economic value based on a meta-analysis of the recreational and commercial value of reef coverage and a crude proportional approach for other value factors. The meta-analysis shows that the coral reef value decreases by 3.8% when coral cover falls by 1%. By combining these two steps we find that the lost value in terms of the global coral reef value under climate change scenarios ranges from US$3.95 to US$23.78 billion annually.     

The impact of shale gas on the costs of climate policy

The use of shale gas is commonly considered as a low-cost option for meeting ambitious climate policy targets. This article explores global and country-specific effects of increasing global shale gas exploitation on the energy markets, on greenhouse gas emissions, and on mitigation costs. The global techno-economic partial equilibrium model POLES (Prospective Outlook on Long-term Energy Systems) is employed to compare policies which limit global warming to 2°C and baseline scenarios when the availability of shale gas is either high or low. According to the simulation results, a high availability of shale gas has rather small effects on the costs of meeting climate targets in the medium and long term. In the long term, a higher availability of shale gas increases baseline emissions of greenhouse gases for most countries and for the world, and leads to higher compliance costs for most, but not all, countries. Allowing for global trading of emission certificates does not alter these general results. In sum, these findings cast doubt on shale gas’s potential as a low-cost option for meeting ambitious global climate targets.

POLICY RELEVANCE

Many countries with a large shale gas resource base consider the expansion of local shale gas extraction as an option to reduce their GHG emissions. The findings in this article imply that a higher availability of shale gas in these countries might actually increase emissions and mitigation costs for these countries and also for the world. An increase in shale gas extraction may spur a switch from coal to gas electricity generation, thus lowering emissions. At the global level and for many countries, though, this effect is more than offset by a crowding out of renewable and nuclear energy carriers, and by lower energy prices, leading to higher emissions and higher mitigation costs in turn. These findings would warrant a re-evaluation of the climate strategy in most countries relying on the exploitation of shale gas to meet their climate targets.