Public engagement with carbon and climate change: To what extent is the public ‘carbon capable’?

The relevance of climate change for society seems indisputable: scientific evidence points to a significant human contribution in causing climate change, and impacts which will increasingly affect human welfare. In order to meet national and international greenhouse gas (GHG) emissions reduction targets, there is an urgent need to understand and enable societal engagement in mitigation. Yet recent research indicates that this involvement is currently limited: although awareness of climate change is widespread, understanding and behavioral engagement are far lower. Proposals for mitigative ‘personal carbon budgets’ imply a need for public understanding of the causes and consequences of carbon emissions, as well as the ability to reduce emissions. However, little has been done to consider the situated meanings of carbon and energy in everyday life and decisions. This paper builds on the concept of ‘carbon capability’, a term which captures the contextual meanings associated with carbon and individuals’ abilities and motivations to reduce emissions. We present empirical findings from a UK survey of public engagement with climate change and carbon capability, focusing on both individual and institutional dimensions. These findings highlight the diverse public understandings about ‘carbon’, encompassing technical, social, and moral discourses; and provide further evidence for the environmental value-action gap in relation to adoption of low-carbon lifestyles. Implications of these findings for promoting public engagement with climate change and carbon capability are discussed.     

Citizens, consumers and sustainability: (Re)Framing environmental practice in an age of climate change

Recent moves by national and local policy makers have sought to encourage individuals to engage in a wide range of pro-environmental practices to address both discrete environmental problems and major, global challenges such as climate change. The major framing device for these developments is the notion of ‘citizen–consumers’, which positions individual ecological responsibilities alongside consumer choice logics in a Neo-liberal socio-economic framework. In the environmental social sciences, there have been recent moves to interpret the citizen–consumer through adopting a social practices approach, which advances the notion that in understanding environmental commitments, a deeper appreciation of underlying norms, values, identity politics and consumption is required to uncover the complex processes that lead to environmental practices in specific contexts. This paper argues that whilst these approaches have considerable utility in tracing the normalisation of established and discrete environmental practices in particular contexts, the issue of climate change represents an independent and over-arching discursive conflict between new and embedded practices that challenges the ability of citizen–consumers to act as agents for change. Accordingly, the data presented in this paper suggest that climate change can be seen as an unsettling and dynamic issue that generates discursive conflict in its own right around fundamental issues of knowledge, responsibility, scale and place. The paper therefore argues that a new and more critical perspective is required within environmental social science to understand (conflicting) discourses of sustainable living between the ‘passive’ normalisation of conventional environmental practice and the ‘contested’ ambiguities of climate change.     

Future makers or future takers? A scenario analysis of climate change and the Great Barrier Reef

The extent to which nations and regions can actively shape the future or must passively respond to global forces is a topic of relevance to current discourses on climate change. In Australia, climate change has been identified as the greatest threat to the ecological resilience of the Great Barrier Reef, but is exacerbated by regional and local pressures. We undertook a scenario analysis to explore how two key uncertainties may influence these threats and their impact on the Great Barrier Reef and adjacent catchments in 2100: whether (1) global development and (2) Australian development is defined and pursued primarily in terms of economic growth or broader concepts of human well-being and environmental sustainability, and in turn, how climate change is managed and mitigated. We compared the implications of four scenarios for marine and terrestrial ecosystem services and human well-being. The results suggest that while regional actions can partially offset global inaction on climate change until about mid-century, there are probable threshold levels for marine ecosystems, beyond which the Great Barrier Reef will become a fundamentally different system by 2100 if climate change is not curtailed. Management that can respond to pressures at both global and regional scales will be needed to maintain the full range of ecosystem services. Modest improvements in human well-being appear possible even while ecosystem services decline, but only where regional management is strong. The future of the region depends largely on whether national and regional decision-makers choose to be active future ‘makers’ or passive future ‘takers’ in responding to global drivers of change. We conclude by discussing potential avenues for using these scenarios further with the Great Barrier Reef region's stakeholders.     

Ethics and public perception of climate change: Exploring the Christian voices in the US public debate

Climate change raises many questions with strong moral and ethical dimensions that are important to address in climate-policy formation and international negotiations. Particularly in the United States, the public discussion of these dimensions is strongly influenced by religious groups and leaders. Over the past few years, many religious groups have taken positions on climate change, highlighting its ethical dimensions. This paper aims to explore these ethical dimensions in the US public debate in relation to public support for climate policies. It analyzes in particular the Christian voices in the US public debate on climate change by typifying the various discourses. Three narratives emerge from this analysis: ‘conservational stewardship’ (conserving the ‘garden of God’ as it was created), ‘developmental stewardship’ (turning the wilderness into a garden as it should become) and ‘developmental preservation’ (God's creation is good and changing; progress and preservation should be combined). The different narratives address fundamental ethical questions, dealing with stewardship and social justice, and they provide proxies for public perception of climate change in the US. Policy strategies that pay careful attention to the effects of climate change and climate policy on the poor – in developing nations and the US itself – may find support among the US population. Religious framings of climate change resonate with the electorates of both progressive and conservative politicians and could serve as bridging devices for bipartisan climate-policy initiatives.     

Public responses to climate change: The role of deliberation in building capacity for adaptive action

Public deliberative platforms have been argued as potentially beneficial in fostering adaptive capacity to respond to climate change. However, little is known about the veracity of such claims, and indeed how deliberation and adaptive capacity can and do intersect. In response, this paper reports on findings from a project into public responses to climate change in the Australian Capital Region. It utilises quantitative analysis—in the form of Q methodology—and qualitative analysis, to compare discourses that emerged from individual scenario-based interviews with those that emerged at the end of a 4-day public deliberative process. It shows that while the scenario interviews had an impact on participants, this impact is not sustained. By contrast, the deliberative process gave rise to new discourses, one of which (labelled ‘Collective Action Imperative’) is argued as indicative of a potentially constructive personal and collective adaptive capacity. However, advocating deliberative processes still requires caution, as less adaptive discourses prevailed, suggesting strong governance signals and leadership are still essential for fostering a positive public response to the challenges of climate change.     

Outcome and value uncertainties in global-change policy

Choices among environmental policies can be informed by analysis of the potential physical, biological, and social outcomes of alternative choices, and analysis of social preferences among these outcomes. Frequently, however, the consequences of alternative policies cannot be accurately predicted because of substantial outcome uncertainties concerning physical, chemical, biological, and social processes linking policy choices to consequences. Similarly, assessments of social preferences among alternative outcomes are limited by value uncertainties arising from limitations of moral principles, the absence of economic markets for many environmental attributes, and other factors. Outcome and value uncertainties relevant to global-change policy are described and their magnitudes are examined for two cases: stratospheric-ozone depletion and global climate change. Analysis of information available in the mid 1980s, when international ozone regulations were adopted, suggests that contemporary uncertainties surrounding CFC emissions and the atmospheric response were so large that plausible ozone depletion, absent regulation, ranged from negligible to catastrophic, a range that exceeded the plausible effect of the regulations considered. Analysis of climate change suggests that, important as outcome uncertainties are, uncertainties about values may be even more important for policy choice.     

Shifting discourses of climate change in India

Developing countries like India are under international pressure to sign a legally binding emissions treaty to avert catastrophic climatic change. Developing countries, however, have argued that any international agreement must be based on historic and per capita carbon emissions, with developed countries responsible for reducing their emissions first and funding mitigation and adaptation in other countries. Recently, however, several scholars have argued that Indian government climate change discourses are shifting, primarily by recognizing the “co-benefits” of an alignment between its development and climate change objectives, and by displaying increasing “flexibility” on mitigation targets. This study investigates the factors driving shifting Indian discourses of climate change by conducting and analyzing 25 interviews of Indian climate policy elites, including scientists, energy policy experts, leading government officials, journalists, business leaders, and advocates, in addition to analysis of articles published in Economic and Political Weekly (a prominent Indian policy journal), and reports published by the government and other agencies. Our analysis suggests that India’s concerns about increasing energy access and security, along with newer concerns about vulnerability to climate change and the international leadership aspirations of the Indian government, along with emergence of new actors and institutions, has led to plurality of discourses, with potential implications for India’s climate change policies.     

隐形碳关税:概念辨析与国际治理

碳关税是各国高度关注的贸易问题,因涉及各国经贸利益,南北国家在碳关税问题上分歧很大。任何有关碳关税的政策措施,都会引起发展中国家的强烈反对。因此,部分发达国家试图另辟蹊径,在国际贸易中通过增加生产标准、碳标签等技术要求,以比较隐蔽的方式实现执行碳关税的目的。文中将这些隐蔽的但能起到碳关税执行效果的政策措施归纳为隐形碳关税,并定义隐形碳关税是指那些虽然没有在边境环节征收碳关税,但与征收碳关税起到相同贸易壁垒作用的,对发展中国家出口产品和服务构成限制的政策和措施。隐形碳关税比较典型的表现形式包括生产标准、碳标签等措施。这些措施本身是政策中性的,并不构成隐形碳关税,但如果叠加了转移应对气候变化成本、限制发展中国家产业发展等目的,这些措施的性质便不再中性,而成为现实中的贸易壁垒。隐形碳关税的治理应该是国际气候治理进程的一个部分,《联合国气候变化框架公约》则应是隐形碳关税治理的主要国际平台。无论是在气候公约内还是气候公约外的治理机制,隐形碳关税的国际治理都应遵循气候公约的相关原则,尤其是共同但有区别责任原则,区别对待发达和发展中国家的责任和义务,充分发挥生产标准、碳标签等措施的积极环境效用,同时约束其不当使用,建立公平、互信、务实的国际合作模式,实现气候治理与经济发展的协同。     

Special Issue Introduction: Adding insult to injury: Climate change and the inequities of climate intervention

Climate change will injure vulnerable communities. In response, coordinated global action has emerged to mitigate climate change, to gauge and map climate-related risks, and to plan for adaptation, which in turn has opened new avenues of funding, power, knowledge and opportunity. The identification of climate risks, analysis and diffusion of ‘impact’ scenarios, incorporation of carbon into economic regimes, and interventions to enhance adaptive capacity will necessarily be experienced differently by different groups. As climate-related crises produce winners and losers, so may discourses and plans made to avert such crises. In the process both the bio-physical events and the social responses shape and reshape social stratification and the distribution of risk. They produce new inequalities and needs for new kinds of responses to guard against injustice. From the emergence of desalination water projects and contested water access, to relocation planning in the Arctic and the South Pacific due to sea-level rise, to increasingly centralized forest management; mitigation and adaptation responses and interventions create their own critical outcomes. This essay and the articles in this special issue examine some new opportunities and risks associated with climate-change discourses and interventions. This special issue shows that vulnerable communities may be at risk of material injury following climate change or climate change intervention; and, be further insulted and injured by lack of representation and recognition, and by misrecognition as simplified, stereotyped victims in local, national and international climate conversations. Using a mixture of theoretical insight and case study research, this collection of articles explores the injuries of climate change as it applies to both direct physical stress scenarios and exposure to adaptation and mitigation policies and planning, as well as the discursive insults of being discounted, stereotyped, or ignored.     

Why different interpretations of vulnerability matter in climate change discourses

In this article, we discuss how two interpretations of vulnerability in the climate change literature are manifestations of different discourses and framings of the climate change problem. The two differing interpretations, conceptualized here as ‘outcome vulnerability’ and ‘contextual vulnerability’, are linked respectively to a scientific framing and a human-security framing. Each framing prioritizes the production of different types of knowledge, and emphasizes different types of policy responses to climate change. Nevertheless, studies are seldom explicit about the interpretation that they use. We present a diagnostic tool for distinguishing the two interpretations of vulnerability and use this tool to illustrate the practical consequences that interpretations of vulnerability have for climate change policy and responses in Mozambique. We argue that because the two interpretations are rooted in different discourses and differ fundamentally in their conceptualization of the character and causes of vulnerability, they cannot be integrated into one common framework. Instead, it should be recognized that the two interpretations represent complementary approaches to the climate change issue. We point out that the human-security framing of climate change has been far less visible in formal, international scientific and policy debates, and addressing this imbalance would broaden the scope of adaptation policies.     

Dealing with displacement: Can “social protection” facilitate long-term adaptation to climate change?

This article explores the possibilities of using social protection to manage and reduce the risks of forced displacement resulting from climate change. It reviews the relevant literature on migration, disasters and climate change, and constructs a model through which international policies may be used to encourage resettlement options that support the capabilities and entitlements of poor and vulnerable populations. By distinguishing between rapid-onset disasters and long-term environmental change, it explores the ways in which cash transfers, asset transfers and conditional cash transfers may be used to break the cycle of vulnerability, destitution and distress migration that can occur during times of severe environmental stress. An important distinction is made between “economic migration,” which implies that households have at their disposal an opportunity to engage in forward-looking analysis about the ways in which they will invest household resources and “distress migration,” which implies that household decisions about investment and migration are largely ad hoc responses to external environmental processes and events. The article reviews recent discussions about the prospects of revising the international refugee regime, and identifies the opportunities and challenges of using social protection to support household decisions that can facilitate economic migration over the long-term.     

Social risk perceptions of climate change: A case study of farmers and agricultural advisors in northern California

Crop and livestock farmers must respond to climate change, including a range of physical and cultural impacts and risks. In rural northern California, farmers face extreme drought and catastrophic wildfires with increasing frequency. I draw on an extended case study of farmers and agricultural advisors in Siskiyou County to understand how rural agriculturalists perceive risks when navigating climate change discourses. While farmers are changing their management practices in response to the physical effects of climate change, many perceive substantial social risks within their communities if they align themselves publicly with climate change beliefs or actions. Perceived social consequences included loss of access to the benefits of membership in formal and informal farming groups. Efforts focused on educating or convincing farmers of climate science may, in some contexts, increase rather than decrease the perceived social risks of climate action. The framing of climate policies, programs, and practices – especially by public agricultural advisors like Cooperative Extension Advisors and local USDA staff (e.g., Farm Service Agency) – is important not only for increasing farmer participation, but also for reducing perceived social risks associated with climate change. Interventions that focus on livelihood impacts and validate existing land stewardship-oriented values have more potential to increase the pace and scale of climate change mitigation and adaptation in agriculture.     

Climate discourses as barriers to rights-based adaptive social protection: How historical politics shape Ethiopia’s climate-smart safety net

A rights-based approach to ‘adaptive social protection’ holds promise as a policy measure to address structural dimensions of vulnerability to climate change such as inequality and marginalisation, yet it has been failing to gain traction against production and growth-oriented interventions. Through the lens of Ethiopia’s flagship Productive Safety Net Programme (PSNP), we trace the role of climate discourses in impeding progress towards socially transformative outcomes, despite the importance of social protection for building resilience. We argue that intertwining narratives of moral leadership and green growth associated with Ethiopia’s national climate strategy shape how the PSNP is rendered ‘climate-smart’. These narratives, however, are embedded within politics that have historically underpinned the country’s drive for modernisation and growth-oriented policies, particularly in dealing with food insecurity. Like pre-existing narratives on development and the environment, they rationalise the presence of a strong central State and its control over natural resources and rural livelihoods. The PSNP is thus conditioned to favour technocratic, productivist approaches to adapting to climate change that may help reproduce, rather than challenge the entrenched politics at the root of vulnerability. Ultimately, this case study demonstrates how climate discourses risk diluting core rights-based dimensions of social protection, contradicting efforts to address the structural dimensions of vulnerability to climate change.     

Climate change impacts on global agriculture

Based on predicted changes in the magnitude and distribution of global precipitation, temperature and river flow under the IPCC SRES A1B and A2 scenarios, this study assesses the potential impacts of climate change and CO₂ fertilization on global agriculture. The analysis uses the new version of the GTAP-W model, which distinguishes between rainfed and irrigated agriculture and implements water as an explicit factor of production for irrigated agriculture. Future climate change is likely to modify regional water endowments and soil moisture. As a consequence, the distribution of harvested land will change, modifying production and international trade patterns. The results suggest that a partial analysis of the main factors through which climate change will affect agricultural productivity provide a false appreciation of the nature of changes likely to occur. Our results show that global food production, welfare and GDP fall in the two time periods and SRES scenarios. Higher food prices are expected. No matter which SRES scenario is preferred, we find that the expected losses in welfare are significant. These losses are slightly larger under the SRES A2 scenario for the 2020s and under the SRES A1B scenario for the 2050s. The results show that national welfare is influenced both by regional climate change and climate-induced changes in competitiveness.     

Great expectations: can international emissions trading deliver an equitable climate regime?

Climate change equity debates tend to focus on achieving a fair and global ‘allocation’ of emission rights among countries. Allocation proposals typically envision, if implicitly, two purposes for international emissions trading. First, trading is expected to serve as a cost-effective means of promoting compliance with emissions targets. Second, trading is posited as a means to generate financial transfers, typically from industrialized to transitioning and developing countries.This article investigates the common assumption that international emissions trading will effectively serve both of these purposes. We conclude that the two purposes might not be mutually supportive, and that efforts to use international emissions trading as a financial transfer mechanism may potentially undermine cost-effectiveness goals. International emissions trading on a global scale would create new risks in terms of both cost-effectiveness and environmental performance, some of which will be challenging to manage. In particular, uncertainties over market prices and trading eligibility, coupled with the costs of participation, may together be the Achilles heel of some allocation proposals that entail large financial transfers from industrialized to developing countries. Any proposal for an ‘equitable’ allocation of emission allowances, we conclude, must be cognizant of the risks and costs implied by a reliance on international emissions trading. We offer some suggestions to this end.     

Achieving Adequate Adaptation in Agriculture

This paper reviews the prospects for adaptation in world agriculture in the face of climate change. The record of experience from previous decades demonstrates a considerable capacity to adapt and there is general optimism that successful adaptation will be maintained. There are some grounds for concern because of the uncertainty surrounding global climate projections and the probability of considerable regional variation in impacts. While world production may not be adversely affected, the prospects are not so encouraging for low latitude agricultural regions, in part because of lower capacity to adapt. Attention has focused on the farming community itself as the place where adaptation takes place, but now the processes of globalization are placing adaptation more in the hands of agri-business, national policy makers, and the international political economy. The continued success of adaptation rests more heavily on actions at the national level in the context of changing technology and world trade liberalization. An adaptation policy framework is suggested as a vehicle to help understand and facilitate adaptation in this changing context.     

Consumption-based GHG emission accounting: a UK case study

Global GHG emissions continue to rise, with nearly a quarter of it due to trade that is not currently captured within global climate policy. In the context of current trade patterns and limited global cooperation on climate change, the feasibility of consumption-based emissions accounting to contribute to a more comprehensive (national) policy framework in the UK is investigated. Consumption-based emissions results for the UK from a range of models are presented, their technical robustness is assessed, and their potential application in national climate policy is examined using examples of policies designed to reduce carbon leakage and to address high levels of consumption. It is shown that there is a need to include consumption-based emissions as a complementary indicator to the current approach of measuring territorial emissions. Methods are shown to be robust enough to measure progress on climate change and develop and inform mitigation policy. Finally, some suggestions are made for future policy-oriented research in the area of consumption-based accounting that will facilitate its application to policy.

Policy relevance

Emissions embodied in trade are rapidly increasing and there is thus a growing gap between production emissions and the emissions associated with consumption. This is a growing concern due to the absence of a global cap and significant variation in country-level mitigation ambitions. Robust measurements of consumption-based emissions are possible and provide new insights into policy options. This includes trade-related policy (e.g. border carbon adjustments) and domestic policies (e.g. resource efficiency strategies). As climate policy targets deepen, there is a need for a broad range of policy options in addition to production and technological solutions. Consumption-based emissions are complementary to production-based emissions inventories, which are still the most accurate estimate for aggregated emissions at the global level. However, without consumption-based approaches, territorial emissions alone will not provide a complete picture of progress in regional and national emissions reduction.     

Catching air? Climate change policy in Russia, Ukraine and Kazakhstan

Russia, Ukraine and Kazakhstan have each participated actively in the UN Framework Convention on Climate Change (UNFCCC) Conferences of the Parties, and each is developing domestic rules and institutions to address UN obligations under the treaties. Russia and Ukraine are each Annex I/Annex B countries. Kazakhstan will become Annex I upon ratification of the Kyoto Protocol, but has not yet established itself as Annex B. Each state has evolved a distinct set of policies and priorities in the domestic and the international arena. Drawing largely on interviews in each country, this article presents brief histories of the evolution of climate policy, focusing on each state’s behavior in the international arena, the sources of domestic policy leadership, and the forces that led to change in each national approach. Current policies and practices are evaluated with an eye towards learning from the successes and failures in each state.     

国际气候治理中的公正转型议题：概念辨析与治理进展

国际气候治理中的公正转型议题涉及就业、关乎民生,是各国都很关注的政策领域之一,因此也被视为是支持应对气候变化的一种重要社会机制。近年来,国际社会积极推动建设气候治理公正转型制度体系,各国也在所制定的国家应对气候变化战略和规划中越来越多地提出与公正转型和就业相关的目标与措施。公正转型议题在国际气候治理进程中主流化的趋势给中国参与和引领全球气候治理带来了新的机遇与挑战。中国应加强关于该问题的基础性研究;在国内应对气候变化的行动中充分考虑该问题,保障受影响就业群体获得社会公正对待;总结具体实践经验;在政策领域协调上做好新的布局;积极参与《联合国气候变化框架公约》下公正转型治理体系的构建中。     

What happened to climate change? CITES and the reconfiguration of polar bear conservation discourse

In the past decade, polar bears have become the poster species of climate change. But in March 2013, a joint proposal by the governments of the United States and the Russian Federation to up-list polar bears to Appendix I of the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) diverted public attention from climate change towards the hunting of polar bears. Prior to a vote on the proposal, non-governmental organisations spear-headed a media campaign to support the up-listing. In the United Kingdom the campaign received support from celebrities and was widely reported in English language news media. Narratives of commercial legal and illegal polar bear hunting and the imminent extinction of polar bears were aggressively promoted, rhetorically supported by the manipulation of trade and scientific data. By rendering discourses of commercial hunting and a lucrative global trade in polar bear parts highly visible, sustainable hunting and climate change-induced habitat loss were rendered invisible. Media reports of commercial hunting de-coupled polar bear conservation from climate change mitigation, and disassociated polar bear hunting from regulated indigenous subsistence practices. A review of current polar bear conservation measures and an analysis of media coverage leading up to the CITES decision reveal these conflicting discourses, and suggest that more nuanced media coverage of polar bear conservation is necessary if appropriate multilateral conservation policies are to be enacted and publicly supported.