National ownership in the implementation of global climate policy in Uganda

Abstract

This article explores the history, from a developing country perspective, of how external interventions to implement global policies on the Climate Convention and the Clean Development Mechanism (CDM) have been integrated into national development policy frameworks in the period 1990–2005. The main question asked is to what extent external interventions have formed part of a country-driven approach in Uganda. The conflicting national and global priorities concerning the need for adaptation to the impacts of climate change versus the need for global mitigation of greenhouse gases (GHGs) are explored first. Against this background, Uganda's policy response to climate change is reviewed. National climate policies are found not to exist, and the implementation of global policies is not integrated into national policy frameworks, partly due to conflicting national and global priorities. Given limited national awareness and the fact that climate policy is marginal compared to other national interests in Uganda, the experiences with donor support for the implementation of global climate policy nationally are analysed. This article demonstrates that neither national policies nor national management of donor support have secured a country-driven approach to external interventions in Uganda.     

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.     

Policy innovation in a changing climate: Sources,patterns and effects

States have been widely criticized for failing to advance the international climate regime. Many observers now believe that a “new” climate governance is emerging through transnational and/or local forms of action that will eventually plug the resulting governance gaps. Yet states, which remain oddly absent from most discussions of the “new” governance, will remain key players as governance becomes more polycentric. This paper introduces a special issue that explores the ability of states to rise to these interconnected challenges through the analytical prism of policy innovation. It reveals that policy innovation is much more multi-dimensional than is often thought; it encompasses three vital activities: invention (centering on the ‘source’ of new policy elements), diffusion (that produces different ‘patterns’ of policy adoption), and the evaluation of the ‘effects’ that such innovations create in reality. The papers, which range from qualitative case studies to large ‘n’ quantitative studies, offer new insights into the varied roles that states play in relation to all three.They show, for instance that: the policy activity of states has risen dramatically in the past decade; that state innovation is affected to similar degrees by internal and external factors; and that policies that offer flexibility to target groups on how to meet policy goals are most effective but that voluntary reporting requirements are ineffective. This paper draws upon these and many other insights to offer a much more nuanced reflection on the future of climate governance; one that deservedly puts states at the front and center of analysis.     

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.     

Studying local climate adaptation: A heuristic research framework for comparative policy analysis

Climate change poses a significant risk for communities, and local governments around the world have begun responding by developing climate adaptation policies. Scholarship on local adaptation policy has proliferated in recent years, but insufficient attention has been paid to operationalization of the unit of analysis, and methods employed are typically inadequate to draw inferences about variation across cases. This article seeks to contribute to the conceptual and methodological foundations of a research agenda for comparative analysis of local adaptation policies and policy-making. Synthesizing insights from policy studies literature and existing adaptation research, the article identifies and operationalizes two aspects of public policy—policy content and policy process—which are salient objects of comparative analysis that typically vary from one community to another. The article also addresses research design, outlining a comparative case study methodology that incorporates various qualitative analytical techniques as the vehicle to examine these policy elements in empirical settings.     

Transformative potential in sustainable development goals engagement: Experience from local governance in Australia

Localising the Sustainable Development Goals (SDGs) is often associated with the act of localising goals, targets and indicators, as well as the activities to measure and monitor progress. However, local communities worldwide are starting to engage with the SDGs by other means, for example, by incorporating the SDGs into local governance. In these efforts to make the SDGs part of an existing local governance process, which we call SDG engagement, the SDGs can be valued differently. They can be valued for their potential to support a widespread and fundamental change in society (the SDG transformative potential) or for their moderate addition to ongoing practices and activities (the SDG conventional value). Currently, how local governments can engage with the SDGs in different local governance activities is underexplored. This study introduces eight modes through which local governments can engage with the SDGs in local governance and discuss the unique transformative potential of those engagements via synthesising knowledge across 14 empirical studies of local communities in Australia. Building on the findings of this study, we propose a framework to aid SDG engagement in local governance activities, highlighting the transformative potential of the engagements. The study highlights the need for future explorations on the opportunities to enact a deliberate and more ambitious transformation driven by governance institutions.     

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.     

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。     

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.     

Climate policy innovation: The adoption and diffusion of adaptation policies across Europe

Climate change adaptation governance is in flux. Adaptation policies are being adopted by governments at a rapid pace, particularly in Europe. In the period 2005–2010, the total number of recorded adaptation policy measures in the EU grew by some 635%. Despite the plethora of work on adaptation governance, few if any empirical studies have been conducted that explore the driving forces behind the rapid adoption and diffusion of adaptation policies. Working within the theoretical framework of national policy innovation (see Jordan and Huitema, 2014a, Jordan and Huitema, 2014b), we draw on a uniquely systematic database of national climate polices to develop a set of hypotheses on the drivers and barriers surrounding the adoption and diffusion of climate change adaptation policies across 29 European countries. Using an internal/external model we postulate that adaptation is largely being driven by internal factors. Additionally, we look to the possible effects of this policy adoption and diffusion to see if adaptation is emerging into a new and distinct policy field. What we find is that indeed it could be in a handful of countries.     

National climate change mitigation legislation,strategy and targets: a global update

Global climate change governance has changed substantially in the last decade, with a shift in focus from negotiating globally agreed greenhouse gas (GHG) reduction targets to nationally determined contributions, as enshrined in the 2015 Paris Agreement. This paper analyses trends in adoption of national climate legislation and strategies, GHG targets, and renewable and energy efficiency targets in almost all UNFCCC Parties, focusing on the period from 2007 to 2017. The uniqueness and added value of this paper reside in its broad sweep of countries, the more than decade-long coverage and the use of objective metrics rather than normative judgements. Key results show that national climate legislation and strategies witnessed a strong increase in the first half of the assessed decade, likely due to the political lead up to the Copenhagen Climate Conference in 2009, but have somewhat stagnated in recent years, currently covering 70% of global GHG emissions (almost 50% of countries). In comparison, the coverage of GHG targets increased considerably in the run up to adoption of the Paris Agreement and 89% of global GHG emissions are currently covered by such targets. Renewable energy targets saw a steady spread, with 79% of the global GHG emissions covered in 2017 compared to 45% in 2007, with a steep increase in developing countries.

Key policy insights

• The number of countries that have national legislation and strategies in place increased strongly up to 2012, but the increase has levelled off in recent years, now covering 70% of global emissions by 2017 (48% of countries and 76% of global population).

• Economy-wide GHG reduction targets witnessed a strong increase in the build up to 2015 and are adopted by countries covering 89% of global GHG emissions (76% not counting USA) and 90% of global population (86% not counting USA) in 2017.

• Renewable energy targets saw a steady increase throughout the last decade with coverage of countries in 2017 comparable to that of GHG targets.

• Key shifts in national measures coincide with landmark international events – an increase in legislation and strategy in the build-up to the Copenhagen Climate Conference and an increase in targets around the Paris Agreement – emphasizing the importance of the international process to maintaining national momentum.

     

Constructing legitimacy for climate change planning: A study of local government in Denmark

Existing research on climate change planning has tended to adopt an overly simplistic approach to analyzing how agency and structure mediate local governments’ responses to climate change. This research contributes to scientific capacity to predict and explain patterns of climate change planning by focusing on the concept of legitimacy and examining its influence upon the dialectic between structure and agency. A conceptual framework foregrounding legitimacy is developed based upon new institutional theory. An initiative to institutionalize climate change planning in Aarhus Municipality, Denmark, is used as a case study to validate four propositions derived from existing research but filtered through the conceptual framework. Validation of the propositions evidences a hierarchy in the salience of different forms of legitimacy, with moral and ethical arguments for undertaking climate change planning having limited social traction in Denmark in the absence of significant extreme climatic events. The analysis also generates thicker, more nuanced explanations for real-world patterns of climate change planning. The findings thereby provide a corrective to a number of assertions made in the literature, notably in relation to the role of agency in the institutionalization of climate change planning.     

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.     

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.     

The global impacts of US climate policy: a model simulation using GCAM-TU and MAGICC

To assess the potential impacts of the US withdrawal from the Paris Agreement, this study applied GCAM-TU (an updated version of the Global Change Assessment Model) to simulate global and regional emission pathways of energy-related CO₂, which show that US emissions in 2100 would reduce to ?2.4?Gt, ?0.7?Gt and ?0.2?Gt under scenarios of RCP2.6, RCP3.7 and RCP4.5, respectively. Two unfavourable policy scenarios were designed, assuming a temporary delay and a complete stop for US mitigation actions after 2015. Simulations by the Model for the Assessment of Greenhouse-gas Induced Climate Change (MAGICC) indicate that the temperature increase by 2100 would rise by 0.081°C–0.161°C compared to the three original RCPs (Representative Concentration Pathways) if US emissions were kept at their 2015 levels until 2100. The probability of staying below 2°C would decrease by 6–9% even if the US resumes mitigation efforts for achieving its Nationally Determined Contribution (NDC) target after 2025. It is estimated by GCAM-TU that, without US participation, increased reduction efforts are required for the rest of the world, including developing countries, in order to achieve the 2°C goal, resulting in 18% higher global cumulative mitigation costs from 2015 to 2100.

Key policy insights

• President Trump’s climate policies, including planned withdrawal from the Paris Agreement, cast a shadow on international climate actions, and would lower the likelihood of achieving the 2°C target.

• To meet the 2°C target without the US means increased reduction efforts and mitigation costs for the rest of the world, and considerable economic burdens for major developing areas.

• Active state-, city- and enterprise-level powers should be supported to keep the emission reduction gap from further widening even with reduced mitigation efforts from the US federal government.

     

Exploratory analyses of local institutions for climate change adaptation in the Mongolian grasslands: An agent-based modeling approach

There has been a decrease in grazing mobility in the Mongolian grasslands over the past decades. Sedentary grazing with substantial external inputs has increased the cost of livestock production. As a result, the livelihoods of herders have become more vulnerable to climate variability and change. Sedentary grazing is the formal institutional arrangement in Inner Mongolia, China. However, this may not be an efficient institutional arrangement for climate change adaptation. Self-organized local institutions for climate change adaptation have emerged and are under development in the study area. In this study, we did exploratory analyses of multiple local institutions for climate change adaptation in the Mongolian grasslands, using an agent-based modeling approach. Empirical studies from literature and our field work show that sedentary grazing, pasture rental markets, and reciprocal pasture-use groups are three popular institutional arrangements in the study area. First, we modeled the social–ecological performance (i.e., livelihood benefits to herders and grassland quality) of these institutions and their combinations under different climate conditions. Second, we did exploratory analyses of multiple social mechanisms for facilitating and maintaining cooperative use of pastures among herders. The modeling results show that in certain value-ranges of some model parameters with assumed values, reciprocal pasture-use groups had better performance than pasture rental markets; and the comparative advantage of cooperative use of pastures over sedentary grazing without cooperation becomes more evident with the increase in drought probability. Agent diversity and social norms were effective for facilitating the development of reciprocal pasture-use groups. Kin selection and punishments on free-riders were useful for maintaining cooperation among herders.     

Distributional choices in EU climate policy: 20 years of policy practice

The distributional choices of the EU in three policy phases, spanning 20 years, are examined: the negotiations on emissions reduction targets for the EU15 under the first commitment period of the Kyoto Protocol, the negotiation of National Allocation Plans for Phase II of the EU Emissions Trading Scheme (ETS) between 2008 and 2012, and the formulation of the 2008 Climate and Energy Package for the period 2013–2020. A flexible and pragmatic framework, consisting of the normative principles of capacity, responsibility, equality, and need, is used to elucidate the indicators and policies used in deciding how the EU Member States are to share the cost of meeting climate policy objectives. The analysis extends the literature by applying a common analytical framework across the three different policy phases and provides a structured basis for the assessment of what the EU and other jurisdictions can learn from them.

Policy relevance

Distributing the cost of climate policy is a key policy concern, both at the domestic and international level. The EU has more than 20 years of policy experience with such distributional choices and is also preparing the next steps of its policy, where distributional choices will again be central. A framework is developed to assess the modalities and rationale for EU distributional choices in order to inform the future climate policy of the EU and other jurisdictions.     

Think global,act local? The relevance of place attachments and place identities in a climate changed world

Two decades ago, an article was published in Global Environmental Change proposing the importance of place attachments, at local and global scales, for understanding human responses to climate change (Feitelson, 1991). Despite concluding that ‘studies of individual's attachment to place may provide important inputs for strategies to enhance the prospects for sharing the globe’ (p. 406, 1991), the article remains overlooked. This article takes up and extends Feitelson's argument for more systematic research on place attachments and climate change. First, the paper critically reviews interdisciplinary literature on place attachment and the related concept of place identity, drawing on scholarship in human geography, environmental and social psychology. The review identifies a lack of cross-disciplinary dialogue, as well as several limitations to the ways that scalar aspects have been researched. Second, climate change research, encompassing adaptation, mitigation and communication that has incorporated place related attachments and identities is critically reviewed; in particular, emerging research on the role of ‘psychological distance’ is critiqued. The article concludes with five recommendations for future research: to capture place attachments and identities at global as well as local scales; to integrate qualitative and quantitative methods that capture constructions of place as well as intensity of attachments and identifications; to investigate links between attachments, identities and collective actions, particular ‘NIMBY’ resistance to adaptation and mitigation strategies; to apply greater precision when investigating spatial frames of risk communication; and to investigate links between global attachments and identities, environmental worldviews and climate change engagement. Finally, the implications of such research for evaluating area-based climate interventions are discussed.     

Local temperature anomalies increase climate policy interest and support: Analysis of internet searches and US congressional vote shares

Two studies examine the effects of temperature anomalies (relative to ten-year averages) on interest in and support for climate policies. Study 1 analyzes the impacts of local temperature anomalies on information acquisition, namely Google searches, about climate change and climate policies. We find strong evidence that temperature anomalies are associated with increased climate change information acquisition. Our results show that deviations from seasonal norms in both directions (i.e., temperatures higher or lower than expected) predict increased interest. Study 2 analyzes voting for Republican candidates, who in the timeframe of our data were not likely to support climate policies. Analysis of voting records from ten US midterm elections from 2002 to 2020 shows that greater local temperature anomalies are significantly associated with lower vote shares for Republican candidates.