Managing urban water systems with significant adaptation deficits—unified framework for secondary cities: part II—the practice

Adaptation gaps are shortcomings of a system responding to climate change, whereas adaptation deficits are shortcomings in providing services. These two drivers for adaptation are often in conflict in many secondary cities in the global south (SCGS). It is possible to align these seemingly conflicting drivers into a productive unity, a conceptual alignment, which is the first step in achieving harmony while implementing adaptation actions. This paper focuses on the practical aspects of implementing aligned adaptation action that leads to improvements in liveability, sustainability, and resilience of SCGS. At an abstract level, the nature of the adaptation problem is similar to the complex problems identified in various domains, such as software development, manufacturing, and supply chain management. The widely accepted “agile principles”—used in the above domains—is the basis for developing a set of twelve principles for urban adaptation, which are synthesized from numerous recent studies that have implicitly proposed or applied most of these principles to climate change adaptation in urban settings. These principles lead to four essential objectives appertaining to the process of sustainable urban adaptation. The urban agile principles are used to analyze the current state of adaptation of Can Tho City in Vietnam and to ascertain the agile ways of addressing its adaptation challenges. Analysis of the outcomes shows that harmonized approaches can simultaneously address both adaptation deficits and gaps.     

IPCC AR6报告解读：气候变化对城市、住区和关键基础设施的影响与适应

IPCC AR6 WGII评估了气候变化对城市、住区和关键基础设施的影响、风险及应对。气候变化对城市影响的程度和范围逐渐增加,全球城市化的过程与气候变化相互作用加剧了城市和住区的风险。通过社会基础设施、基于自然的解决方案和灰色/工程基础设施所采取的适应措施对气候恢复力发展均有贡献,而城市适应差距在世界各地普遍存在。气候恢复力发展需要多方协作、弥合政策行动差距、提升适应能力。评估报告的经验和案例为我国城乡地区适应和应对气候变化风险提供借鉴。     

Hurricane Sandy and adaptation pathways in New York: Lessons from a first-responder city

Two central issues of climate change have become increasingly evident: Climate change will significantly affect cities; and rapid global urbanization will increase dramatically the number of individuals, amount of critical infrastructure, and means of economic production that are exposed and vulnerable to dynamic climate risks. Simultaneously, cities in many settings have begun to emerge as early adopters of climate change action strategies including greenhouse gas mitigation and adaptation. The objective of this paper is to examine and analyze how officials of one city – the City of New York – have integrated a flexible adaptation pathways approach into the municipality's climate action strategy. This approach has been connected with the City's ongoing response to Hurricane Sandy, which struck in the October 2012 and resulted in damages worth more than US$19 billion. A case study narrative methodology utilizing the Wise et al. conceptual framework (see this volume) is used to evaluate the effectiveness of the flexible adaptation pathways approach in New York City. The paper finds that Hurricane Sandy serves as a “tipping point” leading to transformative adaptation due to the explicit inclusion of increasing climate change risks in the rebuilding effort. The potential for transferability of the approach to cities varying in size and development stage is discussed, with elements useful across cities including the overall concept of flexible adaptation pathways, the inclusion of the full metropolitan region in the planning process, and the co-generation of climate-risk information by stakeholders and scientists.     

Many roads to Paris: Explaining urban climate action in 885 European cities

Research on urban climate action has identified a broad range of potential factors explaining why and how local governments decide to tackle climate change. However, empirical evidence linking such factors in order to explain actual urban climate action has so far been mixed. To address this roadblock, our paper relies on a novel approach, postulating that different configurations of factors may lead to the same outcome (“equifinality”), through a qualitative comparative analysis (QCA). It is based on an available data set of local climate mitigation plans in 885 European cities. We find that urban climate action is systematically associated with four qualitatively different configurations of factors, each with its own consistent narrative (“networker cities”, “green cities”, “lighthouse cities”, “fundraising cities”). Crucially, some factors play a positive role in some configurations, a negative in others, and no role in further configurations (e.g., whether a city is located in a country with supportive national climate policies). This confirms that there is no single explanation for urban climate action. Achieving greater robustness in empirical research about urban climate action may thus require a shift, both conceptual and methodological, to the interactions between factors, allowing for different explanations in different contexts.     

The influence of urban development dynamics on community resilience practice in New York City after Superstorm Sandy: Experiences from the Lower East Side and the Rockaways

While (urban) resilience has become an increasingly popular concept, especially in the areas of disaster risk reduction (DRR) and climate change adaptation (CCA), it is often still used as an abstract metaphor, with much debate centered on definitions, differences in approaches, and epistemological considerations. Empirical studies examining how community-based organizations (CBOs) “practice” resilience on the ground and what enables these CBOs to organize and mobilize around resilience are lacking. Moreover, in the growing context of competitive and entrepreneurial urbanism and conflicting priorities about urban (re)development, it is unclear how urban development dynamics influence community-based resilience actions. Through empirical research conducted on the Lower East Side, a gentrifying neighborhood in Manhattan, and in Rockaway, a socio-spatially isolated neighborhood in Queens, we investigate community organizing of low-income residents for (climate) resilience in a post-disaster context. Results show that both the operationalization of resilience – how resilience is “practiced” – and the community capacity to organize for the improved resilience of low-income residents are strongly influenced by pre-existing urban development dynamics and civic infrastructure – the socio-spatial networks of community-based organizations – in each neighborhood. The Lower East Side, with its long history of community activism and awareness of gentrification threats, was better able to mobilize broadly and collectively around resilience needs while the more socio-spatially isolated neighborhoods on the Rockaway peninsula were more constrained.     

Cascades of green: A review of ecosystem-based adaptation in urban areas

Climate change impacts increase pressure on challenges to sustainability and the developmental needs of cities. Conventional, “hard” adaptation measures are often associated with high costs, inflexibility and conflicting interests related to the dense urban fabric, and ecosystem-based adaptation (EbA) has emerged as a potentially cost-efficient, comprehensive, and multifunctional approach. This paper reviews and systematises research on urban EbA. We propose an analytical framework that draws on theory from ecosystem services, climate change adaptation and sustainability science. It conceptualises EbA in terms of five linked components: ecological structures, ecological functions, adaptation benefits, valuation, and ecosystem management practices.Our review identified 110 articles, reporting on 112 cities, and analysed them using both quantitative statistical and qualitative content analysis. We found that EbA research in an urban context is fragmented due to different disciplinary approaches and concepts. Most articles focus on heat or flooding, and the most studied ecological structures for reducing the risk of such hazards are green space, wetlands, trees and parks. EbA is usually evaluated in bio-geophysical terms and the use of economic or social valuations are rare. While most articles do not mention specific practices for managing ecological structures, those that do imply that urban EbA strategies are increasingly being integrated into institutional structures. Few articles considered issues of equity or stakeholder participation in EbA.We identified the following challenges for future EbA research. First, while the large amount of data generated by isolated case studies contributes to systems knowledge, there is a lack of systems perspectives that position EbA in relation to the wider socio-economic and bio-geophysical context. Second, normative and ethical aspects of EbA require more thought, such as who are the winners and losers, especially in relation to processes that put people at risk from climate-related hazards. Third, there is room for more forward-looking EbA research, including consideration of future scenarios, experimentation in the creation of new ecological structures and the role of EbA in transformative adaptation.     

Integrating top–down and bottom–up approaches to design global change adaptation at the river basin scale

The high uncertainty associated with the effect of global change on water resource systems calls for a better combination of conventional top–down and bottom–up approaches, in order to design robust adaptation plans at the local scale. The methodological framework presented in this article introduces “bottom–up meets top–down” integrated approach to support the selection of adaptation measures at the river basin level by comprehensively integrating the goals of economic efficiency, social acceptability, environmental sustainability and adaptation robustness. The top–down approach relies on the use of a chain of models to assess the impact of global change on water resources and its adaptive management over a range of climate projections. Future demand scenarios and locally prioritised adaptation measures are identified following a bottom–up approach through a participatory process with the relevant stakeholders and experts. The optimal combinations of adaptation measures are then selected using a hydro-economic model at basin scale for each climate projection. The resulting adaptation portfolios are, finally, climate checked to define a robust least-regret programme of measures based on trade-offs between adaptation costs and the reliability of supply for agricultural demands.This innovative approach has been applied to a Mediterranean basin, the Orb river basin (France). Mid-term climate projections, downscaled from 9 General Climate Models, are used to assess the uncertainty associated with climate projections. Demand evolution scenarios are developed to project agricultural and urban water demands on the 2030 time horizon. The results derived from the integration of the bottom–up and top–down approaches illustrate the sensitivity of the adaptation strategies to the climate projections, and provide an assessment of the trade-offs between the performance of the water resource system and the cost of the adaptation plan to inform local decision-making. The article contributes new methodological elements for the development of an integrated framework for decision-making under climate change uncertainty, advocating an interdisciplinary approach that bridges the gap between bottom–up and top–down approaches.     

Global social and environmental change drives the management and delivery of ecosystem services from urban gardens: A case study from Central Coast,California

Urban community gardens are vital green spaces threatened by global social and environmental change factors. Population growth has reduced the amount of space available in cities, and climate change challenges plant growth thresholds. Urban community gardens provide dynamic socio-ecological systems to study how such social and environmental change factors affect the management and delivery of ecosystem services. They provide spaces where urban citizens purposefully interact with nature and receive multiple benefits. In this paper, we synthesize the results of three years of research in a case study of urban community gardens across the Central Coast of California and present a framework showing how both social and environmental change factors at the regional scale affect the ecological make-up of urban community gardens, which in turn affect the ecosystem services coming from such systems. Our study reveals that global environmental change felt at the regional level (e.g., increased built environment, climate change) interact with social change and policy (e.g., population growth, urbanization, water use policy), thus affecting regulations over garden resources (e.g., water availability) and management decisions by gardeners (e.g., soil management, crop planting decisions). These management decisions at the plot-scale, determine the ecological complexity and quality of the gardens and affect the resulting ecosystem services that come from these systems, such as food provision for both humans and urban animals. A greater understanding of how environmental and social change factors drive the management processes of urban community gardens is necessary to design policy support systems that encourage the continued use and benefits arising from such green spaces. Policies that can support urban community gardens to maintain ecological complexity and increase biodiversity through active management of soil quality and plant diversity have the potential to increase social and environmental outcomes that feedback to the larger environmental and social system.     

Sustainable urban water management and integrated development in informal settlements: The contested politics of co-production in Santo Domingo,Dominican Republic

Given the implications of global climate change, including higher likelihood of extreme weather events, and the increasing urban density coupled with reduction in permeable surfaces in the Global South, Sustainable Urban Water Management (SUWM) has emerged as a preferred paradigm for stormwater management. However, the implementation of SUWM, which is premised on using vegetation or engineered capture technologies to control runoff at its source in an effort to replicate natural hydrology, is limited by a lack of institutional integration, not merely between administrative organs with responsibility for stormwater management but also between infrastructure departments, planning institutions, communities, and civil society organizations. This is particularly true in informal settlements in the humid tropics, where excessive impermeable surfaces and a lack of adequate solid waste collection exacerbate municipal limitations in stormwater management. This article discusses an effort to integrate local communities, civil society organizations, and local and regional authorities to improve drainage services within the framework of integrated development in the informal settlement of Los Platanitos, Santo Domingo Norte, Dominican Republic. In order to address the drainage and flooding issues in Los Platanitos while also fostering economic development, representatives of community groups, NGOs, local government, and state agencies have developed a participatory planning structure known as a mesa de concertación, or “cooperating table.” The mesa, which was established in 2014, has succeeded in bringing neighborhood, civil society, and government actors to the same “table” as a mechanism for addressing the community’s drainage challenges within the broader context of integrated community development.     

A green-gray path to global water security and sustainable infrastructure

Sustainable development demands reliable water resources, yet traditional water management has broadly failed to avoid environmental degradation and contain infrastructure costs. We explore the global-scale feasibility of combining natural capital with engineering-based (green-gray) approaches to meet water security threats over the 21st century. Threats to water resource systems are projected to rise throughout this period, together with a significant expansion in engineering deployments and progressive loss of natural capital. In many parts of the world, strong path dependencies are projected to arise from the legacy of prior environmental degradation that constrains future water management to a heavy reliance on engineering-based approaches. Elsewhere, retaining existing stocks of natural capital creates opportunities to employ blended green-gray water infrastructure. By 2050, annual engineering expenditures are projected to triple to $2.3 trillion, invested mainly in developing economies. In contrast, preserving natural capital for threat suppression represents a potential $3.0 trillion in avoided replacement costs by mid-century. Society pays a premium whenever these nature-based assets are lost, as the engineering costs necessary to achieve an equivalent level of threat management are, on average, twice as expensive. Countries projected to rapidly expand their engineering investments while losing natural capital will be most constrained in realizing green-gray water management. The situation is expected to be most restrictive across the developing world, where the economic, technical, and governance capacities to overcome such challenges remain limited. Our results demonstrate that policies that support blended green-gray approaches offer a pathway to future global water security but will require a strategic commitment to preserving natural capital. Absent such stewardship, the costs of water resource infrastructure and services will likely rise substantially and frustrate efforts to attain universal and sustainable water security.     

The importance of infrastructure and national demand to represent constraints on water supply in the United States

Water stress in many regions is a consequence of precipitation that is spatially and temporally distant and the cumulative effects of withdrawals, inter-basin transfers, and reservoirs. Most maps of “water risk” do not account for the role of infrastructure and rely on local runoff metrics, which may be a poor proxy for experienced water stress. We present a new spatial and multi-sectoral optimization model of resource networks, applied here to water resources in the United States. The model, AWASH, includes a detailed representation of surface water and reservoirs, and relates water risk directly to failures to meet water demand as a function of climate. We find that considering the role of water conveyance and storage infrastructure in managing supply leads to a radically different picture of water risk, with substantial reductions due to both types of infrastructure – up to 60% reduction in risk due to conveyance and 38% due to storage. This highlights the importance of accounting of the role of infrastructure in national climate risk assessment and adaptation strategies.     

Weather extremes and street life in India—Implications of Fuzzy Cognitive Mapping as a new tool for semi-quantitative impact assessment and ranking of adaptation measures

The potential impacts of progressing climate change are alarming. Some adverse consequences are now unavoidable and adaptation measures are increasingly needful. This poses enormous challenges for emerging megacities in the Global South, which barely manage in current weather conditions. This paper introduces Fuzzy Cognitive Mapping as a new tool for structured, semi-quantitative assessments of climate change impacts and adaptation measures.Fuzzy Cognitive Mapping is used to evaluate differences in sensitivities to heatwaves and rainstorms across socio-economic groups and for the ranking of useful adaptation options, based on 188 individual interviews to the impacts of extreme weather events in Hyderabad, India. The results of this multi-stakeholder assessment indicate that rainstorms affect low-income residents more than heatwaves, while the opposite is true for medium-income respondents. The latter are also less seriously affected by extreme weather in general. Profession, though, not income determines the kind of impact that people feel most affected by. Individual characteristics like age and gender do not significantly explain differences in the data, but religion does. This is because, in Hyderabad, Muslims live in the older, less serviced and more affected parts of the city. However, semi-quantitative scenario analyses suggest that, under future climate change, many parts of the city will become increasingly exposed to the effects of extreme weather. Planned investments in urban infrastructure will be seriously challenged by climate change and preventive adaptation measures are urgently needed to at least maintain the current level of quality of life. Investments in the health infrastructure appear to be most effective in reducing the impact of heatwaves and investments in the traffic infrastructure most effective in reducing the impact of rainstorms. However, looking at heat and rain events together—which is realistic as they are both projected to increase and often occur in the same year—reveals that investments in water infrastructure and management have greatest potential to reduce impacts across all localities and on all social groups, particularly the lower-income classes. This is because first-order impacts caused by inadequate water infrastructure often give rise to second- or third-order impacts. Addressing the root cause is the most effective way to break cause-and-effect chains and prevent proliferation of negative consequences. Similar studies are suggested in other cities in order to support adaptation mainstreaming in complex urban environments. Fuzzy Cognitive Mapping proved a useful, semi-quantitative tool for climate change impact and adaptation assessments.     

气候变化对城市和农村地区的影响、适应和脆弱性研究的认知

自IPCC第四次评估报告以来,对城市和农村地区气候变化影响、脆弱性、适应和风险管理文献都在增加。第五次评估报告取得了进展。主要包括：气候变化风险、脆弱性与所受的影响在全球范围不同规模、不同经济水平和地理位置的城市中心均在增加。改善基本服务不足的状况以及建设有恢复力的基础设施系统,可以显著降低城市地区的脆弱性和暴露度,特别是对于风险和脆弱性最高的人群来说。气候变化对农村地区的主要影响将体现在对淡水供应、粮食安全和农业收入的影响等方面。发展中国家农村人口更容易遭受多种非气候压力,包括农业投入不足、土地与自然资源政策问题和环境退化。包括增加可再生能源的供给、鼓励生物燃料种植或发展中国家减少砍伐森林和森林退化而造成的碳排放（REDD+）项目等在内的气候政策,将对有些农村地区有重要的间接影响,既有正面的影响（增加就业机会）,也有负面的影响（景观变化和稀有资源冲突增多）。     

“Grand Paris”: regional landscape change to adapt city to climate warming

“Grand Paris” is a study carried out by ten teams of researchers and city planners in the aim of putting forward general guidelines for Paris urban area’s evolution by 2030. All the teams suggest making the area “greener” in some way, to combat climate warming by CO₂ sequestration. Our team also shows that extending the nearby forests by 30 %, favouring short farm-to-consumer circuits and using lighter coloured building materials will decrease the urban heat island, reducing the mortality during heat waves as well as the need for air-conditioning. These results lead us to reverse the way of thinking urban planning: the geographic and natural aspects should replace the urban infrastructure as a driver for planning urban development. This new strategy allows city changes on quite a large scale, that will have a favourable impact in terms of economics, leisure activities, greenhouse gas emissions and the local microclimate.     

城镇化背景下中国长期低碳转型路径研究

在中国经济步入新常态之际,为了研究城镇化背景下的长期碳排放趋势,构建了人口变动与能源系统互动的综合分析框架与社会经济-能源系统模型。结果显示,从2014年至2050年,预计有3亿人口从农村流向城市,并呈现从中小型城市逐步向大型和特大型城市汇集的趋势。人口流动趋势与人民生活质量改善结合,推动中国基础设施建设、工业产品生产和能源服务需求增长。基准情景下,2050年中国一次能源消费总量达到84亿tce,能源相关CO₂排放达到176亿t,比2013年增长83%;而在低碳转型情景下,通过技术创新,2050年中国一次能源消费需求可以控制在61亿tce左右,CO₂排放在2020—2025年间达峰,2050年比基准情景降低78%。低碳转型过程中,非化石能源电力和能效技术的减排潜力最大,工业和电力部门率先在2020年达峰,建筑和交通 ^①（①按照国际通行的能源系统部门划分标准和能耗概念,工业、建筑、交通均属于终端能源消费部门,其中建筑部门能耗指建筑运行能耗,而非建筑建造过程中的能耗;交通部门能耗指所有交通活动能耗,既包括交通运输业营运类运输工具的交通能耗,也包括私人、公务非营运类运输工具的交通能耗 ^[1]。）将在2030年左右达峰。实现低碳转型所需新增固定投资占GDP的1.5%,不会给国民经济带来重大负担。中国实施新型城镇化战略具有技术和经济可行性。     

城市适应气候变化能力评价—以朝阳市为例

利用朝阳市1961—2016年气温、降水资料和2007—2016年社会经济资料,采用层次分析法（AHP）构建了基于气候系统和城市系统的城市适应气候变化能力评价指标体系,根据综合指数评价结果将适应能力分为五个等级,定量评估了2007—2016年朝阳市气候系统危险度、城市系统适应度以及城市适应气候变化能力动态变化。结果表明：2007—2016年朝阳市气候系统危险度显著增加,危险度由“较低”水平至“一般”水平,气候系统危险度的增加主要是由气象灾害和极端气候危险度增加造成的;随着经济发展和城市公共服务不断完善,朝阳市城市系统适应度稳步提升,由“低”水平提高至“高”水平;在气候系统和城市系统共同作用下,朝阳市城市适应气候变化能力显著提高,年增加率为0.029,综合能力由“较低”水平提升至“较高”水平。     

Shared injustice,splintered solidarity: Water governance across urban-rural divides

In response to rapid urbanization and intensifying climatological instability, cities are implementing major water infrastructure projects to mitigate water supply and flood risks. Drawing on four cases from South and Southeast Asia, we show how megacities’ search for additional water supplies or sites to store floodwater repeatedly disadvantage the most vulnerable groups in rural and urban areas. Rather than rehashing urban–rural conflicts, we argue these outcomes demonstrate the continuous reproduction of water insecurity for a class of society that is dispossessed of water and rural livelihoods, excluded from water and land access within the cities they migrate to, and evicted from flood-securitized cities back to the periphery. Water-related injustices confronting the urban poor mirror injustices along the entire water governance spectrum that begins and ends in rural areas. These shared vulnerabilities suggest opportunities for solidarity across urban–rural divides and novel directions for research and coalition building. A fundamental challenge ahead will be whether and how urban and rural poor groups can build regional or national alliances across geographic and identity divides.     

Examining barriers and opportunities for sustainable adaptation to climate change in Interior Alaska

Human adaptation to climate change is comprised of “adjustments” in response to (or anticipation of) climatic impacts. Adaptation does not necessarily imply favorable or equitable change, nor does it automatically imply sustainable use of ecosystems. “Sustainable adaptation” in this case implies strategic, collective action to respond to or anticipate harmful climate change to reduce disruption to key resource flows and adverse effects on general well-being. This research examined social-ecological system responses to recent warming trends in the remote northwest region of Interior Alaska using a unique vulnerability and adaptive capacity assessment (VA) approach that integrated indigenous observations and understanding of climate (IC) with western social and natural sciences. The study found that Alaska Native communities that were historically highly mobile and flexible across the landscape for subsistence hunting are increasingly restricted by the institutional rigidity of the regulatory system for wildlife and subsistence management. This has resulted in negative impacts to game harvest access and success threatening food security and community well-being. This suggests that policies limiting the ability of natural resource-dependent societies to be flexible, diversify, or innovate can threaten livelihoods and exacerbate vulnerability. Nevertheless, opportunities for sustainable adaptation exist where wildlife management is adaptive and includes an understanding of and response to climate variability and slow-onset climate change with the human dimensions of subsistence hunting for more effective “in-season” management.     

Mapping the diversity of regulating ecosystem services in European cities

This paper presents the first analysis of the diversity of regulating ecosystem services (ESS)—key variables for global environmental sustainability and change in an urban era—across a globally important part of the urban world, urban Europe. We map the first pan-European pattern of regulating ecosystem services in urban core areas and their associated hinterlands and discuss data against the background of each city's land-use development history and planning culture. Upon selecting more than 300 cities, we used the Urban Atlas database and a straightforward calculation method to map three regulating ecosystem services. The main results of this study show (a) a heterogeneous distribution of regulating ecosystem services across European cities, (b) considerable provisioning differences between core cities and the hinterland, (c) a grouping of European regions according to their potential for urban ecosystem service provisioning and (d) an ecosystem services supply ranking for European cities. Considerable differences in urban ecosystem services were found among northern countries, such as Sweden and Finland, which are rich in supplying ecosystem services compared to the UK and Belgium, which, similar to Spanish and Greek cities, are characteristically low in ecosystem services provision. Our results provide the first overall picture of regulating services in urban EU-Europe and serve to inform decisions on the key aspects of future European policy and strategies involving urban nature, green spaces and health.     

日本多主体适应气候变化框架机制及对中国的启示——基于法律政策的视角

通过系统梳理日本适应气候变化法律政策的发展历程,分析日本多主体适应气候变化的框架机制,结合其目前具体的适应实践进展,总结出可供中国借鉴的经验启示。研究发现,日本适应气候变化法律政策的发展经历了由重减缓、轻适应,到上升至国家战略,再到立法这3个阶段,形成了以国家、国立环境研究所、地方公共团体、地区气候变化适应中心、企业和居民为主体的多主体适应框架,从科研成果与决策应用转化、适应信息“共享—反馈—更新”有效循环、建立跨地区合作平台、适应资金支持、实施进度监测管理等5个方面构建了多主体适应气候变化机制。目前日本各适应主体逐步开展适应气候变化实践,但适应工作仍处于初期阶段,适应信息共享体系、跨地区合作细则以及适应政策实施效果评价体系有待进一步完善。结合日本的法律政策经验和中国具体情况,提出了中国应科学定位适应气候变化法律地位、加快立法进程,完善“监测评估—信息共享—适应行动—效果评价”多主体适应框架的机制体制,引导企业采取气候风险管理和适应性商业活动,提高居民的适应认知和适应能力的政策建议。