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Developing Adaptation Policy and Practice in Europe: Multi-level Governance of Climate Change
Acknowledgements
4
Contents
6
Contributors
11
Abbreviations
12
1 Introduction Adaptation to Climate Change in Europe: Theoretical Framework and Study Design
19
1.1 Introduction
19
1.2 Theoretical Background
22
1.2.1 Multi-Level Governance and the Capacity to Act on Adaptation
22
1.2.2 Adaptive Capacity
25
1.2.3 Governance and Adaptive Capacity on Different Levels
29
1.2.3.1 The Role of the National Level
29
1.2.3.2 Regional Level
33
1.2.3.3 Local Level
35
1.2.3.4 The Role of the EU
37
1.2.3.5 The Role of Non-governmental Actors
39
1.2.4 Attempts to Bridge Sectors and Levels: Connecting Governance and Adaptive Capacity
40
1.2.4.1 Who Is to Adapt?
41
1.2.4.2 What Are Actors Adapting to, and by What Means?
42
1.2.4.3 The Potential for Policy Transfer of Adaptation Options
44
1.3 Method
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1.3.1 National Case Study Selection
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1.3.2 Nested Regional and Local Studies in the Four Main Cases
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1.3.3 Research Material
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1.4 Outline of the Volume
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References
52
2 Addressing Adaptation in the EU Policy Framework
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2.1 Introduction
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2.2 From the ECCP to the Green and White Papers on Adaptation
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2.2.1 EU-Funded Research and Resources
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2.2.2 The ECCP and the Development of National Adaptation Strategies
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2.2.3 Potential Consequences of the National Level Approach
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2.2.4 Sectoral Policies and Early Warning Systems in the EU
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2.3 From Policy Linkage to Ecosystem Preservation
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2.3.1 Water and Policy Linkage
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2.3.2 The Water Management Policy Framework
82
2.3.3 Biodiversity and Ecosystem Preservation
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2.3.4 Permanence vs. Flexibility
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2.3.5 The Biodiversity Policy Framework
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2.4 From the Water Towers of Europe to Ecosystem Preservation
100
2.5 On the Governance of Adaptation: Goal Conflict And Institutional Confusion
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2.6 Conclusions
108
References
109
3 Climate Change Adaptation in the United Kingdom: England and South-East England
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3.1 Introduction
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3.2 National Level
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3.2.1 Environmental Policy in the UK and the Establishment of Adaptation as a Priority
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3.2.2 National Legislative, Policy and Planning Frameworks on Adaptation
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3.2.2.1 The Climate Change Act
121
3.2.2.2 Local Performance Assessment
123
Box 3.1 The progress levels in the NI 188 indicator with technical definitions of each level
124
3.2.2.3 Adaptation and the Planning System
126
3.2.3 Creating Multi-Level Linkages: The UK Climate Impacts Programme (UKCIP)
128
3.3 Regional Level
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3.3.1 Regional Climate Change Partnerships: Climate South East
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3.3.2 Regional Planning and Administration
134
3.4 Local Level
137
3.4.1 Adaptation and the Structure of Local Government
137
3.4.2 Actions at Selected Local Authorities in the South East
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3.4.2.1 Hampshire County Council and Winchester City Council
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3.4.2.2 Portsmouth City Council
143
3.4.2.3 Surrey County Council and Woking Borough Council
145
3.5 The Role of the EU
148
3.6 The Participation of Voluntary and NGO Networks
150
3.7 Adaptation as an Issue: Shifts in Thinking, Policy Transfer and Integration Across Levels
151
3.7.1 Policy Transfer Between Contexts?
151
3.7.1.1 The Domestic Context
152
3.7.1.2 The International Context
154
3.7.2 Adaptation as a Shift in Thinking
156
3.8 Conclusion
158
References
161
4 Mainstreaming Climate Change Adaptation: The Case of Multi-Level Governance in Finland
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4.1 Introduction
166
4.2 Background
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4.2.1 Environmental Policy in Finland
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4.3 National Climate Policy
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4.3.1 National Climate and Energy Strategy 2001
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4.3.2 Revised National Climate and Energy Strategy 2005
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Box 4.1 Measures for implementation at the Municipal level (adapted from Valtioneuvosto, 2005 )
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4.3.3 Revised National Climate and Energy Strategy 2008
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4.4 National Adaptation Policy
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4.4.1 Preparation of the National Strategy
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4.4.2 Key Projected Impacts of Climate Change
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4.4.3 The National Adaptation Strategy
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Box 4.2 Sectors considered in the National Adaptation Strategy (adapted from Marttila et al., 2005 )
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4.4.4 Implementation of the NAS
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Box 4.3 Adaptation measures in the environment administration (Ympäristöministeriön työryhmä 2008)
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4.4.5 Evaluating the Implementation of the NAS
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Box 4.4 Indicator of progress on adaptation (adapted from Ministry of Agriculture and Forestry, 2009 )
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4.4.6 Role of Research in Climate Change Adaptation
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4.5 The Role of the European Union in Climate Policy
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4.6 Other Actors in Climate Change Adaptation
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4.7 Sub-national Level Adaptation Work
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4.7.1 Uusimaa Regional Council Climate Strategy
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4.7.2 Climate Strategy for Helsinki Metropolitan Area Council 2030
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4.7.3 Climate Strategy for the KUUMA-partnership
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4.7.4 Espoo Preparedness Strategy
193
4.7.5 Integration of Adaptation into Policy-Making
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4.8 Challenges and Opportunities of Multi-Scale Adaptation
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4.9 Conclusions
200
References
200
5 Adapting to Climate Change in Sweden: National Policy Development and Adaptation Measures in Vstra Gtaland
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5.1 Introduction
205
5.2 National Level
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5.2.1 Swedish Work on Climate Change of Particular Relevance for Adaptation
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5.2.2 The Commission on Climate and Vulnerability
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5.2.3 National Legislation, Regulation and Measures Taken on Adaptation
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5.2.3.1 Implementation of the Commission on Climate and Vulnerability: The 2009 Bill, Regulation Letter Appointments and Budget Allowances
214
5.2.3.2 Independent Initiatives at the National Level
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5.3 Regional Level
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5.3.1 Impacts and Authority at the Regional Level
221
5.3.1.1 General Responsibilities of the County Administrative Board
222
5.3.1.2 Coordination of Water Issues
223
5.4 Local Level
225
5.4.1 Municipal Climate Change Networks and Responsibilities
225
5.4.2 Municipal Case Studies
228
5.4.2.1 The Development of Adaptation Measures in Gothenburg
228
5.4.2.2 The Development of Adaptation Measures in Mälndal, Trollhättan and Munkedal
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5.5 Actors Beyond Government and Administration
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5.5.1 The Role of the Private Sector
234
5.5.2 Impacts of the EU Level
236
5.6 The Distribution of Responsibility for Adaptation to Climate Change
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5.6.1 Responsibility for Adaptation Across Governmental Levels
237
5.6.2 Policy Transfer and 'Lesson-Drawing'
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5.7 Conclusion
242
References
245
6 'Planning for Today': The Nature and Emergence of Adaptation Measures in Italy
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6.1 Introduction
249
6.2 Italian Environmental Policy: Evolution and Current Issues
250
6.3 Entry into the Climate Change Arena: Mitigation Policies and Programmes
255
6.4 Adaptation and the Italian State
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6.4.1 From Impacts to Adaptation: 1995--2007
257
6.4.2 The National Climate Change Conference: 2007
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Box 6.1 Priority areas for adaptation intervention identified by the NCCC (2007)
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6.4.3 National Adaptation to Climate Change: The Present
264
6.5 Adaptation at Sub-national Scales
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Box 6.2 Examples of planned climate change adaptation activities in Italy
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6.5.1 Adaptation in the Region of Emilia-Romagna
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6.5.2 Adaptation Actions in the Province of Ferrara
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6.5.3 Adaptation at the Municipal Level: the Municipality of Ferrara
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6.6 Conclusion: Multi-Level Governance in Italian Adaptation
281
References
284
7 Planned Adaptation Measures in Industrialised Countries: A Comparison of Select Countries Within and Outside the EU
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7.1 Introduction
287
7.2 Approach and Methods
288
7.3 Background: Adaptation Actions Across Europe
289
7.4 Adaptation Across Scales: Examples from the European Context
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7.4.1 Austria
293
7.4.1.1 The Development of a National Adaptation Strategy
293
7.4.1.2 Regional and Local Actions in Adaptation
295
7.4.2 France
296
7.4.2.1 Climate Research and Policy Development
297
7.5 Box 7.1The nine axes of the French National Adaptation strategy
291
7.4.2.2 Engagement at Regional and Local Scales
300
7.4.3 Germany
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7.4.3.1 German Adaptation Policy: The 2008 National Adaptation Strategy
302
7.4.3.2 Independent Länder Policy Development
303
7.4.3.3 The Role of Local Authorities
305
7.4.4 Greece
307
7.4.4.1 Sectoral Policies and EU Incentives in Greek Adaptation
307
7.4.4.2 Limited Regional and Local Action
309
7.4.5 Hungary
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7.4.5.1 The Hungarian National Adaptation Strategy
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7.4.5.2 The Regional and Local Level
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7.4.6 Netherlands
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7.4.6.1 Climate-Proofing Spatial Planning in the Netherlands
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7.4.6.2 Regional and Local Actions and Responsibilities
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Box 7.2 Sub-national responsibilities under the Dutch National Adaptation Strategy (VROM, 2008)
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7.4.7 Norway
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7.4.7.1 Development of National Adaptation Initiatives
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7.4.7.2 The Allocation of Adaptation Responsibilities
321
7.4.7.3 Local Engagement with Adaptation
322
7.4.8 Spain
324
7.4.8.1 The National Climate Change Adaptation Plan (NCCAP)
324
7.4.8.2 Regional and Local Adaptation Actions
326
7.5 Beyond Europe: Adaptation Actions in Canada and Australia
328
7.5.1 Australia
328
7.5.1.1 National Sectoral Research and the Development of Adaptation Plans
329
7.5.1.2 Australian State Engagement with Adaptation
332
7.5.1.3 Support for Adaptation at the Local Level
333
7.5.2 Canada
334
7.5.2.1 National Research and (in)Action
335
7.5.2.2 Provincial Governments
336
7.5.2.3 Municipal Governments
337
7.6 Discussion: The Emergence of Adaptation
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7.6.1 Diverging Steering Abilities in Federal and Unitary States
339
7.6.2 Multi-Level Governance: Decentralisation and the Participation of Sub-national Authorities
341
7.6.3 The Relevance of National Environmental Policy Implementation
343
7.6.4 Stakeholder Participation and the Role of NGOs and the EU
345
7.7 Conclusions
347
References
348
8 Conclusion: The Development of Adaptive Capacity and Adaptation Measures in European Countries
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8.1 Introduction
355
8.2 National Level and General Political System Features
357
8.2.1 Structure of the Political and Planning System
357
8.2.2 The Role of Environmental Policy Institutionalisation
360
8.2.3 The Role of Focusing Events and Other Contextual Features
363
8.3 Regional Level
366
8.4 Local Level
368
8.5 The Role of the EU
370
8.6 Actors Beyond Government and Administration
372
8.7 Types of Adaptation
374
8.8 Lessons for Current and Future Adaptation
377
8.9 Conclusion: Does Adaptation Require a Change in Thinking?
379
References
381
Index
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