Mainstreaming a Climate Action Leadership Competency
Introduction
Mainstreaming is one of the core competencies of a climate action leader, as identified in the Climate Adaptation Competency Framework within the domain of “Climate Adaptation Planning & Implementation” (Cox et al., 2021). It is a strategy used to integrate climate action within an organization or across a sector with the intention to include climate action in “all objectives and decisions across programs, projects, operations, policies, procedures, financing and training” (Cox et al., 2021). To develop a further understanding of mainstreaming, the following three paragraphs summarize research papers on the topic. The papers were selected as they provided variety in research methodology and date of publication. The first paper is a meta-analysis of peer-reviewed research on mainstreaming, thereby giving a broad perspective and providing an analytical framework that could be used for future research. The second paper is a case study of five municipalities in Norway to understand what drives mainstreaming. This paper was one of the papers cited in the meta-analysis and provided foundational information to that work. The final and third paper is also a case study of a municipality in Ireland just published this year differing from the other case studies in that the lead author worked for the municipality. It provides a recent example of mainstreaming in action. The primary theme coming from all three papers was the need for a strong mandate and adequate resources to support mainstreaming.
Article 1 – Summary of Mainstreaming climate adaptation: taking stock of “what works” from empirical research worldwide
In the article Mainstreaming climate adaptation: taking stock about “what works” from empirical research worldwide Runhaar et al. (2017) assess existing peer-reviewed literature to identify: what mainstreaming has achieved and how; what the differences are “between policy sectors and countries” (p.1202); and what the critical factors are that makes mainstreaming effective. Runhaar et al. found that climate adaptation mainstreaming has different meanings to different authors. Therefore, their research used four of the five mainstreaming strategies identified by Wamsler and Pauleit (2016, as cited in Runhaar et al., 2017): managerial mainstreaming, intra – and inter-organizational mainstreaming, regulatory mainstreaming, and directed mainstreaming. Similarly, the authors could not find agreement in the literature on what mainstreaming should achieve or how it is measured, so they looked at policy outputs and outcomes to assess effectiveness (cf. Persson 2007; Jordan and Lenschow 2008, as cited in Runhaar et al., 2017). Their analytical framework also includes policy output effectiveness to determine how well the adaptation measures worked. To evaluate policy output effectiveness, Runhaar et al. looked at the drivers and the barriers identified in previous studies and came up with six categories for their evaluation.
This paper provides insights relevant to the mainstreaming competency that is part of the Climate Adaptation Competency Framework developed by Cox et al. (2021). It identifies what has worked and what has failed and develops a framework to assess adaptation mainstreaming. In terms of what works, their results show the main drivers are political will backed up with financial incentives, external cooperation, work of a policy entrepreneur, and focusing events (though only for a short duration after the event). Barriers are many, with the dominant ones affecting implementation being organizational and managerial structures that impede collaboration and lack climate adaptation mainstreaming as a clear priority or mandate. In the literature reviewed, the authors found that without adequate support from the top, mainstreaming becomes a voluntary activity with numerous implementation barriers. To achieve climate change adaptation implementation, the researchers identify the need for strict requirements or mandates that support mainstreaming. This will provide the impetus for all governments and organizations to climate adapt their sectors. Not surprisingly, there needs to be sufficient funding and staff resources to achieve mainstreaming effectively.
Article 2 – Summary of Mainstreaming climate change adaptation at the local level
Mainstreaming climate change adaptation at the local level is an examination of mainstreaming in five municipalities in Norway. Researchers, Rauken et al. (2015) seek to determine what drives mainstreaming and provide an explanation of why different approaches are used. Additionally, as the five municipalities have similar organization and management traits to other western communities, the study may provide a more comprehensive understanding of adaptation mainstreaming challenges in these settings. Conducting the examination included a literature review focused on the integration of policy and the origins of mainstreaming to provide the framework for evaluation. Rauken et al. determined they would use three aspects of mainstreaming to assess the various approaches the municipalities used or did not use. The aspects are comprehensiveness, aggregation, and consistency. A demonstration of comprehensiveness occurs when there is an awareness of the need to adapt, when strategic decisions reflect concern about climate change adaptation, and when climate change adaptation is integrated into related policy fields. Aggregation is demonstrated when climate change adaptation is assessed from an overall perspective rather than from a single sector perspective through a joint approach. Lastly, consistency is demonstrated when climate change adaptation has a connection to other policies and conflicting policy issues are addressed across policy fields (Rauken et al., 2015). Rauken et al. also argue that mainstreaming requires both vertical and horizontal approaches to achieve all three aspects of mainstreaming.
Rauken et al. (2015) findings provide a view into mainstreaming in action and a framework for assessing an organization’s use of mainstreaming. Results for each community are summarized in Table 1 from the study to compare the type of integration used, and what aspects of mainstreaming were achieved.
Table 1
Comparison of integration, approach and effectiveness of mainstreaming
Notes: Rauken et al. (2015) p. 415.
Direct quotes from the study participants provide context about their attitudes regarding the need and urgency for climate adaptation and how the flow of information may or may not be working. Interestingly the municipality that used vertical integration achieved the most climate change adaptation measures implemented but only in specific departments directly impacted by climate change. They did not intend to go beyond this action to have a cross-sectoral comprehensive climate change policy. The two larger municipalities in the study had more political focus on climate adaptation. This empowered the communities to use cross-sectoral groups and horizontal integration, resulting in steps towards comprehensiveness, aggregation, and consistency. Interestingly the community that used vertical integration had little political attention as there was a climate skeptic at the top leadership level.
The results also showed that the more resources invested, the more attention was paid, resulting in a higher level of comprehensiveness. Of interest, Rauken et al. (2015) surmise that a vertical integration approach could be helpful if there is a lack of political support or resources to achieve comprehensive mainstreaming as a first step to getting critical adaptation measures in place. However, the legitimacy created through the effort to attain cross-sector involvement may provide more action in the long run.
Article 3 – Summary of Mainstreaming Climate Change Adaptation into Planning and Development: A Case Study in Northern Ireland
Mainstreaming Climate Change Adaptation into Planning and Development: A Case Study in Northern Ireland provides an inside look at mainstreaming in action. Authors Burns et al. (2022) use five key factors to assess mainstreaming implementation. The factors were identified by the World Resources Institute (Mogelaard et al., 2018, as cited in Burns et al., 2022) and are the following: “(1) strong policy frameworks; (2) sustained and persistent leadership; (3) coordination mechanisms across sectors and between government departments; (4) information and tools; and (5) supportive financial processes” (p 130). Of equal interest to the assessment is how a small team successfully championed climate adaptation planning from within the city and district council. They were able to scale up to a dedicated task force encompassing all service areas after their recommendations received support and funding. Although there was no legislative requirement for the city to mainstream climate adaptation, the European Union provided funding and staffing resources to facilitate the process. Recent flooding events increased the public concern regarding climate change and brought to light that managing the risks is a moral obligation of local governments. There is also a recognition of the cross-dependencies within the region and the need for those sectors to adapt. This background information is of value as it provides the context and the organizational structures that facilitate mainstreaming at the local level.
This case study provides a detailed step-by-step process for the development and approval of the communities Climate Change Adaptation Plan. The overview of the five steps and the summary of each step’s actions shows mainstreaming was used during steps three and four. Step three involved one-to-one meetings and workshops that led to the strategic direction and agreed-upon priorities for the plan. Step four was the next phase of development and approval by a committee of elected officials via a consultation process with all directorates. A visual of the process of cross-cutting actions and the integration of the city and district’s functions is provided in Figure 1 from the study and demonstrates the effectiveness of mainstreaming and integration into policies.
Figure 1
Thematic priorities of the climate adaptation plan
Note: From Burns et al. (2022) p. 140. Creative Commons Attribution 4.0 International License (http://creativecommons.org/licenses/by/4.0/)
For example, they decided to screen all existing and emerging policies and all committee reports to ensure services are climate resilient. The other steps provide the groundwork for steps three and four, including adding climate change to the risk register and working with the finance department to identify budget requirements for adaptation work. The overview provided in Table 1 summarizes the actions taken for each step.
Table 1
Overview of action steps to mainstream climate adaptation plan
Note: From Burns et al. (2022) p. 139. Creative Commons Attribution 4.0 International License (http://creativecommons.org/licenses/by/4.0/)
Reflecting on the lessons learned, Burns et al. (2022) acknowledge the significant amount of engagement and communication of risks necessary to garner the support of colleagues and, therefore, the challenge of using mainstreaming for integrating climate change adaptation within local governments.
References
Burns, C., Flood, S., O’Dwyer, B. (2022). Mainstreaming Climate Change Adaptation into Planning and Development: A Case Study in Northern Ireland. In: S. Flood, Y. Jerez Columbié, M. Le Tissier & B. O’Dwyer (Eds.), Creating Resilient Futures. (pp. 129-147) Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-030-80791-7_7
Cox, R., Niederer, S., Forssman, V., Sikorski, L. (2021). Climate Adaptation Competency Framework, The Resilience by Design Lab: Adaptation Learning Network. https://adaptationlearningnetwork.com/sites/weadapt.org/files/aln-competencyframework_2021_1.pdf
Rauken, T., Mydske, P.K., Winsvold, M. (2015). Mainstreaming climate change adaptation at the local level. Local Environment, 20(4), 408-423. http://dx.doi.org/10.1080/13549839.2014.880412
Runhaar, H., Wilk, B., Persson, A., Uittenbroek, C., & Wamsler, C. (2017). Mainstreaming climate adaptation: taking stock of “what works” from empirical research worldwide. Regional Environmental Change, 18, 1201-1210. https://doi.org/10.1007/s10113-017-1259-5
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