2 The understanding of Climate Adaptation
2.1 This chapter addresses responses to question 1 in the Climate Change Adaptation Consultation 1, which asked:
Do you think what we have outlined in paragraph 4.10 constitutes the correct understanding of climate adaptation?
"The term 'adapt' means to alter or adjust; to make fit or suitable. The IPCC defines adaptation as 'adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities 2.' In recent years 'climate adaptation' has been used as shorthand for a range of activities (management, technological, institutional) designed to encourage society to cope with changing weather patterns. In the absence of any central planning our society will try and adapt itself to changing weather patterns, as it will to other changes in social and economic conditions. However, without effective preparation and planning, social and economic costs are likely to be much higher than would otherwise be the case, particularly for society's most vulnerable individuals. Similarly without early and coordinated intervention, the impacts on our environment and biodiversity will be greater and the environments ability to continue to provide vital services will be put at risk. Climate adaptation is the process by which we may achieve a well-adapting Scotland" (Para 4.10).
2.2 This question was addressed by most of the respondents. The majority of respondents from organisations (including public, private, voluntary and academic and non academic institutions) broadly agreed that this constituted the correct understanding of climate adaptation in principle, and were generally pleased that it was consistent with the IPCC's definition. Individual respondents were less likely to endorse this understanding than other respondents. Respondents made several suggestions as to how they felt the definition should be more detailed to include various aspects of adaptation ( e.g. ecological, technological, and human) and felt that some of the terms in the definition needed clarification. Respondents also highlighted wider issues they felt should be addressed including: immediate responses to environmental impacts compared to longer term responses to predicted impacts; an outline of the risks and problems adaptation needs to respond to; and the interrelationship between mitigation and adaptation. Some respondents also expressed frustration that there was little indication of the actions the Scottish Government will take towards adaptation.
2.3 Some of these points relate more to the approach the Government proposes to take towards adaptation and will therefore be outlined more fully in chapter three on what constitutes a well-adapting Scotland. This chapter will focus mainly on the comments and suggestions relating to what climate adaptation is understood to mean, where chapter three will look more closely at responses to what it means to be a well-adapting Scotland. Subsequent chapters will go further in outlining responses relating to how the Government should approach climate adaptation.
Meaning and language in the definition
2.4 Most of the respondents expressed the view that the definition is consistent with the IPCC definition of climate change and provides a good understanding of adaptation in response to climatic stimuli or other effects. Some commented that the definition is sensible and creates a unified understanding which will help promote and coordinate work on climate adaptation both across sectors and internationally. However, it was suggested that a greater understanding of the concept may have been achieved if some examples had been used to illustrate it.
2.5 Many respondents supported the definition and were pleased that recognition has been given to the need for early and coordinated intervention to address the threats to our environment and biodiversity.
2.6 Another respondent stated that, while it is important to have common agreement on what is actually meant by the term 'adaptation', there is a risk of creating a very abstract complex concept that is difficult to communicate, and difficult for various stakeholders to relate to.
2.7 One respondent pointed out that our understanding of climate adaptation could be enhanced by defining "other effects" more clearly.
2.8 A respondent suggested substituting the word ''services'' with ''resources'', and another suggested replacing the word ''encourage'' with ''enable'' as they felt that there is no choice but to adapt.
2.9 A respondent from the private sector suggested that adaptation should also be used together with simpler words, such as 'preparedness', 'resilience', 'risk management' and 'common sense'.
2.10 Some of the responses from the public sector expressed the view that the current document lacks a clear explanation of what the Scottish Government means by the definition. It was also argued by a few respondents that the definition should be more descriptive and the wording clearer. They also felt it would be helpful if a clearer outline of what constitutes the human "system" be included.
2.11 Alternative definitions were suggested by few respondents. The British Red Cross suggested the following definition:
"Adaptation is the ability to adjust to the effects of climate change (and chronic risk such as caused by annual floods and drought) to moderate the potential impact or exploit beneficial opportunities."
2.12 A respondent from the public sector suggested that climate adaptation could be simply defined as:
"Reducing the risks posed by climate change to people's lives and livelihood"
Expanding the definition of adaptation
2.13 It was emphasised by a number of respondents that the definition needs to focus more on the activities that represent climate adaptation as the definition currently concentrates on the reason for adapting to a changing climate rather than on what adapting means in practice.
2.14 Some of the respondents put forward a concern that the consultation paper does not mention issues surrounding waste and new technologies to the same extent as other key documents like the National Planning Framework, but recognised that the framework provides a platform to make links with many of these documents.
2.15 It was argued by a few respondents that the importance of building resilience in both human and natural systems could be emphasised in the definition.
2.16 A respondent argued that it is inappropriate to say that "the environment's ability to continue to provide vital services will be put at risk" as the environment is not an agent for service provision.
2.17 A respondent from the private sector expressed the view that the term 'climate adaptation' is confusing and would make more sense if it was 'climate change adaptation'.
2.18 Some respondents argued that the text is very theoretical and would be improved by a clearer explanation of climate adaptation to include a list of the potential impacts we need to be adapting to. This would improve understanding and help to engage a wider range of individuals, organisations and professions.
2.19 It was suggested by a few respondents from the public sector that the definition of adaptation would be strengthened by a widespread recognition of what it is. Climate change mitigation is far better understood than adaptation. It was also suggested that a more detailed definition of climate adaptation setting out best practices, and the financial implications of adaptation is needed.
2.20 A respondent from an institution was concerned that the definition of climate adaptation was being used as "shorthand for a range of activities (management, technological, institutional) designed to encourage society to cope with changing weather patterns." His concern was that there was a subtle redefining of the concept of climate adaptation which excludes natural ecosystems.
2.21 A few respondents argued that adaptation within natural ecosystems (terrestrial, water, marine, etc.) should be accorded equal emphasis, so that adaptation responses are not seen purely as anthropocentric or for the benefit of humankind only.
Risk and Impact
2.22 A few respondents suggested that it may be helpful to refer to the scale and risk of such changes, to adopt an approach based on the precautionary principle and to address the spatial implications of economic, environmental and social change.
2.23 Some respondents stated that the consultation doesn't adequately describe the risks and problems which the framework will address. Some of these risks and problems were outlined by the 'Healthy Environment Network', including:
- Increased risk of very heavy rainfall and flooding (coastal fluvial) and its impact on infrastructure, economic stability, health, access to goods and services.
- Increased risk of heat waves and exposure to sunshine impacting on health and agriculture.
- Lower snowfall and its impact on tourism and infrastructure.
- Risk of changing disease patterns like new diseases and higher transmission of some infections.
- Risks associated with international issues like a changing global system, social political and economic instability, warfare, and mass migration.
The interrelationship between adaptation and mitigation
2.24 There were a number of comments on mitigation as an important aspect of climate change adaptation and many respondents suggested a pressing need for the Scottish Government to provide a better explanation of climate change mitigation and adaptation with clearer, and more thorough, definitions. It was pointed out that a more definitive description of both adaptation and mitigation is required in order to avoid potential confusion. It was also suggested that this would allow for more effective prioritisation of resources, and ensure that adaptation activity remained subsidiary to mitigation, as well as complementary to it.
2.25 It was argued by a number of respondents that adaptation cannot, and should not be separated from mitigation, as adaptation is an important tool to create a culture where people are willing to make changes which contribute to climate change mitigation. Respondents felt that the definition should extend to mitigation on the basis that this will offset future needs to adapt and also highlight the potential opportunities arising from effective adaptation. However, one respondent suggested that a greater weight be afforded to 'adaptation' so that it can be understood to be distinct from 'mitigation', while fundamentally linked.
2.26 However, a few respondents argued that climate mitigation policies and measures are already well understood and being taken forward throughout the public sector, and therefore we now need to focus on adaptation specifically. It was also considered by a few respondents that the evidence suggests the impact of climate change on society is likely to be so fundamental that differentiating between adaptation and mitigation may be a spurious activity.
Strategic planning - issues
2.27 Respondents raised a number of issues which they felt had not been given due consideration in the definition, but which they felt were important considerations in planning for climate adaptation. The first part of this section outlines the issues, while the latter part outlines suggestions of how the definition of adaptation could be broken down to take account of the various contexts in which organisations will be working to address climate change, and to offer a clearer steer on roles and responsibilities.
2.28 A respondent from the public sector suggested that the possibility of agricultural opportunities should be highlighted, as well as that of enabling ecosystems to adapt in order to enable species to move as a consequence of climate change.
2.29 A respondent from the public sector argued that the definition would further benefit from a greater emphasis and explanation of financial and operational implications of adaptation, or of non-action. It would also be appropriate to emphasise that climate change adaptation sits within wider sustainable development activity, so that it can be seen as an aligned issue with the same goals, while being a distinct element of sustainable development.
2.30 Another suggestion came forward that in managing climate change, both the causes and consequences of climate change have to be addressed. A few respondents argued that consideration should be given to actions to eliminate or reduce the ongoing contributions to the concentration of greenhouse gases in the atmosphere. They felt it important that measures to adapt to the problem and attempts to fix the problem, both interact in a coherent way. It was also suggested that resources should be used effectively to mitigate the production of greenhouse gas emissions.
2.31 There was some support from respondents for the statement made in the consultation document that without planning and preparation, society's most vulnerable individuals will suffer the greatest impacts.
2.32 Another respondent emphasised that the costs of climate change are not limited to economic and social costs, but also include environmental costs. It was also pointed out that, without effective preparation and planning, the environmental costs will be significantly increased. It was emphasised by some respondents that Scotland needs to think about adaptation in terms of economic planning for areas such as infrastructure (built environment, transport and capital assets), agriculture and supply chains. It needs to be clear that we will have to adapt to the changes that are already happening, in addition to changes that are being detected and predicted in the future.
Strategic planning - suggested approaches
2.33 Many respondents expressed the need for the Scottish Government's response to climate change to reflect that the effects of climate change are (and will continue to be) wide ranging, large scale, constantly evolving and potentially irreversible. Some of the respondents agreed that climate adaptation demands a coordinated process to address both the risks and benefits associated with predicted weather pattern changes.
2.34 It was argued by many respondents that continuous intervention is needed with early and coordinated intervention. In adapting to climate change there is a need to change the way people and goods are transported, fossil fuels are used and energy is generated. Thus, it was argued, mitigation should be included in any planning for long term interventions.
2.35 A number of respondents were supportive of the concept of partnership and collaboration between agencies and stakeholders as the only means by which climate change adaptation can be addressed.
2.36 Some respondents identified a need for a set of clearly articulated responsibilities for different sectors (central and local government, public services, businesses, and civil society) in limiting the damage and ameliorating the impacts of climate change.
2.37 A small number of respondents suggested that the Government should put specific consideration on anticipated and observed changes to environmental media - air, water and land which could be kept as reference points to understanding climate change impacts.
2.38 It was argued by a public sector respondent that the definition should place emphasis on a 'sustainable development approach' and should include actions on mitigation and adaptation. Such an approach was deemed fundamental.
2.39 Planning Aid for Scotland emphasised that there may be difficulties in trying to achieve a 'one size fits all' approach to strategic planning when giving consideration to the predicted regional differences for climate change effects.
2.40 Some respondents proposed that there be different types of adaptation, as various stakeholders will be responsible for implementing types according to varying requirements and time effects. In this respect, a respondent from the voluntary sector suggested that the Framework should outline the types of adaptation (anticipatory, autonomous and planned) in line with the IPCC definitions which would highlight the importance of different approaches in different circumstances.
2.41 Many respondents from all sectors identified that awareness raising is a significant aspect of the adaptation challenge. Education and awareness raising programmes will embed the rationale for adaptation across sectors. It was argued that the importance of climate change cannot be ignored and people have to be aware of both its causes and its consequences in order to respond effectively.
Summary of issues
2.42 Most respondents from organisations and institutions broadly agreed that this definition constituted the correct understanding of climate change in principle as it was consistent with the IPCC's definition. However, some comments over expanding the definition, the clarity of language and the right usage of words were made.
2.43 A number of respondents argued that the understanding of climate adaptation should focus on the activities which constitute climate adaptation, rather than on the reasons to adapt.
2.44 Respondents felt there was a pressing need for the Scottish Government to provide a more definitive definition of mitigation and adaptation and to discuss the interrelationship between the two.
2.45 Some respondents suggested the definition should refer to the scale and risk changes and adopt an approach based on the precautionary principle. Risks associated with the international perspective, including a changing global system, social political and economic instability, warfare, diseases and mass migration were discussed.
2.46 Many issues were raised by some respondents to be included in the definition; a clearer steer on roles and responsibilities; agricultural opportunities; focussed activities for climate change adaptation; an explanation of financial and operational implications; and effective preparation and planning.
2.47 Elements of strategic planning were emphasised by respondents, such as continuous and coordinated intervention with clearly articulated responsibilities for different sectors, partnership and collaboration between agencies and stakeholders, and increased awareness at every level.