Multi-level and cross-sectoral governance schemes for climate change adaptation

Multi-level governance refers to the system that supports policy and decision-making among national, regional, and local governments (OECD). In multi-level governance, different levels of government are mutually dependent on each other (GIZ, 2018). This is recognised as a decisive element for achieving multiple policy objectives, like for example for preserving and restoring natural resources (IUCN Natural Resource Governance Framework) or for fostering local actions in advancing towards sustainable development (UN-HABITAT programme). A similar concept introduced in the scientific literature is complex form of governance with multiple centres of decision making, that can be nested in multiple jurisdictional levels (e.g., local, state, and national). Polycentric characteristics may be able to find a balance from fully centralised and fully decentralised or community-based governance (Carlise and Gruby, 2019).

Adaptation is a typical multi-level and cross-sectoral governance task. The IPCC AR6 report (summary for policy makers) states that climate resilient development is enabled when decision-making processes, finance and actions are integrated across governance levels, sectors, and timeframes. Organising governance across sectors and levels is part of the adaptation policy cycle (further information in  Step 5 of the Climate-ADAPT Adaptation Support Tool) to ensure effective, coherent and continued implementation of adaptation actions. It includes vertical and horizontal coordination.

As for vertical coordination, while addressing climate change adaptation, national governments rely on regional and local governments to translate national climate strategies into actions. Conversely, local-level decision makers, though better fit to address specific challenges, may lack the power to solve complex situations that fall under the responsibility of regional and national authorities. Local and regional governments are influenced by legal, institutional and financial instruments and frameworks put in place by higher levels of governance. National frameworks may support but also constrain certain adaptation actions undertaken at the local level. For example, water reuse  might be a locally favoured strategy to face specific water scarcity problems. This strategy might be hindered by legislation gaps that require national level interventions to be solved. Similarly, good practices, tested in pilot areas at the very local scale, need to be supported by regional and national actors to be scaled up and to become effective in mitigating climate change impacts. Moreover, actions prompted by local authorities or led by local communities need to be consistent with and properly framed within regional and national strategies and plans, also to ensure long-term sustainability of adaptation. For example, beach nourishment and other local coastal defence adaptation options, implemented with short-term objectives and narrow scopes, should be part of larger scale Integrated Coastal Zone Management Plans, to be effective and sustainable, undertaking a holistic approach to local problems in a long-term perspective.

Multi-level governance also includes horizontal coordination of adaptation through collaboration and exchanges between different government departments or stakeholders from different economic sectors. Cross-sector approach is needed because climate change adaptation requires systemic approaches, bringing together knowledge owned by different actors and considering the needs of various policy and economic sectors. For instance, authorities responsible for water management must deal with conflicting uses of scarce water resources by several sectors, while also preserving water in the environment to sustain biodiversity. Cross-sectoral governance can help promoting “win-win” solutions with multiple benefits for multiple sectors, minimising the impacts on natural resources and thus avoiding maladaptation.

Since climate change impacts do not recognise administrative boundaries, horizontal coordination also includes collaboration among neighbouring governments. This involves coordination between neighbouring municipalities, regions and even countries in cross-border areas. It is relevant for example for water management in river basins and for addressing flood risks. River basin districts are the main management units according to the Water Framework Directive and the Flood Directive. Special-purpose governance units (river basin district authorities) that cut across jurisdictions may be set up to prepare River basin management Plans (RBMP) and Flood Risk Management Plans (FRMP) to implement the related directives. Such plans require the cooperation of different national, regional and local authorities. For river basins crossing national borders, governance structures are being progressively formalised, and international RBMPs increasingly developed (COM(2019) 95 final). For example, in the Sava River Basin, an operational system with several tools was developed in a joint effort by stakeholders from countries being part of the basin to facilitate a coordinated response to extreme flooding and pollution events (Sava River Basin case study). Notwithstanding, according to EU Member states reporting system, governance resulted one of the most significant impediments (COM (2021) 970 final), when implementing the Water Framework and the Flood directives.

Mechanisms to put multi-level governance for climate change adaptation in practice are manifold and may take place through formal (e.g., established by law, legal contracts and agreements) or informal (e.g., because of relationships and trust) channels. Examples (OECD, 2022, UN-HABITATS, 2022) relevant for climate change adaptation are:

• Development of relevant policies and legislation (including adaptation strategies and plans). These policies require action by actors working at different levels of government and policy sectors Consequently, their implementation requires a multilevel governance approach.

• Creation of Inter-governmental bodies with multi-stakeholder representation, both involving decision makers and other interested parties. Common examples are interministerial working groups to address the cross-cutting nature of adaptation, multi-stakeholder and multi-level permanent or temporary committees, conferences, and councils. Involving lower levels of government in policy making is important to ensure that subnational priorities are considered and that all stakeholders are on-board to contribute to the successful policy implementation. New coordinating governance units (special-purpose governance units that cut across jurisdictions) may also be created. They can address issues that go beyond jurisdictional boundaries and best fit the new scale of analysis (river basin authorities, union of municipalities).
• Development of bilateral or multilateral agreements between levels of government or between various stakeholders. The involved institutions (that can even belong to different countries) agree to pursue a collective goal, bringing together complementary knowledge and responsibilities. Voluntary environmental contracts or agreements are tools that are being used to practically apply multi-level governance principles to specific areas. They are established on a voluntary basis but they are formally adopted (signed by all partners) and binding in terms of liability, financing, and timing. Both public and private actors can be the signatories to such contracts. They can be river contracts river contracts in Flanders, Belgium), wetland contracts (e.g. Contrat de delta de Camargue, France), or forest agreements (Occhito Lake, Italy). Empowerment contracts or delegation contracts can be other forms of multi-level agreements, where local authorities are gradually empowered or delegated by the central administration to fulfil certain tasks.
• Networking with other local and regional authorities. The participation in networks like international thematic co-operation frameworks and shared platforms, can allow finding new partners and opportunities for concerted approaches to adaptation through intermunicipal and interregional collaboration.