Preparing for a New Climate: Second Consultation to inform Scotland's Climate Change Adaptation Framework

A Response from the Scottish Council for Voluntary Organisations

The Government wishes to improve understanding of the consequences of a changing climate.

1a. Do you think the six actions identified in section 2.6 are the most appropriate actions to achieve this?

• Support the further development of climate models
• Develop detailed assessments of risks and opportunities posed by a changing climate
• Cost the risks and opportunities presented by a changing climate
• Work with Scottish sectors to cost risks presented by a changing climate
• Support the coordination of climate change research across Scotland and with UK partners
• Investigate the benefits of a centrally coordinated evidence base

Yes / In part / No

1b. Are there additional actions that you think are necessary and if so, what are they? (up to 3)

SCVO represents a wide membership and this response focuses particularly on the interests of those involved with the social aspects of climate change adaptation. SCVO acknowledges and encourages the individual responses of its members and particularly supports those of the environmental NGOs who provide the necessary technical responses to the consultation issues relating to the natural environment.

The actions outlined are appropriate to improving understanding of the scientific, environmental and economic knowledge associated with a changing climate. But, whilst the development of models of climate change provide important indications of trends in the physical environment, they only present part of the story. Climate change is attributable to human behaviour and given the inherent uncertainty which characterises both climate change and human behaviour, it must be recognised that the reliability of models to predict the future has limits. Research also needs to be focused on the behavioural and social elements of climate change.

A note of caution is also applied to the reference to costing the risks and opportunities: that actions associated with achievable costs (and quick wins) do not take precedence over those which address a greater risk requiring greater cost and longer term investment.

Additional actions identified by SCVO include:

(i) Community engagement

The aim to improve understanding needs to incorporate raising awareness of climate change, its causes and how to address its impacts by members of the public from all walks of society. The aim should not be limited to the understanding of scientists, economists and policy makers. Actions on adaptation will be enhanced hugely if there is a motivated and involved population which clearly sees the potential impacts of climate change on their local community. Engagement with communities in addressing climate change, seeking solutions to the problems such change brings and identifying adaptation measures to minimise these in future is key. The Climate Change (Scotland) Bill incorporates a commitment on public engagement and actions stemming from this framework will need to reflect that commitment, a central focus of which must be engagement at the community level.

Engagement will empower communities not only to address the problems but also to identify potential opportunities from which communities can benefit. Consequently, it is also fundamental that there is understanding of the barriers to addressing climate change and the means of overcoming them. Otherwise, a major risk for Scotland is that of non-engagement by the public.

(ii) Addressing deprivation

It is recognised that it is the most vulnerable in societies across the world who are hardest hit by the impacts of climate change. At the core of adapting to climate change in Scotland is the need to minimise the causes of that vulnerability. More often than not, vulnerability is associated with deprivation – whether through health, education, housing, mobility or a combination of multiple factors. Action and resource needs to be directed at the generic causes of poverty, beyond what existing social policy allows, in order to prevent the exacerbation of deprivation and the growth of vulnerable communities. Such support must be sustained investment over the long term.

In representing the voluntary sector, SCVO is well-placed to understand how such resource can be effectively distributed to key areas of risk, and how community resilience can be strengthened through adaptation measures. But SCVO is also aware that the demands on the parts of the sector specifically tackling the issue of deprivation will increase significantly if the root causes of deprivation are not addressed at the same time as the impacts of climate change become more widespread – and before they become worse.

(iii) Indirect effects

There will be indirect effects for Scotland of the climatic impacts occurring in other countries. Notably, disruptions to global trade, food and water supplies, and changes in migration patterns are likely. It will be important that an international perspective is incorporated within adaptation thinking, both at government level and amongst the public – our response to potentially large numbers of climate refugees is one example. This is important in terms of Scotland’s moral obligations to those facing extreme conditions elsewhere in the world, as well as enabling the Scottish population to accommodate changes in lifestyle to cope with the changing circumstances.

The Government wishes to improve the capacity of individuals and organisations to adapt well to a changing climate.

• Raise awareness of current and projected unavoidable impacts of a changing climate
• Provide decision makers with appropriate decision support tools and training

2a. Do you think the two actions identified in section 2.7 are the most appropriate actions to achieve this?

Yes / In part / No

2b. Are there additional actions that you think are necessary and if so, what are they? (up to 3)

In answer to these questions, the following comments by SCVO are complemented by those made by the environmental NGOs in their respective responses which provide the technical expertise specifically related to environmental issues and which is not incorporated here.

(i) Awareness-raising

It is important that individuals and organisations from all sectors of society are made aware of the current and projected unavoidable impacts of a changing climate in order that they are fully prepared. It is the environmental NGOs in the voluntary sector who have been largely responsible for the huge increase in interest and action on climate change to date and ensuring that the issue is high on political agendas and in the public awareness. But clearly knowledge of the issue amongst the public requires to be deepened – and there remain many more audiences to reach.

Awareness-raising should not be limited to highlighting the potential problems climate change poses; attention should also be given to the positive effects which may result from its impacts, as well as the potential opportunities which adaptive solutions can bring. Scotland needs to feel empowered to cope with the changes and this will only occur if understanding is widespread and options for dealing with the impacts are identified and supported. The example of the island of Gigha, which has established its own local renewable energy source, illustrates how such action has benefitted the community resulting in wider, long-term investment in the island and a strengthened community. This example also highlights the need to address mitigation and adaptation jointly.

(ii) Wider support

Certainly decision-makers need to be provided with support tools and training but the Framework appears to apply its actions selectively: it is not clear who is included in ‘decision makers’. Is it intended that training and support should be available for community leaders as much as for policy makers? Given the scale of the problem presented by climate change, we will all need to be decision makers of some form and the need for access to tools and training will be extensive. If the Government is seeking to improve the capacity of individuals and organisations, those individuals and organisations must be encouraged to feel part of the solution.

(iii) Capacity building

In response to the stated aim to improve the capacity of individuals and organisations to adapt to climate change, SCVO through its members can contribute to this effort, especially in those ‘harder to reach’ communities.

Good progress has been made through initiatives such as Eco-schools, Eco-congregation and the Climate Challenge Fund but further development of and support for initiatives which address community engagement in climate change issues and adaptation to impacts is needed. This can usefully be done in partnership with the public and private sectors.

The Scottish Climate Change Impact Partnership (SCCIP) website provides a number of tools to help increase the resilience of organisations and infrastructure in Scotland to the impacts of a changing climate.

3a. Have you used the website or contacted SCCIP directly for advice or help?

Yes / No

If yes, which of the following four services did you use and how do you think the service might be improved:

i. Data on climate trends and impacts in Scotland?

Yes / No

How do you think this service might be improved?

The data on climate trends and impacts in Scotland provides a useful overview. It has not been used extensively but rather to gain a picture of the key issues identified by SCCIP associated with anticipated climate change in Scotland.

With the exception of health, the issues identified relate to the impacts on the physical environment. It would be helpful to apply this information in order to illustrate what such trends might mean in social and economic, as well as environmental terms.

ii. Latest research and project information including sharing best practice

Yes / No

How do you think this service might be improved?

The recently published 2009 UK Climate Projections provide important and useful detail for predictions of future climatic conditions. For those who know what they want to enquire about and are familiar with both the science and the associated language, the information provided can clearly help direct policy. However, it should be recognised that without additional interpretation access to this complex information for the wider public may be limited.

It could be valuable for simplified versions of the SCCIP outputs to be made more easily available. Case studies or scenarios of how the climatic changes identified by SCCIP may impact at a local level could be useful in terms of engaging individuals/communities and furthering understanding of the need for adaptation.

At a detailed level, first impressions of the assessments illustrating the extent of potential changes in future years can be confusing. For example, where the changes are described by percentage probabilities as opposed to specific units; and in the ‘Key findings: UKCP09 maps for the UK’ (http://ukcp09.defra.gov.uk/content/view/16/6/index.html) in the way the maps of projected changes are entitled, e.g. ‘10% probability level: very unlikely to be less than’.

The registration process for UK09 climate information provides no ‘drop down’ option for the third/voluntary sector, which suggests that to date there has been limited recognition of the role of third sector support in climate change.

iii. Tools and resources to support action in adapting to mitigating climate change

Yes / No

How do you think this service might be improved?

The SCCIP (and linked UKCIP) website has been used to explore the range of tools and resources available. In particular, reference has been made to the Climate Change Declaration information and commitments by local authorities, as well as the Local Climate Impacts Programme (LCLIP). Although geared for local authority use, the concept of LCLIPs offers a useful basis for engaging individuals and/or organisations in the process of considering the local impacts of climate change, thresholds of extreme weather events and potential adaptation measures. Wider access to the scenarios generated using LCLIPs by councils could prove helpful for other organisations.

The UKCIP Adaptation Wizard identifies a range of issues for addressing adaptation which provide useful prompts for organisations. However, as the Wizard is tailored to the needs of businesses, though useful it is not ideal for use by the voluntary sector.

Generally, it would be helpful if the service incorporated in its range of tools materials specifically designed to address Scotland’s 45,000 voluntary sector organisations.

The e-bulletins from SSCIP and UKCIP provide useful news and updates on climate change projections and associated work.

iv. Training and support events

Yes / No

How do you think this service might be improved?

n/a

4. What are the equalities implications of the proposed Framework?

(i) Access to information:

The issue of climate change is complex and difficult to comprehend. It is also associated with a form of language which is inaccessible for many people in our society. Thought needs to be given to how to inform and establish understanding of the causes and likely impacts of climate change which is not dependent on an individual’s ability to access detailed documents and/or the internet; reliance on internet-based tools is automatically exclusive. The mystery of climate change must be removed and instead its relevance made comprehensible at an individual level. This will allow open, informed decision-making which is central to achieving the wider aspiration of public engagement in climate change and adaptation to it.

(ii) Vulnerability

The SNIFFER report (January 2009) identifies the most vulnerable groups and the associated social implications of climate change. Those individuals who are already vulnerable due, for example, to health problems or living in highly exposed housing, will be susceptible to greater problems as the impacts of climate change increase. There are also those who will become vulnerable as a result, for example, of separation from employment when public transport fails, or when access to food supplies is disrupted.

For the most vulnerable, which often includes those without a ‘voice’, participation in the decision-making process related to climate change adaptation may need to be done through community groups and the voluntary sector. Ensuring they are also informed about the outcome of decisions and are aware of anticipated climate change impacts will reduce both vulnerability and stress through uncertainty. Knowledge of and access to community networks and sources of support services will provide further reassurance.

The uncertainty associated with climate change can bring a perceived sense of threat which can manifest itself by heightening existing tensions over issues such as immigration, housing and employment. Understanding of the wider context of climate change will be important. For example, when climate change refugees are introduced into communities, there is potential danger that without that understanding, the incomers may be marginalised and, in more extreme cases, civil unrest caused.

Dealing with the impacts of climate change will require emergency services and local government to prepare risk assessments which take particular account of areas or communities in which vulnerable individuals exist so that the additional support required will be available. The disruption (and potential danger) from, for example, an extreme weather event which leads to failure of transport and utility services, can be particularly alarming. The provision of consistent and equitable support in such varying circumstances will be a test for the authorities.

It will be important therefore to monitor the effects of climate change impacts on vulnerable groups in particular and the support available to them in order to assess the effectiveness of adaptation measures and to determine future policy. Voluntary sector organisations are in a position to contribute this process.

Exposure to inequality will potentially be suffered by Scotland’s future generations if the current generation fails to adapt sufficiently. This highlights the need for immediate and sustained action.

5. The Government wishes to identify barriers to effective climate change adaptation and to address these barriers, where possible. Are you aware of particular rules, regulations or government actions that pose a barrier to you in effectively adapting to climate change? If so, please identify up to three which you would like the Government to address.

(i) Cross-policy consistency

The message sent by government in the way that it addresses climate change mitigation and adaption in all policy areas will be critical. If a consistent approach is adopted then engagement in climate change more widely is likely to be greatly enhanced, whereas conflicting messages – such as plans for airport expansion and motorway extensions associated with high carbon emissions – are likely to leave a confused and de-motivated public. In addition, all references to climate change must be written in language which is clearly understandable and relevant and is not obscured by technical detail.

(ii) Rural services

Given the acknowledged significance of strong community networks in building resilience to climate change, the reduction of public service provision – in particular in rural areas – poses a threat to communities’ capacity to adapt. The closure of post offices – hubs of information dissemination, the cuts in postbus services which have previously served to knit together sparsely distributed communities and to provide a vital form of access to services, as well as inadequate public transport, effectively cutting off communities, has served to undermine community infrastructure. These negative effects will be reinforced by the impacts of climate change.

(iii) Building policy

Resilience in communities requires resilience in their infrastructure and buildings. Regulations need to require that buildings are constructed and maintained to increasingly rigorous standards to ensure that homes and places of work are well-protected from the effects of climate change and that decisions about new-build developments are taken with the future in mind. The demand for more social housing in particular is acute but today’s budgets must not compromise the quality, longevity and safety of tomorrow’s homes. This requires demanding energy efficiency measures, preventing building on flood plains, and ensuring occupants have access to effective insurance. If homes are vulnerable, then the potential for occupants to be susceptible to a range of deprivation factors will be established and capacity for adaptation reduced.

In Chapter 3, we set out the role for the public sector, local government, the voluntary and business sectors which, if enacted, we believe will build resilience to a changing climate.

6a. If you are responding from an organisation or institution (as you have identified in your Respondent Information Form), please offer your views on the roles set out for the sector which best represents your organisation.

The consultation document acknowledges the role that the third sector has providing better access than other sectors to the most vulnerable in society, as well as its involvement in the protection and enhancement of Scotland’s natural environment. Indeed, included in SCVO’s membership are some of the key environmental organisations which have been so active on the issue of climate change for many years. They have a continued role in campaigning and highlighting the need for urgent action on climate change, including adaptation measures, and SCVO supports their efforts. The environmental NGOs’ own respective consultation responses provide the expert opinion on adaptation policy related specifically to environmental issues which has not been addressed directly here by SCVO.

SCVO represents a broad range of interests across the voluntary sector and, through its constituency of local CVSs, sector-specific intermediary groups (e.g. Volunteer Health Scotland, Poverty Alliance, Scottish Environment LINK), and individual organisations, provides wide reach into communities across Scotland. The communication channels associated with these networks, together with the organisation’s policy and research capacity and training programme mean that SCVO is well-placed through its members to support managing the impacts of climate change, especially amongst vulnerable communities. This includes providing assistance in building resilience and developing adaptation strategies. In addition, i is anticipated that the voluntary sector’s role in providing support services in response to emergency situations will also grow as, for example, occurrence of extreme weather events increases.

SCVO brings an international context to its work on adaptation through association with its sister organisations abroad, as well as its members working overseas, especially the aid agencies. Many of our members, such as the environmental NGOs are, additionally, active parts of strong international NGO alliances. The organisation is therefore well-informed about the international context of climate change and the impacts already occurring elsewhere in the world and in a position to raise awareness of some of the likely repercussions of these on Scotland.

6b. If you are responding from an organisation or institution, please offer your views on the roles set out for other sectors you work with.

Scottish Government: the need for strong leadership, clear information and guidance, and long-term policies, as stated in the document, will all be critical in the pursuance of climate change adaptation. Given the ambitious targets established in the Climate Change (Scotland) Bill, there will also be a need for an equally ambitious action plan which has a broader scope than that covered in the Annex document. In addition, the actions identified will need to reflect the overarching context of sustainable development, as required by the Bill. SCVO notes the reference to further work by Government on social justice issues in connection with adaptation and would welcome the opportunity to contribute to ideas for developing this.

The respective work areas of the four public agencies - SNH, SEPA, FCS, Historic Scotland – are of relevance to specific members of SCVO. In addressing adaptation there will inevitably be benefits of closer working relations between those voluntary sector organisations and the agencies with interests in common. For example, collaboration: between SEPA and housing associations on flood prevention strategies; between SNH and Scottish Environment LINK on biodiversity protection; between Forestry Commission Scotland and Paths for All on promoting healthy living; and between Historic Scotland and the National Trust for Scotland on building preservation. In all cases, it is important that there is a common goal and understanding with regard to consideration of adaptation measures.

Public sector: The Sustainable Scotland Network (SSN) has provided an important lead for local authorities to enable them to make progress on their respective declarations on climate change. However, the indication in the consultation document that the phasing in of adaptation considerations into Single Outcome Agreements (SOAs) will be subject to the uptake and development of climate change commitments by individual authorities suggests an apparent lack of urgency. To demonstrate the required consistency of policy (see 5(i)) and set an example, councils and community planning partnerships will need to be ‘strongly encouraged’ to adopt climate change considerations into all aspects of SOA implementation – and the national/high level SOA terms set as part of these agreements should be improved.

Business: It will be important, as businesses choose or are forced to adapt their services to better suit the changing climate, that they take account of the needs of their employees – whether this means provision of training or demonstrating support in the event of extreme impacts. There is also a role for businesses to support voluntary sector organisations, particularly in strengthening community capacity.

7. Please provide any additional comments you have on any aspect of the consultation:

SCVO’s membership represents a wide variety of voluntary sector interests, including health, the elderly, youth and minority groups, and environmental and animal protection, amongst others. SCVO has focused its consultation response on the need for the Framework and accompanying actions to address particularly the social implications of adaptation. SCVO recognises that the environmental NGOs are better placed to comment specifically on the environmental issues raised in the consultation and refers to their responses.

The overall impression is that the Framework is dominated by efforts to improve the science, research and tools for predicting the impacts of climate change and that it is aimed at an audience comprising primarily high level policy- and decision-makers. We feel that there is insufficient consideration given to improving the opportunities of the general public to embrace adaptation.

Adaptation is about preparation for and minimising the impacts of climate change. It is the most vulnerable who are likely to be hit hardest by these impacts and for whom it will take the longest time to recover. The danger is that climate change will perpetuate and exacerbate existing problems of deprivation and so increase the numbers of people affected. Part of the adaptation process therefore requires that risk to be reduced through addressing the underlying causes of deprivation. Thus consideration of adaptation to climate change should be integrated in all related social policy. The Action Plan annex makes mention only of a flooding and a health initiative, respectively, in relation to integrating climate change adaptation into social policy.

Strengthening the adaptive capacity of communities and individuals can be empowering, giving rise to increased overall resilience. It is by working at a local level and addressing local issues which will be fundamental if the necessary action on climate change is to be achieved. This includes allowing and enabling individuals, members of community groups, businesses, public and the private sector to contribute to the decision-making processes.

It may be worth noting that the format of the consultation document – particularly ‘yes/no’ answers does not encourage an easy structure for comment, and a lack of introductory space at the beginning makes it difficult to set the context of the response.

Catriona Prebble
Green Agenda Officer
SCVO
Mansfield Traquair Centre
15 Mansfield Place
Edinburgh EH3 6BB

Tel 0131 556 3882
Email: catriona.prebble@scvo.org.uk