Australian Local Government Association

22 August 2005

Chapter 6: Climate change

Contents of this page

• 6.1 Why is it important?
• 6.2 Adaptation or mitigation
  • 6.2.1 Provision of local data and modelling
  • 6.2.2 Decision making tools for local government
  • 6.2.3 Undertaking planning at a regional level
  • 6.2.4 Development of resilience thresholds
  • 6.2.5 Impediments to preparing climate change strategies

6.1 Why is it important?

It is now widely accepted that climate change is happening and will have long term impacts⁵. The rate of change and the range of impacts is still the subject of much research. Climate change will result in rising temperatures, falling rainfall combined with an increase in extreme events such as storms and tidal surges, and an increase in sea level.

There is a long list of impacts from climate change which can be split into three main headings - impacts on the built environment (including infrastructure), the natural environment and human aspects, including health impacts. These are summarised below.

Built environment

• Flood risk
• Dam storage not sufficient -water supply issues
• Storm water and sewerage systems inundated
• Erosion and flooding of transport networks
• Energy supply not sufficient as demand increases and supply failures increase
• Increased demand for air conditioning
• Increased storm damage
• Increased deterioration of infrastructure (shortened lifespan)
• Seafront infrastructure at risk

Natural environment

• Coastal erosion and shoreline recession
• Inundation of coastal wetlands
• Increased pressure on dunal system - increased saltwater intrusion
• Changes to mangrove habitat from tidal inundation
• Increased coral bleaching
• Reduced water quality impact on ecosystems - ability to adapt and survive
• Reduced resilience of ecosystems
• Reduction in species
• Increased erosion and soil degradation
• Changes to fire regimes
• Altered river flows and flooding zones
• Increased risk of landslips

Human aspects

• Changed spread of diseases (such as dengue fever), pests and weeds
• Increase in death from heat events
• Changes in insurance company assessments
• Changes in economic sustainability of some activities
• Increased cost of storm damage
• Possible increased cost of production
• Loss of public space and existing facilities
• Damage to places of significance
• Changes in land use options, including some areas becoming unsuitable for development, urban consolidation occurring in others

These factors have economic impacts, including reduced economic growth from changes in profitability of industries such as agriculture and tourism. There is also the impact on the cost of repairs, maintenance and replacement of buildings and infrastructure. The insurance industry is constantly reassessing the risk of climate change and adjusting their premiums based on perceived risk and exposure. Increased premiums could be another cost to both council and the community. By undertaking risk management and adaptation strategies, councils can improve their planning processes and undertake works at low cost now, avoiding the need for large budget works in the future.

6.2 Adaptation or mitigation

Councils have already demonstrated a strong commitment to undertaking mitigation projects. Around 200 councils actively participate in the ICLEII Cities for Climate Protection™ program which has resulted in a significant decrease in greenhouse gas emissions⁶. Through the Program, councils have been successful in educating the community about climate change and easy ways to reduce emissions, such as through home lighting alternatives. In addition, a number of councils undertake methane extraction projects from their waste depots and are others are striving to limit vegetation clearing, or have introduced building design regulations aimed at increasing the energy efficiency of new buildings.

Mitigation strategies take quite some time to have an impact, so adaptation strategies are required. A first step in developing an adaptation strategy is to analyse the extent of risk facing council, such as how many buildings and what infrastructure is at risk. This is likely to include an analysis of past extreme events such as high seas, storms and floods. An examination of current practices and how these may be changed is required, followed by the development of an adaptation strategy. These strategies can include changes to zonings, engineering works, building design requirements and the use of planning regulations such as setbacks.

A good number of councils are aware of the issues surrounding climate change, however they are unsure what they are required to do. Many councils have already prepared risk strategies for events such as flooding, and it may be possible to use some of these processes to undertake adaptation strategies.

Councils require knowledge, tools and data to undertake vulnerability assessments. These tools may include the development of a generic assessment framework for local government. The framework may assist councils in decision making by leading them through a series of questions. Once the information has been collated, councils can develop policies and plans, evaluation and monitoring strategies, awareness raising and capacity building activities. Adaptation is a continuous process and councils need some assistance to get this process under way.

Options

6.2.1 Provision of local data and modelling

To undertake effective decision making, relevant data needs to be provided at the local level. Projection work undertaken by CSIRO to date has been at too large a scale for it to be useful in council planning. Councils require data and modelling to understand the risks associated with climate change. Councils are interested in impacts such as the likelihood and extent of extreme storm events, and sea level rise. This information may be provided through CSIRO or through the National Climate Change Adaptation Program at the Commonwealth level.

In order to prioritise this data provision and research, some work is required to identify the 'most at risk' areas of Australia. From here, local information on the scale and timing of climate change can be generated for the most vulnerable areas.

Scientific information must be made available to councils in a useable form. For instance, information is required that is practical and helpful in decision making, to allow councils to consult with their community and to develop locally appropriate solutions.

6.2.2 Decision making tools for local government

The development of a series of tools to assist local governments to develop strategies and for decision making in relation to climate change issues is required. This may well build on the work of the QLD Division of the Planning Institute of Australia⁷ who are currently developing tools to assist planners to deal with climate change issues. In addition, further work is required for other council staff and indeed the councillors themselves. Councils require these tools to allow them to respond to climate change challenges.

It is easier and cheaper to deal with risk in the development of new subdivisions and industrial areas and as new infrastructure is provided. There may be a need to avoid development on vulnerable areas and to undertake preventative works around beach and dunal areas or to undertake works to protect infrastructure. There are more options available to council and fewer problems if a strategy is developed now. These options must be explored and the capacity of councils to undertake such assessments increased.

Tools to assist councils may focus around building design and best practice, how to best undertake vulnerability assessments, calculating cost benefit ratios of adaptation strategies, the development of polices and plans and the provision of options to councils. These strategies also need to include evaluation and monitoring components so adaptation strategies can be continuously improved. Integrating lessons from past adaptations, such as fire or flood strategies may be a good starting point. Pilot risk management projects and case studies are likely to increase awareness of the issue and what is required in adaptation strategies and encourage councils to undertake climate change work.

6.2.3 Undertaking planning at a regional level

Once again, climate change planning could be initiated at a regional level, although local plans are also required. These local perspectives on resilience, productive ecosystems and the resulting adaptive management options are important. Working at a regional level can be useful in sharing information and generating enthusiasm within councils to undertake strategies and to raise awareness of why the work is important.

An integrated approach between local land use planning, regional NRM planning and infrastructure planning is required for a systems type outcome to be achieved in relation to planning for future climate change. Information provision to the regional NRM organisations is also important to ensure climate change issues are addressed in regional NRM plans. The regional NRM organisations can work with local governments to raise the awareness of the local communities on the need for adaptive management strategies. This is already happening in a number of regions, such as the Port Phillip and Westernport in Victoria.

6.2.4 Development of resilience thresholds

For natural ecosystems to survive, knowledge of their resilience thresholds is required. Work can then be undertaken to ensure these systems are kept in a condition above the threshold, particularly for the more valuable ecosystems. This may include maintaining the connectivity and size of remnant habitats to allow for species movement. While this activity goes broader than just local governments⁸, individual councils can use this information when they are structuring their own biodiversity programs, targeting 'at risk' ecosystems and in the management of their reserves. Ecosystems provide a number of services and if these are lost there are likely to be flow on social and economic effects to the local community. This work should build on that being undertaken by other spheres of government⁹.

6.2.5 Impediments to preparing climate change strategies

It is important to understand what the impediments to undertaking adaptive management strategies are. For instance, are there any jurisdictional or legislative impediments to planners adopting adaptive measures? Issues surrounding planning decisions and strategies, such as setback areas and rezonings must be defensible in court. Planners require tools to provide guidance to support adaptation measures. In addition, work needs to be undertaken to determine if councils are potentially liable if they do nothing to address adaptation or if they introduce inappropriate measures. Once again, this work may build upon that being undertaken by the Planning Institute of Australia.

Issue

Climate change will impact on the coastal zone

Pressure

Increased storm frequency and intensity, changed rainfall patterns and increased sea level is likely to impact on the natural and built environment and human activities

Current situation

Limited understanding by councils of likely local impacts and what is required in terms of adaptation now. Good leadership by councils in terms of mitigation activities

Outcome

Development of climate change adaptation strategies by all councils

Action

Learn from other council activities and share information. Look at other adaptation strategies developed by council (eg flood) and see whether it can be used as a basis for developing a climate change adaptation strategy.