Forward-looking inclusive governance arrangements across different scales are a critical enabler for adaptation

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Marginalised groups in semi-arid regions who live on the frontline of climate impacts will benefit if they are more actively included in climate adaptation governance. However, in these areas, governments struggle to deliver services or engage with local communities due to a range of factors, such as inadequate mainstreaming of climate concerns in development planning, staff capacity deficits at lower levels of governance, and limited technical expertise. We see fragmented decision making across different governance levels. Climate change adaptation responses could learn from widespread implementation of decentralisation, and how it has enabled, and in some cases undermined, the ability to support participation and flexibility across scales. Strengthening governance, and the capacity to engage in decision making across scales, across actors, and between formal and customary governance structures, should be a priority for enabling effective adaptation. Doing so could enable more equitable participation, promote flexible, hybrid forms of governance, and encourage forward-looking, cross-scalar collaboration and knowledge flows.

ASSAR’s focus on governance

ASSAR concentrated on issues of governance in semi-arid regions, with a focus on what forms of governance will enable effective adaptation. The primary question we addressed was: How do existing governance structures help those most vulnerable to adapt to existing climatic and non-climatic dimensions of risk? Our research focused on the impacts of decentralisation in: the water sector in Namibia, Kenya, and Ethiopia; land tenure and customary law in Mali; and climate risk, vulnerability, and adaptation planning in India.

Key insights

In semi-arid regions there is insufficient understanding of what the most appropriate governance approaches are for adapting to climate risk

Adaptation governance is often fragmented; there are disconnects across different levels of governance, and between ecological and administrative scales. Different institutions and actors often have overlapping, competing or antagonistic relationships with regard to adaptation-related responsibilities. Within different institutions there is often a lack of capacity and infrastructure for adaptation across scales, as well as limited planning that is flexible and forward looking, and which accounts for future climatic risks and impacts. As a consequence, marginalised groups often have to manage climate risks without the support they need.

Hybrid governance arrangements are emerging to support adaptation

Disconnections between national, regional and local governments in semi-arid regions mean that intermediary entities often need to negotiate between local actors and government. With some of these intermediaries linking across different scales and across traditional and bureaucratic practices, hybrid governance arrangements are emerging to support adaptation. However, intermediaries often lack capacity in adaptation-related knowledge and decision making, and need requisite support to perform these roles.

Working with customary institutions can help foster collaborative adaptation responses that are cognisant of local context

In semi-arid regions, traditional and customary institutions can play an important role in natural resource management and adaptation responses. In some cases, formalising or supporting these institutions has led to improved management of water, pasture land and forests. It has also led to the emergence of hybrid structures where traditional institutions collaborate with formal government agencies on land stewardship and resource management. However, conflicts between customary and formalised government arrangements remain, especially when the definition of mandates, authority, and roles and responsibilities is unclear. Ways of integrating traditional and customary institutions with government institutions need more attention. Integration holds opportunities for adaptation that recognises local needs and structures while acknowledging the role of government.

Building capacity of local actors to engage in local and cross-scalar adaptation governance is critical, but must start from appreciating existing capacity and aspiration

People living in semi-arid regions hold a lot of local knowledge about adaptation challenges, and in many cases are responding to change. Future shifts in temperature and rainfall patterns as a result of climate change will put extra pressure on these communities, increasing their need for support. Although work is happening around climate change policy and the establishment of national priorities, this work is not yet feeding into or sufficiently supporting on-the-ground needs. At the local level, there is a lack of financial and technical support for communities to innovate for adaptation. Local capacity needs to be strengthened to adapt to long-term change and support engagement in multi-level governance processes and flexible planning. This capacity strengthening needs to build on existing skills and local knowledge while recognising that new skills are needed. Maximum benefit will be derived if the capacity support links to wellbeing, and aspirations, and is context specific.

Adaptation needs to prioritise vulnerable groups and contested views, which requires more attention to how diverse needs and voices get heard

In the adaptation space, certain views dominate decision-making processes and the identification of adaptation priorities. For most potential adaptation responses, trade-offs exist. Frequently, these are insufficiently explored from the perspective of diverse groups, and dominant groups tend to have the final say. More attention needs to be paid to how to shift away from dominant views, to support processes and implementation that can include the priorities of the most vulnerable, who are often least able to support their own adaptation sufficiently. This is likely to require additional support from NGOs and intermediaries that can liaise between vulnerable groups, government actors and, at times, the private sector.

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