Nature - Stéphane Hallegatte |
Katharine J. Mach
Stéphane Hallegatte, Katharine J. Mach and colleagues urge researchers
to gear their studies and the way they present their results to the
needs of policymakers.
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An islander adds to coastal protection at Anse Kerlan beach in the Seychelles. Kadir van Lohuizen / Noor / Eyevine |
With the ink just dry on the Paris climate
agreement, policymakers want to know how they can act most effectively.
Ambition is high: the long-term goal is to keep the average warming of
the planet to well below 2 °C, and even to 1.5 °C. Governments,
corporations and communities have many options for minimizing dangerous
climate change, and must choose between conflicting priorities and
objectives. For example, how should governments decarbonize energy while
increasing access to it without resorting to fossil fuels?
No
single approach will work for all. The risks and impacts of climate
change differ by place and time. Local values and contexts matter. Small
islands are vulnerable to sea-level rise, for example, and fossil-fuel
exporters will lose profits from the transition to low-carbon energy. We
must consider value judgements, such as the relative importance of
economic damage versus biodiversity loss, as well as inequality and
fairness.
And the relevant climate and social
sciences are themselves diverse, from studies of the physics of storm
formation to investigations of the role of heritage in cultural
identity. The challenge for those who assess such scientific knowledge,
such as the Intergovernmental Panel on Climate Change (IPCC), is to
summarize results in ways that are true to the original research,
explicit about the values and judgements in the analysis, and digestible
by and useful to policymakers and the public.
For example, the IPCC's 2014
Synthesis Report encapsulated factors from climate to ecology to technology into a single figure (Figure SPM.10)
1.
This illustrates how long-term global risks are linked to
emissions-reduction requirements under different physical, policy and
risk scenarios. Such a figure, although an achievement, can convey only a
glimpse of the complex analysis that went into it.
In
the IPCC's sixth cycle of assessment, the climate-science community
needs to supply the right sorts of information to help decision-makers
to construct policies from myriad mitigation and adaptation options.
Producing this information will require more multidisciplinary research,
updated strategies for communicating uncertainty and studies of a
broader range of climate and risk projections that include the impacts
of policy responses.
Here, we set out four steps to putting policy relevance at the core of both research and assessment.
Integrate disciplines from the start
The range of risks summarized in the IPCC's 2014
Synthesis Report
was limited by the research available. For example, the assessment
highlighted increasing risks of climate extremes but said little about
how climatic hazards interact with societal vulnerability. Sparse
information on how risks evolve at specific warming levels resulted in
the reporting of broad, qualitative levels of risk — for example,
'undetectable' to 'very high', as judged by experts. But comparison
across risks was difficult.
Climate scientists
need to close these gaps by scrutinizing the feedbacks between
development pathways, climate change and its impacts and risks, and
policies and responses. The community has created socio-economic
scenarios that are better able to combine climate-policy consequences
and climate-change impacts in certain areas — such as how poverty
reduction reduces vulnerability to extreme events — and to investigate
their interplay with development trends ranging from population to
land-use trajectories
2.
But covering many climatic and societal futures, globally to locally,
is a monumental task. Projects that compare assumptions and results
between different models are a start, but need to include more evidence
and expert judgements across disciplines.
Research
and assessments must be designed to solicit and answer questions
crucial to decision-making. For example, how do risks and requirements
compare for a climate goal at 1.5 °C, 2 °C or more? How can we avoid
locking in to carbon-intensive development pathways and keep open
options for rapid decarbonization? How can the effectiveness of
adaptation actions be ensured? And how can emissions be reduced without
slowing the pace of poverty reduction?
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Sugarcane production is rising in Brazil to meet demand for ethanol for biofuel. Adriano Machado / Bloomberg / Getty |
Explore multiple dimensions
Risks
from a changing climate and responses to it vary dramatically from place
to place, through time and with different levels of adaptation and
mitigation. Projections of increases in sea level for different
emissions scenarios, for example, range from tens of centimetres to more
than 10 metres over centuries to millennia
3.
Small islands might quickly face inundation whereas large countries
would have more time to adapt. Past assessments focused on
characterizing a few alternative futures (such as continued high
emissions versus ambitious mitigation) rather than weighing up the risks
and benefits of limiting warming across a ladder of possible targets:
1.5 °C, 2 °C, 2.5 °C or higher.
A broader
census of differences through space and time would strengthen the
information foundation for policymaking. Decision-makers with different
goals could select portfolios of responses, for example, based on risks
to all, risks to the most vulnerable, risks of economic damages, risks
of irreversible changes or a combination.
The
distribution of losers and winners — regarding policies and impacts as
well as people and places — needs to be studied. For example, the
destruction of coral reefs affects fishing communities and may add to
stresses, especially in places with weak governance. In some
high-latitude areas, by contrast, a warming climate will bolster
agricultural yields. Building sea walls could reduce coastal flood risks
but threaten ecosystems, historical heritage and landscape beauty.
Risks and opportunities from investments in mitigation options need to
be evaluated. For example, expanding biomass energy may reduce (or
reverse) emissions but could also threaten food production and
biodiversity. Renewable energy reduces emissions and provides
electricity more cheaply than that from fossil fuels in many remote
locations, where some of the poorest people live.
More
research is needed on regional challenges and opportunities that go
beyond the use of a single metric — global mean warming — as a proxy for
climate change and its impacts
4.
For example, ocean acidification and sea-level rise are not linearly
related to peak temperature, and the risks that they create require more
detailed investigation. And reducing emissions of short-lived climate
pollutants such as soot and tropospheric ozone precursors might not
change peak warming, but would slow the rate of warming globally
5; this would allow more time for ecosystems and societies to adapt, as well as provide local health benefits.
Consider uncertainty
Decision-makers need to appreciate a wide range of possible outcomes,
including uncertainty in the consequences of global climate policies.
Four aspects of uncertainty must be evaluated and communicated:
probability ranges that can be narrowed with future research; unknowns
that are linked to a deep lack of knowledge; uncertain reactions that
depend on societal decisions and geopolitical events; and other areas of
uncertainty that reflect random or chaotic features of the climate
system.
The implications of these uncertainty
types for policymaking and research need to be untangled. Those that
relate to underlying Earth-system processes, such as climate mechanisms
that we do and do not understand, or the inherent variability of the
climate system, can be addressed through research that increases
understanding of climatic hazards. Extreme events and resulting damages
lie in the tails of probability distributions that are inherently
difficult to quantify or even characterize qualitatively.
Uncertainty
need not be a bad thing. Uncertainties related to human choices — such
as the multiple pathways to achieve a climate goal — can offer
flexibility
6.
For example, much of the uncertainty in the relationship between
emissions in 2050 and eventual temperature rise stems from the
possibility of compensating for modest short-term emissions reductions
with larger efforts, including negative emissions, in later decades.
An
awareness of the diversity of options and their risks is important for
making smart policies that allow for regular revisions in light of new
information and feedback. More ambitious near-term emissions reductions
create more flexibility for responses through the century, depending on
whether useful and affordable technologies become available and how
climate impacts pan out. Less mitigation early on would constrain
options later and compound risks
7.
Short-term actions — such as the commitments for 2025 or 2030 that
countries have made towards the Paris Agreement — can be compatible with
a range of long-term targets, depending on the ambition of our efforts
later in the century.
"Synergies and trade-offs must be evaluated, including risks arising from mitigation actions — not just inactions."
Assessing whether current policies are
consistent with long-term goals depends on many factors that are
impossible to predict with confidence
8, 9.
And not knowing how people will respond makes such an assessment even
harder. So emissions pathways that seem compatible today with a
long-term temperature target could lead us to higher — or lower — levels
of warming, depending on everything from future global climate policies
to technology costs to the climate sensitivity of the Earth system.
Intensified focus on limiting global warming to 2 °C or 1.5 °C decreases
the risk of greater warming in the long term, for example a rise
exceeding 3 °C, should available technologies turn out to be limited or
climate sensitivity higher than expected.
Researchers
need to assess how different sources of uncertainty affect
decision-making, especially in worst-case scenarios. What should we do
if temperatures start to rise more rapidly or the impacts are more
dangerous than we expect? How can we detect such departures and how
should we alter course? Climate policies might prove to be harmful and
need revising; technology costs might not fall; carbon capture and
sequestration might not work.
Inform holistic solutions
A fuller evaluation of risks and options is needed that includes those
created by climate-change responses for other policy goals. For example,
the assessment of climate-change risks at 1.5 °C in the IPCC's 2014
Synthesis Report
foresaw impacts on coral reefs, Arctic sea ice, water availability,
food production and sea-level rise. But the bigger picture should also
include issues related to climate mitigation, such as economic duress,
land- and water-use trade-offs and calls for high-risk geoengineering
methods.
The impacts of climate changes and
climate policies will interact if, for instance, a slower reduction in
poverty owing to higher energy costs increases vulnerability. Synergies
and trade-offs must be evaluated, including risks arising from
mitigation actions — not just inactions. Social and climate scientists
must investigate the political and socio-economic impacts of climate
policies (short- as well as long-term), the distribution of those who
benefit and those who are adversely affected, and the influences of
powerful interest groups.
It is important to explore how climate responses can advance the Sustainable Development Goals and especially poverty reduction
10.
For instance, improving access to clean energy and decreasing the
economic impacts of extreme weather events can accelerate development
progress while protecting poorer nations against climate change. Climate
action and protection will never be the sole priorities for
decision-makers, but they will be integral to the full policy landscape.
Research and assessment can create a powerful foundation for these
interactions, and empower decisions in the years ahead.
Footnotes
-
Pachauri, R. K. et al. Climate
Change 2014: Synthesis Report. Contribution of Working Groups I, II and
III to the Fifth Assessment Report of the Intergovernmental Panel on
Climate Change (IPCC, 2014).
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O'Neill, B. C. et al. Clim. Change 122, 387–400 (2014).
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Clark, P. U. et al. Nature Clim. Change 6, 360–369 (2016).
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Steinacher, M., Joos, F. & Stocker, T. F. Nature 499, 197–201 (2013).
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Rogelj, J. et al. Proc. Natl Acad. Sci. USA 111, 16325–16330 (2014).
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Otto, F. E. L., Frame, D. J., Otto, A. & Allen, M. R. Nature Clim. Change 5, 917–920 (2015).
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Edenhofer, O. et al. (eds.) Climate
Change 2014: Mitigation of Climate Change. Contribution of Working
Group III to the Fifth Assessment Report of the Intergovernmental Panel
on Climate Change (Cambridge Univ. Press, 2014).
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Kriegler, E. et al. Technol. Forecast. Soc. Change 90, 1–7 (2015).
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van Vuuren, D. P. & Riahi, K. Clim. Change 104, 793–801 (2010).
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Hallegatte, S. et al. Shock Waves: Managing the Impacts of Climate Change on Poverty (World Bank, 2016).
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