Learning from Cross-Border Mechanisms to Support Climate Change Adaptation in Australia Final Report
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Learning from cross-border mechanisms to support climate change adaptation in Australia Final Report Wendy Steele, Leila Eslami-Andargoli, Florence Crick, Silvia Serrao-Neumann, Lila Singh-Peterson, Pat Dale, Darryl Low Choy, Ilva Sporne, Scott Shearer and Anne-Sophie Lotti LEARNING FROM CROSS-BORDER MECHANISMS TO SUPPORT CLIMATE CHANGE ADAPTATION IN AUSTRALIA Every state for themselves? Learning from cross- border regulatory instruments to support and promote climate change adaptation in Australia Griffith University AUTHORS Wendy Steele Leila Eslami-Andargoli Florence Crick Silvia Serrao-Neumann Lila Singh-Peterson Pat Dale Darryl Low Choy Ilva Sporne Scott Shearer Anne-Sophie Iotti Published by the National Climate Change Adaptation Research Facility ISBN: 978-1-925039-05-4 NCCARF Publication 34/13 © Griffith University and the National Climate Change Adaptation Research Facility This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without prior written permission from the copyright holder. Please cite this report as: Steele, W, Eslami-Andargoli, L, Crick, F, Serrao-Neumann, S, Singh-Peterson, L, Dale, P, Low Choy, D, Sporne, I, Shearer, S, Iotti, A 2013 Learning from cross-border mechanisms to support climate change adaptation in Australia, National Climate Change Adaptation Research Facility, Gold Coast, pp. 87. Acknowledgement: This work was carried out with financial support from the Australian Government (Department of Climate Change and Energy Efficiency) and the National Climate Change Adaptation Research Facility (NCCARF). The views expressed herein are not necessarily the views of the Commonwealth or NCCARF, and neither the Commonwealth nor NCCARF accept responsibility for information or advice contained herein. The role of NCCARF is to lead the research community in a national interdisciplinary effort to generate the information needed by decision-makers in government, business and in vulnerable sectors and communities to manage the risk of climate change impacts. The project research team would like to thank the following people for their input and contribution to the research: - All of the participants involved in the research (stakeholder workshop and semi- structured interviews) for generously sharing their time and expertise. - Dr Daniel Stock for project support from NCCARF. - Michelle Lovelle, Anne Krupa and Stuart Taylor for project administration, human resource, finance and budget support from Griffith University. - Professor Tim Smith and the University of the Sunshine Coast for providing desk space and support for a project research member. - Peter Tangney (PhD candidate) for research assistance in Stage 1 of the project. - Professor Patricia Dale (Environmental Futures Centre) for her ongoing role as senior colleague and mentor for the project. - The two anonymous peer referees who took the time to make constructive review comments on the final project draft report – much appreciated. Disclaimer: The views expressed in this work are the authors own and the institutional arrangements described are those that were in effect during the timeframe within which the research was undertaken – October 2011 to December 2012. Cover image/s © 2012 Hai Linh Truong, Flickr Creative Commons TABLE OF CONTENTS ABSTRACT .................................................................................................................. 1 EXECUTIVE SUMMARY .............................................................................................. 2 1. OBJECTIVES OF THE RESEARCH ..................................................................... 5 1.1 RESEARCH RATIONALE ..................................................................................... 5 1.2 RESEARCH AIM ................................................................................................ 5 1.3 RESEARCH APPROACH ..................................................................................... 6 1.4 RESEARCH SIGNIFICANCE ................................................................................. 8 2. RESEARCH ACTIVITIES AND METHODS ........................................................... 9 2.1 PROJECT LITERATURE REVIEW ........................................................................ 10 2.2 STAGE 1 – SELECTED DESK-TOP CASE REVIEW ................................................ 10 2.3 STAGE 2 – GOLD COAST/TWEED CASE-STUDY ................................................. 12 2.3.1 One-Day Stakeholder workshop ......................................................... 14 2.3.2 Semi-structured interviews ................................................................. 16 2.4 DATA ANALYSIS ............................................................................................. 18 2.5 ETHICS .......................................................................................................... 19 3. RESULTS AND OUTPUTS ................................................................................. 20 3.1 KEY LITERATURE – BUILDING THE CONCEPTUAL FRAMEWORK .......................... 20 3.1.1 Architectures of cross-border governance ........................................ 21 3.1.2 Multilevel governance in Australia ...................................................... 23 3.1.3 Climate change adaptation in Australia: key reform challenges and opportunities ........................................................................................ 27 3.2 STAGE 1 – SELECTED CROSS-BORDER ARRANGEMENTS IN AUSTRALIA ............. 30 3.2.1 Murray-Darling Basin Agreement ........................................................ 30 3.2.2 The Australian Alps Cooperative Management Agreement .............. 31 3.2.3 The Australian Capital Territory and New South Wales Regional Collaboration ........................................................................................ 33 3.2.4 The Gold Coast / Tweed Cross-border Sub-Plan 2010 ...................... 34 3.2.5 Cross-border drivers and key variables ............................................. 35 3.3 STAGE 2 – THE GOLD COAST/TWEED CROSS-BORDER CASE-STUDY ................. 45 3.3.1 Cross-border arrangements ................................................................ 46 3.3.2 Cross-border initiatives in the Tweed/Gold Coast ............................. 47 Learning from cross-border mechanisms to support climate change adaptation in Australia i 3.3.3 Triggers for addressing cross-border issues ..................................... 52 3.3.4 Barriers for cross-border arrangements in the Gold Coast/Tweed... 53 3.3.5 Opportunities resulting from cross-border collaboration ................. 56 4. DISCUSSION ...................................................................................................... 59 4.1 APPLYING THE LEARNING FRAMEWORK ........................................................... 60 4.1.1 Problem re-framing .............................................................................. 60 4.1.2 Governance re-organisation ................................................................ 62 4.1.3 Transformative change/learning ......................................................... 64 5. GAPS AND FUTURE RESEARCH DIRECTIONS ............................................... 68 5.1 INTERNATIONAL CROSS-BORDER GOVERNANCE CONTEXT ................................. 68 5.2 PLANNING ACROSS-BORDERS IN A CLIMATE OF CHANGE ................................... 68 6. CONCLUSION ..................................................................................................... 70 7. REFERENCES .................................................................................................... 72 APPENDIX A – STAKEHOLDER WORKSHOP PROGRAM...................................... 78 APPENDIX B – ETHICS CONSENT FORM ............................................................... 82 ii Learning from cross-border mechanisms to support climate change adaptation in Australia LIST OF FIGURES FIGURE 1: 3-STAGE DESIGN OF THE PROJECT …………………………………………………………………………………….. 09 FIGURE 2: LOCATION MAP OF THE FOUR CASE STUDIES ........................................................................... 10 FIGURE 3: THE GOLD COAST/TWEED CROSS-BORDER REGION ................................................................. 13 FIGURE 4: IMAGES O TWEED HEADS WITH SIMULATED INUNDATION FROM SEA-LEVEL RISE .................... 13 FIGURE 5: SESSION 1 CROSS-BORDER WORKSHOP ACTIVITY – POST IT NOTE BRAINSTORM .................. 14 FIGURE 6: SESSION 2 CROSS-BORDER WORKSHOP ACTIVITY – WHITEBOARD GROUP BRAINSTORM ..... 14 FIGURE 7: LEVELS OF ANALYSIS – CRITICAL READING/S OF TEXT............................................................. 17 FIGURE 8: DEVELOPING A CONCEPTUAL FRAMEWORK FOR THE PROJECT THROUGH KEY LITERATURE .. 18 FIGURE 9: THE KEY ELEMENTS OF EFFECTIVE CO-OPERATIVE FEDERALISM (WANNA ET AL., 2009) ...... 22 FIGURE 10: MURRAY DARLING BASIN CROSS-BORDER ARRANGEMENTS ................................................ 28 FIGURE 11: EVOLUTION OF THE AUSTRALIAN ALPS NATIONAL PARK MEMORANDUM OF UNDERSTANDING............................................................................................................................... 29 FIGURE 12: EVOLUTION OF ACT-NSW CROSS-BORDER ARRANGEMENTS AND REGIONAL COLLABORATION ................................................................................................................................ 30 FIGURE 13: EVOLUTION OF THE GOLD COAST-TWEED CROSS-BORDER SUB-PLAN ..............................