**3. Results: governance strengths and weaknesses for adaptation to climate change in six European regions**

This section depicts the findings of the analyses of the policy and governance contexts of the six European regions under study for this project. Each subsection starts out with a brief description of the region and the water-related risks brought forward by climate change in the region. This description is followed by an identification of the most important governance strengths and weaknesses for adaptation to the water-related risks. Each subsection ends with a short reflection on the resulting governance needs for effective adaptation to climate change.

#### **3.1. Cyprus, the Troodos Mountains**

Both the questionnaires and the interview reports were translated by the local project partners in BINGO, and complemented with a first analysis of the meaning of these results in the regional governance contexts. The questionnaires and interviews were further and systematically analyzed in terms of the TLF by the authors of this chapter. The analyses have been sent

back to the local project partners for review.

**Table 2.** Expert-interviews per research site.

**BINGO research site Number of** 

228 Achievements and Challenges of Integrated River Basin Management

Portugal/lower Tagus transboundary

**Table 1.** Questionnaires per research site.

Cyprus/Troodos Mountains

Portugal/ lower Tagus transboundary river basin (I)

Portugal/ lower Tagus transboundary river basin (II)

Germany/Wupper River

region

Basin

river basin

**questionnaires**

Norway/Bergen city 5 Public water supply, research.

**BINGO research site Expert-interview 1 Expert-interview 2**

Studies (CES)

& Research

The Netherlands/the Veluwe Public Administration and Policy

Norway/Bergen city Regional Climate & Climate Services

Spain/Badalona city Institute of Science and Environmental

Uni Research,

University of Coimbra, Centre for Social

department of Wageningen University

and Climate Dynamics departments of

Technologies (ICTA) of the Autonomous University of Barcelona (AUB)

North Rhine-Westphalia State Agency for Nature, Environment and Consumer Protection (LANUV)

Cyprus/Troodos Mountains region 6 Public administration, public water supply, agriculture,

The Netherlands/the Veluwe 6 Public administration, public water supply, water

Germany/Wupper River Basin 11 Public administration, water resources management,

Spain/Badalona city 9 Public administration, public water supply, waste water,

**Sectors involved**

waste water, research.

Water Development Department Institute of Environment and Sustainable

Institute for Water (INAG) Portuguese Regulatory Authority on Water

Development

Environment

Division

Tagus River Basin District Administration

Wupperverband – Department of Forestry

Spanish Office of Climate Change (OECC) of the Spanish Ministry of Agriculture, Fishing, Food and Environment (MAPAMA)

and Waste Services (ERSAR)

Ministry of Infrastructure and the

Norwegian Environmental Agency

10 Public administration, public water supply, agriculture,

resources management, spatial planning.

public utilities (water supply and treatment, energy).

spatial planning, beach management, research.

waste water.

The Troodos Mountains cover roughly 60% of Cyprus. In the area, most of the island's rivers originate. This research has focused on the downstream area of the Peristerona watershed, which is located on the northern slopes of Troodos Mountains [28]. The three main water uses in the watershed are domestic water supply and irrigation, which rely almost exclusively on groundwater resources [29], and the relatively new sector of wastewater treatment and reuse.

Being a Mediterranean country, water scarcity has posed a persistent risk to Cyprus' water management [30]. The prolongation of dry periods in the future may increase this risk; it may cause groundwater levels to dwindle and existing boreholes to dry out. At present, water availability for domestic water supply just matches the local demand (e.g. in Kato Moni). Besides excacerbating the existing risk of water scarcity, climate change also brings new risks to the region. A deterioration of water quality due to rising temperatures, for instance, poses a new problem. Furthermore, precipitation patterns may change in the near future, with extreme rain events being more likely, which implies higher flooding risks [31, 32].

Governance strengths have been identified in the different layers of the TLF, as regards droughts. Connected to the first layer, water governance in the Peristerona watershed is based on a good understanding of the water system. This is reflected in a strong institutional capacity in the second layer. According to the respondents, regional water governance is guided by a clear and legally embedded policy framework, in which roles and responsibilities for daily management have been defined and divided between different authorities. Furthermore, because key economic sectors, such as agriculture, tourism, environment and energy, depend on continuous water supply, there is strong inter-linkage between these sectors, which supports adaptation in the third layer.

These findings are different for the irrigation subdomain, which operates rather independently from the other policy sectors. Irrigation water supply is managed by local associations of landowners (called "irrigation divisions"), who regulate among themselves the allocation of water resources and share the abstraction costs for irrigation. While administrative and financial resources are less well organized, governance arrangements are characterized by a strong involvement of end-users (land owners), which facilitates the development of tailormade governance solutions.

Respondents also pointed to a number of weaknesses in water governance. The content of the policy framework is focused on the current situation, and does not sufficiently take into account potential long-term developments such as climate change. At the watershed level, daily management is largely based on empirical knowledge and solutions are based on insights about what works and does not work in practice. As such, adaptation remains focused on existing risks (i.e., frequent droughts) while new risks remain under-addressed. For new or exacerbated risks posed by climate change, it is not specified who is responsible for anticipating the impacts, who is responsible for taking precautionary measures (e.g., who will pay for the infrastructural improvements in the domestic water supply and irrigation networks) and emergency measures (e.g., who is responsible for ensuring the water supply in cases of prolonged drought) and who will carry the burden of potential negative consequences (e.g., higher drinking water prices, crop damages) caused by the impacts. To overcome the potential future risks, and clarify the roles and responsibilities of different actors and end-users in water management, governance arrangements need to be updated and revised.

at the national level, these links are lost in the translation of national-level objectives to sectoral water management plans at the regional level. This is problematic because sectors can provide constraints for the development of regional water management plans. For instance, improvements in irrigation are constrained by nature policy. Environmental and economic licensing procedures are sometimes conflicting and not well articulated. Links between sec-

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Without an intersectoral approach to climate change adaptation, different sectors have developed their own strategies to climate change adaptation. In the public water supply sector, the Regulatory Authority on Water and Waste Services (ERSAR) offers a number of effective policy instruments, including laws, strategic plans, financial arrangements, knowledge development and public awareness raising campaigns. The public water supply company (EPAL) has independently developed a risk management approach and implemented a set of techni-

Adaptation to climate change in the agricultural sector is more complex. Currently, there are public as well as private irrigation schemes, which results in a diversity of water management approaches. Consequently, this sector shows different levels and approaches to climate change adaptation. Despite these differences, respondents note that in general, the agriculture sector has made significant improvements in the products, techniques and technologies used to increase water use efficiency, combat the negative effects of fertilization and control plagues.

To improve adaptation governance in the lower Tagus transboundary river basin, several aspects can be reinforced. Most importantly, national water legislation in Portugal could benefit from simplification and harmonization. There is a good legal framework but there is a need to develop policies, strategies, means and mechanisms to implement measures at the regional level. While especially through sectoral initiatives, water management in Portugal is characterized by a good scientific and technical knowledge base, respondents in particular referred to the absence of a comprehensive policy for water use (in addition to resources management) to balance the claims of different stakeholders on the water resource in lower Tagus transboundary river basin.

Netherlands. The Veluwe features many different landscapes, including woodland, heath, some small lakes and Europe's largest sand drifts. Water abstractions provide ca. 2 million

The water system is vulnerable to droughts, which previously have led to a ban on overhead irrigation, a deterioration of water quality and insufficient good quality water for humans, nature and agriculture. Increasing droughts will have an effect on vegetation and soil composition, which will in turn influence groundwater replenishments. These effects are not

The Netherlands has a strong tradition in water policy. Emerged as a decentralized responsibility, with regional water boards being the oldest democratic institutions in the Netherlands, water management is now a top national priority. Water policy is well institutionalized, with

people with drinking water and further services industries, agriculture and nature.

) in the province of Gelderland in the

cal measures to deal with the risk of decreased water quality and quantity.

tors are very important in overcoming these constraints.

**3.3. The Netherlands, the Veluwe**

accounted for in current models.

The Veluwe is a forest-rich ridge of hills (1250 km<sup>2</sup>

#### **3.2. Portugal, the lower Tagus transboundary river basin**

The research site in Portugal focuses on the lower Tagus transboundary river basin. More than 3 million inhabitants and extensive areas of agriculture are served by its water resources. Water supply, agriculture and hydropower compete for water in a scenario that combines serious riverine and estuarine floods and droughts, and the potential for salt water intrusion from the Tagus estuary.

A governance strength in the lower Tagus transboundary river basin was identified in the Water Law that specifies the roles and responsibilities of different actors at different levels of governance. According to the respondents, roles and responsibilities are clearly defined through this law. For example, water management policies are developed and implemented by the national water authority (the APA) and similar organizations at basin district level.

While water governance in Portugal is backed by a legal framework and delegated to dedicated water agencies, respondents noted a focus on short-term priorities. The existing policy framework is oriented toward pollution control and emergency management, while little structural solutions are developed to deal with long-term quantity and quality decreases. Because of this, critical questions regarding the sustainable, balanced and equitable use of water in the future are not addressed. This concern was reinforced by the trend to outsourcing routine activities, which results in a high dependency on other (mainly academic) entities and limits the national administration's analysis skills.

In addition, the top-down character of water management in Portugal was seen to discourage stakeholders and end-users involvement. Citizens are often only involved in a late stage of the decision-making process, with short time to do so. Moreover, public consultation is generally directed to civil society and not targeted to specific sectors or stakeholders. As a result, awareness of the importance of climate change adaptation is not widespread among different water users and stakeholders.

Respondents also identified a gap between adaptation planning at the national level and the implementation of adaptation solutions in the region. While intersectoral linkages are made at the national level, these links are lost in the translation of national-level objectives to sectoral water management plans at the regional level. This is problematic because sectors can provide constraints for the development of regional water management plans. For instance, improvements in irrigation are constrained by nature policy. Environmental and economic licensing procedures are sometimes conflicting and not well articulated. Links between sectors are very important in overcoming these constraints.

Without an intersectoral approach to climate change adaptation, different sectors have developed their own strategies to climate change adaptation. In the public water supply sector, the Regulatory Authority on Water and Waste Services (ERSAR) offers a number of effective policy instruments, including laws, strategic plans, financial arrangements, knowledge development and public awareness raising campaigns. The public water supply company (EPAL) has independently developed a risk management approach and implemented a set of technical measures to deal with the risk of decreased water quality and quantity.

Adaptation to climate change in the agricultural sector is more complex. Currently, there are public as well as private irrigation schemes, which results in a diversity of water management approaches. Consequently, this sector shows different levels and approaches to climate change adaptation. Despite these differences, respondents note that in general, the agriculture sector has made significant improvements in the products, techniques and technologies used to increase water use efficiency, combat the negative effects of fertilization and control plagues.

To improve adaptation governance in the lower Tagus transboundary river basin, several aspects can be reinforced. Most importantly, national water legislation in Portugal could benefit from simplification and harmonization. There is a good legal framework but there is a need to develop policies, strategies, means and mechanisms to implement measures at the regional level. While especially through sectoral initiatives, water management in Portugal is characterized by a good scientific and technical knowledge base, respondents in particular referred to the absence of a comprehensive policy for water use (in addition to resources management) to balance the claims of different stakeholders on the water resource in lower Tagus transboundary river basin.

#### **3.3. The Netherlands, the Veluwe**

Respondents also pointed to a number of weaknesses in water governance. The content of the policy framework is focused on the current situation, and does not sufficiently take into account potential long-term developments such as climate change. At the watershed level, daily management is largely based on empirical knowledge and solutions are based on insights about what works and does not work in practice. As such, adaptation remains focused on existing risks (i.e., frequent droughts) while new risks remain under-addressed. For new or exacerbated risks posed by climate change, it is not specified who is responsible for anticipating the impacts, who is responsible for taking precautionary measures (e.g., who will pay for the infrastructural improvements in the domestic water supply and irrigation networks) and emergency measures (e.g., who is responsible for ensuring the water supply in cases of prolonged drought) and who will carry the burden of potential negative consequences (e.g., higher drinking water prices, crop damages) caused by the impacts. To overcome the potential future risks, and clarify the roles and responsibilities of different actors and end-users in

water management, governance arrangements need to be updated and revised.

The research site in Portugal focuses on the lower Tagus transboundary river basin. More than 3 million inhabitants and extensive areas of agriculture are served by its water resources. Water supply, agriculture and hydropower compete for water in a scenario that combines serious riverine and estuarine floods and droughts, and the potential for salt water intrusion

A governance strength in the lower Tagus transboundary river basin was identified in the Water Law that specifies the roles and responsibilities of different actors at different levels of governance. According to the respondents, roles and responsibilities are clearly defined through this law. For example, water management policies are developed and implemented by the national water authority (the APA) and similar organizations at basin district level.

While water governance in Portugal is backed by a legal framework and delegated to dedicated water agencies, respondents noted a focus on short-term priorities. The existing policy framework is oriented toward pollution control and emergency management, while little structural solutions are developed to deal with long-term quantity and quality decreases. Because of this, critical questions regarding the sustainable, balanced and equitable use of water in the future are not addressed. This concern was reinforced by the trend to outsourcing routine activities, which results in a high dependency on other (mainly academic) entities and

In addition, the top-down character of water management in Portugal was seen to discourage stakeholders and end-users involvement. Citizens are often only involved in a late stage of the decision-making process, with short time to do so. Moreover, public consultation is generally directed to civil society and not targeted to specific sectors or stakeholders. As a result, awareness of the importance of climate change adaptation is not widespread among different water

Respondents also identified a gap between adaptation planning at the national level and the implementation of adaptation solutions in the region. While intersectoral linkages are made

**3.2. Portugal, the lower Tagus transboundary river basin**

230 Achievements and Challenges of Integrated River Basin Management

limits the national administration's analysis skills.

from the Tagus estuary.

users and stakeholders.

The Veluwe is a forest-rich ridge of hills (1250 km<sup>2</sup> ) in the province of Gelderland in the Netherlands. The Veluwe features many different landscapes, including woodland, heath, some small lakes and Europe's largest sand drifts. Water abstractions provide ca. 2 million people with drinking water and further services industries, agriculture and nature.

The water system is vulnerable to droughts, which previously have led to a ban on overhead irrigation, a deterioration of water quality and insufficient good quality water for humans, nature and agriculture. Increasing droughts will have an effect on vegetation and soil composition, which will in turn influence groundwater replenishments. These effects are not accounted for in current models.

The Netherlands has a strong tradition in water policy. Emerged as a decentralized responsibility, with regional water boards being the oldest democratic institutions in the Netherlands, water management is now a top national priority. Water policy is well institutionalized, with a clear division of responsibilities among different governmental organizations, not only at the national but also at the regional level. The level of knowledge about water systems in general is high, and the Netherlands is leading in water research. Water policy is transparent, with sufficient information available to stakeholders and the public.

The Wupper Association is responsible for water management of all water bodies within the Wupper River Basin. As a public body, the Wupper Association performs its tasks in the public interest and for the benefit of its association members: town councils, local and district authorities, municipal water suppliers, and effluent disposal businesses, trade and industrial organizations in the catchment area of the Wupper River. Their contributions cover the costs of wastewater treatment with sewage sludge disposal, flood protection, managing water flow during dry periods (raising low water levels), water supply provision and maintenance and ecological development of rivers and streams. Close cooperation allows also for the identification of water management strategies. The Wupper Association operates 12 reservoirs, 11 wastewater treatment plants, numerous storm water tanks and flood control reservoirs.

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The confidence among the stakeholders to work together on climate change issues stands out as a strong suit for the Wupper region. This is in part because the personal relations and communications are well developed. Water policy in is well integrated with other policy fields, whereas land use planning is mentioned as a successful example. Also, the respondents feel that a wide range of tools is available to tackle current climate risks, such as floods. The professionals who deal with these issues have the right knowledge, skills and training to do so. In addition, the publication of official flood maps is thought to have actually reduced the stress on affected areas. Transparency is considered another strength. Stakeholders are informed about the regular conferences that are organized on water management and feel up to date

However, the Wupper region lacks a comprehensive, coordinated strategy to deal with future climate change. Some respondents mention the lack of a general strategy on climate change adaptation, others mention the lack of information exchange among stakeholders with regard to climate change adaptation, though personal relations and communication are well developed. For instance, building owners are insufficiently informed about their risks. This might be caused by a lack of knowledge about future climate change effects on the Wupper Basin whereas respondents point out that more reliable predictions of extreme weather events are missing. This also makes it hard to work on climate adaptation. Finally, the duration (2–5 years) and bureaucratic nature of the planning process is mentioned as a weakness.

The Wupper catchment area would benefit from a systematic inclusion of climate change adaptation in all layers of governance. For the content layer this means developing a general, coordinated strategy on climate change adaptation. This requires more specific knowledge about the future state of the climate in the Wupper Basin and the effects that it has on the different stakeholders (institutional layer). This knowledge then has to be implemented in mandatory guidelines (for instance, for urban planning) and clear strategic goals, including responsibilities, action plans and time lines. Also, respondents suggest to introduce a financ-

For the relational layer, the primary improvement would be the coordination of climate change adaptation among different stakeholders and different levels of government. This could be done by expanding the integrated planning approach for climate change adaptation, create better networks and comprehensively institutionalize the collaboration on climate change adaptation. One suggestion is to appoint a climate change officer to coordinate climate

ing scheme (through fees) specifically to finance climate adaptation.

change-related activities among the stakeholders.

about new problems and developments in this field.

There are three main concerns with regard to climate change adaptation at the Veluwe region. Firstly, there is insufficient knowledge about the impact of climate change at the Veluwe and how it will affect stakeholders.

As a consequence, secondly, climate change adaptation is overall not at the forefront of the debate. A National Adaptation Strategy was recently passed by the Dutch parliament but this strategy is not as powerful as the Second Delta Program that specifically deals with water management, as it lacks legislative and regulatory instruments. Despite the encouragement in the EU Climate Adaptation Strategy to develop a holistic vision to adaptation, such a vision is lacking in the Netherlands, which was also noted in an audit by the General Audit Chamber of The Netherlands. Because of this, it is difficult to convince stakeholders of the urgency of climate change adaptation. This makes coordinated efforts difficult, because stakeholders do not see the need disregard their own interest in favor of climate change adaptation.

Thirdly, water policy is, in practice, not very well integrated with other policy fields. Respondents indicate that a vision on the whole water system is lacking. The lacking integration of water policy with spatial planning is also reason for concern. This separation is strongest at the national level. There used to be a coordinated spatial planning in the Netherlands, but that is now more or less abandoned and left to lower levels of government. Instead of a long-term vision for the whole of the country, a more locally oriented problem solving approach is now dominant.

To improve the current situation, climate change research in the Netherlands should be expanded from water management to other sectors such as health care, ICT, and transport to obtain a broader risk assessment. At the national level, this is challenging, since government departments are highly specialized and often have opposing views and interests. At the regional and local level, this should be easier, because the effects of climate change become more tangible. Research such as the BINGO-project could lead to more knowledge and awareness of the impact of climate change at the Veluwe. These impacts can then be addressed as a shared challenge for the stakeholders and allow for more cooperation and coordination. This should be done based on a shared vision of the Veluwe in which different policy areas are integrated. Adaptation should not be incidental, but integrated into the regular operations in the area.

#### **3.4. Germany, the Wupper River basin**

The Wupper River Basin is located in the state of North-Rhine Westphalia, Germany, with an area of 813 km<sup>2</sup> and a population of approximately 950,000 inhabitants. The Wupper is an upland river with a length of about 115 km, rising in Marienheide-Börlinghausen (Oberbergischer Kreis district) and flowing into the Rhine River at the city of Leverkusen. The Wupper River and its many tributaries form a river network of ca. 2300 km. The Große Dhünn Reservoir – the second largest drinking water reservoir in Germany – is located within the Dhünn River catchment area, one of the main tributaries of the Wupper River.

The Wupper Association is responsible for water management of all water bodies within the Wupper River Basin. As a public body, the Wupper Association performs its tasks in the public interest and for the benefit of its association members: town councils, local and district authorities, municipal water suppliers, and effluent disposal businesses, trade and industrial organizations in the catchment area of the Wupper River. Their contributions cover the costs of wastewater treatment with sewage sludge disposal, flood protection, managing water flow during dry periods (raising low water levels), water supply provision and maintenance and ecological development of rivers and streams. Close cooperation allows also for the identification of water management strategies. The Wupper Association operates 12 reservoirs, 11 wastewater treatment plants, numerous storm water tanks and flood control reservoirs.

a clear division of responsibilities among different governmental organizations, not only at the national but also at the regional level. The level of knowledge about water systems in general is high, and the Netherlands is leading in water research. Water policy is transparent,

There are three main concerns with regard to climate change adaptation at the Veluwe region. Firstly, there is insufficient knowledge about the impact of climate change at the Veluwe and

As a consequence, secondly, climate change adaptation is overall not at the forefront of the debate. A National Adaptation Strategy was recently passed by the Dutch parliament but this strategy is not as powerful as the Second Delta Program that specifically deals with water management, as it lacks legislative and regulatory instruments. Despite the encouragement in the EU Climate Adaptation Strategy to develop a holistic vision to adaptation, such a vision is lacking in the Netherlands, which was also noted in an audit by the General Audit Chamber of The Netherlands. Because of this, it is difficult to convince stakeholders of the urgency of climate change adaptation. This makes coordinated efforts difficult, because stakeholders do

Thirdly, water policy is, in practice, not very well integrated with other policy fields. Respondents indicate that a vision on the whole water system is lacking. The lacking integration of water policy with spatial planning is also reason for concern. This separation is strongest at the national level. There used to be a coordinated spatial planning in the Netherlands, but that is now more or less abandoned and left to lower levels of government. Instead of a long-term vision for the whole of the country, a more locally oriented problem solving

To improve the current situation, climate change research in the Netherlands should be expanded from water management to other sectors such as health care, ICT, and transport to obtain a broader risk assessment. At the national level, this is challenging, since government departments are highly specialized and often have opposing views and interests. At the regional and local level, this should be easier, because the effects of climate change become more tangible. Research such as the BINGO-project could lead to more knowledge and awareness of the impact of climate change at the Veluwe. These impacts can then be addressed as a shared challenge for the stakeholders and allow for more cooperation and coordination. This should be done based on a shared vision of the Veluwe in which different policy areas are integrated. Adaptation should not be incidental, but integrated into the regular operations in the area.

The Wupper River Basin is located in the state of North-Rhine Westphalia, Germany, with

is an upland river with a length of about 115 km, rising in Marienheide-Börlinghausen (Oberbergischer Kreis district) and flowing into the Rhine River at the city of Leverkusen. The Wupper River and its many tributaries form a river network of ca. 2300 km. The Große Dhünn Reservoir – the second largest drinking water reservoir in Germany – is located within the

Dhünn River catchment area, one of the main tributaries of the Wupper River.

and a population of approximately 950,000 inhabitants. The Wupper

not see the need disregard their own interest in favor of climate change adaptation.

with sufficient information available to stakeholders and the public.

232 Achievements and Challenges of Integrated River Basin Management

how it will affect stakeholders.

approach is now dominant.

**3.4. Germany, the Wupper River basin**

an area of 813 km<sup>2</sup>

The confidence among the stakeholders to work together on climate change issues stands out as a strong suit for the Wupper region. This is in part because the personal relations and communications are well developed. Water policy in is well integrated with other policy fields, whereas land use planning is mentioned as a successful example. Also, the respondents feel that a wide range of tools is available to tackle current climate risks, such as floods. The professionals who deal with these issues have the right knowledge, skills and training to do so. In addition, the publication of official flood maps is thought to have actually reduced the stress on affected areas. Transparency is considered another strength. Stakeholders are informed about the regular conferences that are organized on water management and feel up to date about new problems and developments in this field.

However, the Wupper region lacks a comprehensive, coordinated strategy to deal with future climate change. Some respondents mention the lack of a general strategy on climate change adaptation, others mention the lack of information exchange among stakeholders with regard to climate change adaptation, though personal relations and communication are well developed. For instance, building owners are insufficiently informed about their risks. This might be caused by a lack of knowledge about future climate change effects on the Wupper Basin whereas respondents point out that more reliable predictions of extreme weather events are missing. This also makes it hard to work on climate adaptation. Finally, the duration (2–5 years) and bureaucratic nature of the planning process is mentioned as a weakness.

The Wupper catchment area would benefit from a systematic inclusion of climate change adaptation in all layers of governance. For the content layer this means developing a general, coordinated strategy on climate change adaptation. This requires more specific knowledge about the future state of the climate in the Wupper Basin and the effects that it has on the different stakeholders (institutional layer). This knowledge then has to be implemented in mandatory guidelines (for instance, for urban planning) and clear strategic goals, including responsibilities, action plans and time lines. Also, respondents suggest to introduce a financing scheme (through fees) specifically to finance climate adaptation.

For the relational layer, the primary improvement would be the coordination of climate change adaptation among different stakeholders and different levels of government. This could be done by expanding the integrated planning approach for climate change adaptation, create better networks and comprehensively institutionalize the collaboration on climate change adaptation. One suggestion is to appoint a climate change officer to coordinate climate change-related activities among the stakeholders.

#### **3.5. Norway, Bergen city**

Bergen is Norway's second largest city with 270,000 inhabitants. The city is located on the shadow of the mountain Løvstakken. Currently, the lower lying parts of the city, close to the sea, are going through a big transition where industrial areas are replaced by residential areas.

take appropriate adaptation measures based on the information they receive. To support such actions, Norway could greatly profit from its decentralized responsibility structure in water governance, where management guidelines are formulated at the national level to ensure equal starting conditions but which can be adapted to local conditions to support the development of effective regional solutions. At the level of Bergen city, respondents recommend to

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Badalona city is located along Spain's north-eastern coast. It belongs to the province of Barcelona, which lies in the region of Catalonia. Over the years, as the city of Barcelona extended its space claim, this megacity has grown onto Badalona and now it is part of the Barcelona Metropolitan Area. Badalona lies directly adjacent to the Mediterranean Sea, it is bordered by the Besos River in the west and surrounded by the steep Serra de la Marina Mountains in the northeast. The city covers over 21 square km with an altitude difference of almost 500 m running from the mainland down to the sea. It is one of the most densely populated cities in Catalonia with 220,000 inhabitants. Its almost 5 km of Mediterranean beaches offer a popular tourist destination. Together with income from commerce and shipping at the

Characterized by steep differences in altitude (high slopes in the upper parts and flat areas in the lower parts), Badalona is vulnerable to problems with drainage. Urban flash floods and combined sewage overflows (CSO's) already resulted in more than 125 million euros of claimed insurance damage in 1999 and present a major threat to water quality and tourism. Being a seafront city makes Badalona also susceptible to coastal flooding. In 2000, 80 million euros was claimed after a coastal flood. At the same time, the city faces risks related to periods of drought. Its water resources are limited and drought not only challenges the supply of water (scarcity) but also the quality of the water sources. Climate change may increase all these risks in Badalona city. One of the major strengths of the Badalona governance context is its strong and well-defined policy framework for water management. The policy framework covers all relevant aspects of water management. In each of these subdomains, existing problems are well known and the context is well understood. Policies therefore outline appropriate tasks to deal with these problems. Most respondents also feel that this policy framework is backed by a strong legal and administrative planning structure, with well-defined responsibilities for current water management tasks. In addition, technical knowledge about the current water system is also available to responsible parties. In Badalona, actors are aware of their responsibilities in water

management but not always have the resources (financial and technical) to act on this.

A major point of weakness in the Badalona governance context lies in its fragmented structure and incomplete funding, especially for urban drainage system. Responsibilities are clearly defined and assigned, but they are fragmented over different governance levels and actors and there is little oversight or monitoring on the sector as a whole. Because of this, some critical linkages between different subsectors of water management (e.g. sewer and beach management) are currently not made. Furthermore, existing water management practices are underpinned by an incomplete financial structure, because it lacks a municipal sewerage tax and also because financial contributions to water sanitation have been sharply reduced in recent years.

develop a strategic stormwater plan and include it in the municipal master plan.

harbor, tourism is an important economic driver of the city.

**3.6. Spain, Badalona city**

Known for its rainy climate, heavy precipitation loads pose a major threat to Bergen city. With a closed water system, the city is at risk of flash floods. In addition, because the sewer and stormwater system are not fully separated, there is a risk of CSO. The discharge of CSO's into the subjacent fjord Puddefjorden may cause risks to the health of people living close to the fjord and the environment that surrounds it. These risks can be exacerbated by more extreme weather conditions and sea level rise.

Key strengths of the Bergen governance context for adaptation lie first of all in the content layer of water governance. Information on water-related risks is well organized and much effort has been put in disseminating this information to local governance levels where the main responsibilities for water management are allocated. Second, in the institutional layer, responsibilities for water management are well-arranged, with general guidelines specified at the national level to ensure a basic quality, which can be tailored to local-level characteristics and needs by county and municipal governments. Third, in the relational layer of water governance, strong links have been created between water management and spatial planning.

Key weaknesses of the Bergen policy and governance context are threefold. First, the information on weather-related risks is based on historical data recordings. Less is known about the future conditions, and the threats these conditions pose on (the different regions in) Norway. Second, information that is available is not translated in the existing policy framework on water management. While information on climate-related impacts is increasingly collected and analyzed, this information is not linked to binding actions in official policy documents and laws on water management in Norway. Up to now, climate change adaptation is merely incorporated in strategic plans at all levels (white papers, master plans), but actual responsibilities for adapting to the impacts have not been assigned. Consequently, third, the actual implementation of adaptation solutions is difficult to realize. There is huge regional variation in adaptation governance throughout Norway and because of a lack of enforced implementation, the necessary links between water management and other sectors that are affected by climate change are not made. Because of this, opportunities to develop and implement effective integral solutions for climate change adaptation are currently missed.

In summary, there are three main governance needs (which are linked) to improve the organization of climate change adaptation in Bergen's policy and governance context. First, there is a need for better risk and vulnerability assessments that provide insight into the future risks climate change poses to the water system in Bergen. Second, adaptation policies need to be included in the policy framework on water management, especially for stormwater. While responsibilities for water management are decentralized in Norway, respondents identify a need to take on some responsibility for adaptation at the national level. At the national level, the Norwegian Water Resources and Energy Directorate could include adaptation governance in its guidelines for water management. Also, information about the impacts of climate change could be provided on a less voluntary basis, for example, by requiring communities to take appropriate adaptation measures based on the information they receive. To support such actions, Norway could greatly profit from its decentralized responsibility structure in water governance, where management guidelines are formulated at the national level to ensure equal starting conditions but which can be adapted to local conditions to support the development of effective regional solutions. At the level of Bergen city, respondents recommend to develop a strategic stormwater plan and include it in the municipal master plan.

#### **3.6. Spain, Badalona city**

**3.5. Norway, Bergen city**

234 Achievements and Challenges of Integrated River Basin Management

weather conditions and sea level rise.

Bergen is Norway's second largest city with 270,000 inhabitants. The city is located on the shadow of the mountain Løvstakken. Currently, the lower lying parts of the city, close to the sea, are going through a big transition where industrial areas are replaced by residential areas.

Known for its rainy climate, heavy precipitation loads pose a major threat to Bergen city. With a closed water system, the city is at risk of flash floods. In addition, because the sewer and stormwater system are not fully separated, there is a risk of CSO. The discharge of CSO's into the subjacent fjord Puddefjorden may cause risks to the health of people living close to the fjord and the environment that surrounds it. These risks can be exacerbated by more extreme

Key strengths of the Bergen governance context for adaptation lie first of all in the content layer of water governance. Information on water-related risks is well organized and much effort has been put in disseminating this information to local governance levels where the main responsibilities for water management are allocated. Second, in the institutional layer, responsibilities for water management are well-arranged, with general guidelines specified at the national level to ensure a basic quality, which can be tailored to local-level characteristics and needs by county and municipal governments. Third, in the relational layer of water governance, strong links have been created between water management and spatial planning.

Key weaknesses of the Bergen policy and governance context are threefold. First, the information on weather-related risks is based on historical data recordings. Less is known about the future conditions, and the threats these conditions pose on (the different regions in) Norway. Second, information that is available is not translated in the existing policy framework on water management. While information on climate-related impacts is increasingly collected and analyzed, this information is not linked to binding actions in official policy documents and laws on water management in Norway. Up to now, climate change adaptation is merely incorporated in strategic plans at all levels (white papers, master plans), but actual responsibilities for adapting to the impacts have not been assigned. Consequently, third, the actual implementation of adaptation solutions is difficult to realize. There is huge regional variation in adaptation governance throughout Norway and because of a lack of enforced implementation, the necessary links between water management and other sectors that are affected by climate change are not made. Because of this, opportunities to develop and implement effec-

In summary, there are three main governance needs (which are linked) to improve the organization of climate change adaptation in Bergen's policy and governance context. First, there is a need for better risk and vulnerability assessments that provide insight into the future risks climate change poses to the water system in Bergen. Second, adaptation policies need to be included in the policy framework on water management, especially for stormwater. While responsibilities for water management are decentralized in Norway, respondents identify a need to take on some responsibility for adaptation at the national level. At the national level, the Norwegian Water Resources and Energy Directorate could include adaptation governance in its guidelines for water management. Also, information about the impacts of climate change could be provided on a less voluntary basis, for example, by requiring communities to

tive integral solutions for climate change adaptation are currently missed.

Badalona city is located along Spain's north-eastern coast. It belongs to the province of Barcelona, which lies in the region of Catalonia. Over the years, as the city of Barcelona extended its space claim, this megacity has grown onto Badalona and now it is part of the Barcelona Metropolitan Area. Badalona lies directly adjacent to the Mediterranean Sea, it is bordered by the Besos River in the west and surrounded by the steep Serra de la Marina Mountains in the northeast. The city covers over 21 square km with an altitude difference of almost 500 m running from the mainland down to the sea. It is one of the most densely populated cities in Catalonia with 220,000 inhabitants. Its almost 5 km of Mediterranean beaches offer a popular tourist destination. Together with income from commerce and shipping at the harbor, tourism is an important economic driver of the city.

Characterized by steep differences in altitude (high slopes in the upper parts and flat areas in the lower parts), Badalona is vulnerable to problems with drainage. Urban flash floods and combined sewage overflows (CSO's) already resulted in more than 125 million euros of claimed insurance damage in 1999 and present a major threat to water quality and tourism. Being a seafront city makes Badalona also susceptible to coastal flooding. In 2000, 80 million euros was claimed after a coastal flood. At the same time, the city faces risks related to periods of drought. Its water resources are limited and drought not only challenges the supply of water (scarcity) but also the quality of the water sources. Climate change may increase all these risks in Badalona city.

One of the major strengths of the Badalona governance context is its strong and well-defined policy framework for water management. The policy framework covers all relevant aspects of water management. In each of these subdomains, existing problems are well known and the context is well understood. Policies therefore outline appropriate tasks to deal with these problems. Most respondents also feel that this policy framework is backed by a strong legal and administrative planning structure, with well-defined responsibilities for current water management tasks. In addition, technical knowledge about the current water system is also available to responsible parties. In Badalona, actors are aware of their responsibilities in water management but not always have the resources (financial and technical) to act on this.

A major point of weakness in the Badalona governance context lies in its fragmented structure and incomplete funding, especially for urban drainage system. Responsibilities are clearly defined and assigned, but they are fragmented over different governance levels and actors and there is little oversight or monitoring on the sector as a whole. Because of this, some critical linkages between different subsectors of water management (e.g. sewer and beach management) are currently not made. Furthermore, existing water management practices are underpinned by an incomplete financial structure, because it lacks a municipal sewerage tax and also because financial contributions to water sanitation have been sharply reduced in recent years.

A second major weakness is the focus of current water management practices on the existing situation. There is no structural consideration of the potential future changes and risks instigated by climate change in the governance context. This implies that no responsibilities and resources (financial, administrative and knowledge) are assigned to deal with these future risks, but also that if something goes wrong, no one can be held responsible and parties look at each other to provide a solution.

Regional policy frameworks for water management are usually backed by strong institutional arrangements. For the different subsectors of water management, tasks and responsibilities have been clearly outlined and allocated to different actors, at least formally. Overall, administrative resources are also well organized and tailored to these tasks. There is sufficient capacity to implement water management policies, there is sufficient monitoring capacity (e.g., on the price and quality of drinking water), Portugal being the only case where there is substantial concern about monitoring, and in most cases, water management is supported by an adequate financial structure that ensures a long-term and stable source of funding for

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existing water management practices, but not necessarily climate change adaptation.

ment and spatial planning are being developed.

ent aspects of the water system in different localities.

Because responsibilities for existing climate risks are well-defined and allocated, water management at the research sites is generally transparent and open to public inquiry. The existing organizations of water management therefore provide for a necessary amount of public accountability. Also, particularly in Germany and in Norway, links between water manage-

It should be noted that for the subdomains of irrigation and groundwater management, policy frameworks seem to be less well organized. In these subdomains, responsibilities are often unclear and sometimes overlap, and a good financial structure is not guaranteed. These subdomains tend to be characterized by a high degree of self-organization, which, on the positive

In addition to these governance strengths for adaptation to climate-related water risks across the six European regions under study, general governance weaknesses can also be identified. What stood out first from the analysis is that the policy contexts at the research sites insufficiently take future climate risks into account. Existing policies display a clear focus on contemporary challenges in water management. For example, droughts have always been a major problem in Cyprus, thus there are strong policies to deal with water shortages on the island. In the Dutch lowlands, floods and water quantity management have always been the highest priority. Because of this strong focus on present-day challenges, the future risks posed by climate change are insufficiently incorporated in existing policy frameworks. In Bergen city, for example, risks related to storm water are not yet addressed in the municipal policy framework. One of the causes underlying the strong focus on contemporary problems in regional water management connects to a lack of information about the regional impacts of climate change. While different actors are aware of climate change in general, the impacts are only understood on a global level and there is little data on how climate change affects differ-

As a consequence of the present-day focus in regional water management, climate adaptation policies in the BINGO regions tend to target historical risks. For example, in Cyprus climate change is mostly linked to increasing water scarcity and as a result, existing policies in this field are strengthened to deal with this increased risk. In the Netherlands, climate change adaptation is incorporated under the header of water management, while climate-related water quality and health risks remain untreated. At the same time, it should be noted that these adaptation policies remain highly strategic; the importance of adaptation is particularly

side, has positive effects on the degree of stakeholder participation in these domains.

Both weaknesses may actually reinforce each other. While climate change is a structural factor in national-level policy documents such as the National Hydrological Plan and the National Adaptation Plan, as well as in national-level initiatives such as the set-up of the OECC, these exertions do not easily trickle down to the regional and local level, where governmental fragmentation hinders cross-sectoral collaboration. With little monitoring and oversight, parties will continue to only operate within their limited set of responsibilities and risks that impact on the system as a whole will not be anticipated.

Three governance needs can be identified. First, there is a need for more knowledge about the impacts of climate change on the different subsectors of water management in Badalona and the water system as a whole. This would help to increase awareness about the possible detrimental effects on the water system and help to better anticipate these effects by developing new adaptation policies. Second, there is a need for more coordination in Badalona's water management. This coordination would not only help to create better links between the different subsectors of water management at different levels of governance (city, metropolitan and regional level), but also to establish important links between the water sector and other sectors, such as spatial planning. Third, there is a need for a new governance style that is anticipatory rather than reactive and for policy measures that target long-term developments rather than the existing situation. Increased awareness and better coordination could be the first steps to realize this change, together with the suitable funding framework that nowadays is not enough to cover all the necessities arising from the water cycle management, especially to those related to the urban drainage system.
