Skip to main content

Advertisement

Log in

Legitimacy of urban climate change adaptation: a case in Helsinki

  • Original Article
  • Published:
Regional Environmental Change Aims and scope Submit manuscript

Abstract

While there is general agreement on the necessity for local adaptation, there is a wide range of different understandings of what type of adaptation is seen as legitimate. It is often contested who should actively steer and take part in local adaptation, for which reasons and based on what kind of mandate, and with which methods. Planning theory can serve as a helpful reference point for examining the sources of legitimacy for adaptation in an urban context. From a planning perspective, adaptation is concerned with climate change as one out of many issues planning has to respond to. The layered co-existence of planning paradigms in practice suggests diverse, sometimes contradictory sources of legitimacy for urban planning and—as we claim here—also for climate change adaptation. This study examines the legitimacy of adaptation from a planning theoretical perspective in Helsinki, drawing on semi-structured interviews and social network analysis to show how adaptation is commonly understood from a rationalist perspective as an apolitical activity with local authorities’ experts designing and implementing adaptation. Nevertheless, some of the central actors understand adaptation as a communicative activity and a common deliberation of solutions. The co-occurrence of disparate paradigms results in ambiguous legitimacy that can impede the successful implementation of local climate change adaptation.

This is a preview of subscription content, log in via an institution to check access.

Access this article

Price excludes VAT (USA)
Tax calculation will be finalised during checkout.

Instant access to the full article PDF.

Institutional subscriptions

Fig. 1

Similar content being viewed by others

Notes

  1. A concept borrowed from Hajer (2006).

  2. The interviews were conducted in Finnish. The quotations in the article have been translated by the authors.

  3. The discrepancy between the number of recipients and the number of actors in the roster of the questionnaire can be explained as follows: (1) the roster of the questionnaire included only “Public Works Department (PWD)”, but it was sent to representatives of two sub-departments of the PWD (PWD Administration Division and PWD Construction Management); (2) the roster of questionnaire included only “Real Estate Department (RED)”, but it was sent to representatives of two sub-departments of the RED (RED Premises Centre and RED Geotechnical Division); (3) the roster of questionnaire included only “Citizens” as generic group, but it was sent to two citizens’ associations (Mellunmäki citizens association and Viikki citizens association). These organisations are represented as separate nodes in the network illustration. The discrepancy between the answer options in the questionnaire and the network illustration might lead to an overrepresentation of the above mentioned groups.

References

  • Adger NW, Arnell NW, Tompkins EL (2005) Successful adaptation to climate change across scales. Glob Environ Change 15:77–86. doi:10.1016/j.gloenvcha.2004.12.005

    Article  Google Scholar 

  • Adger WN, Dessai S, Goulden M, Hulme M, Lorenzoni I, Nelson DR, Naess LO, Wolf J, Wreford A (2009) Are there social limits to adaptation to climate change? Clim Change 93:335–354. doi:10.1007/s10584-008-9520-z

    Article  Google Scholar 

  • Albrechts L (2004) Strategic (spatial) planning reexamined. Environ Plan B 31:743–758. doi:10.1068/b3065

    Article  Google Scholar 

  • Allmendinger P (2009) Planning theory. Palgrave MacMillan, Basingstoke

    Google Scholar 

  • Bäcklund P, Mäntysalo R (2010) Agonism and institutional ambiguity: ideas on democracy and the role of participation in the development of planning theory and practice-the case of Finland. Plan Theory 9:333–350. doi:10.1177/1473095210373684

    Article  Google Scholar 

  • Berkhout F (2012) Adaptation to climate change by organizations. Wiley Interdiscip Rev Clim Change 3:91–106. doi:10.1002/wcc.154

    Article  Google Scholar 

  • Biesbroek GR, Swart RJ, van der Knaap WGM (2009) The mitigation-adaptation dichotomy and the role of spatial planning. Habitat Int 33:230–237. doi:10.1016/j.habitatint.2008.10.001

    Article  Google Scholar 

  • Birkmann J, Garschagen M, Kraas F, Quang N (2010) Adaptive urban governance: new challenges for the second generation of urban adaptation strategies to climate change. Sustain Sci 5:185–206. doi:10.1007/s11625-010-0111-3

    Article  Google Scholar 

  • Brandes U (2001) A faster algorithm for betweenness centrality*. J Math Sociol 25:163–177. doi:10.1080/0022250X.2001.9990249

    Article  Google Scholar 

  • Burton P, Mustelin J (2013) Planning for climate change: Is greater public participation the key to success? Urban Policy Res 31:399–415. doi:10.1080/08111146.2013.778196

    Article  Google Scholar 

  • Carter JG, Cavan G, Connelly A, Guy S, Handley J, Kazmierczak A (2015) Climate change and the city: building capacity for urban adaptation. Prog Plan 95:1–66

    Article  Google Scholar 

  • Cashmore M, Wejs A (2014) Constructing legitimacy for climate change planning: a study of local government in Denmark. Glob Environ Change 24:203–2012. doi:10.1016/j.gloenvcha.2013.09.019

    Article  Google Scholar 

  • Commission European (2009) Adapting to climate change: towards a European framework for action, COM 2009/147. European Commission, Brussels

    Google Scholar 

  • Commission European (2013) EU Strategy on adaptation to climate change, COM 2013/216. European Commission, Brussels

    Google Scholar 

  • Dempwolf CS, Lyles LW (2012) The uses of social network analysis in planning: a review of the literature. J Plan Lit 27:3–21. doi:10.1177/0885412211411092

    Article  Google Scholar 

  • Dessai S, Hulme M (2004) Does climate adaptation policy need probabilities? Clim Policy 4:107–128. doi:10.1080/14693062.2004.9685515

    Article  Google Scholar 

  • Dowd A, Marshall N, Fleming A, Jakku E, Gaillard E, Howden M (2014) The role of networks in transforming Australian agriculture. Nat Clim Change 4:558–563. doi:10.1038/nclimate2275

    Article  Google Scholar 

  • Felli R, Castree N (2012) Neoliberalising adaptation to environmental change: foresight or foreclosure? Environ Plan A 44:1–4. doi:10.1068/a44680

    Article  Google Scholar 

  • Forester J (1982) Planning in the face of power. J Am Plan Assoc 48:67–80. doi:10.1080/01944368208976167

    Article  Google Scholar 

  • Forester J (1993) Critical theory, public policy, and planning practice: toward a critical pragmatism. State University of New York Press, Albany

    Google Scholar 

  • Gasper D (1996) Analysing policy arguments. In: Apthorpe RJ, Gasper D (eds) Arguing development policy: frames and discourses. Frank Cass, London, pp 36–63

    Google Scholar 

  • Haapala A, Järvelä E (2014) Helsingin ilmastonmuutokseen sopeutumisen toimenpiteiden priorisointi, 11. Helsingin kaupungin ympäristökeskus, Helsinki

    Google Scholar 

  • Habermas J (1984) The theory of communicative action, vol I. Beacon, Boston

    Google Scholar 

  • Hajer MA (2006) Doing discourse analysis: coalitions, practices, meaning. In: van den Brink M, Metze T (eds) Words matter in policy and planning—discourse theory and method in social sciences, Netherlands Geographical, Studies edn. Koninklijk Nederlands Aardrijkskundig Genootschap, Utrecht, pp 65–74

    Google Scholar 

  • Harman BP, Taylor BM, Lane MB (2015) Urban partnerships and climate adaptation: challenges and opportunities. Curr Opin Environ Sustain 12:74–79. doi:10.1016/j.cosust.2014.11.001

    Article  Google Scholar 

  • Healey P (1997) Collaborative planning: shaping places in fragmented societies. MacMillan Press, London

    Book  Google Scholar 

  • Healey P (2006) Urban complexity and spatial strategies: towards a relational planning for our times. Routledge, New York

    Google Scholar 

  • Hillier J (2002) Shadows of power: an allegory of prudence in land-use planning. Routledge, London

    Google Scholar 

  • Hillier J (2003) Agon’izing over consensus: why habermasian ideals cannot beReal’. Plan Theory 2:37–59. doi:10.1177/1473095203002001005

    Article  Google Scholar 

  • HSY - Helsinki Region Environmental Services Authority (2012) Pääkaupunkiseudun ilmastonmuutokseen sopeutumisen strategia. HSY, Helsinki

    Google Scholar 

  • Hunt A, Watkiss P (2011) Climate change impacts and adaptation in cities: a review of the literature. Clim Change 104:13–49. doi:10.1007/s10584-010-9975-6

    Article  Google Scholar 

  • Hurlimann AC, March AP (2012) The role of spatial planning in adapting to climate change. Wiley Interdiscip Rev Clim Change 3:477–488. doi:10.1002/wcc.183

    Article  Google Scholar 

  • Hytönen J (2014) The problematic relationship of communicative planning theory and the Finnish legal culture. Plan Theory. doi:10.1177/1473095214549618

    Google Scholar 

  • Innes JE, Booher DE (2010) Planning with complexity: an introduction to collaborative rationality for public policy. Routledge, New York

    Google Scholar 

  • Juhola S (2013) Adaptation to climate change in the private and the third sector: case study of governance of the Helsinki Metropolitan region. Environ Plan C Gov Policy 31:911–925. doi:10.1068/c11326

    Article  Google Scholar 

  • Keskitalo ECH, Juhola S, Westerhoff L (2012) Climate change as governmentality: technologies of government for adaptation in three European countries. J Environ Plan Manage 55:435–452. doi:10.1080/09640568.2011.607994

    Article  Google Scholar 

  • Lehmann P, Brenck M, Gebhardt O, Schaller S, Süßbauer E (2013) Barriers and opportunities for urban adaptation planning: analytical framework and evidence from cities in Latin America and Germany. Mitig Adapt Strateg Global Change 20:75–97. doi:10.1007/s11027-013-9480-0

    Article  Google Scholar 

  • Lehtonen S, Luoma S (2006) Incorporating sea level rise scenarios in Helsinki City planning. Spec Pap Geol Surv Finl 41:83–94

    Google Scholar 

  • Lindblom CE (1959) The science of” muddling through”. Public Adm Rev. doi:10.2307/973677

    Google Scholar 

  • Lindblom CE (1965) The intelligence of democracy: decision making through mutual adjustment. Free Press, New York

    Google Scholar 

  • Lonkila K (2012) Aspects of strategic climate work in Nordic municipalities: NordLead Project Final Report. Nordic Council of Ministers, Copenhagen

  • Lund DH, Sehested K, Hellesen T, Nellemann V (2012) Climate change adaptation in Denmark: enhancement through collaboration and meta-governance? Local Environ 17:613–628. doi:10.1080/13549839.2012.678318

    Article  Google Scholar 

  • Mäntysalo R, Saglie I (2010) Private influence preceding public involvement: strategies for legitimizing preliminary partnership arrangements in urban housing planning in Norway and Finland. Plan Theory Pract 11:317–338. doi:10.1080/14649357.2010.500123

    Article  Google Scholar 

  • Mäntysalo R, Saglie I, Cars G (2011) Between input legitimacy and output efficiency: defensive routines and agonistic reflectivity in Nordic land-use planning. Eur Plan Stud 19:2109–2126. doi:10.1080/09654313.2011.632906

    Article  Google Scholar 

  • Manuel-Navarrete D, Pelling M, Redclift M (2011) Critical adaptation to hurricanes in the Mexican Caribbean: development visions, governance structures, and coping strategies. Glob Environ Change 21:249–258. doi:10.1016/j.gloenvcha.2010.09.009

    Article  Google Scholar 

  • Marttila V, Granholm H, Laanikari J, Yrjölä T, Aalto A, Heikinheimo P, Honkatuki J, Järvinen H, Liski J, Merivirta R, Paunio M (2005) Finland’s national strategy for adaptation to climate change. Ministry of Agriculture and Forestry, Helsinki

  • Matthews T (2013) Institutional perspectives on operationalising climate adaptation through planning. Plan Theory Pract 14:198–210. doi:10.1080/14649357.2013.781208

    Article  Google Scholar 

  • McAllister RR, McCrea R, Lubell MN (2013) Policy networks, stakeholder interactions and climate adaptation in the region of South East Queensland, Australia. Reg Environ Change. doi:10.1007/s10113-013-0489-4

    Google Scholar 

  • Mees HL, Driessen PP, Runhaar HA (2012) Exploring the scope of public and private responsibilities for climate adaptation. J Environ Policy Plan 14:305–330. doi:10.1080/1523908X.2012.707407

    Article  Google Scholar 

  • Mees HL, Driessen PP, Runhaar HA (2014) Legitimate adaptive flood risk governance beyond the dikes: the cases of Hamburg, Helsinki and Rotterdam. Reg Environ Change 14:671–682. doi:10.1007/s10113-013-0527-2

    Article  Google Scholar 

  • Moser SC, Ekstrom JA (2010) A framework to diagnose barriers to climate change adaptation. Proc Natl Acad Sci 107:22026–22031. doi:10.1073/pnas.1007887107

    Article  CAS  Google Scholar 

  • Mouffe C (2000) The democratic paradox. Verso, London

    Google Scholar 

  • Naess LO, Bang G, Eriksen S, Vevatne J (2005) Institutional adaptation to climate change: flood responses at the municipal level in Norway. Glob Environ Change 15:125–138. doi:10.1016/j.gloenvcha.2004.10.003

    Article  Google Scholar 

  • Nyman K, Mäntysalo R (2014) Patologisia piirteitä maankäyttö—ja rakennuslain sovelluksissa: tapaus Savonlinnan Kasinonsaari. Kunnallistieteellinen aikakauskirja 42:324–329

    Google Scholar 

  • Parry ML, Canziani OF, Palutikof JP, van der Linden PJ, Hanson CE (2007) Contribution of working group II to the fourth assessment report of the intergovernmental panel on climate change. Cambridge University Press, Cambridge

    Google Scholar 

  • Pløger J (2004) Strife: urban planning and agonism. Plan Theory 3:71–92. doi:10.1177/1473095204042318

    Article  Google Scholar 

  • Rauken T, Mydske PK, Winsvold M (2014) Mainstreaming climate change adaptation at the local level. Local Environ. doi:10.1080/13549839.2014.880412

    Google Scholar 

  • Rein M (1983) Value-Critical Policy Analysis. In: Callahan D, Jennings B (eds) Ethics, the social sciences and policy analysis. Plenum, New York, pp 83–112

    Chapter  Google Scholar 

  • Sager TØ (2012) Reviving critical planning theory: dealing with pressure, neo-liberalism, and responsibility in communicative planning. Routledge, London

    Google Scholar 

  • Scharpf FW (1999) Governing in Europe: effective and democratic?. Oxford University Press, Oxford

    Book  Google Scholar 

  • Simon HA (1979) Päätöksenteko ja hallinto (Administrative Behaviour), trans. Pirkko Rajala. Weilin+Göös, Espoo

  • Storbjörk S (2010) ‘It takes more to get a ship to change course’: barriers for organizational learning and local climate adaptation in Sweden. J Environ Policy Plan 12:235–254. doi:10.1080/1523908X.2010.505414

    Article  Google Scholar 

  • Taylor N (1998) Urban planning theory since 1945. Sage Publications Limited, London

    Google Scholar 

  • Tennekes J, Driessen PP, van Rijswick HF, van Bree L (2013) Out of the comfort zone: institutional context and the scope for legitimate climate adaptation policy. J Environ Policy Plan 16:241–259. doi:10.1080/1523908X.2013.836961

    Article  Google Scholar 

  • Toikka A (2010) Exploring the composition of communication networks of governance—a case study on local environmental policy in Helsinki, Finland. Environ Policy Gov 20:135–145. doi:10.1002/eet.532

    Article  Google Scholar 

  • van Buuren A, Driessen P, Teisman G, van Rijswick M (2014) Toward legitimate governance strategies for climate adaptation in the Netherlands: combining insights from a legal, planning, and network perspective. Reg Environ Change 14:1021–1033. doi:10.1007/s10113-013-0448-0

    Google Scholar 

  • Wasserman S, Faust K (1994) Social network analysis in the social and behavioral sciences. Cambridge University Press, Cambridge

    Book  Google Scholar 

  • Wejs A, Harvold K, Larsen SV, Saglie I (2013) Legitimacy building in weak institutional settings: climate change adaptation at local level in Denmark and Norway. Environ Polit 23:490–508. doi:10.1080/09644016.2013.854967

    Article  Google Scholar 

  • Wilson E (2006) Adapting to climate change at the local level: the spatial planning response. Local Environ 11:609–625. doi:10.1080/13549830600853635

    Article  Google Scholar 

  • Yrjölä T, Viinanen J (2012) Keinoja ilmastonmuutokseen sopeutumiseksi Helsingin kaupungissa, 2/2012. Helsingin kaupunki Ympäristökeskus, Helsinki

    Google Scholar 

Download references

Acknowledgments

The preparation of this publication has been supported by the Norden Top-level Research Initiative sub-programme “Effect Studies and Adaptation to Climate Change” through the Nordic Centre of Excellence for Strategic Adaptation Research (NORD-STAR). We would like to thank: Mia Landauer, who conducted the interviews jointly with Johannes Klein; Arho Toikka, who provided valuable comments for the design of the network questionnaire; the colleagues at Land Use Planning and Urban Studies group for the discussions about legitimacy; the two anonymous reviewers for their helpful comments.

Author information

Authors and Affiliations

Authors

Corresponding author

Correspondence to Johannes Klein.

Additional information

Editor: James D. Ford.

Electronic supplementary material

Below is the link to the electronic supplementary material.

Supplementary material 1 (PDF 19 kb)

Rights and permissions

Reprints and permissions

About this article

Check for updates. Verify currency and authenticity via CrossMark

Cite this article

Klein, J., Mäntysalo, R. & Juhola, S. Legitimacy of urban climate change adaptation: a case in Helsinki. Reg Environ Change 16, 815–826 (2016). https://doi.org/10.1007/s10113-015-0797-y

Download citation

  • Received:

  • Accepted:

  • Published:

  • Issue Date:

  • DOI: https://doi.org/10.1007/s10113-015-0797-y

Keywords

Navigation