Muddling through with climate change targets: a multi-level governance perspective on the transport sector

Abstract

The UK Climate Change Act 2008 commits to a reduction of 80% in national GHG emissions by 2050 compared to 1990 levels. This article explores what happens next where these top-level aspirations are expected to be turned into radical action. It does so through examination of the transport sector, which is a highly complex, fragmented, and multi-level delivery environment. The research draws on cases studies of four major cities with different governance structures within the two distinct, yet connected, national contexts of England and Scotland. It integrates a range of theoretical legacies, namely ‘muddling through’, multi-level governance, and positional analysis, to look across governmental layers and out to non-governmental actors at all levels. Underneath the 80% target, the framework for action remains unclear. Lower-tiered authorities report difficulties in acting in a more comprehensive or rapid manner than upper tiers of government, largely because of the potential costs involved and a significant resource dependency on national governments. Ambition is also tempered by conflicts with economic growth objectives and the difficulties in aligning the objectives of the myriad of public and private organizations that need to take action.

Policy relevance

The transport sector is seen to be a difficult sector in which to achieve early cuts in carbon emissions. Understanding how to mobilize the many public- and private-sector actors in the transport sector is a key challenge to be addressed in many developed countries. This article provides practical insights from real decision makers about the difficulties that a slow incremental strategy creates. Whilst it builds flexibility into future decision making, it also leads to short-termism and generates uncertainty about investment and policy choices. This allows carbon policy to be crowded out by other agendas, most notably economic growth. Whilst there are aspirations for green growth strategies that grow jobs and substantially cut carbon, these remain elusive in the transport sector, with major new infrastructure often stimulating more carbon consumption. A clearer framework for carbon management is necessary if sound long-term mitigation policies are to be put in place.

Keywords:

• climate change
• incrementalism
• multi-level governance
• transport

Acknowledgements

We are grateful to the interviewees, Professors Iain Docherty and Tom Rye for their comments and the reviewers for their insightful feedback.

Funding

This research was funded by the Economic and Social Research Council (ESRC) as part of research grant ES/J007439/1 ‘Multi-Level Governance, Transport Policy and Carbon Emissions Management’.

Notes

1. Despite the hard language of ‘legally binding’, the Act does not include an enforcement mechanism and accountability is delivered through the establishment of an independent Committee and parliamentary scrutiny. See Hovi, Greaker, Hagem, and Holtsmark (2012) for further discussion of the challenges of designing target enforcement systems.

2. The stakeholder workshop reports can be found at www.its.leeds.ac.uk/transport-carbon.

3. Edinburgh benefits from part ownership of one of the two major bus companies and so has slightly greater influence on matters such as partnership working for the rapid adoption of new greener bus fleets.