Climate policy learning and change in cities: the case of Hong Kong and its modest achievements

Abstract

The way in which policy is generated and travels between multiple levels of government and across state and non-state actors in the decision-making process has been the subject of considerable analytical attention in studies of public policy. Although studies of policy learning and change often include post-decision analysis, few focus on the process of learning and change as it unfolds. In line with their growing awareness of climate change and potential hazards, cities around the world are increasingly engaging in such climate policy learning and change. In response, this article develops an analytical framework to examine and possibly explain policy learning and change in cities, with the particular empirical focus being Hong Kong. The argument is that, although cities often build a knowledge-base to support climate mitigation and adaption policies, unless they are genuinely committed and create an institutional framework to sustain it, any effort to promote short and long-term climate change action or to build capacity and disseminate best practices is likely to have limited success.

Keywords:

• urban climate policy learning and change
• multiple streams framework
• advocacy coalitions
• Hong Kong

Acknowledgements

The research on which this article is based was supported by City University of Hong Kong Strategic Research Grant n.7002813 (SA). I would like to thank the anonymous reviewers for very helpful comments. Ian Scott, Philip Ivanhoe, George Busenberg, and Peter Hills provided me with insightful observations on earlier drafts and on climate learning in cities, all of which have greatly improved the arguments presented. The usual disclaimers apply.

Notes

1. There is no one methodology for determining the GHG emissions attributable to cities. Estimates differ depending on how the spatial and temporal contexts are defined (city boundaries) and whether a full-life cycle perspective is taken. Geophysical factors (climate, proximity of resources, status) and technical factors (power generation, urban design, and waste management) are often used to define the GHG emissions of cities.

2. The “one country, two systems” constitutional principle by which Hong Kong has been governed since 1 July 1997 and which was agreed on by the Chinese Government in the Sino-British Joint Declaration means that “the socialist system and policies will not be practiced in Hong Kong” (Basic Law, 1990, Preamble). Hong Kong’s core values, which are widely accepted by its citizens, include: the rule of law, protection of human rights, clean government, and freedom of press, speech and assembly.

3. A list of the interviewees and questions addressed are available from the author.

4. The level of emissions per capita has been maintained at around 6.5 tonnes, which is lower than that in developed economies such as the US (24 tonnes), the UK (11 tonnes), Japan and Singapore (9 tonnes). Emissions from imported goods, which in Hong Kong are the majority, are not accounted for.

5. Supply side measures are concerned with modifying the generation (eg., from fossil fuels to renewables), transmission and distribution of energy in order to cut emissions. On the other hand, demand side measures aim at modifying consumer demand for energy, allowing the consumer to control usage (eg., through smart grids), save money, and also cut emissions.