Frame Divergence in Climate Change Adaptation Policy: Insights from Australian Local Government Planning

Abstract

Complex policy issues such as climate change adaptation can be interpreted in many different ways, resulting in different assumptions about their purpose and goals. Using material from a qualitative study in the Australian local government sector, this research shows that stakeholders involved in local adaptation policy formulation often do not have a shared view about the meaning and purposes of adaptation, although such shared understanding is commonly assumed in adaptation processes. Drawing on the frame-research literature and current conceptualisations of climate change adaptation, we argue that subconscious frame divergence can present a major challenge for effective organisational-level adaptation. Conversely, making frames and framing processes explicit is a first step towards clarifying adaptation goals and generating shared ownership of adaptation processes. While frames have been shown to be intrinsically subjective, we discuss three dominant frames that emerged from the study: avoiding disasters, community resilience, and averting organisational risk. We evaluate these in light of their theoretical origin and recent application towards climate change adaptation. Our research suggest that the ‘averting organisational risks' frame is by far the most commonly activated frame. Individuals working in the community services sector frequently referred to the ‘community resilience’ frame, while the ‘avoiding disasters frame’ was used in public and policy discourse to circumvent the arguments of those sceptical about the existence and causes of climate change. We suggest that, by incorporating frame reflexivity into existing adaptation planning processes, a more diverse range of policy options can be explored, delivering more effective adaptation policies.