Book Review: Climate Pragmatism (Rightful Place of Science Series) –
edited by Jason Lloyd, Daniel Sarewitz, Ted Nordhaus, and Alex Trembath (2017 -
Consortium for Science, Policy, and Outcomes, Arizona State University
This is a great book by several contributors and the
pragmatic environmentalists of the think tank Breakthrough Institute. The focus
is threefold: 1) the importance of energy access for those in developing
countries, 2) energy innovation - in both fossil energy and clean/renewable
energy, 3) adaptation to potential climate threats from extreme weather and
other sources.
The Breakthrough Institute advocates new climate,
environmental, and energy policies that balance the needs of human development
and climate change mitigation. Human development is primary, climate change
mitigation secondary they argue. They also argue that adequate human
development leads to better ability of societies to mitigate climate change and
adapt to it. Climate change discourse had reached a level where in developing
countries the perceived needs of mitigation were hampering efforts at quick,
sufficient, and affordable energy access. An ‘either/or’ narrative between
development and climate protection had developed.
Climate pragmatism is an approach focused on practical solutions
rather than being problem-centric like previous environmental approaches. Near,
mid, and long-term solutions are all examined in the model. It ditches the
good/bad dichotomy for one of practical/impractical. Ted Nordhaus notes that
human development requires not just energy access but modern levels of energy
consumption. One end result of that is better overall resilience including
better resilience to the effects of climate change, which he calls a ‘co-benefit’
of better living standards. Another co-benefit would be better ability to
mitigate climate change. He praises the structure of the Paris agreement where
individual countries made pledges that they would work toward decarbonization
rather than getting binding agreements with everything tied to specific
emissions reductions for each country. He favors human development as the
center of policy rather than the environment. The authors favor technological
approaches to human problems rather than anti-technological ones sometimes
favored by other environmentalists. They like the Paris agreement because they
see it as a more optimistic approach different than the squabbling
disagreements of past climate conferences. Nordhaus defines the extremes as
those like 350.org and others who want to keep emissions at levels which keep
Temps from climbing 1.5 deg C and those like the Trump administration officials
who do not even see climate change as a viable issue. They think CO2 will
likely go higher than 450 ppm and temps will likely go higher than 2 deg C and
realizing that we should focus more on adaptation. They also argue against
seeing any of those numbers as red lines not to be crossed as uncertainties
still abound.
The first section deals with energy access:
“Access to affordable and reliable energy is a prerequisite
for human development.”
For many in the world such access has been and continues to
be a way out of poverty and poor health. It also fosters education and empowers
people in myriad ways. In addition to energy access another requirement is
energy equity, or access to an equivalent relative amount of energy as in industrialized
countries. This also requires and fosters economic growth. If too much focus is
put on mitigating climate change through emissions requirements in these
efforts towards energy access and modernization then those developing countries
get short-changed, as in some UN initiatives that have been inadequate.
In a nutshell:
“… all humans deserve access to sufficient energy services
to achieve the quality of life currently enjoyed by people in economically
developed regions of the world. A high-energy planet with universal access to affordable,
cleaner, and plentiful energy is the most practical way to secure this
socioeconomic development while ensuring environmental protection.”
Economic productivity and social well-being have co-evolved
and will continue to do so, even though there may be some potential decoupling in
affluent developed countries. Energy access and economic productivity correlate
to longer lifespans and better health. They note that today (2017) the poorest
75% of the global population uses just 10% of global energy. Over a billion
people lack access to electricity, nearly half of them in sub-Saharan Africa.
Somewhere near 3 billion people cook over toxic fires made with wood, dung,
coal, or charcoal, often indoors where the health consequences are far worse.
It is estimated that this leads to 2 million premature deaths annually around
the world as well as millions of cases of childhood lung diseases and
pneumonia. They are fire hazards. It increases deforestation. Incidentally, the
US State Department under Hillary Clinton initiated a program of providing
access to safer cooking methods: safer wood, biomass, and propane stoves to
impoverished countries around the world. This program was recently nixed by the
new administration.
Urbanization encourages expanded energy access and energy innovation.
Urbanization has been growing steadily throughout the world and continues.
Higher population densities lead to more efficient societies with lower per
capita energy requirements. Rural electrification is also important although
less efficient. Overall rural populations are shrinking. Urban and rural energy
needs and requirements differ. They argue that urban electrification should be
prioritized over rural electrification in most circumstances since more people
will be served faster. More people need adequate and safe electricity in the
sprawling urban slums more than do in rural areas which have often been the past
focus – or at least the archetypal image of energy poverty.
Energy access is a public good and modernizing energy
systems is a part of that access, they argue. Public participation with private
utilities is required in modernizing energy systems. Electric grids are public/private
partnerships. There are many different structures to such partnerships with
varying levels of public and private components. Guaranteed profits are
balanced with the need to provide inexpensive energy for consumers in some
manifestations. Others are varying levels and types of monopolies. Loan
guarantees, tariff structuring, legislative support, and incentives for some
types of energy are other tools. Brazil, Indonesia, and Vietnam have vastly increased
energy access through public/private partnership. This has led to higher
standards of living among the poor in those countries.
Transitioning from biomass to electricity and hydrocarbons
for cooking decreases pollution, carbon emissions, and deforestation. UN
initiative insistent on energy access and transitioning in developing countries
being as low-carbon as possible slows down such transitions since low-carbon technologies
cost more and are less reliable. Thus, they argue, energy access and
transitions should prioritize the lowest cost solutions over the lowest carbon
ones. Government and private partnerships for electrification in Africa have been
inadequate as very minimal amounts of electricity were deemed enough in some
initiatives but are far lower than per capita consumption in developed
countries. Thus, they are generally inadequate to really modernize energy
systems. Barebones access to a few lights, a fan, and a few hours of radio is obviously
not akin to modernized energy availability. Any new systems need to take into
account that their consumers’ energy needs will grow and so the systems need to
be scalable. Adequate base load electricity should be sought. In addition to
households, energy is required for manufacturing, agriculture, and transportation
as well as facilities like hospitals and schools. Those areas need long-term
electrification strategies with scalability.
“On-demand grid electricity capable of powering commercial
agriculture, modern factories, and megacities in the developing world will
drive energy and development strategies for the foreseeable future.”
They point out that energy innovations often happen where
and when new energy systems are being deployed, from the upstream development
of technologies like hydraulic fracturing and horizontal drilling for
unconventional gas & oil resources in the 1990’s to current and the increasing
of capacity factors in nuclear plants back in the 1970’s. These led to
decreased carbon emissions in the case of the hydrocarbons and lower cost for
nuclear at that time – although these days nuclear is very often in uneconomic
territory compared to other energy sources. Thus, they argue, the expansion of
energy access may lead to more innovation. China is an example. The authors
claim that they have developed the lowest cost carbon capture and storage tech
for coal plants as well as low-cost hydroelectric models. I am a bit skeptical
on those numbers but agree places like China and India are ripe for innovation,
especially as there are many energy innovation partnerships with the U.S. and
Europe. The authors also highlight that energy access and transitions need to
be context-appropriate. For instance, countries with significant coal reserves
would be expected to utilize coal as it is cheap if produced domestically.
The authors advocate for a high-energy rather than a
low-energy climate policy. Human development needs trump decarbonization needs,
especially for the developed world. With urbanization and innovation happening
in tandem with expanded energy access that process will be optimized for human
development and secondarily for decarbonization. Environmental protection and
climate mitigation become consumer concerns after initial basic energy and
development needs are met. They argue that energy abundance and energy equity
are moral imperatives. They argue in favor of a high-energy development model
rather than low-energy development as some have proposed.
As energy use increases in developing countries there will
be positive effects like moving away from dung, wood, and charcoal fires and
negative effects like increased urban air pollution and more atmospheric CO2. The
authors note that innovation tends to occur where there is the most demand
growth for new technologies. They advocate international collaboration in
energy innovation rather than competition. Competition among solar panel
manufacturers led to problems for Western manufacturers as China came out
clearly as the lowest cost producer of panels. Trade disputes over solar panel
manufacture in the early 2010’s did cause problems for American and other
Western manufacturers but the free market approach left China as the lowest
cost producer and allowed more people to go solar. The decision currently
before the Trump administration to put tariffs on Chinese panels will only
theoretically help a couple U.S. companies and make going solar more expensive
for everyone. The focus should rather be on (as it has) making sure Chinese
panels are up to quality specs and environmental standards. Innovation tends to
happen where technology is most employed so developing countries will likely
see the most innovation.
Clean energy innovation is happening but so is fossil fuel
innovation, particularly with natural gas and oil. In terms of cost natural gas
is still much cheaper. A 2014 analysis by the Center for Global Development
compared renewables only vs. natural gas only energy access for sub-Saharan
Africa and found that natural gas could provide energy for 3-4.5 times the
amount of people than could renewables alone at comparable cost. Why should the
dangers of climate change force renewables instead of gas to provide energy for
far less people? Of course, there could also be some combination of both
technologies. The sunk costs of large centralized power plants in developed
countries leave little incentive for innovation since they are banking on time
to recoup the initial costs. Of course, each individual country has its reasons
for their own energy paths. Defense concerns led to nuclear power development.
Desire for a low-carbon economy led Germany and Denmark to go strongly wind and
solar. Desire for energy independence (from OPEC and Qatar in the case of the
U.S.) led to the R & D that resulting in the fracking revolution. Energy
independence was also a factor in France and Sweden going nuclear. Energy
consumption is not expected to grow much in OECD countries but quite a bit in
non-OECD countries. They note that the fracking revolution occurred in the U.S.
because the infrastructure, the equipment, the leasing policies, and the
research was all in-place for a seamless transition. They refer to it as a “locked-in”
energy system with “path dependency” – pipelines, power plants, electricity grid,
etc. – and see this as a feature of some developed countries but virtually no
developing countries. For developing countries fossil fuels are still largely
more efficient than renewables albeit renewables are also being deployed
knowing that they will continue to come down in price and innovations are
likely. Most projections into the future still see fossil fuels as outpacing
renewables in new energy development. China is strongly investing in clean
energy – for competitive advantage, to alleviate pollution growth, and as a
means to keep up an “all-of-the-above” strategy that incorporates energy
diversity.
Development of four technology streams is recounted: shale
gas, nuclear, carbon capture and sequestration, and solar PV. For each of these
technologies there are global maps in the book but due to the small format of
the book the lettering is very small as well as fuzzy so a complaint here.
They trace the development of hydraulic fracturing from its
inception in the 1940’s to the boom of high-volume hydraulic fracturing
combined with horizontal drilling that took off beginning around 2006 and in
about 10 years became the dominant source of oil & gas and overall energy
in the U.S. at the same time dropping U.S. carbon emissions to levels two
decades past mainly through replacement of coal plants with natural gas plants.
Other countries are as of yet unripe for such developments although a few are
readying up: Argentina, China, Mexico, U.K, and Canada – although each of those
countries yet have hurdles that the U.S. didn’t have. For example, China has
poor pipeline infrastructure for gas, lack of available freshwater in the main
fracking areas, and some geological issues. Progress has been very slow
globally compared to the U.S. where further developments to keep natural gas,
oil, and natural gas liquids cheap and widely available continue to improve.
Although the Breakthrough Institute folks really like
nuclear it is the cost that is most problematic with it. They predict most
nuclear energy growth in the coming decades in China, South Korea, and the
Middle East with U.S. and European firms collaborating. New coolant and fuel
designs are being explored in some of these projects. Molten Salt reactors and
traveling-wave reactors utilizing spent fuel are a couple designs being
explored. Russia is exporting sodium-cooled fast reactor designs they have been
using since the 1980’s. There are plans to construct one in China. In contrast,
Germany has been decommissioning their nuclear plants in response to the Fukushima
disaster.
2014 studies indicate that China by 2030 will consume more
electricity than all OECD countries combined and 83% of that electricity will
come from coal. With more recent commitments to explore cleaner energy
alternatives those numbers will likely drop a bit but still represent a massive
growth of coal burning. Carbon capture and sequestration (CCS) projects are in
progress in many places in the world with varying levels of success. Those with
economic incentives like enhanced oil recovery (EOR) through CO2 flooding are
more economically successful, such as the Petro Nova project in Texas. The
Kemper project in Mississippi was recently abandoned due to cost overruns. U.S.
companies are involved in CCS projects in China as well. China has a bigger immediate
incentive to reduce air pollution than carbon emissions although CCS can do
both. CCS deployment beyond the current pilot projects is still largely up in the
air. Countries with energy poverty are more concerned with providing cheap
energy than with climate mitigation. One issue is that CCS costs so much that
it is hardly competitive against wind and solar let alone natural gas. Really,
the future of CCS is unknown but it is very likely that it won’t play a major
part in climate mitigation due to cost. Wide acceptance of carbon costing could
enhance its deployment.
Solar photovoltaics continue to come down in cost but
compared to fossil fuels are quite expensive and provide lower amounts of intermittent
and unreliable energy. With storage mainly as lithium-ion battery banks solar
PV tech is more reliable but the batteries also significantly increase the
cost. It is still not close to being competitive although it can be quite
useful for niche applications like off-grid capability and microgrid deployment
(typically combined with other energy sources) for applications that require uninterrupted
power. As more large (>100 MW) solar power plants get built their
capabilities, economics, and long-term prospects can be better evaluated. If
solar (and wind) penetration on the electric grids grow there is the issue of
overgeneration during sunny (and windy) hours and what to do with the excess energy
which adds additional costs either through storing and converting the excess,
exporting it, or simply losing it. Thin-film and organic PV are two research
trends that may yield better and cheaper solar power at some point in the
future but the speed and future effectiveness of solar innovation is still
uncertain. The same is true for battery storage and other forms of energy
storage.
The authors assert that clean energy and clean energy
innovation should be acknowledged as a public good and that responsibility for
its development should be shared among nations. Global collaboration is the
best way to enhance a public good as history shows.
Private-public-philanthropic partnerships are a main way forward. Energy
innovation is not cheap and requires society-level funding. Elon Musk collected
over $500 million in taxpayer subsidies for the Tesla Model S as well as the
technology benefitting from billions invested by governments for EV research over
the years. Even fracking and the unlocking of shale gas (and oil) involved initial
government research that was invaluable – the Eastern Gas Shales Project and
Western Gas Shales Project of the DOE in the 1980’s and further DOE research
was instrumental. Thus shale fracking can be seen as a successful
public-private partnership that has led to very significant carbon emissions
reductions, much cheaper energy, employment, and very significant improvement
in air quality. The China-U.S. collaboration on nuclear plants in China with
salt-cooled reactors is also a very important partnership with climate
mitigating possibilities. Philanthropic input can be referenced to the Green
Revolution in agriculture where much of it was funded by research through the
Rockefeller and Ford foundations. These days the Bill and Melinda Gates
foundation is highly invested in energy innovation as well as innovation to
develop solutions for many human problems. Philanthropic input transcends
geographic boundaries and works on long timelines.
Adaptation is the last of the three focuses. The authors
believe we have largely neglected to focus on adaptation to events precipitated
and influenced by climate change. I think one problem specific to the U.S. is
that adaptation is often depicted strictly as adaptation to climate change
rather than adaptation to extreme weather and climatic events regardless of
cause. This is problematic here because climate change is a politically
polarized subject. I think the focus should be on disaster preparation without
reference to the causes and influences. A recent case in point is Hurricane
Harvey. Legislatures in the state of Texas had introduced bills to better
prepare Houston and other Texas Gulf coastal areas for extreme weather events
but they were voted down, likely since they were worded as climate change
preparedness rather than disaster preparedness. Since it seems unlikely that we
will be able to significantly prevent some serious effects of climate change it
also seems important that we begin to focus more on adaptation to specific
events that might occur. Thus far, they say, we have over-focused policy on
mitigation and neglected adaptation. Neglecting to prepare is seldom a good
idea in hindsight. Realistically it is difficult to determine how much of any
specific event is attributable to man-made climate change, natural climate
change, or weather cycles. People have been dying in hurricanes and extreme
weather events long before the industrial age.
The authors state that the international framework on
climate adaptation is in disarray because the framework on climate mitigation is
in disarray but this need not be so. The goal should be to reduce deaths and
injuries due to natural disasters. There are many needs and opportunities to do
this in known vulnerable areas. This can happen in many ways: land and resource
management, urban planning, hazard insurance, building codes, evacuation
planning, and recovery planning.
“Losses caused by disasters are the result of three factors:
hazards, exposure, and vulnerability.”
Hazards are events like flooding, wildfires, droughts,
heatwaves, or hurricanes. Exposure is acknowledgement that much of the global
population lives in low-lying coastal areas vulnerable to flooding, storm
surges, and tropical storms. Vulnerability takes preparedness into account. If
people living in exposed areas are prepared then they are less vulnerable. Poor
people are often more vulnerable as are those living in energy poverty.
Decreasing vulnerability to hazards should be much prioritized over climate mitigation
simply because it directly saves lives in the near-term. Climate mitigation
would have been most effective if it was implemented in the 1980’s but then the
uncertainties about global warming were much more than today so it would have
been disastrous in terms of slowing the alleviation of poverty due to lack of
development and subsequent energy access. According to climate scientists we
are now stuck with some effects of climate change already “in the pipeline” as
the global climate systems adapt to temperature increases on the scale of
decades and centuries. It is true that the risks to the future are still
uncertain, that avoiding mitigation now could make things much worse. However,
that is not known for sure. We do know that reducing vulnerability saves lives
and so that focus should come first. Mitigating carbon emissions now does not affect
current vulnerabilities but rather future vulnerabilities.
Vulnerability reduction can also be stated as increasing climate
resilience. The IPCC definition of climate resilience is the ‘ability of
coupled human and natural systems and their constituent parts’ “to anticipate,
absorb, accommodate, or recover from the effects of a hazardous event in a
timely and efficient manner.”
Examples of effective adaptation strategies are given. One
is Nepal’s strategy to alleviate hunger and increase food security. Farmers, breeders,
NGO’s, organizations, and government are the collaborators. However, I have
heard of totally ineffective recovery in Nepal from the 2015 earthquake partly due
to incompetence and corruption. The agricultural initiative and collaboration however
is deemed here to have been largely successful with appropriate technologies
put in place to prevent future problems with food security. Increasing food
security can also be seen as a kind of climate adaptation that increases
resilience.
The next example is the one most associated with climate adaptation:
flood mitigation engineering in the Netherlands. With an extensive system of
dams, dikes, spillovers, and gates the Dutch have been heading off centuries
long sea level rise and land subsidence for a long time and have proven that it
indeed can be done and done well. They have dealt with the hazard. They also
need to continue to keep exposure and vulnerability down through smart land-use
and economic policies. This should be seen as a model for long-term disaster preparedness.
The Dutch have been working on this collectively since at least the 13th
century.
The next example is for cyclone preparedness in India. In October
1999 Cyclone 05B made landfall in northeast India killing 10,000 people. Preparation
was minimal. In 2013 Cyclone Phailin hit the same province further south with
similar winds and surges but only 44 people were killed. The difference is that
after Cyclone 05B India embarked on a preparation strategy that included
warning systems, shelters, evacuation plans, and temporary housing. Thus,
resilience has been significantly increased. This has been true for other Southeast
Asian countries as well. Tsunami preparedness has also been improved since the December
2004 tsunami that killed hundreds of thousands.
The authors argue that socio-economic development leads to
decreased vulnerability to climate disaster among the poor. Effective
democratic government is also helpful.
80% of households in sub-Saharan Africa use charcoal for
heating and cooking indoors. This is appalling. Areas around cities have been
deforested to make charcoal. This increases soil erosion which in turn makes
agriculture more difficult. Risks for landslides are increased by local
deforestation and erosion. This was likely a factor in the recent deadly
landslide in Sierra Leone that killed over 400 people. Deforestation also
reduces carbon uptake by the land. Sub-Saharan Africa needs modern levels of
energy and energy services to improve quality of life. It will also increase
socio-economic opportunity for those in a poor part of the world with currently
low opportunity for advancement. It will also likely increase agricultural yields
in areas of food scarcity due to more energy available to run agricultural
equipment and irrigation systems.
Heat waves also tend to disproportionately kill vulnerable
people such as the elderly and the poor. Access to air conditioning and
transportation can help. This was the case during the 1995 heat wave in Chicago
that killed 739 people. Both healthy social and economic conditions help
decrease vulnerability to heat waves, wildfires, floods, droughts, storms, and
other natural disasters. Better social and economic conditions are often
correlated to better energy access and energy modernization. More energy = more
adaptive capacity. Better resilience can also feed back to further economic (and
social) development. One simple example of this is the clear connection/correlation
between more air conditioning availability and more labor productivity. People
suffering less discomforts are generally more productive. Thus, human development
is synergistic with climate adaptation and is arguably the best climate
adaptation strategy.
Effective adaptation can also show the power of
collaboration in improving the quality of life and the effectiveness of governments,
institutions, and businesses. An improved sense of security is another plus.
Adaptation and increased resilience should be built in to development
initiatives. By adapting to potential events and increasing resilience we are
not only preparing for climate change but preparing for any natural disaster no
matter the main or secondary causes. The pragmatic imperative is that
preparedness and increased resilience trumps emissions mitigation as a
priority. Mitigation seeks to avert catastrophe but no one knows whether or how
or when catastrophe will be averted. Adaptation assures that if catastrophe
visits in the form of extreme weather events either at historical levels or at
levels enhanced by climate change then people will be prepared. Economically,
disaster preparedness also saves money as losses are reduced so in that sense
it can also be seen as an investment that results at least in palpable damage
reduction. For near-term costs we can manifest near-term protection.
We have always adapted and continue to do so. They give some
examples: food preservation, using materials like aluminum that resist environmental
degradation, satellites for more accurate weather prediction, antifreeze for
keeping our engines running, vaccines, insurance, forest management, etc. etc. –
it is a vast list and we humans have long been adapters. The evidence is clear
that by adapting we can reduce unnecessary deaths and property damage.