Download Climate change and drought policy in Victoria: context and

Climate change and drought policy in Victoria:
context and recommendations for VCOSS
December 2007
Jess Fritze
Climate change and drought policy officer
Patron
Governor of Victoria
Level 8, 128 Exhibition St
Melbourne Vic 3000
Phone (03) 9654 5050
Fax (03) 9654 5749
www.vcoss.org.au
[email protected]
ACN 005 014 988
ABN 23 005 014 988
Contents
Executive summary ................................................................................................... 4
1. Introduction ......................................................................................................... 6
2. Climate change and drought in Victoria: expected impacts on low income
households .............................................................................................................. 6
2.1 Hot days and heat waves ........................................................................... 7
2.2 Air quality ................................................................................................. 8
2.3 Extreme weather events ............................................................................ 8
2.4 Drought and water availability ..................................................................... 9
2.5 Increased cost of essential goods and services: food, utilities and transport .. 10
3. Climate change policy context and emerging policy debates....................... 11
3.1 Federal climate change policy overview ..................................................... 11
3.1.1 Engagement with international climate change policy frameworks .......... 11
3.1.2 National emission reduction targets ........................................................ 11
3.1.3 Efficiency and emissions reduction ......................................................... 12
3.1.4 Alternative energy ................................................................................... 12
3.1.5 Adaptation .............................................................................................. 12
3.2 Victorian climate change policy ................................................................. 13
3.2.1 Emissions reduction and low emissions technology ................................ 13
3.2.2 Energy efficiency .................................................................................... 13
3.2.3 Adaptation .............................................................................................. 14
3.3 Strategic climate change policy development and research ......................... 14
3.4 Climate change policy issues and debates ................................................. 15
3.4.1 Utilities: pricing, efficiency and water shortage ........................................ 15
Utilities pricing ............................................................................................. 15
Efficiency ..................................................................................................... 16
Domestic water availability ........................................................................... 17
3.4.2 Health and wellbeing .............................................................................. 18
Heat waves .................................................................................................. 18
Air quality ..................................................................................................... 18
Food costs ................................................................................................... 18
3.4.3 Housing: the built environment and insurance ........................................ 19
3.4.5 Climate related rural adjustment ............................................................. 19
2
4. Drought policy responses and policy debates................................................ 20
4.1 Federal drought policy overview................................................................ 21
4.2 Victorian drought policy overview .............................................................. 21
4.3 Emerging drought policy issues and debates in Victoria .............................. 22
4.3.1 Strengthening and supporting rural communities .................................... 22
4.3.2 Education and training ............................................................................ 23
4.3.3 Health ..................................................................................................... 23
5. Role for VCOSS ................................................................................................. 24
5.1 Impact of drought and climate change on community service delivery .......... 24
5.2 Supporting community sector sustainability ................................................ 26
5.3 Supporting inclusive and equitable climate change policy and research ........ 25
5.4 Climate change, drought and equity cross sector advocacy ......................... 24
5.5 Proposed priority policy areas for VCOSS.................................................. 24
6. Recommendations ............................................................................................ 27
6.1 Organisational recommendations .............................................................. 27
6.2 Recommended policy positions ................................................................ 28
Glossary .................................................................................................................. 30
3
Executive summary
Climate change has long been recognised as a social justice issue at a global level.
Concerns about intergenerational equity and distribution of responsibility and
vulnerability between developed and developing countries has been prominent in the
development of international responses. However, interest in the social and equity
implications of climate change within Australia has only recently emerged.
The weight of scientific evidence now confirms that to avert dangerous climate
change, global greenhouse gas emissions will need to reduce by 60 – 80 per cent
over the next 45 years. Given the entrenched dependence of the Australian economy
on the use of cheap fossil fuels, this will lead to significant social and economic
changes.
Even if greenhouse gas emissions can be drastically reduced, some degree of
climate change is now inevitable. In Victoria this is predicted to lead to higher
temperatures, more frequent heat waves, greater frequency of extreme weather
events and, most significantly, reduced rainfall and inflows into river systems and
increased incidence and severity of drought. If greenhouse gas emissions are not
stabilised and reduced, these impacts are predicted to be more severe.
Currently, drought in Australia is largely treated as a business management issue,
moving into emergency response in periods of ‘exceptional circumstances’ which are
deemed to be ‘once in a generation’ climate events. As climate change reduces
water availability and Australia experiences more frequent and extreme droughts, this
policy model will become increasingly unsustainable. This will also have serious
social and economic ramifications for climate vulnerable rural and regional
communities.
Low income and disadvantaged groups are particularly vulnerable to many of the
impacts of climate change and drought. The most significant areas of impact in
Victoria include:

higher temperatures and longer and more frequent heat waves;

economic and social impacts of drought;

increased costs for essential goods and services; and

damage to housing and the built environment.
The equity and social issues associated with climate change and drought are only
recently being identified in research and policy development. This is reflected at both
federal and state level in a greater focus on climate change adaptation. As a
consequence of these pressures on low income households, there are a number of
policy areas in which VCOSS could usefully intervene. The most significant of these
are:
 energy and water pricing and household efficiency;
 heat waves and health inequalities;
 responses to increased food costs;
 domestic water security;
 social and economic support policies associated with drought; and
 housing standards and insurance.
4
The community sector is already significantly affected by drought and will
increasingly be affected by other climate change impacts and policies. The
community sector also has a responsibility, as a social justice imperative, to reduce
its environmental impact.
VCOSS has an important and widely recognised role in leading policy, advocacy and
community sector development in these areas.
It is recommended that VCOSS:
1. Work to minimise the impacts of climate change and drought on low income and
disadvantaged households by engaging in climate change and drought policy
development and advocacy. This could be achieved by:
a. incorporating consultation, advocacy and policy development around
social and equity implications of climate change (including drought) into
existing VCOSS policy areas, specifically; utilities, emergency relief,
housing, health and transport; and
b. coordinating cross sectoral advocacy and policy development around the
social and equity implications of drought and climate change.
2. Build on existing research and government networks to promote a focus on social
and equity issues in emerging climate change research agendas.
3. Incorporate environmental sustainability for the community sector into VCOSS
community sector development work. This could include:
a. promoting environmental best practice;
b. distributing information about environmental programs and funding
opportunities;
c. coordinating information sharing on environmental strategies;
d. investigating bulk purchase opportunities for more sustainable products;
and
e. investigating the more effective use of technology (e.g. video
conferencing) to reduce travel.
5
1. Introduction
Our current social and economic systems are built on unlimited use of cheap fossil
fuels, the main cause of anthropogenic climate change. Our heating and cooling,
personal transport and movement of goods, the way we light our homes and produce
the goods and services we have come to take for granted, to a large extent depend
on energy use systems which are unsustainable.
A 2°C increase in average global temperatures is generally accepted as the
threshold beyond which dangerous climate change will occur. To avoid warming of
this scale is estimated to require a reduction in greenhouse gas emissions of 60 – 85
per cent below 2000 levels by 2050.1 However, if these reductions are distributed
more equitably between developed and developing countries, Australia would need
to reduce our greenhouse gas emissions by upwards of 80 per cent by 2050. In real
terms (excluding emissions savings from land use changes), Australia’s greenhouse
gas emissions have already grown by over 30 per cent since 1990.2 Reducing our
use of fossil fuels in energy and transport, which together account for about 64 per
cent of our greenhouse gas emissions, presents an enormous challenge, especially
given the urgency of the task.3
2. Climate change and drought in Victoria: expected impacts
on low income households
The existing elevated concentrations of atmospheric greenhouse gases and their
long life span mean that some climate change will now inevitably occur, regardless of
actions taken to reduce emissions. However, the severity of climate change impacts
and speed at which they occur will be largely determined by the rate at which
greenhouse gas emissions build up in the atmosphere. Reducing greenhouse gas
emissions remains critical to preventing dangerous climate change.
The Victorian Government uses Commonwealth Scientific and Industry Research
Organisation (CSIRO) projections as a basis for climate change policy. CSIRO
predictions for the impact of climate change on Victoria can be summarised as:

temperature increase of 0.8 to 5.0C in northern Victoria and 0.6 to 4.0C in
the south of the state by 2070 (from 1990 temperatures) with more frequent
extremely hot days and heat spells;

longer bush fire seasons and potentially more serious fires;

reduced rainfall in the range of -15 per cent to +2 per cent in the north and 10 per cent to + 2 per cent in the south;

increased solar radiation due to reduced cloud cover;

greater incidence of drought and greater evaporation leading to reduced
runoff into water catchments;

increased frequency of flooding in some areas;

coastal erosion and increased storm surges; and

less snow fall over the alps4.
Australia is likely to be more negatively affected than any other developed country by
climate change, due to our already highly variable and dry climate and our proximity
6
to climate vulnerable developing countries in the Pacific and south east Asia.5 Some
more extreme climate impacts around the world such as increased frequency of
hurricanes, inundation of low lying coastal areas and spread of vector borne diseases
away from the tropics are more likely to impact on tropical and sub-tropical areas.6
These impacts may have flow on effects to Victoria in terms of climate refugees,
disruptions to imported foods and greater financial impacts of climate change at the
federal level.
Various frameworks have been developed to conceptualise climate change
vulnerability. The model below suggests that vulnerability, whether to climate change
(or climate change policy), is a combination of level of exposure combined with the
impact of this exposure, and that this risk can be mitigated by adaptive capacity. Low
income and disadvantaged groups have enhanced risk on all these dimensions.
Source: Allen Consulting Group, Climate change risk and vulnerability: promoting an efficient
adaptation response in Australia, Australian Greenhouse Office, Department of Environment
and Heritage, 2005, ix.
Using this framework it is evident that the effects of climate change and drought on
low income and disadvantaged Victorians will be both direct and indirect. Direct
effects include exposure to high temperatures, extreme weather events, bushfires
and lack of water. Indirect effects include price rises, social impacts and changes in
the availability and distribution of employment.
2.1 Hot days and heat waves
Increasingly hot summers with more hot days and longer, more frequent and more
extreme heat waves are likely to lead to significant health impacts. The elderly,
infants and young children and people with chronic health conditions are particularly
vulnerable to the effects of high temperatures.7 People living in isolation without the
benefits of social networks to assist with outdoor tasks, such as shopping, are
especially at risk. Heat impacts will be most severe in the north of the state, however,
urban areas are also problematic as buildings, roads and lack of cooling green space
create ‘heat islands’ and further increase temperatures.8
The potentially devastating impact of heat waves was experienced in Europe where
between 22,000 and 35,000 deaths occurred that were directly attributable to high
temperatures during the 2003 heat wave.9 In Victoria, heat related deaths are
7
predicted to rise from 582 per year at present, to up to 604 per year by 2020, and up
to 1,318 per year by 2050 as temperatures increase.10
Low income and disadvantaged groups are less likely to have access to air
conditioning and will have less capacity to ‘climate proof’ their homes by installing
insulation, shading and cooling systems making them more vulnerable to heat related
illness and even death.11 This is especially true for low income people living in rental
properties, temporary accommodation or low cost housing options such as caravans.
2.2 Air quality
Air quality in both rural and urban Victoria is likely to decrease due to climate change
effects. Both airborne dust from drought affected areas and smoke from bushfires
increase particulate air pollution which can trigger and exacerbate respiratory
illnesses such as asthma.12 There is also evidence that higher temperatures may
increase the formation of ozone from photochemical smog at ground level.13 Air
quality is generally worse in low socio-economic areas due to greater concentrations
of heavy industry and associated commercial freight routes.14 In addition, low income
and disadvantaged people are more likely to have pre-existing vulnerabilities to poor
air quality such as respiratory conditions.
2.3 Extreme weather events
The last five years have seen some of the most severe bushfire seasons on record,
as well as severe flooding in Gippsland. Losses of personal property, damage to
farms and rural businesses have had a direct impact on the local economy in
affected areas, resulting in less employment opportunities particularly for unskilled or
younger workers who would usually engage in seasonal agricultural and tourism
work.15 As the frequency and intensity of bushfires increase due to climate change,
individuals and rural communities will be subjected to increased risk and reduced
recovery periods. Extreme weather events of all types also have a significant social
impact in terms of stress, trauma, grief and loss. These impacts can be compounded
by the duration and re-occurring nature of these events.16
Increased frequency and severity of extreme weather events will also increase the
pressure on Victoria’s emergency response system which depends to a large extent
on volunteers.17
The built environment is particularly vulnerable to the effects of climate change,
especially extreme weather events resulting in loss or damage to homes, property,
community facilities and major infrastructure.18 Damage to communications, water
and energy delivery systems is predicted to contribute to increased utilities costs.
Damage from floods and fire can be devastating in both the short and long term as
people need to find alternative accommodation, deal with losses of personal
possessions and rebuild their communities and risk losing the accumulated capital
tied up in the family home.
The risks from these forms of damage are likely to be much greater for low income
and disadvantaged households, as many are uninsured or underinsured and have
limited financial resources to recover from these events. 19
The issues for low income households in fire or flood prone regions will be
exacerbated as the impacts of climate change become better understood, and the
value of properties in these areas decreases relative to other areas, making it more
8
difficult to relocate. It is predicted that the effects of climate change will lead to
greater instability and vulnerability within the insurance sector and:
…increased premiums, altered product offerings and more stringent eligibility
requirements expected to be part of an insurance future driven by predictive
modelling rather than historical analysis.20
Extreme weather events will also impact on the planning and maintenance of major
infrastructure community facilities. Low income households will be particularly
affected by damage to community facilities, such as sporting grounds, community
health centres, maternal child health centres, childcare centres, neighbourhood
houses, and community centres as they are least likely to be able to afford private
sector alternatives.
2.4 Drought and water availability
Drought is a current crisis in extensive areas of Victoria. Approaching the summer of
2007-08, many Victorian agricultural communities are facing even more severe
drought impacts.
Victoria’s major grain crops are predicted to fail in many areas of the state resulting in
increases to food costs and huge financial impacts on many farming communities.
The resulting high price of stock feed may mean that some farmers will be unable to
afford to maintain their livestock.21 With extremely low water allocation due to the
lowest inflows to Victorian river systems on record, much of Victoria’s irrigated
agriculture is now under threat, especially permanent fruit tree and vine plantings in
the Murray and Goulburn irrigation districts in the north of the state.22
This situation comes after prolonged drought conditions across most of Victoria
which have weakened many agricultural communities’ capacity to respond to the
current crisis.
Drought has profound social and economic impacts in rural and regional
communities. In particular, large sections of the rural population become low income,
though remaining asset rich, as farming businesses cease earning income and
accumulate debt. Farming families who do not identify as ‘low income’ or ‘welfare
recipients’ increasingly need to access financial and social support services through
Centrelink, emergency relief providers and health services.23
Social impacts of drought can be hard to isolate from broader trends associated with
rural adjustment, such as population decreases, trends towards larger farms,
centralisation of services and the aging of the rural population.24 These trends are
documented in influential work by Neil Barr at the Department of Primary Industries
(DPI).25
The mental health impacts of drought combined with existing rural adjustment trends
can be profound. The stress and uncertainty of drought conditions, and the emotional
impact of crop and stock losses lead to increased levels of depression and anxiety
for farmers, their families and indeed, whole communities.26
Education pathways for young people may be disrupted as they are needed to work
longer hours on farms or earn income to support themselves and their families. There
is some evidence that rural young people in drought affected areas may also
constrain or delay their tertiary education in response to economic hardship caused
by drought.27
9
Lack of water availability for domestic use such as washing, cooking and drinking
heavily impacts on low income households who are not on the reticulated water
system, as the costs of water cartage can be prohibitive.28
While the focus of public and political attention during droughts is on farmers, drought
affects entire communities. Lower farm incomes translate into less spending in rural
businesses.
2.5 Increased cost of essential goods and services: food, utilities and
transport
Climate change and drought will have a significant impact on the cost of food,
especially if agricultural adjustment to new climate conditions is slow. Already in
Victoria, food prices are expected to increase because of drought conditions.29 High
grain and fodder prices flow through to meat prices as the cost of feeding livestock
increases. The drought has reduced dairy output and many horticultural products
such as fruit will have to be imported as irrigated agriculture is further compromised
by lack of water.30 Extreme weather events such as storms, fires and flooding can
also cause damage to food crops and kill or injure stock leading to higher food prices.
More distant climate related disruptions to Victoria’s food supply chain can also
impact on local food prices, as witnessed by the impact of Cyclone Larry on banana
prices.
Low income households spend a disproportionate percentage of their income on
basic items such as food. Cost increases in these basic commodities, especially in
the context of high housing costs, will contribute further to financial hardship. In
addition, climate change has implications for health inequalities as the highest price
rises are expected to occur on fresh fruit, vegetables, diary and meat products,
potentially further reducing access to healthy food options for low income
households.31
Utilities and petrol costs are likely to increase both due to the impacts of climate
change and, potentially, emissions reduction policies such as carbon pricing.
A CSIRO report released in March 2007 outlines the vulnerability of Victoria’s major
infrastructure such as water, power and communications delivery systems to climate
change impacts. The report also suggested that the increased costs of repairing and
maintaining this infrastructure would likely be passed on to utilities consumers,
subject to regulation by the Essential Services Commission (ESC).32
The lack of water within catchments and the need for greater investment in water
infrastructure and processing facilities has already put upward pressure on water
prices.33
Climate change policies such as carbon pricing also have the potential to increase
energy costs. Increased costs to energy producers from emissions pricing and
investment in emissions reducing technology could be passed on to consumers. The
embedded increased cost of energy would also potentially impact on the price of
goods and services.34
Depending on the extent of an emissions trading scheme, transport fuel prices may
also increase with a price on carbon. Low income families in areas with poor public
transport already spend a significant proportion of their income on transport and may
10
have difficulty affording increased petrol costs.35 Rural households are additionally
vulnerable to high petrol costs due to the increased centralisation of services.
As the political pressure to reduce greenhouse gas emissions increases, other
market mechanisms which may have unintended equity implications, such as road
pricing, may also impact on low income and disadvantaged groups.
3. Climate change policy context and emerging policy
debates
There is some duplication of state and federal climate change policy areas due in
part to past inaction at the federal level and to very different historic interpretations of
the urgency of the issue. Currently, market mechanisms and voluntary engagement
with emissions reduction programs are generally favoured at both levels of
government.
Given the global nature of the climate change challenge, major climate change
mitigation policies will be most effective if they are at the national and international
level. State and local governments are seen as best placed to be responsible for the
development and implementation of adaptation policies and regional or community
level initiatives as well as behaviour change policies. New policies to address climate
change are put in place at the federal level, such as emission trading, efficiency and
renewable energy targets, are likely to override existing state based policies.
With the recent election of the federal Labor government in November 2007, climate
change policy at the federal level is likely to change substantially. At this point, the
new Labor Government’s direction on climate change has been indicated by their
pre-election policy statements and high level participation in the United Nations
Climate Change Conference in Bali in December 2007.
3.1 Federal climate change policy overview
In 1998, the Coalition Federal Government established the Australia Greenhouse
Office (AGO). The AGO has since been incorporated into the federal Department of
Environment and Water Resources. The AGO is responsible for most federal climate
change programs including emissions monitoring and reporting required under the
United Nations Framework Convention on Climate Change (UNFCCC).
3.1.1 Engagement with international climate change policy frameworks
Australia is a party to the UNFCCC which outlines the principles and directions of
international action on climate change. Following a long period of disengagement,
Australia has now ratified the Kyoto Protocol (which is under the UNFCCC). Under
the Kyoto Protocol, Australia negotiated to increase emissions by 8 per cent from
1990 levels by 2012. This is in contrast to most developed countries which
negotiated emissions reduction targets. Australia also argued for the inclusion of
changes to land clearing practices in emissions calculations. If land clearing changes
are excluded from emissions calculations, Australia’s emissions have grown by over
30 per cent from 1990 levels.36
3.1.2 National emission reduction targets
Under the UNFCCC, Australia is required to report annually on levels of greenhouse
gas emissions.
11
The Coalition Federal Government consistently argued that regulating to reduce
emissions or setting an emissions reduction target was not in the national interest,
and would harm the Australian economy due to our dependence on fossil fuels both
for domestic consumption and as a significant proportion of our exports.37
Subsequently, the Coalition favoured voluntary emissions intensity targets negotiated
outside the United Nations framework.38 Currently, the Coalition opposition under
Brendan Nelson has endorsed the ratification of the Kyoto protocol.39
The Labor Federal Government has a policy of a 60 per cent greenhouse gas
emissions reduction by 2050 from 2000 levels, which is in line with several state
targets, including that of Victoria. Prime Minister Rudd has announced that short term
emissions reductions targets will be established based on the findings of the Garnaut
review (see section 3.3).40
3.1.3 Efficiency and emissions reduction
Federal efficiency and emissions reduction policies have largely focussed on
voluntary programs to engage industry in climate change auditing and emissions
reduction initiatives.
The Coalition Federal Government initially opposed the introduction of a national
emissions trading scheme in Australia. In response, the States and Territories formed
the National Emissions Trading Taskforce (NETT) in 2004. The NETT undertook
consultation and developed an emissions trading discussion paper which was
released in August 2006. Subsequently, the Federal Government set up the Prime
Minister’s Task Group on Emissions Trading. On the recommendation of this group,
Coalition policy is now to introduce a national emissions trading scheme by 2012.41
The Federal Labor Government plans to introduce an emissions trading scheme by
2010.
The emissions trading model favoured by both the NETT and the Federal
Government is a ‘cap and trade’ system which would establish a limit on allowable
emissions and a market for trading emissions rights. Such a system would in effect
create a carbon price.
3.1.4 Alternative energy
The Federal Coalition Government’s Mandatory Renewable Energy Target (MRET)
was set at an additional 2 per cent of energy production from renewable sources by
2010. A review of the target which recommended it be substantially increased was
rejected by the Coalition Government in 2004. However, in September 2007 the then
Prime Minister announced a new target of 15 per cent of energy to come from ‘low
emissions’ sources, potentially including clean coal and nuclear, by 2020.42
The Federal Labor Government has a policy to increase the MRET to ensure 20 per
cent of Australian electricity is generated from renewable sources by 2020.43
3.1.5 Adaptation
Federal funding for climate change adaptation is largely centred on research. In May
2007 the then Coalition Government announced $126 million for a new Australian
Centre for Climate Change Adaptation to conduct research on vulnerable industries
and regions. The Council of Australian Government’s (COAG) National Climate
Adaptation Framework, which was announced in April 2007, is intended to guide
adaptation work in all jurisdictions for the next five to seven years. Focus areas under
12
the framework include research on environmental, economic and social impacts of
climate change and development of methodologies for monitoring impacts (including
social impacts).44
3.2 Victorian climate change policy
The Victorian Labor Government’s approach to climate change is outlined in policy
documents including the Victorian Greenhouse Strategy Plan Update and Our
Environment, Our Future: Sustainability Action Statement 2006.
Broadly these reflect a view that:
 climate change is already occurring;
 global warming of over 2C will lead to dangerous and irreversible climate
change;
 deep emissions reductions are required;
 Victoria needs to position its economy for a ‘low carbon future’;
 adaptation to now inevitable climate impacts is important; and
 averting dangerous climate change requires a cooperative global response
which will require partnership and joint action (including involvement in the
Kyoto protocol).45
The Victorian Government’s latest environmental policy statement, Our environment,
our future: sustainability action statement, 2006, breaks down current policy
initiatives around climate change broadly into the three areas of low emissions
technology, energy efficiency and adaptation. Labor’s election promises in the area
of climate change in the lead up to the 2006 state election are outlined in Tackling
Climate Change – Helping families play their part and Tackling Climate Change –
Helping Victoria play its part. Policy positions identified here are drawn from these
policy statements.
In the lead up to the November 2006 State election, the Bracks’ Government
announced that they would create an Office for Climate Change (OCC) within the
Department of Premier and Cabinet (DPC). While the OCC is still in the process of
developing a work plan and scope of operations, it is expected to be responsible for
setting broad directions in climate change policy, working on intergovernmental
issues including the development and implementation of the national carbon trading
system and coordinating a whole of government approach to climate change in
Victoria.
3.2.1 Emissions reduction and low emissions technology
The Victorian Government has committed to legislate for a long term target to reduce
greenhouse emissions by 60 per cent by 2050 compared to 2000 levels and support
a national emission trading scheme. To support renewable energy the Victorian
Renewable Energy Target (VRET) mandates a minimum of 10 per cent renewable
energy by 2016. There is an additional commitment to achieve a target of 20 per cent
renewable and low emissions energy generation by 2020.
3.2.2 Energy efficiency
The Victorian Government has put in place a target for a 10 per cent reduction in
household emissions by 2010 as part of the Victorian Energy Efficiency Target
(VEET) scheme. The Government has funded extensive rebate and community
education programs to achieve this aim.
13
3.2.3 Adaptation
In 2006, the Victorian Government provided $14.8 million for the Victorian Climate
Change Adaptation Program. The program is managed by an interdepartmental
committee, involving DSE, DPI, DHS, DPC and DIIRD and involves a range of
adaptation projects, many of which are specifically discussed below. The program
has four major initiatives the first of which is developing knowledge and expertise in
the following areas:

‘improving resilience of natural assets to cope with greater risks from bushfire,
coastal erosion and flooding;

making agricultural systems resilient to climate change;

making our buildings, infrastructure and homes more adaptable to climate
change;

understanding what climate change will mean for the health of Victorians; and

understanding what climate change will mean for individual communities’.46
The Victorian Climate Change Adaptation Program also involves establishing a
Centre of Research Excellence in climate change adaptation and working with local
communities to build local understanding about climate change adaptation.
DHS has received funding under this program to assess the health impacts of climate
change. A conference on Climate Change and Human Health was convened by DHS
in October 2007.47 At this conference, DHS launched a discussion document on
health impacts of climate change in Victoria titled Climate change and health: an
exploration of challenges for public health in Victoria.
3.3 Strategic climate change policy development and research
Climate change policy development, especially in the areas of equity and social
impacts, is still relatively new in Australia. Until recently, research and policy
development has largely focussed on refining climate change predictions and
developing policies around emissions reductions. However, there is a substantial
amount of research interest in the area of climate change adaptation with many
universities and research institutions in the process of developing research centres
and projects.48 The announcement of the Federal Government’s proposal for an
Australian Centre for Climate Change Adaptation, including a Climate Change
Adaptation Research Facility, in May 200749 may have increased research interest in
this area.
The Garnaut Climate Change Review is being coordinated by the Victorian
Department of Premier and Cabinet. This review is an initiative of the Council of
Australian Federation and the Federal Labor Government.50 It will investigate the
economic impacts of climate change and related policies and develop policy
recommendations. Garnaut has publicly commented on the importance of social
justice and equity considerations in responses to climate change at both a global and
national level.51
Under the Victorian Climate Change Adaptation Program, a number of local
government based ‘greenhouse alliances’ have been funded to undertake local
climate change adaptation assessments. Some have already been completed, such
as those undertaken by the North East Greenhouse Alliance and Western Port
Greenhouse.52
14
It is important that all climate change policy development and research includes
information on how impacts will be distributed through the community. If public
consultations occur, the community sector and low income and disadvantaged
groups need to be adequately represented.
3.4 Climate change policy issues and debates
This section discusses key areas of climate change impact on low income
households in Victoria and their policy context.
3.4.1 Utilities: pricing, efficiency and water shortage
Much of the current work in Australia in the area of social and equity impacts of
climate change has focussed on utilities costs.
Key concerns include:

vulnerability to price rises for low income households without access to
programs for efficiency;

low price elasticity for electricity and water, especially for low income
households;

the regressive nature of higher utilities prices as a mechanism for reducing
greenhouse gas emissions as higher income households will be able to ‘pay
to pollute’; and

a focus on households rather than industry as industry already enjoys lower
energy costs and accounts for a high percentage of emissions.
Utilities pricing
The pricing of energy and water is currently not reflective of its true value, especially
when considering environmental costs. Simultaneously utilities providers are
anticipating increased costs of production and distribution as climate change impacts
require greater investment in infrastructure. However, low income households have
very limited ability to absorb higher utilities costs.53
There is growing concern that the introduction of an emissions trading scheme may
result in higher energy costs for low income households. A joint submission to the
Prime Ministerial Taskforce on Emissions Trading by the Brotherhood of St Laurence
(BSL), Catholic Social Services Australia and the National Welfare Rights Network
advises that a national emissions trading scheme must not impact disproportionately
on low income earners by providing financial compensation and assistance with
energy efficiency measures.54 In response, in October 2007, then Prime Minister
Howard announced an election commitment to establish a fund from emissions
trading revenue to develop clean energy technologies and assist low income
households adapt to higher energy prices.55
The ability of energy producers to pass increased costs on to consumers will depend
on the regulatory environment in which the system operates. Technically, an
emissions trading system which allows costs to be passed on to consumers may
undermine its effectiveness as it will decrease the incentive to reduce emissions and
thereby avoid the costs of purchasing emissions rights.
Advocacy in this area needs to maintain a focus on the design of emission reduction
policy to ensure equitable outcomes while avoiding the implication that emissions
reduction policy itself is inherently socially regressive. Therefore, pricing frameworks
15
need to price utilities in a way which encourages efficiency for businesses and
households, while protecting a basic needs component at an affordable price.56
Efficiency
Reducing household energy and water use is essential to protect low income and
disadvantaged households from predicted high utilities costs and is often seen as a
way to reduce the household costs of carbon pricing.
However, the vast majority of Victorian initiatives to support households to increase
their energy and water efficiency are aimed at homeowners who pay the upfront
expenses of an upgrade and then claim a rebate. A large range of water saving
product rebates are available through the Water and Garden Smart Rebates Scheme
and Sustainability Victoria administers both state and commonwealth rebates for
energy efficiency products. Rental properties are largely excluded from these rebate
systems.
Rental property owners have little incentive to invest in capital upgrades to their
property, as they do not receive a financial benefit of lower utilities bills. In an attempt
to address this issue, some rebates have been targeted to landlords. Former
Environment Minister, John Thwaites announced new rebates for landlords who
install additional insulation in rental properties that are leased to low income tenants
in his final speech before his resignation.57 The Victorian Government has also
committed to investigating options for supporting low income tenants to increase
household efficiency under their 2006 State Election Policy.58 The Federal Labor
Government announced their Low emission plan for renters which will provide
additional rebates for landlords to install insulation in rental properties (though this
initiative is not targeted at low cost properties).59
Market mechanisms which encourage efficiency could also benefit some low income
households. For example, the introduction of the Victorian Energy Efficiency Target
(VEET) will provide incentives for energy retailers to meet energy reduction targets.
This will hopefully provide an incentive for energy companies to “offer to retrofit
Victorian households and businesses with improvements such as low energy lighting
and other energy saving devices for little or no cost”.60
Public housing has seen some investment in efficiency through internal maintenance
programs. When public housing properties are due to be upgraded, or when an
appliance such as a heater or hot water system needs to be replaced, the Office of
Housing uses high efficiency products.61
Some retrofitting of public housing is also undertaken through the Energy Taskforce
project which is implemented by Sustainability Victoria in partnership with DHS
Neighbourhood Renewal and community organisations. The program retrofits public
housing in neighbourhood renewal areas and provides skill development and
employment.62 However, much public and community housing continues to have very
poor standards of energy and water efficiency.
Ongoing advocacy to promote energy and water pricing structures and efficiency
programs which are both environmentally effective and equitable is essential to
prevent low income and disadvantaged households being disproportionately affected
by rising utilities costs. Effective collaboration between the environment and
community sectors on these issues is vital.
16
Domestic water availability
Domestic water availability is already an issue in some drought affected rural areas.
For low income households not connected to the reticulated water system, the
current rebate system is inadequate.
The Carted and Non-Mains Water Rebate administered through the Department of
Human Services Concession unit provides assistance to low income households to
purchase non-mains domestic water for filling water tanks. In December 2005 the
Victorian Government increased the Non-Mains Water Concession from one to up to
three times per year.63 However, the rebate only covers a percentage of the cost of
carted water which is unaffordable for some low income households.64
As a consequence some community support organisations have started providing
domestic water emergency relief to low income households (see case study below).
Access to domestic water supply at an affordable price should be a guaranteed in
Victoria.
Case Study – Rural Community Resource Worker, Anglicare Victoria, Hume Region.
Between December 2006 and end of March 2007 Anglicare paid for the delivery of 68
loads of domestic water to families in financial difficulties (most deliveries were around
23,000 litres / 5000 gallons and cost $110 – 150 per load).
Funding for this program was sourced entirely from community donations through a
group called the ‘Bucket Brigade’ who raised an initial $10,000 an amount that ran out
within nine weeks. This was followed by a Melbourne based public appeal through
Anglicare Victoria which raised $30,000. Additional funding was also provided by St
Vincent de Paul and Salvation Army.
Many requests for assistance were from households in which someone required home
dialysis.
Some examples of households in need of this form of assistance included:
 a woman whose husband was using home dialysis and who required four
deliveries over the summer;
 four families caring for parents in palliative care who required two to four loads
per household; and
 a retired single women on a farm in her fifties caring for two high needs foster
children, her two teenage daughters and grandson.
Issues identified with the existing rebate system for water cartage included:
 some households were not on an appropriate health care card;
 the rebate does not cover the full cost (and cartage costs are very high);
 the rebate requires up front payment which may be beyond the financial means
of low income households; and
 households are limited to three rebates a year.
There is much concern about the upcoming summer season, when access to water is
likely to again be a significant issue.
17
3.4.2 Health and wellbeing
Most research into the impacts of climate change on health have been within a
medical model of health – assessing likely rates of mortality and morbidity to climate
change related conditions such as high temperatures. Taking a social model of
health, secondary effects such as financial difficulty, stress and increased food prices
also have the potential to seriously impact on health. This is reflected in scoping work
undertaken by DHS;
“Climate change research to date has focused mostly on thermal stresses,
extreme weather events, and infectious diseases, but little work has been
done on the indirect impacts resulting in social, economic and demographic
changes which are themselves determinants of health”65
Human health and climate change is identified as a priority area under the Victorian
Climate Change Adaptation Program and DHS has a budget of $11-12 million over
four years to establish a heat plan response strategy and conduct research on health
and climate change.
Heat waves
DHS is currently undertaking research and policy development work around heat
wave planning. Services which work with the most vulnerable groups (in particular
the isolated elderly, chronically ill and people with young children) will have an
important role in communicating information and implementing responses.
The cost of ‘climate proofing’ against hot weather and paying for cooling is likely to
be an issue for many low income households. Older people in particular may be
reluctant to use air conditioners because of energy costs. Options for programs
which provide both financial and technical assistance for high risk groups to modify
their homes by shading or increasing insulation should be investigated.
Air quality
The interaction between poor air quality and health impacts on older people and
people with pre-existing medical conditions may require a public health response
which needs to reflect that isolated and vulnerable community members may require
additional assistance and more carefully targeted information. A response similar to
inclusive heat wave planning may be appropriate.
Food costs
Food costs represent the biggest category of household expenditure in Australia.66
The cost of food has been identified by VicHealth as a significant contributor to food
insecurity 67 - which is currently experienced by 6 per cent of Victorians.68 Lack of
access to affordable food has significant health effects and the concentration of
drought related price increases on fresh food products such as vegetables, fruit,
meat and dairy may contribute further to health inequalities. The impacts of climate
change on food prices will be hard to mitigate against, for example through increase
social welfare payments, as prices will vary substantially from season to season and
in different areas.
Food costs are already predicated to increase due to the impact of the current
drought on grain production, irrigated crops and the dairy industry.69 Consumer Price
Index figures released in October 2007 already show significant price rises for fruit
and vegetables.70 In the long term, if more frequent and intense drought makes food
production in northern Victoria unsustainable, Victoria will rely increasingly on
imported food from interstate or overseas. The reliance on food which has travelled
18
further has both nutrition and cost implications, especially if the price of fuel
continues to increase.
Strategies for ensuring an affordable supply of fresh food to low income and
disadvantaged Victorians, especially those already experiencing food insecurity,
should be developed.
3.4.3 Housing: the built environment and insurance
Building standards have been developed in response to historic conditions. As
climate change alters the frequency of extreme weather events and temperatures
increase, existing building standards will not adequately ensure the safety and
comfort of the population.
Since July 2004 all new Victorian homes have had to comply with a five star energy
rating. From May 2008, renovations will also have to achieve this rating under the
Building Code of Australia 2008.71Melbourne 2030 includes a policy initiative to
“introduce changes to Victoria’s planning and building systems that will be needed to
help adapt to the impacts of climate change”.72
However, a significant proportion of Victoria’s building stock pre-dates energy
standards, with much of the poorest quality housing in the rental market. At present
there are no standards for the thermal efficiency of rental housing, and while some
subsidies for energy improvements are available there is little incentive for landlords
to renovate a home for which others pay the energy bills. Climate related standards
such as thermal and energy efficiency need to be developed for rental properties to
enable greater efficiency of energy use and to protect tenants comfort and safety
during heat waves.
Policy to support recovery from the impacts of extreme weather events on the built
environment should also be developed to address the particular vulnerabilities of low
income and disadvantaged households.
The Victorian Government currently provides emergency grants to people affected by
natural disasters who do not have adequate insurance. There does not appear to be
research available to indicate the level of expenditure on such programs or projected
impacts due to increased frequency of utilisation under the effects of climate change.
In the context of climate change, policies to ensure that low income households have
access to affordable insurance credit at a reasonable rate and should be
investigated.
3.4.5 Climate related rural adjustment
The severe impacts of drought on rural communities, combined with predictions of
more frequent and more severe droughts as a result of climate change, create
serious challenges to the viability of some rural communities in their present form.
Policy development and research around the need to adapt the Victorian rural
economy to climate change are beginning to enter Victorian Government policy
development.
The DPI has undertaken research into climate change vulnerability and adaptation
for agricultural and rural communities. This has resulted in the development of an
‘adaptive capacity index’ which incorporates economic, socio-cultural and
infrastructure and institutional indicators.73 In July 2007 a new three year research
program commenced under the Victorian Climate Change Adaptation Program to
refine and expand on this work. While this project is highly consultative, it is primarily
19
aimed at people involved in the rural economy and local institutions and decision
makers. 74 The concerns of low income or disadvantaged groups, or the community
sector, may not be a strong focus of this work.
Similarly, long term vulnerability assessment and agricultural market planning work is
being undertaken by DPI through programs such as Our Rural Future. However,
given the department’s focus on agriculture and industry, this work has limited
capacity to assess the distribution of impacts within communities (social equity
implications). While the viability and strength of rural communities does rest on the
sustainability of their economic base, there is currently less research and long term
policy focus on social transitions or programs to increase the social health of rural
communities facing economic adjustment and the impacts of climate change.
4. Drought policy responses and policy debates
There is ongoing debate about whether the current drought is due to, exacerbated by
or unrelated to climate change. While Victoria has been subject to frequent periods of
drought, the current drought conditions are unprecedented. In October 2007, the
DSE’s website states that:
Victoria is now experiencing its tenth year of drought.
Drought is common in Australia – it is a natural part of our highly variable
climate. Even when this cycle of drought ends, Victoria is projected to get
drier, have more hot days and more storms, all as a result of climate change.
A main cause of the current drought in Australia is El Niño - a period of
sustained warming over the Pacific Ocean combined with atmospheric
changes.75
Victorian and federal level drought responses currently operate in an emergency
response framework of risk management involving preparation, augmented with
emergency intervention and recovery support for times of severe drought – with
severe drought anticipated to occur on a 20 to 25 year basis.76
There are two competing discourses governing the development of drought policy.
Traditionally, drought has been seen as an ‘act of God’ – a crisis which demands an
emergency response. In the 1980’s and 1990’s drought was redefined as a normal
part of the business environment in which Australian agriculture operates.77 The
policy focus attempted to shift to a risk management approach which focussed on
preparation, response and recovery. However, there is still enormous political
pressure to provide emergency responses, especially financial relief, to drought
affected communities. In addition, recent drought periods have been unprecedented
in their persistence and severity. With predictions of a changing climate, including
decreased rainfall and increased drought, neither discourse is adequate to plan for
and respond to the challenges ahead.
The National Farmer’s Federation has released a statement calling for “a
generational shift in thinking… to move from the necessity for drought relief to
drought management and preparedness” in order to “safeguard against climate
change and future droughts”.78 Leadbeater (2007) points out that it is difficult for rural
communities to prepare for unprecedented drought conditions as the level of
preparation required is unknown.79
20
There is a research gap in documenting the effects of drought, and drought policy
responses, on low income and disadvantaged people living in rural and regional
communities.80 A poverty analysis of rural areas has been suggested by Botterill
(2003) in order to better target drought and rural adjustment policies more effectively
and to ensure that the most disadvantaged are not overlooked.81
The tension between the tradition of emergency response to drought and the reality
of an imminent period of more frequent and intense drought periods is resulting in
heightened debate about agricultural policies in Australia. Decisions made in relation
to these issues will determine Victoria’s future pattern of agriculture, the sustainability
of both farming and urban communities in rural areas, and the cost of food paid by
Victorian households.
4.1 Federal drought policy overview
State governments can apply for areas to be declared in exceptional circumstances
by the Federal Government. This then entitles farmers and agriculturally dependent
businesses to access a range of economic support including exceptional
circumstances Relief Payments through Centrelink. Receipt of payments is used as
an eligibility criteria for some drought support programs (e.g. the Victorian Municipal
Rates Subsidy)
The main federal drought support programs currently in place include:

interest rate subsidies;

exceptional circumstances Relief Payments for farmers and small businesses
(through Centrelink);

exceptional circumstances Health Care Cards and associated concessions;

funding for emergency relief i.e. through the Country Women’s Association
emergency Drought Aid Fund;

the Rural Financial Counselling Service Program and funding of additional
counselling services;

grants for financial planning and advice e.g. FarmBis and Farm Help;

Drought Force (Work for the Dole);

community strengthening programs such as ‘Local Answers’; and

‘exit grants’ to support farmers to leave farming.
Most of these programs are time limited and/or linked to exceptional circumstances
status.
4.2 Victorian drought policy overview
Drought policy in Victoria falls largely within the operations of DPI, DSE and DHS.
Similar to the Federal Government, Victorian drought policy distinguishes between
support for farm families and support for farm businesses.
The main Victorian drought support programs currently in place include:

municipal rates subsidy;

support for farm business to better manage drought conditions;
21

rebates for low water allocations;

rebates for water cartage and tanks;

the Drought Apprenticeship Retention Bonus;

mental health support; and

social support initiatives.
In October 2007, the Victorian Government announced $100 million in additional
funding for drought assistance to ‘help rural communities battle the worst drought on
record’.82 This funding included a range of targeted social and community support
measures including:

additional mental health services;

Emergency Volunteer Support Grants;

additional funding for drought employment programs;

funding for local employment and community strengthening programs; and

additional funding for drought coordinators.
Water supply security has been a major policy area for DSE with recent
announcements of significant spending on infrastructure, including a desalination
plant, pipelines to transfer water between regions and upgrades to irrigation systems.
Our Water Our Future and associated plans form the framework of water policy in
Victoria.83
4.3 Emerging drought policy issues and debates in Victoria
4.3.1 Strengthening and supporting rural communities
Community strengthening and social capacity building fit within the drought policy
approach of supporting preparation, resilience and recovery. The Victorian
Government has funded a number of programs in drought affected communities with
these aims in mind.84
The Victorian Drought Social Recovery Strategy, coordinated by the DHS Emergency
Response Unit, provided funding to employ local community development officers to
support community strengthening and drought recovery activities including social
gatherings. The aim of this program was to build community adaptive capacity using
local resources.85
The Rural Women, Drought and Climate Change Initiative under the DPCD is a two
year project (which commenced in 2007) that employs five local coordinators to
develop networks and strategies to support rural women’s role in supporting
adaptation to climate change and drought.
In October 2007, the Victorian Government announced funding for drought
coordinator positions within local councils in exceptional circumstances declared
areas. This program will aim to provide coordination and brokerage of drought
responses at the local level.86
While there is a clear community strengthening and resilience focus of these
projects, the efficacy of these community strengthening approaches may have been
undermined by short time funding models. For example, the Victorian Drought Social
22
Recovery Strategy was designed as a four year project, and was funded in four
separate nine month funding rounds.87 Programs funded by DHS such as the
‘Sustaining Community Wellbeing’ program and the ‘Tackling Mental Health Initiative’
were targeted at specific areas deemed to be severely drought affected and also
received only time limited funding.
Short term funding creates difficulties in staff recruitment and retention and leaves
programs vulnerable to disruption due to changes in staff – a significant issue in work
which is centred around networking. Even where funding for programs is extended,
uncertainty leading up to funding announcements contributes to staff turnover. These
short term funding models reflect an ‘emergency response’ approach to drought
policy.
Many programs are also focussed on farmers and may not address the needs of
other low income and disadvantaged groups within drought affected communities.
Community strengthening programs need to be more widely and sustainably funded
and better integrated with other social and economic transition activities to develop
‘bridging capital’ and to function more effectively to increase community resilience.88
4.3.2 Education and training
The economic stresses of drought impact on the education of rural young people.89
Several policy initiatives at the Victorian and federal level have been developed to
address these issues.
The federal Drought Force program, which allows people in drought affected areas to
undertake farm work as part of a Work for the Dole scheme, provides benefits to rural
young people by allowing them to work on the family farm while accessing a
NewStart allowance.
Some funding for skill development is available through the Federal Government to
support drought affected farmers to either gain accreditation for additional skills, such
as trades, or to retrain on exiting farming.
The Victorian Government has put in place a number of drought policies related to
education assistance including:

‘Back to School’ funding, administered through VicRelief and Foodbank,
which distributes funding to meet school costs through local community
agencies;

assistance for families in drought affected areas who are struggling to pay
kindergarten fees; and

apprenticeship retention support.
Evaluation of the effectiveness of these programs and the distribution of access to
them within drought affected community in Victoria would greatly assist in future
policy making around education and training.
4.3.3 Health
The mental health impacts of drought are significant and widely recognised. In
October 2007, the Victorian Government announced an additional $587,000 funding
for mental health services in drought affected areas. This investment builds on a
previous funding which was due to expire in December 2007.
23
Appropriate service delivery models for drought related support services – such as
outreach models which support anonymity of service users in rural communities - are
essential.
Short term funding models for drought social support services impact on the retention
of a skilled workforce and increases the cost of program delivery.
The financial and social effects of drought and their health implications adds greater
urgency to issues associated with limited access to bulk billing health services in
rural areas and recruitment difficulties for rural health and mental health
professionals.90
5. Role for VCOSS
5.1 Climate change, drought and equity cross sector advocacy
Most coordinated advocacy in the area of climate change and equity within the nongovernment sector has been focussed at the federal level, particularly in the context
of a federal election year.91
For example, the Brotherhood of St Laurence (BSL), the National Welfare Rights
Council, the Australian Conservation Foundation (ACF) and the Climate Institute
convened a ‘Climate Change and Equity’ roundtable in March 2007. The BSL’s policy
and research unit is developing a research program in this area and is in the process
of employing research staff.92 Australian Council of Social Service, the ACF and
Choice have also formed a partnership to produce a report on energy efficiency and
equity.93
There is a gap in such coordinated advocacy at the Victorian state level - given that
state and local governments are likely to remain responsible for many policy areas
particularly those around adaptation, in which social and equity impacts of climate
change are likely to be an issue. VCOSS could have a role in developing networks
between the environment and social justice sectors to advocate at the state level.
In the UK, the community sector has developed the ‘Third Sector Declaration on
Climate Change’ as a public statement of the link between social justice and climate
change issues. The declaration summarises the imperative for the community sector
to address environmental issues as organisations and advocates.94 The adoption of a
clear policy position which identifies climate change as a social justice issue is a
possible first step towards coordinated advocacy across the non-government sector.
VCOSS could provide leadership in this area through the development and
endorsement of a similar statement.
5.5 Proposed priority policy areas for VCOSS
The social justice and equity implications of climate change, drought and policies to
address these issues create a case for VCOSS intervention in a number of policy
areas. In some cases these issues are already addressed within existing VCOSS
policy areas. For example, climate change issues are already incorporated as a
secondary consideration into policy work around transport and utilities. However,
including climate change as a social justice issue in and of itself has not been part of
VCOSS policy work to date.
24
Some work around the impact of drought on service provision in the context of
climate change is already undertaken by VCOSS in the areas of emergency relief
and health, however drought and accompanying rural social and economic
adjustment have not been actively considered as a long term drivers of social policy.
A clearer mandate to work directly on equity and climate change issues would
increase capacity, expertise and visibility in specific aspects of policy related to
climate change and drought. This would allow VCOSS to engage more actively in
policy development and critique in these areas.
The following policy areas are considered the most immediate and strategic for
VCOSS to begin actively incorporating into policy work:

energy and water pricing and household efficiency;

heat waves and health inequalities;

responses to increased food costs;

domestic water security;

social and economic support policies associated with drought; and

housing standards and insurance.
Policy positions in these, and other areas, are outlined in Section 6 below.
5.3 Supporting inclusive and equitable climate change policy and
research
It is vital that the community sector engages with policy and research developments
to encourage and facilitate the inclusion of equity considerations and the voices of
disadvantaged groups.
Research and policy development around climate change within universities and
government is broadening from looking at purely eco-systemic and environmental
impacts to looking at social impacts and adaptation. Ensuring that there are adequate
baseline measures and appropriate indicators which can be used to monitor the
impacts of climate change and climate change policy on different vulnerable groups
is important.95 Similarly there is a role for the community sector in assisting
researchers and policy makers in including direct information about impacts on
vulnerable communities in their work.
At the local level this involvement is also critical. Regional work into understanding
the impacts of climate change on communities and assessments of adaptive
capacity, for example, need to reflect diversity within communities. The community
sector can have a role in ensuring that disadvantaged communities are able to
participate in consultation and planning processes as well as representing these
groups and advocating on their behalf.
VCOSS’s role in undertaking social research and links to the research community
and government provide an important opportunity to proactively ensure that social
and equity considerations are incorporated from an early stage. This is essential not
only to avoid inequitable outcomes, but also to avoid social and equity concerns
being manipulated as a justification to avoid action.
25
5.4 Impact of drought and climate change on community service
delivery
Climate change and drought will be increasingly prominent in the operating
environment of community sector organisations. VCOSS could take the lead in
documenting the impact of climate change and drought on the community sector and
advocating for appropriate and timely strategic planning in this area.
The community sector delivers a range of services which may face increasing
demand under the effects of climate change and drought. These include; health and
mental health services, support for older people, emergency response and
emergency relief services. It is important that services are able to be expanded to
meet this increased demand. The ability of the community sector to respond to
changing community needs will require appropriate and timely service planning and
adequate funding. The community sector may need to continue to advocate for
adequately funding for these services supported by evidence of changing service
demand and unmet need.
Outreach models suitable for drought support work in rural areas may raise
occupational health and safety issues for unaccompanied workers ‘cold calling’
clients who may be in crisis in areas with poor mobile phone coverage.96 The cost of
outreach service delivery models over large service areas is also problematic in the
context of high petrol prices.97
Community based organisations have strong links into local communities, especially
into groups within communities who may have difficulty accessing information or may
be hard to reach with mainstream marketing and communication strategies. The
community sector’s role as a conduit of information to vulnerable and disadvantaged
groups will be vital in ensuring that information about climate risks is distributed to,
and understood by, those who need it most. For example, information about
preparing for heat waves or other emergencies, opportunities for climate proofing or
increasing water and energy efficiency within the home and support services or
material assistance available during droughts, fires or other emergencies will reach
vulnerable groups more effectively through the utilisation of community sector
networks.
5.5 Supporting community sector sustainability
The community sector, like all other parts of the Australian community, has a
responsibility to take action to prevent catastrophic climate change, especially given
the equity implications at a global level.
There is growing interest within the sector in incorporating environmentally
sustainable organisational practices.98
Community sector organisations will also need to adapt to changing conditions under
climate change including higher utilities and fuel prices as part of broader sector
sustainability planning. The community sector has scope to reduce their
environmental impact and vulnerability to price rises but may benefit from education,
support and funding incentives to do so given limited financial resources.99
There are numerous programs, networks, information services and grant
opportunities to support the business sector to reduce their environmental impact,
some of which may be available to the community sector.
26
The community sector may also choose to become involved in the delivery of
environmental programs, especially those like household retrofitting which will
directly benefit low income groups.100
In response to these emerging issues, opportunities for VCOSS’ in sector
development include work to support and encourage the sector to function more
sustainably. Work in this area could include:

information distribution;

coordinating training and professional development;

advocating for increased access to grants programs;

brokering of partnerships and access to sustainability services;

development of environmental management strategies for the community
sector; and

investigation of the use of ICT to reduce fuel consumption.
6. Recommendations
6.1 Organisational recommendations
It is recommended that VCOSS:
1. Work to minimise the impacts of climate change and drought on low income and
disadvantaged households by engaging in climate change and drought policy
development and advocacy. This could be achieved by:
a. incorporating consultation, advocacy and policy development around
social and equity implications of climate change (including drought) into
existing VCOSS policy areas, specifically; utilities, emergency relief,
housing, health and transport; and
b. coordinating cross sectoral advocacy and policy development around the
social and equity implications of drought and climate change.
2. Build on existing research and government networks to promote a focus on social
and equity issues in emerging climate change research agendas.
3. Incorporate environmental sustainability for the community sector into VCOSS
community sector development work. This could include:
a. promoting environmental best practice;
b. distributing information about environmental programs and funding
opportunities;
c. coordinating information sharing on environmental strategies;
d. investigating bulk purchase opportunities for more sustainable products;
and
e. investigating the more effective use of technology (e.g. video
conferencing) to reduce travel.
27
6.2 Recommended policy positions
1. Strategic policy and research development
a. Equity should underpin climate change and drought policy formation.
b. Social impacts of climate change should be incorporated into government
research on climate impacts and adaptation (including projects such as
the Garnaut review and adaptation assessments).
c. Climate change impact and vulnerability assessments which inform policy
should actively include a focus on low income and disadvantaged groups.
2. Utilities
a. Utilities pricing structures should protect the affordability of basic usage
for all household sizes, while discouraging excessive use.
b. Revenue generated from emissions trading or other carbon pricing
policies should be used to fund efficiency programs for low income and
disadvantaged households.
c. Further investment is required in programs which support low income and
disadvantaged households to increase their water and energy efficiency,
including the purchase of energy efficient appliances.
d. Public housing properties should be proactively retrofitted to increase their
efficiency.
e. Programs should be developed to support low income renters to increase
their water and energy efficiency.
f.
All low income households in Victoria should have access to domestic
water at an equivalent cost.
g. Low income households who are not on the reticulated water system
should be supported to increase their water storage capacity.
3. Housing
a. Rental housing standards which include energy and water efficiency and
thermal efficiency should be established.
b. Building standards need to be strengthened to further enhance the energy
and water efficiency of new homes.
c.
As areas vulnerable to flooding and coastal erosion/sea level rise are
identified, planning processes should be amended to prevent residential
development in these areas.
d. Policy options for relocating households in climate vulnerable areas
should be explored.
4. Transport
a. Investment in public and active transport should be increased to reduce
the vulnerability of low income and disadvantaged households to high fuel
prices.
28
5. Drought
a. Drought should be treated as a long term policy issue in the context of
climate change and rural adjustment.
b. Given the long term nature of drought impacts, short term funding of
drought social support programs undermines their effectiveness and
efficiency due to loss of staff, networks and expertise between funding
rounds.
6. Health
a. Low income and disadvantaged groups, especially isolated older people,
people with chronic illness and families with young children should be the
primary target of heat wave planning and response policies.
b. The Victorian Government should work actively with the community sector
to identify and appropriately support groups vulnerable to the effects of
high temperatures.
c. Food insecurity is a significant health risk – all Victorians should have
access to affordable and nutritious food.
d. Mental health services in drought and climate change affected rural areas
should be adequately funded.
7. Community strengthening
a. Community strengthening will assist in reducing the negative impacts of
climate change and drought on low income and disadvantaged
communities.
b. Social and employment support programs associated with drought should
actively include low income and disadvantaged groups.
c. The Department of Planning and Community Development should
conduct a rural social health audit, building on, but not limited to,
established community indicators.
8. Education and training
a. Policies and programs should be put in place to reduce the impact of
drought on rural young people’s educational opportunities.
9. Emergency response
a. Emergency relief networks need to be strengthened and better
coordinated in order to deal with increased frequency of drought and
extreme weather events in rural and regional areas.
b. The emergency relief sector should be supported to collect adequate data
to provide evidence of increased demand.
c. Emergency response networks which rely on volunteers need to be better
supported to deal with increased demand and potentially lower volunteer
base due to aging populations.
d. Policy options for increasing access to insurance and emergency credit
for low income and disadvantaged groups need to be developed.
29
10. Community sector development
a. The community sector should take active steps to reduce greenhouse
emissions.
b. The community sector should have access to grants programs for
infrastructure to increase their energy and water efficiency.
Glossary
ACF
Australian Conservation Foundation
AGO
Australian Greenhouse Office (federal Department of Environment
and Water Resources)
BSL
Brotherhood of St Laurence
COAG
Council of Australian Governments
CSIRO
Commonwealth Scientific and Industry Research Organisation
DHS
Department of Human Services
DIIRD
Department of Innovation, Industry and Regional Development
DPC
Department of Premier and Cabinet
DPCD
Department of Planning and Community Development
DPI
Department of Primary Industries
DSE
Department of Sustainability and Environment
MRET
Mandatory Renewable Energy Target
NETT
National Emissions Trading Taskforce
OCC
Office for Climate Change (Department of Premier and Cabinet)
UNFCCC
United Nations Framework Convention on Climate Change
VCOSS
Victorian Council of Social Service
VEET
Victorian Energy Efficiency Target
VRET
Victorian Renewable Energy Target
1
International Panel on Climate Change, Climate change 2007: Mitigation. Contribution of working
group III to the fourth assessment report of the Intergovernmental Panel on Climate Change [B. Metz,
O. R. Davidson, P.R. Bosch, R. Dave, L. A. Meyer (eds)], Cambridge University Press, Cambridge,
United Kingdom and New York, NY, USA, May 2007. Available from
http://www.ipcc.ch/SPM040507.pdf, viewed 21 August 2007.
2
P Christoff, ‘Policy autism of double-edged dismissiveness? Australia’s climate policy under the
Howard government’, Global Change, Peace and Security, Vol 17, No 1, February 2005, p. 36.
3
Australian Greenhouse Office (AGO), National Greenhouse Gas Inventory 2005, Department of
Environment and Water Resources, Commonwealth of Australia, 2007, 1. Available from:
http://www.greenhouse.gov.au/inventory/2005/pubs/inventory2005.pdf, viewed 10 June 2007.
4
Department of Sustainability and Environment Climate change in Victoria: a summary, Victorian
Government, Melbourne, 2006. The range within these predictions is due to the complexity of climate
modelling and reflects the use of a variety of modelling scenarios. The climate predictions provided by
CSIRO are based on global modelling by the International Panel on Climate Change (IPCC) and
adapted to assess local impacts. They are generally considered to be a conservative predication based
30
on the best scientific evidence available. They exclude predictions of climate ‘tipping points’ such as
the melting of the Greenland ice sheets or the melting of arctic permafrost which some scientists argue
may lead to accelerated climate change impacts.
5
R Garnaut, ‘Will climate change bring an end to the platinum age?’, Inaugural S. T. Lee Lecture on
Asia and the Pacific, Australian National University, 29 November 2007.
6
B Pittock, Climate change: turning up the heat, Earthscan, Melbourne, pp. 120-121.
7
R Woodruff, S Hales, C Butler and A McMichael, Climate change health impacts in Australia: effects
of dramatic CO2 emission reductions, Australian Conservation Foundation and Australian Medical
Association, 2005. Available from: http://www.acfonline.org.au/news.asp?news_id=565, viewed 13
July 1007.
8
Department of Human Services, Climate change and health: an exploration of challenges for public
health in Victoria, Victorian Government Department of Human Services, October 2007.
9
International Federation of Red Cross and Red Crescent Societies, World Disasters Report, 2004.
10
Department of Sustainability and Environment, Climate change in Victoria.
11
A McMichael et al, Human health and climate change in Oceania: a risk assessment,
Commonwealth of Australia, Canberra, 2003. Available from:
http://www.health.gov.au/internet/wcms/Publishing.nsf/Content/health-pubhlth-publicat-documentmetadata-env_climate.htm/$FILE/env_climate14.pdf, viewed 13 July 2007.
12
L Denison, ‘Predicted impact of climate change on air quality and implications for health’,
presentation at the Climate Change and Human Health Conference, Melbourne, 16 – 17 October, 2007.
13
M Cope, ‘Climate change, air quality and health’, presentation at the Climate Change and Human
Health Conference, Melbourne, 16 – 17 October, 2007.
14
Denison.
15
Regional Development Victoria, 2007 Report from the Ministerial Taskforce on Bushfire Recovery,
Victorian Government, Melbourne, March 2007.
16
Regional Development Victoria.
17
Department of Sustainability and Environment, Regional Atlas 2006, 2006. Available from
http://www.dpi.vic.gov.au/CA256F310024B628/0/72575D6701CA8226CA257117001C7480/$File/Vo
lunteer+emergency+services.pdf, viewed 5 June 2007.
18
Commonwealth Scientific and Industrial Research Organisation (CSIRO), Infrastructure and climate
change risk assessment for Victoria, CSIRO, Melbourne, March 2007, 3. Available from
http://www.greenhouse.vic.gov.au/CA256F310024B628/0/2021C307264A6473CA2572DD00055CBB
/$File/Climate+change+and+Infrastructure+Final.pdf, viewed 5 June 2007.
19
G Sheehan and G Renouf, Risk and reality: access to general insurance for people on low incomes,
Brotherhood of St Laurence, June 2006, iii.
20
CSIRO, 29.
21
O Guerrera, ‘Poor grain drives up food price’, The Age, September 19, 2007.
22
Department of the Environment and Water Resources, Murray-Darling basin dry inflow contingency
planning: overview report to first ministers, Australian Government, Canberra, September 2007.
Available from http://www.environment.gov.au/water/publications/mdb/dry-inflow-planningsep07.html, viewed 16 July 2007.
23
Interview with Brenda McLachlan, Drought Coordinator, Victorian Farmers Federation, 5 June 2007.
24
Interview with Victor Sposito, 5 June 2007, and interview with Sally Rose, Department of Human
Services, 3 September, 2007.
25
N Barr, Understanding Rural Victoria, Department of Primary Industries, April 2005. Available
from
http://www.dpi.vic.gov.au/dpi/nrenfa.nsf/LinkView/E7CCC81CD1D09B57CA25706C00276AB4B135
CE2F68C588B6CA256E760010E52E, viewed 20 July 2007.
26
Department of Human Services.
27
M Alston and J Kent, The impact of drought on secondary education access in Australia’s rural and
remote areas, Centre for Rural Social Research, Charles Sturt University, February 2006. Available
from: http://www.dest.gov.au/NR/rdonlyres/4415AD4A-F3AF-40DF-9F1000F5DE08E855/12764/Impact_Droughtreport23Jan2006.pdf
28
Interview with Lea Markey, Rural Community Resource Worker, Anglicare Victoria, 10 September
2007
29
Guerrera.
30
Australian Greenhouse Office, Living with climate change: an overview of potential climate change
impacts on Australia, 2002. Available from: http://www.greenhouse.gov.au/impacts/overview/, viewed
14 July 2007.
31
31
J Lee, Climate change and equity in Victoria: social impacts of climate change on low-income
earners, Friends of the Earth, Melbourne, 2007.
32
CSIRO.
33
Interview with Dean Lombard, Policy Analyst, Utilities and Consumer Affairs,VCOSS, 23 July
2007.
34
National Institute of Economic and Industry Research, The impact of carbon prices on Victorian
selected household types: a preliminary analysis, Brotherhood of St Laurence, March 2007.
35
G Currie and Z Senbergs, ‘Exploring forced car ownership in Melbourne’, Australasian Transport Research
Forum, 2007.
36
Christoff, p. 36
E.g. Department of Prime Minister and Cabinet, Securing Australia’s Energy Future,
Commonwealth of Australia, Canberra, 2004.
38
L Minchin, ‘APEC sets high energy target’, The Age, 23 August 2007. Available from
http://www.theage.com.au/news/general/apec-plan-sets-high-energytarget/2007/08/22/1187462354561.html, viewed 29 August 2007.
39
B Nelson, Federal Opposition Leader, 29 November 2007. Available from
http://www.liberal.org.au/info/news/detail/20071129_JointTranscriptTheHonBrendanNelsonMPandTh
eHonJulieBishopMP.php, viewed 17 December 2007.
40
E.g. M Warren and S Marris, ‘Rudd resiting Bali targets’, The Australian, 12 December, 2007.
41
Department of Prime Minister and Cabinet, Australia’s climate change policy: our economy, our
environment, our future, Commonwealth of Australia, July 2007.
42
B Doherty and J Topsfield, ‘Coalition sets energy targets’, The Age, 24 September, 2007.
43
K Rudd, P Garrett and C Evans, Labor’s 2020 target for a renewable energy future, election 2007
policy document, Alp, Canberra,
http://www.alp.org.au/download/071030_renewable_energy_policy___final.pdf, viewed 17 December
2007.
44
Council of Australian Governments, National Climate Change Adaptation Framework, April 2007.
Available from:
http://www.coag.gov.au/meetings/130407/docs/national_climate_change_adaption_framework.pdf,
viewed 26 August 2007.
45
Department of Sustainability and Environment, Victorian Greenhouse Strategy Action Plan Update,
Victorian Government, Melbourne, April 2005. Available from
http://www.dpi.vic.gov.au/dse/nrence.nsf/childdocs/-9346722B17B12FB94A256B2600181AF1?open,
viewed 12 June 2007.
46
Victorian Climate Change Adaptation Program website,
http://www.greenhouse.vic.gov.au/greenhouse/wcmn302.nsf/LinkView/DB2BD54FA9CEEC7CCA25
719A002A0E70013EE11B94AB8025CA2571A80011DB4B, viewed 16 August 2007.
47
See http://www.healthclimate2007.com/
48
Interview with Professor John Wiseman, 6 August 2007.
49
M Turnbull (Minister for Environment and Water Resources),‘$170 million to help Australian adapt
to climate change’, media release, 8 May 2007.
50
K Rudd (Federal Labor Leader), Garnaut climate change review, media release, 30 April 2007.
Available from: http://www.alp.org.au/media/0407/msloo300.php, 15 August 2007.
51
Garnaut.
52
C Brooke and P Kinrade, Climate change impacts in Western Port, Western Port Greenhouse
Alliance, May 2006 and North East Greenhouse Alliance, Understanding climate change impacts: final
report, May 2007.
53
G Dufty, ‘Electricity pricing: delivering social justice and environmental equity’, Just Policy, Vol.
46, December 2007, pp. 66-72.
54
Brotherhood of St Laurance, Catholic Social Services Australia and the National Welfare Rights
Network, Joint Submission to the Prime Ministerial Task Force on Emissions Trading, April 2007.
55
The Age, ‘Howard’s climate find comes under attack’, 22 October 2007. Available from
http://www.theage.com.au/news/National/Howards-climate-fund-comes-underattack/2007/10/22/1192940949507.html, viewed 30 October 2007.
56
Interview with Gavin Dufty, St Vincent de Paul, 24 July, 2007.
57
J Thwaites (Victorian Deputy Premier), Kerford Oration – Social justice and climate change, La
Trobe University Beechworth, 29 July 2007.
58
Victorian Labor Party, Tackling climate change – helping families play their part: policy for the
2006 Victorian Election, Melbourne, 2006.
37
32
59
K Rudd (Federal Labor Leader), ‘Federal Labor’s low emission plan: fighting climate change in
rental properties’, media release, 26 October 2007. Available from
http://www.alp.org.au/media/1007/msloo261.php, viewed 10 November 2007.
60
Victorian Labor Party.
61
Interview with Ken de Vries, Department of Human Services, 3 August 2007.
62
Interview with Gavin Dufty, St Vincent de Paul, 24 July, 2007.
63
Department of Human Services, Carted and Non-Mains Water Rebate 2006/07: Fact sheet,
Victorian Government, Melbourne, 2006.
64
Interview with Lea Markey.
65
Department of Human Services.
66
Department of Sustainability and Environment, Melbourne Atlas, 2006, 5.10.
67
VicHealth, Healthy Eating – Food Security Investment Plan 2005 – 2010. Available from
http://www.vichealth.vic.gov.au/assets/contentFiles/VicHealthper cent20Foodper cent20Insecurityper
cent20Investmentper cent20paper.pdf, viewed 11 November 2007.
68
See Victorian Community Indicators Project website http://www.communityindicators.net.au/.
Viewed 14 November 2007.
69
Guerrera
70
Australian Bureau of Statistics, Consumer Price Index, Australia: September 2007, Report number
6401.0, ABS, Canberra, October 2007.
71
See http://www.buildingcommission.com.au/www/html/1619-5-star-renovations-and-relocationsfrom-1-may-2008.asp, viewed 10 November 2007.
72
Department of Sustainability and Environment, Melbourne 2030: planning for sustainable growth,
Victorian Government, Melbourne, October 2002.
73
R Sietchiping, ‘Applying an index of adaptive capacity to climate change in north-western Victoria,
Australia’ Applied GIS, Vol 2, No 3, 2006.
74
Interview with Patricia Fitzsimons, Section Leader, Spatial Sciences Parkville - Landscape Systems,
Department of Primary Industries, 10 August 2007
75
Department of Sustainability and Environment website,
http://www.dse.vic.gov.au/DSE/wcmn202.nsf/LinkView/536BE7F119278811CA2572050019952C24
A863482673BE31CA25720A0022D13B, viewed 1 October 2007.
76
L Botterill, ‘Uncertain climate: the recent history of drought policy in Australia, Australian Journal
of Politics and History, Vol 49, No 1, 61-74.
77
A Leadbeater, ‘Social policy or divine intervention? The changing face of drought’, Just Policy, Vol
46, December 2007, pp. 21-27.
78
National Farmers’ Federation, ‘Dealing with drought: secure today, but prepare for tomorrow’,
media release, 4 October, 2007.
79
Leadbeater.
80
Interview with Sally Rose, Department of Human Services, 3 September, 2007.
81
Botterill.
82
Office of the Premier, ‘Premier announces $100 million drought relief package’, media release, 24
October, 2007.
83
See http://www.ourwater.vic.gov.au/
84
S Rose, ‘Resilience and wellbeing – protection and promotion through cross government
partnership’, presentation at the Climate Change and Human Health Conference 2007, Melbourne, 16
– 17 October, 2007.
85
Interview with Greg Ireton, VicRelief and Foodbank, 7 June, 2007.
86
Office of the Premier.
87
Interview with Greg Ireton.
88
S Rose, ‘Resilience and wellbeing’
89
M Alston and J Kent, The impact of drought on secondary education access in Australia’s rural and
remote areas, Centre for Rural Social Research, Charles Sturt University, February 2006. Available
from: http://www.dest.gov.au/NR/rdonlyres/4415AD4A-F3AF-40DF-9F1000F5DE08E855/12764/Impact_Droughtreport23Jan2006.pdf
90
Participant discussion, Climate change and rural health: the challenge of climate change for health
in rural and regional Victoria, seminar at the University of Melbourne, 27 August, 2007.
91
Interview with Louise Morris, Climate Campaigner, Environment Victoria, 12 July, 2007.
92
Interview with Dr Janet Stanley.
93
Interview with Tony Westmore, ACOSS, 21 September, 2007.
94
Available from: http://www.everyactioncounts.org.uk/declaration/
33
95
Interview with Prof John Wiseman
Interview with Lea Markey.
97
VCOSS, ‘Health and community sector workshop: Peak oil petrol prices and climate change
conference’, 27 June, 2007. Available from http://www.vcoss.org.au/what-we-do/transport/peakoil.htm, viewed 13 July 2007.
98
K Olaris, Climate change action in community health, unpublished research paper, 2007.
99
Olaris.
100
Interview with Dr Janet Stanley, Brotherhood of St Laurance,
96
34