The Governance Challenge
Sea level rise poses fundamental challenges to existing governance structures. As a global phenomenon driven by cumulative greenhouse gas emissions over centuries, it requires international cooperation on an unprecedented scale. Yet its impacts are felt locally, requiring adaptation decisions by municipalities, property owners, and communities. Bridging this gap between global causes and local impacts is a central challenge of sea level rise governance.
This chapter examines the policy and governance frameworks addressing sea level rise at international, national, and local levels. Understanding this landscape is essential for anyone working on sea level rise adaptation, as these frameworks shape the resources available, the legal requirements in force, and the coordination mechanisms through which effective action can be organized.
Mitigation vs. Adaptation
Climate policy distinguishes between mitigation (reducing greenhouse gas emissions to limit future climate change) and adaptation (adjusting to the climate changes that cannot be avoided). Sea level rise policy necessarily emphasizes adaptation because significant rise is already committed due to past emissions. However, mitigation remains essential to limit the ultimate magnitude of rise and avoid the most catastrophic long-term scenarios.
International Frameworks
United Nations Framework Convention on Climate Change (UNFCCC)
The foundation of international climate governance since 1992The UNFCCC, adopted at the 1992 Earth Summit in Rio de Janeiro, established the basic framework for international climate cooperation. With near-universal membership of 198 parties, it provides the institutional structure through which climate negotiations occur, including the annual Conference of the Parties (COP) meetings that have produced major agreements including the Kyoto Protocol and Paris Agreement.
While the UNFCCC's primary focus has been on mitigation, it increasingly addresses adaptation, including through the Cancun Adaptation Framework (2010) and the Paris Agreement's Global Goal on Adaptation. The convention recognizes the particular vulnerability of small island developing states (SIDS) and low-lying coastal areas to sea level rise.
Established
1992 (entered force 1994)
Membership
198 Parties (near-universal)
Key Mechanism
Annual COP meetings
Paris Agreement (2015)
The landmark accord committing nations to limit global warmingThe Paris Agreement, adopted at COP21 in 2015, represents the most comprehensive international climate agreement to date. Its central goal is to limit global average temperature increase to well below 2 degrees Celsius above pre-industrial levels, with efforts to limit increase to 1.5 degrees. This temperature goal has direct implications for sea level rise, as limiting warming is essential to limiting long-term sea level rise.
The Agreement also establishes a Global Goal on Adaptation, calling for enhanced adaptive capacity, strengthened resilience, and reduced vulnerability to climate change. It introduces the concept of "loss and damage" associated with climate impacts, acknowledging that some impacts cannot be adapted to and may require compensation or other support.
Temperature Goal
Well below 2°C / pursue 1.5°C
Key Innovation
Nationally Determined Contributions
Finance Target
$100B/year (being renegotiated)
Key International Climate Finance Mechanisms
Green Climate Fund (GCF)
The main financial mechanism of the UNFCCC, the GCF supports both mitigation and adaptation in developing countries. It has approved over $10 billion in projects, with approximately half supporting adaptation.
Adaptation Fund
Established under the Kyoto Protocol, the Adaptation Fund provides direct access financing for adaptation projects in vulnerable developing countries, with over $850 million committed since 2010.
Global Environment Facility
One of the oldest climate funds, the GEF supports both mitigation and adaptation, including through its climate change focal area and the Least Developed Countries Fund.
Loss and Damage Fund
Established at COP27 in 2022, this new fund will provide support for loss and damage from climate impacts, particularly for vulnerable countries affected by sea level rise and extreme events.
Sendai Framework for Disaster Risk Reduction
The Sendai Framework for Disaster Risk Reduction 2015-2030, adopted at the Third UN World Conference on Disaster Risk Reduction, provides the global framework for reducing disaster risk. While not specific to climate change, it is highly relevant to sea level rise adaptation given the connection between rising seas and increased coastal flood risk.
Sendai Framework Priorities
- Priority 1: Understanding disaster risk - including climate-related risks from sea level rise
- Priority 2: Strengthening disaster risk governance - institutional frameworks for coastal management
- Priority 3: Investing in disaster risk reduction - coastal protection and adaptation investments
- Priority 4: Enhancing preparedness for effective response - early warning systems and emergency planning
"There has been a shift from managing disasters to managing risks. [...] A wider and more people-centered preventive approach to disaster risk must be adopted."
Regional and National Frameworks
While international frameworks set the global context, much of the substantive policy on sea level rise occurs at regional and national levels. Countries vary widely in their approaches, reflecting differences in exposure, capacity, governance systems, and political priorities.
| Country/Region | Key Policy Framework | Notable Features |
|---|---|---|
| Netherlands | Delta Programme | Comprehensive long-term adaptation plan, annual updates, legally binding flood protection standards |
| United Kingdom | Climate Change Act / National Adaptation Programme | Statutory adaptation reporting, 5-year climate risk assessments, Thames Estuary 2100 Plan |
| United States | Federal Flood Risk Management Standard (rescinded/reinstated) | Decentralized approach, FEMA flood mapping, state-level variation in adaptation policy |
| Australia | National Climate Resilience and Adaptation Strategy | State-level coastal planning policies, significant local government role |
| European Union | EU Adaptation Strategy / Floods Directive | Member state flood risk management plans, Nature-based solutions emphasis |
| Japan | Climate Change Adaptation Act | National Adaptation Plan, prefectural adaptation planning requirements |
Alliance of Small Island States (AOSIS)
AOSIS, a coalition of 39 small island and low-lying coastal developing states, has been a leading voice in international climate negotiations on sea level rise issues. AOSIS members face existential threats from sea level rise and have advocated strongly for ambitious mitigation targets, adaptation support, and recognition of loss and damage. The alliance successfully pushed for inclusion of the 1.5 degree temperature goal in the Paris Agreement and the establishment of the Loss and Damage Fund.
Key Policy Issues
Climate Finance
Financing adaptation to sea level rise, particularly in developing countries, remains a critical challenge. The developed countries' commitment under the Paris Agreement to mobilize $100 billion per year in climate finance has not been fully met, and estimates of adaptation needs far exceed available resources. Current adaptation finance flows are estimated at $20-30 billion annually, while adaptation needs in developing countries alone are estimated at $140-300 billion per year by 2030.
The Adaptation Finance Gap
The gap between adaptation needs and available finance is growing. For coastal cities alone, adaptation costs could reach $1 trillion annually by 2050 under high sea level rise scenarios. Closing this gap requires both increased public finance and mobilization of private investment in resilient infrastructure, insurance mechanisms, and nature-based solutions.
Loss and Damage
Loss and damage refers to the impacts of climate change that exceed the limits of adaptation - impacts that cannot be avoided or adapted to, resulting in permanent losses. For sea level rise, this includes loss of territory and cultural heritage, displacement of populations, and destruction of ecosystems. The establishment of the Loss and Damage Fund at COP27 marked a significant step in addressing this issue, though details of its operation and scale remain under negotiation.
Climate Migration and Displacement
Sea level rise is expected to displace tens of millions of people by century's end, yet the international legal framework for addressing climate displacement remains underdeveloped. The 1951 Refugee Convention does not recognize climate change as grounds for refugee status, leaving "climate refugees" without formal legal protection. Recent developments including the Global Compact for Safe, Orderly and Regular Migration and the Nansen Initiative on Disaster-Induced Cross-Border Displacement have begun to address this gap, but comprehensive solutions remain elusive.
Maritime Boundaries and Territory
Sea level rise raises unprecedented questions of international law regarding maritime boundaries and territorial sovereignty. Under the UN Convention on the Law of the Sea (UNCLOS), maritime zones are measured from coastal baselines that may shift as sea level rises. This could result in loss of Exclusive Economic Zones, changes in navigational rights, and even extinction of island states. The International Law Commission has established a study group on this issue, but legal solutions remain uncertain.
Timeline of Key Developments
The Role of Standards
Technical standards play an important role in coastal adaptation by establishing consistent methodologies, ensuring quality, and facilitating interoperability. The WIA-SLR-001 standard fits within a broader landscape of standards relevant to sea level rise, including:
- ISO 14090/14091: Standards for climate adaptation planning and vulnerability assessment
- ISO 31000: Risk management principles applicable to sea level rise risks
- IPCC Guidelines: Scientific methodologies for climate projections and impact assessment
- GLOSS Standards: Technical standards for tide gauge measurements and sea level data
- National Building Codes: Construction standards for flood-resistant buildings
- WIA-SLR-001: Comprehensive standard for sea level rise monitoring, assessment, and adaptation
WIA Standards and Global Governance
The WIA-SLR-001 standard supports implementation of international frameworks by providing practical guidance for monitoring, assessment, and adaptation. It aligns with UNFCCC transparency requirements, Sendai Framework priorities, and SDG indicators while offering the technical specificity needed for implementation at national and local levels.
Summary
Sea level rise governance spans multiple levels from international agreements to local adaptation planning. The UNFCCC and Paris Agreement provide the overarching framework for climate action, while the Sendai Framework addresses disaster risk reduction. Regional and national policies translate these frameworks into specific requirements and programs, with significant variation across jurisdictions.
Key policy challenges include mobilizing adequate adaptation finance, addressing loss and damage for impacts beyond adaptation limits, managing climate displacement, and resolving unprecedented legal questions regarding maritime boundaries and sovereignty. Standards like WIA-SLR-001 play an important role in ensuring consistent, high-quality implementation of adaptation measures.
As sea level rise accelerates, pressure on governance systems will intensify. Effective response requires not only scaling up current efforts but also institutional innovation to address challenges that existing frameworks were not designed to handle. The principle of 弘益人間 (Benefit All Humanity) embodied in WIA standards points toward the kind of solidarity and cooperation that effective global response will require.