1 Introduction

Anthropogenic climate change has already led to serious and, in part, irreversible consequences for nature and communities across the world. Climate change is happening faster than expected, and the consequences are more extensive and dramatic than previously thought. The last eight years are globally the eight warmest on record.

If the world fails to meet the Paris Agreement goals of limiting warming to well below 2 degrees Celsius, and preferably 1.5 degrees Celsius, climate change will further intensify, with even more serious and far-reaching consequences over the course of this century. Based on the emission reduction targets adopted under the Paris Agreement, the world is now, in 2023, on track towards 2.5 degrees Celsius of warming towards the end of the century. Due to previous emissions, warming will continue for decades to come even if the extensive emission reductions required in the next few years are successful.

Globally, between 3.3 and 3.6 billion people now live in areas, or in ways, that make them highly vulnerable to the consequences of a changing climate. Drought and flooding make land uninhabitable. Rising sea levels endanger cities and communities in vulnerable coastal areas. High temperatures, extreme weather and natural disasters threaten the world’s food production.

Norway is also experiencing the changing climate. Climate change has consequences for nature and for society at large. Almost all sectors, from agriculture, fisheries and aquaculture to health, transport, culture and energy are affected. Climate change has consequences for public security and for foreign, defence and security policy. An open economy and extensive international trade and cooperation make Norway vulnerable to the effects of climate change in other parts of the world, in addition to what takes place within our national borders. Climate-related risk interacts closely with other threats and risk factors globally and nationally, complicating the challenges we face.

The magnitude and severity of climate change underscore the need to adapt to a changed climate and simultaneously reduce greenhouse gas emissions significantly in Norway and globally. We must transition to a low-emission and climate-resilient society. And time is of the essence. The longer we delay action to reduce emissions and adapt, the more severe the impact on nature and society.

Norway is well positioned to achieve a successful transition while safeguarding the safety and welfare of the population and maintaining healthy ecosystems. However, we also have a responsibility to contribute to the far-reaching efforts required worldwide, especially in particularly vulnerable areas. Reducing vulnerability in other parts of the world is not only a matter of solidarity; it will also reduce the risks facing Norway.

If we are to succeed in creating a climate-resilient society, both in Norway and in the world as a whole, the transition must take place in all areas of society and everyone must contribute – government authorities, businesses, private and non-profit organisations and individuals. The transition will require broad involvement and coordination, good planning and effective governance by the authorities.

The Office of the Auditor General of Norway has assessed the authorities’ work

In 2022, the Office of the Auditor General of Norway presented the results of its study on the authorities’ work on climate change adaptation of infrastructure and buildings (Document 3:6 (2021–2022) Riksrevisjonens undersøkelse av myndighetenes arbeid med å tilpasse infrastruktur og bebyggelse til et klima i endring (in Norwegian only). The aim of the survey was to assess state and municipal authorities’ efforts to adapt infrastructure and buildings to a changing climate. The Office of the Auditor General focused in particular on national transport infrastructure.

The study primarily covered the period from 2013, following the consideration of Norway’s first white paper on climate change adaptation, Report No 33 to the Storting (2012–2013) Climate change adaptation in Norway (white paper), up until 2021. The study shows that the authorities have inadequate knowledge of how vulnerable existing buildings and transport infrastructure are to natural hazards in a future climate. There is a risk that inadequate knowledge will prevent implementation of the necessary preventive measures. The study also points out that the authorities do not have an overview of how far Norway has come in its work on climate change adaptation, and that there is insufficient coordination between the national authorities.

The Office of the Auditor General considers it serious that the authorities have not acquired a sufficient overview and have not implemented the necessary measures to secure existing buildings and infrastructure. The study states that this may lead to unnecessarily high costs for society, and consequences for the population’s security.

The Government is stepping up its climate change adaptation efforts

An important objective of this white paper is to establish a framework for integrated and coordinated climate change adaptation efforts. A better governance system for national adaptation efforts will help ensure that climate considerations are routinely assessed and systematically implemented in all sectors, and that a more uniform and coordinated approach is taken to this work. This will also help us gain more knowledge about risk and vulnerability trends for Norway and about the effects of efforts and action.

Nature plays an important role

Anthropogenic climate change is one of the main causes of the accelerating and dramatic loss of biodiversity observed across the globe. The strong link between the state of nature and society’s vulnerability to climate change requires us to consider measures to adapt, reduce emissions and protect nature in context.

Resilient and healthy ecosystems can provide important ecosystem services such as temperature regulation, flood mitigation, landslide prevention, water regulation and protection of groundwater, protection of coastal areas from rising sea levels and erosion. Ecosystems can thus be an important tool in society’s adaptation to climate change. The Government therefore places particular emphasis on the value of ecosystems for climate change adaptation and will expand Norway’s goal to include ecosystems: ‘Society and ecosystems must be prepared for and adapted to climate change’. The Government will also continue to invest in nature-based solutions.

Climate change adaptation is rooted in global goals

In addition to national targets, international goals and commitments guide climate change adaptation in Norway. The 2015 Paris Agreement set a global goal for countries to increase their adaptability and climate resilience, and reduce vulnerability to climate change, while contributing to sustainable development through their efforts to adapt. The consequences of climate change and climate change adaptation have also been mentioned in a number of other international agreements, including the Sendai Framework for Disaster Risk Reduction, the Convention on Biological Diversity and the World Heritage Convention. The UN 2030 Agenda’s Sustainable Development Goals include adaptation to climate change as part of sustainable development.

Municipalities are important actors in climate change adaptation efforts

The municipal authorities play a key role in tackling the increasingly widespread consequences of climate change and developing climate-resilient communities throughout the country. However, many municipalities report finding their climate change adaptation roles and responsibilities unclear, both in relation to central government sectors and the levels of public administration. One important goal of improving the national coordination of climate change adaptation efforts is to clarify tasks, responsibilities and guidelines for the municipal authorities.

Many of the actions presented in this white paper aim to facilitate adaptation efforts at the local level. Among other things, the Government will consider allowing municipal authorities to charge a separate fee to fund stormwater measures. Furthermore, the Government will help to ensure that climate change considerations are addressed in risk and vulnerability analyses at the local and regional level, and look at how to ensure that land-use plans are updated when new knowledge becomes available about hazard areas and the consequences of future climate change.

The work will build on the current framework

More than ten years have passed since the publication of Norway’s previous white paper on climate change adaptation. Report No 33 to the Storting (2012–2013) Climate change adaptation in Norway (white paper) was the first white paper on adaptation and provided an important foundation for these efforts in Norway. Key principles and guidelines set out in that white paper are also included in this white paper.

The principle of responsibility, i.e. that responsibility for adapting to climate change lies with the person or entity responsible for the task or function it affects, implies that everyone in society is responsible for climate change adaptation – public authorities, companies and private individuals alike.

The public authorities have sector responsibility. All sector authorities must therefore have an overview of the risks – both direct and indirect – related to climate change within their sectoral areas and assess the need for efforts and action to manage this risk. The Ministry of Climate and Environment is responsible for the Government’s comprehensive efforts on climate change adaptation and coordinates the work between the ministries.

The precautionary principle, i.e. that the high end of the range from the national climate projections should be used for considering climate change, stands firm. Emphasis on the importance of climate change in each case must be balanced against other important social considerations.

The Government has received a lot of good input in connection with its work on the white paper

This white paper has been prepared by the Ministry of Climate and Environment, in close cooperation with a number of other ministries through an inter-ministerial working group.

The Government has received a lot of good input in connection with its work on the white paper. In autumn 2022, the Minister of Climate and Environment held two input meetings. Public actors (mainly municipal and county authorities) attended one meeting while researchers, business and industry representatives, NGOs and other special interest organisations attended the other. These meetings attracted a great deal of interest, with a total of around 120 participants. In addition, the Ministry of Climate and Environment received around 60 written inputs. Much of the input focused on the urgency of action and increasing efforts to adapt to climate change, as well as the need for better coordination and more funding. Nature’s contribution and the value of nature-based solutions for adapting to climate change were also highlighted in numerous submissions. The Sami Parliament has been consulted in the work on the white paper.

Structure of the white paper

This white paper is threefold. Part 1 describes climate change and its consequences for nature and society. Part 2 presents an improved governance system for Norway’s climate change adaptation work that sets out a framework for increasing efforts within and across sectors. Part 3 describes priority areas and actions for the four-year period 2024–2028, both across sectors and within individual areas.