It takes a village: reflexive capacity in municipal climate change adaptation processes

Abstract

Addressing the need for inclusive policymaking in climate change adaptation, our research focuses on the development and implications of reflexive capacity in processes of six German municipalities and districts. We understand reflexive capacity as the collective ability of actors in an institutional context to recognize, challenge, and transform the power structures and practices that shape their agency. This approach is grounded in a triad of theories: governmentality, communicative planning, and sociological institutionalism. Each of these theories informs our understanding of reflexive capacity, providing a multifaceted approach to how decision-makers engage with, and are influenced by, local social and political dynamics. Using this lens, we explore the ways in which resource-constrained, smaller municipalities in Germany navigate complex adaptation challenges. Drawing on qualitative data collected between 2021 and 2023 within a transdisciplinary research project such as focus group discussions, in-depth interviews, and document analysis, we analyse the factors that shape the reflexive capacity of municipalities, including the role of local leadership, civic engagement, and institutions. Our findings suggest that while resource-constrained municipalities face a range of challenges in building stocks of capacity, there are substantial opportunities for enhancing adaptive capacity through more collaborative, and flexible governance structures by building on reflexive capacity.