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G20/OECDreportonapproachesforfinancingandinvestmentinclimate-resilientinfrastructure
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G20/OECDREPORTONAPPROACHESFORFINANCINGANDINVESTMENTINCLIMATE-RESILIENTINFRASTRUCTURE©OECD2024
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Acknowledgements
ThisreportwasproducedbytheOECDinsupportoftheBrazilianG20Presidency.ThereportwaspreparedbyMamikoYokoi-AraiandMichaelMullanandbenefitedfrominsightsandcommentsfromNicolasPinaud,CatherineGamperandLeighWolfrom.ThisreportispartoftheOECD’shorizontalworkoninfrastructureandtheOECD’scontributionstotheInfrastructureWorkingGroupundertheBrazilianG20Presidency,coordinatedbyNicolasPinaud.
SpecialthanksareextendedtotheG20BrazilianPresidencyanddelegatesoftheG20InfrastructureWorkingGroup,forvaluablecommentsonearlieroutlinesanddraftsofthereport.ThanksarealsoextendedtoLucindaPearsonandLivGudmundsonwhohelpedpreparethefinalpublication.
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Tableofcontents
Acknowledgements 3
Executivesummary 6
1Introduction 8
2Therationaleforbuildingclimate-resilientinfrastructureandinvestingintoit 11
Howinfrastructureisbeingaffectedbyclimatechange 11
Benefit-costanalysisofinvestmentintoclimate-resilienceofinfrastructure 15
3Assessingandunderstandingclimaterisks 21
4Roleofsubnationalgovernmentsandcommunityconsiderationsforclimate-
resilienceofinfrastructure 24
5Mainstreamingclimateresilienceintoinfrastructurefinance 27
Increasingtransparencyandawarenessofclimate-relatedrisksininvestmentdecisions.28
Integratingclimateresilienceintopublicfunding 33
Economicregulationofprivately-ownedinfrastructure 35
Examiningriskfinancingandrisksharingarrangementstoensureincentiveforrisk
managementandenablerapidrecovery 35
6Mobilisingadditionalfinanceforresilientinfrastructuresystems 40
Developingapipelineofinvestableprojects 40
Identifyingrelevantfundingstreams 46
References 51
Notes 62
FIGURES
Figure1.Lossesfromweather-relatedcatastrophes9
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Figure2.Benefit-costratiovaluesforfouradaptationmeasuresfortheperiod2020-2100,undera2°C
scenario16
Figure3.Subnationalgovernmentsarekeyinvestorsinclimate-resilientinfrastructure24
Figure4.Stylisedimpactofclimateresilienceonprojectcashflow28
Figure5.Someexamplesofadaptationandresiliencefinancingstack42
TABLES
Table1.Climaterisksaffectingselectedtypesofinfrastructureindifferentways12
Table2.Selectedclimatechange-inducedeventsdamaginginfrastructure13
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Executivesummary
Infrastructuredamagescausedbyextremeweatherandslowonseteventsinthelastyearsdemonstratehowinfrastructureisaffectedbyclimatechange,andareexpectedtobecomeincreasinglysevere.Enhancingclimateresilienceofinfrastructurewillbecriticalforachievingsustainabledevelopmentinachangingclimate.
Developingcountrieshaveanurgentneedtoexpandaccesstoinfrastructureservices,suchascleanwaterandelectricity,tosupportprogresstowardstheSustainableDevelopmentGoals(SDGs)whichcanbeparticularlychallengingwhentheyarevulnerabletoclimatechange.
Meanwhile,allcountriesarefacedwiththeneedtomanagetheincreasinglysevereimpactsofclimatechangeoninfrastructure.
Proportionate,targetedmeasurestointegrateclimateresilienceacrosstheinfrastructurelifecyclecanstrengtheneconomicreturns,protectsocialservices,andreduceriskstopublicfinances.Governmentsatalllevelsshouldconsiderinvestmentsinupfrontclimateresilienceofinfrastructureassetsasitcanstrengthenthebasisofinvestmentreturns,andreapcost-benefitsforpublicinvestment.
Recommendationsinthisreportarebroadinnature,andapplicationshouldbebalancedwithinthecontextofeachcountry.Thespecificcountrycircumstanceswillaffecthoweachrecommendationisadaptedandapplied.Emerginganddevelopingcountriesinparticularmayrequirespecificconsiderationstobemadeintheapplicationoftheserecommendations.
Improvingunderstandingofandenhancingtransparencyonclimaterisks
•Actionsthatallowgovernmentsandinvestorstobetterassessandunderstandclimateriskshouldbeintegratedintoinvestmentdecisions,andfinancialstructuresthatsupportclimate-resilientinfrastructureshouldbeencouraged.
•Byunderstandingtheroleanduniquechallengesofsubnationalgovernmentsandcommunitiestoprovidelocalclimate-resilientinfrastructurethatprotectslocalbusinessesandcommunities,targetedactioncanbeadoptedtobetteraddressthespatiallydifferentiatedimpactsofclimatechange.
•Risktransfermechanismsandinsurancearrangementscanprovidebetterclimateriskassessmentandunderstandingforinfrastructureassets,andpriceclimaterisk,providingapathwayforquickerrecoveryfundsbeingmadeavailable.
•Byimprovingsustainabilityreporting,standards,labelsandtaxonomies,greatervisibilityofphysicalclimateriskcouldbeachieved,andinforminvestorsofclimateriskexposure.
Mainstreamingclimateresilienceintoinfrastructuredevelopment
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•Byleveragingfiscalallocation,andplanningandprocesses,governmentscanbetterintegrateclimateresilienceintotheirinfrastructureplanning.MechanismssuchasNationalAdaptationPlans(NAPs),EnvironmentalImpactAssessment(EIAs),procurementprocessesandPPPscouldofferopportunitiestointegrateclimateadaptationforinfrastructureprojectsdesignandplanning,andlinkbudgetaryallocation.
•MDBfundingandtechnicalassistanceplaysakeyroleinensuringthatclimateresilienceisbetterintegratedintoinfrastructureprojectsintheirborrowingcountries.TheextenttowhichMDBsandotherglobalfundsarestructuredandmadeavailabletodevelopingcountrieswillstronglyinformhowsomeofthemajorinfrastructureprojectsindevelopingcountriesareclimateresilient.
Enhancingaccesstofinance
•Governmentscanleveragefinancialinstrumentssuchasgreenandsustainabilitybondstosupportfinancingofclimateresilientinfrastructure.Inaddition,innovativefinancialinstruments,suchascatastrophe(“cat”)bonds,outcome-basedinstruments,riskguarantees,andclimateresilientdebtclausescouldprovideopportunitiesforattractinginvestment.
•Establishingblendedfinancemechanismswithclimate-orientedobjectivescanofferaneffectivemechanismtosupportthedevelopmentofclimateresilientinfrastructureindevelopingcountries.
•Publicfacilitiesforinfrastructurefinancing,suchasinfrastructure-focussedbanks,developmentbanksanddedicatedfundsthathaveclimatemandates,canprovidepathwaystoattractprivatesectorfinancingintoclimate-resilientinfrastructure.
•Governmentscanconsidertaxincentivesforinfrastructureassetsthatencouragegreaterclimateriskreductionandadaptationmeasuresbeingtaken.
•Mechanismssuchasemissiontradingcouldprovideallowancesthatcouldsecurefundingtowardsclimateresilience,aswellaslandvaluecaptureandassetrecyclingcanprovideameanstofundclimateresilienceofinfrastructureassetsusingexistinginfrastructureassets.
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1Introduction
Infrastructureiskeyforsupportingawell-functioningsociety.Ithasanessentialroleinensuringthewell-beingofpeopleandthefunctioningoftheeconomybyenablingthecirculationofpeople,goodsandinformation,providingconnectivityandkeyresourcessuchaswaterorenergy,whichsustaincriticalfunctionsforsociety.
Climate-resilientinfrastructuredescribesinfrastructurethatisplanned,designed,constructedandoperatedinawaythatanticipates,preparesforandadaptstothechangingclimate,whileitcanwithstandandrecoverrapidlyfromdisruptionscausedbychangingclimaticconditionsthroughoutitsentirelifetime.Itconcernsbothnewassets,aswellasexistingones,whichmayneedtoberetrofittedoroperateddifferentlytoaccountforclimatechangeimpacts(OECD,2018[1]).
Infrastructureiscapitalintensiveandlong-lived,withsomeassetshavingthelifetimeofdecadesorcenturies.Decisionsmadetodayaboutthelocation,designandnatureofinfrastructurehavelong-termeffects,includingwhetherinvestmentsdeliverobjectivesandanticipatedbenefitsovertheirlifetime,aswellaswhethertheymayneedtoberetrofittedinthecontextofclimatechange.
Thephysicalimpactsofclimatechangearebecomingincreasinglyvisible,asweatherpatternsdivergefromhistoricnorms(see
Box1)
.Climatechangeisexacerbatingriskstotheprovisionofinfrastructureservices,forexampleduetothefloodingoftransportlinks.Itisalsoinfluencingthedemandforinfrastructureservices.Insomeplaces,milderwintersandwarmersummers,forexample,willreduceenergydemandinwinterandincreaseinthesummer,whilerisingseaswillrequireimprovementsincoastaldefences.
Climatechangeaffectsinfrastructureassetsandtheiroperationsindiverseways,whichcanbecausedbybothslowonseteventsandimpactswhichoccurduetoextremeweatherevents,causingdamagesanddisruptionsinamatterofdaysorhours.Climatechangemakesinfrastructureassetsandoperationssubjecttoincreasinglylongdisruptions,witheverincreasingimplications.Asmostinfrastructureassetsareinterdependentwithothersystemsandarangeofsocietalandeconomicfunctionsrelyonthem,thefailureofinfrastructurecancauseawiderangeofcascadingimpacts.
However,infrastructurealsoplaysanessentialroleinbuildingmoreresilienteconomiesandsocietiesbyreducingtheirvulnerabilitytotheimpactsofclimatechange.Forexample,resilienttransportnetworkscanfacilitatereconstructionfollowingastorm.Protectiveinfrastructure,suchasfloodbarriers,canreducedamageduetoextremeevents.Whereinfrastructurecontinuestoprovideservicesdespitetheimpactsofclimatechange,thisallowscommunitiesandbusinessestocontinuefunctioningandtoabsorbshockstotheirassetsbetter.
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Box1.Economiclossesfromweather-relatedcatastrophes
DatafromSwissRe’sSigmadatabaseindicatesthatlossesfromweather-relatedcatastropheshavebeenincreasingatafasterratethanglobalGDP.Thisisconsistentwithanincreaseinweather-relatedhazards–suchasdrought,floodsandwildfires–drivenbyclimatechange.Itisalsoinfluencedbyimprovementsinreportingandincreasesinthevalueoftheassetslocatedinexposedareas.Annualaverageeconomiclossesfromweather-relatedcatastrophesweremorethan200%higherin2015-2019thantheywerein2000-2004(inconstantdollars).
Figure1.Lossesfromweather-relatedcatastrophes
Note:Thisfigureshowsreportedtotaleconomiclossesresultingfromweather-relatedcatastrophesforallcountriesbetween2000and2019(LHS,inconstant2019USDbillions)aswellasthetrendintotallossesandtrendinglobalGDP(RHS,trendlinebasedonanindexwith2000=100).
Source:OECDcalculationsbasedonlossdataprovidedbySwissResigmaandGDPdatareportedintheIMFWorldEconomicOutlookdatabase(SwissResigma,2020[2])
Thereisastrongeconomiccaseforinvestingintheclimate-resilienceofinfrastructure.Whileclimate-resiliencemeasurescanincreasethelifespanofinfrastructure,theyalsoplayanessentialroleinprotectinginvestmentreturnsandensuringbusinesscontinuity.Investmentsinclimateresiliencehaveshowntohaveanet-positiveimpactovertimethroughpreventingclimaterisksandstrengtheningthebasisofinvestmentreturns.
Investingproactivelytoachieveclimate-resilientinfrastructuresystemsiscosteffective,cansavelivesandsupportcontinuedeconomicgrowth.Forexample,onemajorstudyfoundanaverageofUSD4ofbenefitsforeveryUSD1investedinclimate-resilientinfrastructureoverthelifetimeoftheasset(Hallegate,RentschlerandRozenberg,2019[3]).AnalysisintheUnitedStatesfoundthatadaptationcouldreduceannuallossestoinfrastructurebyafactoroften(Neumannetal.,2021[4]).However,thispotentialhasyet
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tobefullyrealised.Mobilisingfinanceforclimate-resilientinfrastructure-andmakingclimateresilienceaconsiderationforallnewinfrastructureinvestments-willbecriticaltoachieveclimate-resilientinfrastructuresystems.
Theneedtoincreaseinvestmentflowsforclimate-resilientinfrastructureexistsagainstthecontextofasignificantoverallinfrastructurefinancegap,andchallengingmacroeconomicconditions.TheeconomicconsequencesofCOVID-19,andsubsequenteconomicdifficultiesandgeopoliticalissueshavecontributedtorisingpublicdebt,inflationandinterestrates(OECD,2023[5]).Thishasincreasedthecostofnewinfrastructure,inparticularcapitalexpenditure,limitedthecapacityofthepublictofinancenewinvestments,anddivertedtheattentionoftheprivatesectortootherareas.Giventhesepressures,andtheurgentneedtoenhanceresiliencetoclimatechange,itwillbeessentialtomaximisetheimpactandefficiencyofpublicinvestment,inparalleltounlockingprivateinvestment.
Thisreportexaminestherationaleforhavingclimate-resilientinfrastructureandthenthetypesofriskassessmentapproachesforclimaterisk.Regionalandlocalgovernments,andcommunityconsiderationswillalsobemadetosupportclimateresilienceofinfrastructure.Itthenturnstofinancialperspectives,lookingatthefinancialflowstowardsclimate-resilientinfrastructure,andthenaspectsthatcanleadtothemainstreamingofclimate-resilientininfrastructurefinancing.Lastly,itexploreshowtoincreaseinvestmentflowsbylookingatthefundingandfinancingofclimate-resilientinfrastructure.
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2
Therationaleforbuildingclimate-
resilientinfrastructureand
investingintoit
Greenhousegasesemittedintotheatmospheretodatehavealreadyledtoconsiderablewarmingandasaconsequenceintensifiedclimaterisks.Globalmeantemperaturesexceededpre-industriallevelsbyover1.4°Cin2023(Copernicus,2023[6]).Mostlandareasexperiencedanincreaseinthefrequencyandintensityofheavyprecipitationeventssince1950(IPCC,2021[7]).Similarly,theduration,frequencyandintensityofdroughtsincreasedinmanyregionsoftheworldsincethemiddleofthepastcentury(Spinonietal.,2014[8]).Europeexperienceditsworstdroughtin500yearsin2022(Toretietal.,2022[9]).Thedurationofthefireweatherseason(OECD,2023[10])alsoincreasedby27%globallybetween1979and2019,withnotableincreasesinwesternNorthAmerica,southernEurope,Australia,westernandcentralAsiaandmostofAfrica(Jonesetal.,2022[11])(OECD,2023[10]).Averagesealevelstodatehaverisenby21-24cmcomparedtopre-industriallevels(NOAA,2022[12]).
Thevariousinfrastructureinvestmentgapfiguresthatarecited1donotexplicitlytakeintoaccountthefinancingneededforclimateresilience(seesection
0)
.Recentestimatesonphysicalassets,energyandlandusecouldamounttoUSD9.2trillionperyearbetween2021and2050toachievenetzero(McKinsey,2022[13]).Thecostofadaptationformakingenergyandtransportationinfrastructureresiliencefordevelopingcountries(2015-2030)wereestimatedatUSD9-17billionperyearforenergy,andUSD860milliontoUSD35billionperyearfortransport(UNEP,2023[14]).
Howinfrastructureisbeingaffectedbyclimatechange
Climatechangeaffectsinfrastructureassetsandtheiroperationsindiverseways.Climatechangeimpactsoninfrastructureincludethosecausedbybothslowonsetevents,whichresultfromhazardsthatoccurandaresustainedoverlongperiodsoftime(e.g.limitedwateravailabilityduetodrought).Ortheycouldbesuddendisastersduetoextremeweatherevents(e.g.,stormsdisruptingtelecommunicationsnetworks),causingdamagesanddisruptionsinamatterofdaysorhours.Differentinfrastructuresectorsareexposedtodifferentclimatehazards,andcanresultinthedisruptionofservices
(Table1)
.Forexample,droughtsareaparticularissueforriverinetransport,whilehavinglessimpactonrail,airandroadtransport.Incontrast,hightemperaturesmayaffectroadinfrastructureathighwaysandairports,aswellasrailwaylines,whileleavingseaandrivertransportrouteslargelyunaffected(althoughworkersmaybesubstantiallyaffectedbyextremeheat).Overall,thedegreetowhichclimatechangeposesrisksforinfrastructuredependsonthetypeofclimatehazardanditsinteractionwiththevulnerabilityandexposureofinfrastructuretoit.
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Table1.Climaterisksaffectingselectedtypesofinfrastructureindifferentways
Infrastructuretype
Climatehazard
Infrastructureimpacts
Transport
Land(roads,railways)
Extremeheat
Pavementsoftening(rutting),thermalrailexpansion(buckling)
Extremeprecipitation
Washouts,floodingofroadsandrailways
Riverineflooding
Stormsurgesandsealevelrise
Inundationandde-stabilisationofcoastalroadandrailwaylines
Storms,highwinds
Blockageofroadsandrailwaysduetofallentreesandotherdamagedassets
Permafrostmelt
Bucklinganddestabilizationofroadsandrailways
Riverine
Droughts
Riverinetransportroutes(temporarily/seasonally)becomingunnavigable
Riverinefloods
Damagetoports,shipsandcargo,riverinetransportroutestemporarilybecomingunnavigable
Storms,highwinds
Marine
Sealevelriseandstormsurges
Inundationofports
Temperaturerise
ChangingdemandforportsandArticwatersbecomenavigable
Storms,highwinds
Damagetoports,shipsandcargo,certaintransportroutes(temporarily)becomingunsafe
Energy
Hydropower
Droughts
Reducedhydropowerproduction,withthepossibilityofstrandedassetsifdropsinwaterlevelspersist
Floods
Damagestohydropowerplants
Nuclear
Droughtsand/orhightemperatures
Reducedavailabilityofcoolingwater
Riverineflooding
Damagetoassets,safetyissues,pollution
Sealevelriseandstormsurges
Solar
Extremetemperatures
Reducedefficiencyofsolarpanels
Energysector
overall
Extremetemperatures
Increaseddemandforcooling,increasedpressureonthepowergrid
Sealevelrise,stormsurges
Inundationofcoastalpowerplants,transmissionanddistributionlines
Wildfires
Damagetopowerproductionassets,transmissionanddistributionlines
Riverineflooding
Disruptionofenergysupplyduetofloodingoftransmissionlinesorpowerplants
Storms,highwinds
Poweroutages,damagetopowerproductionassets,transmissionanddistributionlines
Telecommunications
Extremeheat
Overheatingofdatacentres
Riverinefloods
Floodingofdatacentres,radio/televisionstations,telecommunicationstowards,distributionlines,etc,
Sealevelriseandstormsurges
Extremeprecipitation
Storms,highwinds
Damagetotelecommunicationstowers,distributionlines
Wildfires
Burningoftransmissioncables,telecommunicationstowers
Watersupply,waste-and
stormwaterinfrastructure
Extremeheat
Increasedevapotranspirationfromreservoirs,increasedneedforwatertreatment
Extremeprecipitation
Sewageoverflows,overtoppingofdams,leveesandreservoirs,increasedneedforwaterstoragecapacity
Riverineflooding
Contaminationofwatersources,overtoppingofdams,leveesandreservoirs,increasedneedforwaterstoragecapacity
Droughts
Reducedwatersupply
Sealevelriseandstormsurges
Salinisationofwatersupply,inundationofwatertreatmentinfrastructure
Note:Whilethistablegivesanillustrationofpotentialclimatehazardsandimpactsthatcanoccurforvariousinfrastructuretypes,itdoesnotprovideanall-encompassinglistofinfrastructuretypes,climatehazardsandimpacts
Source:Basedon(OECD,2018[1])and(IISD,2021[15])
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Infrastructuredamagescausedbyextremeweathereventsinthelastyearsdemonstratehowinfrastructureisaffectedbyclimatechange.Between2000and2020,smallislanddevelopingstates(SIDS)andleastdevelopedcountries(LDCs)hadanaverageof23and7naturaldisastersper1,000squarekilometres,respectively.Thistranslatestobetween10and30timesmoredisastersthanexperiencedinOECDcountries(OECD,2024[16]).InSIDS,theestimatedannualdamageofcoastalfloodingamountstoEUR1.54billionforallSIDScombined,whichincludedirectdamagetobuildings,infrastructure,andagriculture(EUJointResearchCentre,2023[17]).IntheUnitedStates,thenumberofblackoutscausedbyextremeweathereventsincreasedfrom5to20annuallyinthe1990stobetween50and100intheearly2010s(Castillo,2014[18])(Chang,2016[19]).
Table2
providesanon-exhaustiveoverviewofexamplesofinfrastructuredamagecausedbyclimatechange-inducedextremeeventsintherecentpast.
Table2.Selectedclimatechange-inducedeventsdamaginginfrastructure
Year
Typeofevent
Location
Linktoclimatechange
InfrastructureDamage
2018
Wildfire(“CampFire”)
UnitedStates
Climatechangewasfoundtohavedoubledtheextremeweatherthat
facilitatedthewildfire(Williamsetal.,2019[20])(Gossetal.,2020[21])
19,000assetsdestroyed,includinghomes,hospitals,schoolsandbusinessbuildings(Fischeretal.,
2021[22]).
2019
Storm
(“TyphoonHagibis”)
Japan
Thetyphoonwasfoundtobe67%
morelikelyduetoclimatechange(LiandOtto,2022[23])
Leveesdestructedat135locations;10trainsand120carriagesdamagedinafloodeddepot.Dueto
damagestopowerandwaterinfrastructure,22000
householdslackedpower,while133000homeswerewithoutwaterforovertwoweeks(TulaneUniversityLawSchool,2021[24])
2021
AhrValleyFloods
Germany
Climatechangeincreasedthe
intensityoftherainfallassociatedwiththefloodsby3-19%and
heightenedtheirlikelihoodby1.2to9times(Tradowskyetal.,2023[25]).
Over50bridges,600kmofrailsandthreefederal
highwaysdamagedandoutofoperationformonths.Buildings,thetransportinfrastructureandsector
sufferedaroundEUR14billionofdirectandindirectdamages(Prognos,2022[26])
2022
Drought
Europe
Thedroughtwasfoundtobe5to20timesmorelikelyduetohigh
temperaturesassociatedwithclimatechange(Schumacher,2022[27])
-30%lowerhydropowergenerationinthefirst6
monthsof2022fortheFrenchutilitycompany,EDF,resultinginanincomelossofEUR1.4billion(S&PGlobal,2022[28]).SeverefluvialtransportdisruptionsontheDanubeandRhin
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