Report section 2: Social cohesion strengthens security

Successful environmental and security policies require broad societal support. This is possible in societies with a shared culture of debate and discussion, and where the majority of people see themselves as active, creative members of society. A well-developed level of social cohesion is important for this. In view of exacerbating environmental crises – the security implications of which the WBGU described in its first report section, ‘Environment shapes security‘ – there is a growing need to strengthen the ability of democratic societies to act. An erosion of social cohesion jeopardizes the political legitimacy of the democratic system. Social cohesion is therefore a prerequisite for dealing with threats effectively and with a future-oriented approach.

The WBGU focuses on three factors that may lead to a decline in public support for the implementation and enforcement of local, national and international environmental measures – and climate-protection measures in particular – in Germany: socio-economic inequality, a lack of participation and divisive political communication. This report section examines the local level, identifies problems using the example of wind-energy expansion, and outlines potential solutions that go beyond this specific example. Similar transformation conflicts can also be observed in relation to other policy measures and beyond Germany’s borders.

Socio-economic inequality can lead to people being – or feeling – excluded from participation in society. Possible manifestations of inequality include extreme disparities in income and wealth, unequal educational opportunities, or a loss of recognition within societies. People who are worried about their future due to a lack of material resources are more sceptical about environmental policy. People are more likely to support environmental-policy measures if they perceive the resulting distribution of costs and benefits to be socially just and acceptable.

The WBGU therefore recommends integrating environmental policy – and especially climate policy – more closely with social policy. This requires closer structural links between the relevant departments at the ministerial level. Furthermore, the impacts of climate-policy instruments, particularly on lower-income groups, should be taken into account during implementation. The Federal Government should ensure that a switch to climate-friendly alternatives – e.g. in heating or mobility – is both feasible and attractive for low-income households. Costs generated by these transformations should be compensated.

The funding of education reflects a society’s priorities and plays a key role in determining whether equal opportunities, the capacity for innovation and social cohesion can be safeguarded in the future. The WBGU recommends (1) increasing resources where the need is greatest, (2) strategically prioritizing and further developing education funding, (3) assuming joint responsibility for funding, and (4) permanently securing education within the federal budget as an investment in the future. 

Also, when tapping into new sources of revenue for the state, it is important to keep social inequality in mind, for example by reforming the tax system.In the context of the energy transition, federal and state legislation can help to expand opportunities for material participation, enabling local communities to share in the benefits of the projects. People who benefit directly or indirectly from wind turbines – via revenue for the local authority and investment in the provision of public services – are also more likely to support their expansion. It would therefore make sense to maintain successful models such as citizen-driven energy communities, and to enshrine measures in legislation governing local authority-citizen participation.

The WBGU proposes strengthening political and social participation at the local level. Where material participation is not sufficiently feasible – e.g. because of the economic situation of the households affected – public participation procedures are important. For instance, informal public participation can foster support for environmental and in particular climate projects, such as municipality-owned wind- or solar-energy parks. Participation also promotes democracy by enabling people to experience a sense of self-efficacy and by supporting the resolution or prevention of conflicts. To this end, participatory formats should be designed at an early stage, in a citizen-centred and inclusive manner, to complement the statutory public participation procedures.

Municipalities should be designed as social spaces. Strengthening local social infrastructure and public services (cafés, shops, clubs as meeting places) promotes social cohesion. Equally important is the strategic promotion of education, working with children and young people, and civic engagement. Local authorities, in particular, should be better equipped to do this. The Federal Government should also maintain – rather than cut back on – resources for political education and the promotion of democracy. Voluntary work should be further supported.

The WBGU advises all political actors to design political communication in a way that unites rather than divides. Emotionality plays an important role in politics and political communication – and this fact should also be taken seriously in climate and environmental policy. It is the responsibility of democratic forces to counter polarizing actors and their narratives of exclusion and hatred, which are aimed at eroding social cohesion, with positive stories, visions for the future and a culture of listening. To this end, the Federal Government should define an inclusive and simultaneously diverse ‘we’ and promote this in its narratives. This is not a question of obscuring the various opportunities and challenges faced by different societal groups. Rather, these, along with differing positions, should be clearly acknowledged in a shared vision for the future. Furthermore, greater emphasis should be placed on communicating that the energy transition can lead to additional benefits for different groups. This could help avoid the impression that societal groups are in competition with each other and that the gains of certain societal groups would be accompanied by losses for others.