Prof. Jane Lubchenco (PAS) Deputy Director for Climate and Environment, White House Office of Science and Technology Policy; and University Distinguished Professor and Valley Professor of Marie Biology, Oregon State University

DOI: 10.65398/VDUG7853

1.    Introduction

The world faces three global challenges: climate change, loss of biodiversity, and inequity/inequality. Each of these crises threatens our future. But they do not operate in a vacuum; each affects the other in profound ways. However, despite being inextricably linked, the three crises are typically tackled in separate silos. Analysts of each crisis focus intensely on the complex drivers of that one problem; strategists identify solutions to the one problem that are politically, economically, socially, and technologically feasible. Each has its own global community of experts, policy makers, constituents, funders, and more.

Scientific knowledge tells us that climate, nature loss, and inequity/inequality are interconnected in complex ways, and that solutions to one will not ultimately succeed unless all three are tackled together. Achieving that integration is not always easy, but in fact is beginning to happen. In this paper, I highlight successful examples of this integration to demonstrate the feasibility of integrated approaches and hopefully inspire an acceleration of adoption of more holistic, integrated policies and practices. We need integration at a scale commensurate with the magnitude of the problems.

Below I demonstrate the feasibility of more holistic approaches with examples from recent policy advances made by the U.S. government during the four years of the Biden Administration. I highlight ways in which the U.S. is heeding science by embedding nature and environmental justice in climate policies, embedding climate and environmental justice in nature policies, and embedding nature and climate in environmental justice policies. Although the pioneering policies I describe are enabling bold and ambitious action, they are only a down payment on what is needed. Nonetheless, these policies and others underway around the world give us direction and hope that we may be able to accelerate progress to achieve sustainability and wellbeing in the Anthropocene.

2.    Embedding nature and environmental justice in climate policy

President Biden and Vice President Harris led the most ambitious climate agenda[1] in U.S. history through bold targets, pioneering policies, and over $369 billion in climate and clean energy investments through the Inflation Reduction Act, plus additional investments through the Bipartisan Infrastructure Law. Those investments by the federal government in turn catalyzed significant additional investment by the private sector, e.g., over $450 billion in clean energy manufacturing, electric vehicles and batteries, and clean power projects.

The climate policies were multifaceted, and reflect the broader, more holistic climate policy framing that scientists have championed, including not only mitigation, but also adaptation; not only technology, but also nature-based solutions; not only land-based actions but also ocean-based solutions; and not only reduction in greenhouse gas emissions, but also carbon removal. Nature and environmental justice are incorporated within each of those four climate policy approaches. Here are a few examples:

2.1  Focusing on both climate mitigation AND adaptation

Most climate policies historically emphasized ways to reduce greenhouse gas emissions, but ignored the importance of adapting to climate changes already underway. Many scientists have urged that we seek to both avoid the unmanageable through emissions reductions and carbon removals, while also managing the unavoidable through more effective attention to adaptation and building resilience of communities, ecosystems and economies. This is not an ‘either-or’, but a ‘both-and’ approach.

Adaptation provides an excellent opportunity to integrate nature and environmental justice into climate solutions. The U.S. National Climate Resilience Framework,[2] e.g., highlighted multiple opportunities for this integration and summarized significant efforts to provide Tribes, communities and businesses with the information and resources they need to adapt to climate changes. The Inflation Reduction Act and Bipartisan Infrastructure Law authorized over $50 billion in resilience investments, including through nature-based solutions.

Environmental justice is embedded within these policies. For example, the administration’s Justice40 Initiative[3] directed that at least 40% of the overall benefits of federal climate and clean energy investments flow to disadvantaged communities that are marginalized by underinvestment and overburdened by pollution. President Biden’s first Executive Order (EO) on climate included strong environmental justice and nature components.[4]

A synthesis of resilience work across the four years highlights this integration[5] and draws attention to the importance of natural ecosystems, working with nature, nature-based solutions, attention to who is at the decision-making table, and who benefits as central elements in effective adaptation.

2.2  Focusing on technology AND nature-based solutions

When most policy makers think about emissions reduction or carbon removal, the default solution is usually technology. (Think electric vehicles vs gasoline-powered ones, heat pumps in lieu of conventional furnaces and air conditioners, or wind turbines instead of fossil fuels.) Make no mistake: technology has a key role to play, but so, too, do nature-based solutions. We know that the natural world – on land and in the ocean – is a powerful ally, and could contribute up to one-third of the greenhouse gas reductions needed. But nature-based solutions are less well understood and often not considered, while better-known or better-marketed technological solutions take off. The world needs both.

To help address this disparity, the White House led the production of an interagency report to better understand how federal agencies, Tribes, states, communities, and businesses were or were not using nature-based solutions in the U.S., and what the U.S government might do to accelerate their effective use. The report was announced[6] at the 27^th Conference of the Parties to the UN Framework Convention on Climate Change, held in Sharm El-Sheikh, Egypt, in 2022.

The announcement clarified what nature-based solutions are and articulated their need: “Nature-based solutions are actions to protect, sustainably manage, or restore natural or modified ecosystems as solutions to societal challenges, like fighting climate change. Examples include protection or conservation of natural areas, reforestation, restoration of marshes or other habitats, or sustainable management of farms, fisheries, or forests. These actions can increase resilience to threats like flooding and extreme heat, and can slow climate change by capturing and storing carbon dioxide. Nature-based solutions play a critical role in the economy, national security, human health, equity, and the fight against climate change.”

The report, entitled Opportunities to Accelerate Nature-Based Solutions: A Roadmap for Climate Progress, Thriving Nature, Equity, and Prosperity,[7] called for expanding the use of nature-based solutions, identified key impediments to realizing that goal, and outlined strategies to overcome or remove those impediments. The resulting five strategic areas of focus for the federal government were (1) updating policies, (2) unlocking funding, (3) leading with federal facilities and assets, (4) training the nature-based solutions workforce, and (5) prioritizing research, innovation, knowledge, and adaptive learning that will advance nature-based solutions.

After release in 2022, this Roadmap guided strategic action, including updated policies, and enhanced awareness and funding for nature-based solutions. For example, a major impediment to use of nature-based solutions had been the policy that instructs federal agencies on how to calculate the benefits and costs of actions they take. Federal agencies are required by law to do this benefit-cost analysis, but historically the analysis was lop-sided, since the calculations included only the costs and not the benefits of adopting nature-based solutions. Scientists have documented that nature provides multiple benefits such as trees lowering air temperatures in cities, coastal wetlands reducing storm surge, or forests or wetlands and swales mitigating floods. Without inclusion of these ecosystem services, the Benefit-Cost Analysis (BCA) is incomplete and limits the portfolio of options that might prove useful in tackling climate change.

This lop-sided BCA was rebalanced last year, with an update to the policy that instructs federal agencies on how to calculate BCA[8],[9] to align with our current scientific understanding and economic tools. As a result, federal agencies are now required to include nature’s benefits, also called ecosystem services, in their BCA. Moreover, the Office of Management and Budget also provided agencies with guidance[10] about how to value ecosystem services in their calculations. As a result of this guidance and major investments in these approaches through the Bipartisan Infrastructure Law and Inflation Reduction Act, nature-based solutions are beginning to move to the forefront as climate solutions, for both mitigation and adaptation. This is an excellent example of how modernizing policies with recent scientific advances can vastly improve the functioning of government.

In addition to elevating the need for modernizing policies and unleashing funding for nature-based solutions, the Roadmap enabled federal agencies to lead by example in deploying natural solutions as they manage their assets, for example national parks or marine national monuments.

The final strategy in the Roadmap highlighted the need for ongoing research to better inform use of nature-based solutions. That led to the creation of a new working group[11] charged with identifying research priorities for BCA, including ecosystem services and nature-based solutions. The group’s first report,[12] and accompanying Fact Sheet[13] highlighted BCA associated with wildfires and extreme weather and ecosystem services as two of the priority areas. The following year’s report[14] featured progress made on those and other topics and highlighted new priority areas.

And, as noted above, nature-based solutions feature prominently in the Justice40 Initiative actions, bringing equity, climate and nature together.

Nature-based solutions may also be useful for carbon removal, on land and in the ocean,[15] but questions remain about the efficacy, duration, and collateral impacts of various carbon removal approaches. To tackle some of these unknowns, we produced a report[16],[17] identifying the research priorities for marine carbon dioxide removal, with the intention of guiding federal and non-federal research in this emerging area.

2.3  Focusing on land-based AND ocean-based actions

Because we live on land, we tend to focus on land-based actions. Yet, we know from scientific research and syntheses that the ocean is a powerful source of solutions to climate change. Acting on that science, the U.S. produced its Ocean Climate Action Plan.[18] The plan highlights the immense potential for offshore wind, green shipping and nature-based solutions like blue carbon to reduce emissions, absorb carbon, and enhance resilience. This Ocean Climate Action Plan attracted the attention of other nations who are considering similar approaches. The press release[19] and progress report[20] highlight the impressive progress made during the first year, including scaling up offshore wind energy, advancing decarbonization of the U.S. marine transportation system, and enhancing community resilience to ocean change.

Complementing the Justice40 Initiative and our Ocean Climate Action Plan, we developed an Ocean Justice Strategy,[21],[22] drawing attention to the goal of everyone having a voice and everyone benefitting equally from climate actions. In short, we are making good headway in integrating nature and environmental justice in climate policies and practices.

3.    Embedding climate and environmental justice in nature policy

In parallel, we sought to embed climate and environmental justice into nature policies. Because we understand that nature underpins our economy, health, wellbeing, and national security, we pursued a more holistic perspective in addressing the precipitous loss of biodiversity. Most conservation action globally focuses on protected areas, with countries pursuing pledges to protect 30% of lands and the ocean by 2030. However, unless we also address threats to biodiversity in the other 70% of the planet, those protected areas will not stem the loss of biodiversity. This is why the U.S. government took a 30% + 70% approach, with parallel efforts on protected areas in the 30% and other measures to address the 70%. Below are a few of our innovative approaches to mainstream nature across the federal government.[23]

3.1  Connecting the dots between nature and the economy

Although the economy depends on nature, our economic indicators fail to provide information about the state of nature.[24] The U.S. initiated the process of putting nature on the economic balance sheet of the country through the development of Natural Capital Accounts and associated Environmental Economic Statistics.[25],[26] These efforts also catalyzed interest in working with other nations to advance natural capital accounts.[27]

3.2  Connecting the dots between nature and national security

In the Biden-Harris Administration’s National Security Strategy,[28] biodiversity and climate change are identified as key components through the concept of natural security.[29] Both climate change and loss of biodiversity – whether on land or in the ocean – can threaten food security, trigger civil unrest, and lead to human migrations. Wildlife trafficking and illegal fishing are other good examples of the intersection between nature and security, and both also intersect with equity through forced labor and drug trafficking. And both are exacerbated by climate change.

3.3  Taking stock of nature in the U.S.

The first-ever U.S. National Nature Assessment was launched in 2021 to assess how nature in the U.S. is changing, what that means, and what options exist.[30],[31] This assessment will demonstrate how nature connects to our health, to climate change, to equity, to the economy, and to national security.[32],[33]

4.    Embedding nature and climate in environmental justice policy

Finally, nature and climate are front and center within Biden-Harris Administration policies dealing with inequity and inequality. In addition to the multiple examples cited above, an EO on environmental justice includes directives to address climate change and access to nature, especially as they relate to historically disadvantaged communities.[34] The EO states that “Advancing environmental justice will require investing in and supporting culturally vibrant, sustainable, and resilient communities in which every person has safe, clean, and affordable options for housing, energy, and transportation. It is also necessary to prioritize building an equitable, inclusive, and sustainable economy that offers economic opportunities, workforce training, and high-quality and well-paying jobs… and facilitating an equitable transition of the workforce as part of a clean energy future. Achieving this vision will also require improving equitable access to parks, tree cover, playgrounds, sports fields, rivers, ponds, beaches, lakes, and all of the benefits provided by nature, including America’s public lands and waters.”

And, recognizing the lack of adequate data and scientific research on environmental justice, a new whole-of-government Environmental Justice Science, Data, and Research Plan[35] specifies priorities for advancing science to better understand and address inequities.

5.    Conclusion

Across all of these efforts, we sought policies that align with scientific knowledge in understanding the intimate connections between climate change, loss of biodiversity and inequity and inequality. I have shared some of the ways in which we integrated nature and environmental justice into climate solutions, and ways we wove environmental justice and climate into biodiversity efforts, and incorporated climate and nature into environmental justice policies. We believe this integration will enhance efforts across all three areas and deliver more durable and successful outcomes in the Anthropocene. Doing so is urgent. I hope these examples encourage other integrated approaches that heed scientific findings and integrate climate, nature, and environmental justice solutions.

Integration across the three topical areas can be facilitated by, but does not require, overarching, framing policies that direct more integrated approaches to issue-specific policies. As with all policy-making, to be maximally effective, the policies should be informed by engagement and consultation with relevant stakeholders and partners.

Acknowledgements

I’m grateful to the impressive members of the Climate and Environment team at the White House Office of Science and Technology Policy who led many of the efforts I describe in the paper, and our talented collaborators in other White House offices and in agencies across the federal government. Their service is greatly appreciated. I greatly appreciate that my home institution, Oregon State University, was willing to loan me to the White House for nearly four years. And I thank the leadership, members, and staff of the Pontifical Academy of Sciences for stimulating meetings, thoughtful planning and organization.

[1] President Biden’s Historic Climate Agenda: a Synthesis of Actions to Tackle the Climate Crisis

[2] White House. September 2023. National Climate Resilience Strategy 

[3] White House. January 2025. Justice 40: A Whole of Government Initiative

[4] President Joseph Biden. 2021. Executive Order 14008. Tackling the Climate Crisis At Home and Abroad 

[5] White House. January 2025. National Resilience Strategy

[6] White House Fact Sheet. November 8, 2022. Biden-Harris Administration Announces Roadmap for Nature-Based Solutions to Fight Climate Change, Strengthen Communities, and Support Local Economies. 

[7] White House. November 8, 2022. Opportunities to Accelerate Nature-Based Solutions: A Roadmap for Climate Progress, Thriving Nature, Equity, and Prosperity 

[8] Office of Management and Budget. November 9, 2023. Circular No. A-4 To the Heads of executive Agencies and Establishments regarding Regulatory Analysis 

[9] Office of Management and Budget. November 9, 2023. Circular No. A-94 Memorandum for Heads of Executive Departments and Establishments regarding Guidelines and Discount Rates for Benefit-Cost Analysis of Federal Programs 

[10] Office of Management and Budget. February 28, 2024. OMB Ecosystem Services Guidance: Explanation and Response to Public Input. 

[11] Office of Management and Budget, White House Office of Science and Technology Policy, and Council on Economic Analysis. 2025. Frontiers of Benefit-Cost Analysis 

[12] National Science and Technology Council. December 2023. Advancing the Frontiers of Benefit-Cost Analysis: Federal Priorities and Directions for Future Research. 

[13] Office of Management and Budget. December 14, 2023. Biden-Harris Administration Announces New Initiative to Advance the Frontiers of Benefit-Cost Analysis and Strengthen government Decision Making

[14] National Science and Technology Council. October 2024. Advancing the Frontiers of Benefit-Cost Analysis: Progress on Federal Priorities, Insights for the Research Community, and Emerging Topics

[15] Doney, Scott and Jane Lubchenco. October 6, 2023. White House Office of Science and Technology blog: Marine Carbon Dioxide Removal: Potential Ways to Harness the Ocean to Mitigate Climate Change

[16] White House Office of Science and Technology Policy. November 12, 2024. OSTP Releases National Marine Carbon Dioxide Removal Research Strategy

[17] White House National Science and Technology Council. November 2024. National Marine Carbon Dioxide Removal Research Strategy

[18] White House Ocean Policy Committee. March 2023. Ocean Climate Action Plan

[19] White House Office of Science and Technology Policy. April 17, 2024. Marking One Year of Progress since Release of the First-Ever Ocean Climate Action Plan

[20] White House Office of Science and Technology Policy. April 17, 2024. Progress Report: Year One of Ocean Climate Action

[21] White House Council on Environmental Quality. December 8, 2023. Biden-Harris Administration Unveils First-Ever Strategy to Advance Environmental Justice for Communities that Rely on the Ocean and marine Resources. 

[22] White House Ocean Policy Committee. December 8, 2023. Ocean Justice Strategy. 

[23] Tallis, Heather, Eli P. Fenichel, Laura Petes, Solomon Hsiang, Phillip S. Levin, Hila Levy, and Jane Lubchenco. 2024. Mainstreaming nature in U.S. federal policy. Science 385(6708): pp 498-501. 

[24] Lubchenco, Jane, Heather Tallis, Eli Fenichel. April 24, 2022. White House Office of Science and Technology Policy blog: Accounting for Nature on Earth Day 2022

[25] White House Office of Science and Technology Policy, Office of Management and Budget, Department of Commerce. January 2023. National Strategy to Develop Statistics for Environmental Economic Decisions

[26] Pindilli, Emily, Jane Lubchenco, and Sol Hsiang. April 23, 2024. White House Office of Science and Technology Policy Blog: A Successful Inaugural Year for Natural Capital Accounting in the United States

[27] Australia, Canada, United States of America. December 9, 2023. Joint Statement of the Partnership on Cooperation on Natural Capital Accouonting, Environmental-Economic Accounting, and Related Statistics

[28] White House. October 2022. National Security Strategy

[29] Preston, Benjamin L., Hila Levy, Heather Tallis, Rod Schoonover, Jane Lubchenco. Global Change Research for a More Secure World. Eos, 105. https://doi.org/10.1029/2024EO240215

[30] Levin, Phil. April 22, 2024. White House Office of Science and Technology Policy blog. A Nature Imperative on Earth Day

[31] White House Office of Science and Technology Policy Federal Register Notice inviting public comment on an annotated outline for the National Nature Assessment. 

[32] Tallis, H., A. Crimmins, and J. Lubchenco. 2023. Charting a path for the National Nature Assessment. Invited editorial. Frontiers in Ecology and the Environment. 

[33] Tallis, Heather, Eli P. Fenichel, Laura Petes, Solomon Hsiang, Phillip Levin, Hila Levy, and Jane Lubchenco. 2024. Mainstreaming Nature in U.S. Federal Policy. Science: 385 (6708): 498-501.

[34] President Joseph Biden. 2023. Executive Order 14096 Revitalizing Our Nation’s Commitment to Environmental Justice for All

[35] National Science and Technology Council. 2024. Environmental Justice Science, Data, and Research Plan