Designing a knowledge co-production operating space for urban environmental governance—Lessons from Rotterdam,Netherlands and Berlin,Germany

Challenges for a sustainable urban development are increasingly important in cities because urbanization and related land take come up with negative challenges for the environment and for city residents. Searching for successful solutions to environmental problems requires combined efforts of different scientific disciplines and an active dialogue between stakeholders from policy and society. In this paper, we present a comparative assessment of the way policy-science dialogues have achieved knowledge co-production about strategic urban environmental governance action using the cities of Berlin in Germany and Rotterdam in the Netherlands as case studies. The ecosystem services framework is applied as a lens for policy–science interaction and a ‘knowledge co-production operating space’ is introduced. We show how policy officers, urban planners, practitioners and scientists learned from each other, and highlight the impact of this knowledge co-production for governance practice. We found that the concerted collaboration and co-creation between researchers and policy officers have led to mutual learning and establishment of relationships and trust in both cities. Not only the policy-relevance of research and its policy uptake were achieved but also new insights for research blind spots were created. In our conclusions we reflect on co-production processes with two types of conditions that we introduced to be most influential in the way knowledge can be co-created. These are conditions that relate to the way knowledge co-production processes are set-up and, conditions that relate to the expected value or benefit that the co-produced knowledge will bring across society, policy and practice.     

Evidence,politics and power in public policy for the environment

Despite a recent emphasis on ‘evidence based policy’ accompanied by an abundance of ‘green’ policy instruments, experience from the European Union and OECD countries shows that decisions which truly aim to balance environmental considerations with social and economic ones remain thin on the ground. Moreover, many policies seem to fall short of, or directly contradict what the available ‘evidence’ suggests is required. This is a synthesis paper bringing together literature from the fields of political science, geography, sociology and science and technology studies to outline some of the obscurities relating to the use of scientific evidence in environmental decision-making. In this paper, we suggest that an exploration of three key inter-related issues is necessary to develop a richer understanding of why evidence and policy interact as they do. These are the nature of evidence itself; the normative, moral or ethical ‘politics’ of policy-making; and the operation of power in the policy process. Our primary goal is to bring various literatures together to better conceptualise the evidence–policy relationship. In so doing, we outline specific challenges for knowledge producers who set research priorities, and design and direct research projects. We also highlight significant implications for policy decision-making processes.     

Informational governance – A systematic literature review of governance for sustainability in the Information Age

The rapid developments in all kinds of new information technologies, information networks and social media are increasingly affecting societies around the world. The so termed Information Age not only influences social relationships, economy and science, but also governance. Against this background and in the specific field of sustainability, informational governance is an emerging concept. It addresses two interrelated processes: (1) new forms of governing through information, and (2) transformative changes in governance institutions due to the new information flows. The aim of this article is to gain more insights into ways in which the Information Age impacts sustainability, and to suggest a research agenda with relevance to the field of informational governance. A systematic literature review resulted in a selection of 39 articles, of which 23 and 16 articles were identified in two-parallel searches. The increased human interconnectedness through e-governance, self-organization, private governing and empowerments are identified as core informational governance trends dealing with sustainability in the Information Age, and essential to future research.     

The interplay between knowledge and governance: Insights from the governance of recreational boating in the Dutch Wadden Sea area, 1981–2014

Through shifts toward interactive and participatory forms of environmental governance, knowledge dynamics may come into play that differ from those of traditional forms of policy-making. This paper investigates how shifts of environmental governance and knowledge are related. In order to do so, it reconstructs the development of the governance of recreational boating in the Dutch Wadden Sea on the empirical basis of interviews, document analysis, and a focus group. Moreover, it analyzes this development by means of an analytical framework that combines governance modes, knowledge systems and knowledge–governance interfaces. Our results show that in the last decades partly an accumulation and partly a sequence of various governance arrangements concerning recreational boating has occurred; this has entailed a shift from predominantly centralized governance to a combination of governance modes with a stronger emphasis on decentralized, interactive and self-governance. This shift has occurred together with an increasing prominence of qualitative local knowledge, stakeholders’ knowledge, and the integration of various forms of knowledge. Furthermore, a shift has taken place toward more participatory knowledge–governance interfaces. Our analysis suggests that environmental governance and knowledge are interconnected in various ways: the regulatory and epistemic aspects of environmental issues are bound up with each other, and governance and knowledge are coproduced and mutually constitutive. Key lessons from this analysis are that room for experimentation is an important factor in improving environmental governance, and that increasing stakeholder involvement in governance implies that new modes of jointly creating and exchanging knowledge may need to be taken into account.     

Governing cities reflexively—The biocultural diversity concept as an alternative to ecosystem services

With the aim to embed ecology more forcefully into decision-making, the concept of Ecosystems Services (ES) has gained significant ground among policy-makers and researchers. The increasing recognition of the importance of urban green areas for the quality of life in growing cities has led proponents of ES approaches to argue for an uptake of the approach in urban environmental decision-making. However, the ES approach has been criticized for standing too much at a distance from local communities and their day-to-day practices and for insufficiently taking into account the potential trade-offs between different qualities or preferences. In this paper we argue that other concepts, doing other work, need to be added to the debate about futures of urban governance and research. Biocultural diversity is suggested as one such alternative concept. By its emphasis on diversity, biocultural diversity can account for the many ways in which people live with green areas in the urban landscape, acknowledges the different knowledges this involves, and can reveal conflicts and ambivalence that may be at stake. This sets up for a reflexive, transdisciplinary research process that questions and contextualizes knowledge and worldviews including those of researchers. A reflexive, transdisciplinary research, then, is a productive catalyst for forms of reflexive urban governance that recognise and respond to this diversity and provide platforms for contestation.     

Community knowledge in environmental health science: co-producing policy expertise

As lay publics demand a greater role in the environmental and health decision-making that impacts their lives, policy makers are being forced to find new ways of understanding and incorporating the expertise of professionals with the contextual intelligence that community residents possess. This paper highlights how co-producing science policy, where technical issues are not divorced from their social setting and a plurality of participants engage in everything from problem setting to decision-making, can contribute to more scientifically legitimate and publicly accountable decisions. Through a detailed case study utilizing participant observation, ethnographic field work, semi-structured interviews, and reviews of original documents, this paper highlights how residents in a low income, Latino immigrant neighborhood in New York City organized their knowledge to participate in and significantly alter a U.S. Environmental Protection Agency exposure assessment. This paper reveals both the contributions and limits of local knowledge in environmental health governance and how the co-production framework can contribute to more technically credible science and democratically accountable policy.     

Interdisciplinary knowledge integration through group model building: recognizing dualities and triadizing the conversation

As part of the inquiry into managing an interdisciplinary research process on adaptive water governance, we investigated the process of group model building (GMB) and, more specifically, the role of Unified Modeling Language (UML) in this process. An analysis of group interaction reveals several tensions in the process of knowledge integration, which can be grouped into three overarching dualities: ‘simplicity versus complexity’, ‘constraining versus containing’ and ‘defining versus refining’. As group members take different positions with regard to these dualities, these represent sources of tension and potential ‘stuckness’ of the GMB. Hence the question arises how the group can manage duality in ways that take the GMB beyond its opposing forces. We suggest that knowledge integration processes may benefit from early recognition of the dualities at hand and strategies aimed at creating ‘thirdness’, including some suggestions on the concrete forms such ‘thirdness’ may take.     

Constructing collaborative communities of researchers in the environmental domain. A case study of interdisciplinary research between legal scholars and policy analysts

The article offers an analysis of the interactions between legal and policy science researchers within a European project on flood risk management using a “Policy Arrangement Approach” (PAA). While interdisciplinary research is increasingly becoming a ‘must’ in environmental governance, under what conditions is cooperation possible and desirable? Our analysis shows that the PAA is not mobilized as an interdisciplinary method, but offers a framework for researchers from different disciplines to learn to work together on a subject such as flooding, requiring interdisciplinary insights. The paper shows the steps that are progressively put in place to reach a common language and reformulate issues by benefitting from each other’s view and approaches. The article concludes by drawing attention to new means of knowledge production relating to so-called “messy” or “wicked” problems, such as environmental issues. Within this framework, interdisciplinary work is not considered to be a pre-condition for the study, but rather the result of the research process itself. The analysis draws attention to the actual (working) conditions established to create an interdisciplinary community of flooding practices by challenging disciplinary borders.     

Accommodating consensus and diversity in environmental knowledge production: Achieving closure through typologies in IPBES

How can a diversity of perspectives be accommodated in scientific and political consensus on environmental issues? This paper adopts a science and technology studies (STS) approach to examine how the pursuit of consensus-based knowledge and diverse participation, as seemingly contradictory commitments, have been converted into practice in the Intergovernmental Platform on Biodiversity and Ecosystem Services (IPBES). Through a series of negotiations, these commitments have been translated into a set of situated practices that now dominate this expert panel. Consensus has been achieved through the pursuit of closure, in which meetings of expert and administrator groups produce texts, tables and images that stabilise ostensibly collective decisions. Within this framework, diverse perspectives have been accommodated through the production of typologies, such as lists of comparable options, which allow for the coexistence and commensurability of a range of knowledges and experts. However there is a politics to typologies, which requires specific attention to how decisions are made (deliberation), who participates in them (participation), and the extent to which these participants are representative of broader knowledge and policy communities (representation). While the potential of typologies to accommodate consensus and diversity offers the hope of realising ‘unity in diversity’ for both environmental knowledge and policy, recognising the politics of their production is important for more equitable processes of environmental governance.     

Uncertainty,complexity and controversy in dolphin threat management: A role for post-normal science?

Managing fishing threats to populations of endemic, threatened Hector’s and Māui dolphins around New Zealand is a complex and controversial issue, underpinned by uncertain scientific knowledge. As such, it can be argued that it falls into the realm of post-normal science, which advocates transparency about uncertainties and stakeholder peer review of knowledge feeding into decision-making. This paper focuses on selected examples of modelling and risk assessment research relating to Hector’s and Māui dolphin threat management. It explores how knowledge is developed, shared and utilised by decision-makers, finding that uncertain scientific knowledge may be shared in ways that make it appear more certain, with some of the subjectivities involved in knowledge production hidden from view. Interviews with stakeholders illustrate how some stakeholders are aware of the subjectivities involved when uncertain knowledge underpins decision-making, so a lack of transparency may be leading to erosion of social trust in decisions made. This in turn can lead to a lack of support for dolphin conservation measures from key stakeholders such as the commercial fishing industry. The paper concludes that while moves towards increasing transparency and stakeholder involvement are apparent, a deeper embrace of post-normal science approaches to knowledge production and dissemination would contribute to effective dolphin threat management in New Zealand.     

Adaptive management intentions with a reality of evaluation: Getting science back into policy

In Australia’s Murray-Darling Basin water reform has been contentious as government attempts to reconcile historical over allocation of water to irrigation with the use of water for environmental outcomes. However, in many aspects, scientific knowledge of the environment is either imperfect, incomplete or environmental responses are unpredictable, with this uncertainty preventing definitive policy and closure of political arguments. In response to uncertainty and knowledge gaps, adaptive management has been written into the legislation, along with provisions for periodic evaluation.This research ascertains how adaptive management is understood by policy makers, with this indicative of future implementation of adaptive management. The way in which adaptive management is constructed by policy makers is determined through legislation, public speeches, government reports and semi-structured interviews. The findings demonstrate that adaptive management has been subsumed by evaluation. The loss of adaptive management as a distinct concept is seen as a loss of science and discovery from the policy process, with the dominance of evaluation discussed as limiting innovation and reinforcing a ‘muddling through’ of policy.     

The role of knowledge and research in facilitating social learning among stakeholders in natural resources management in the French Atlantic coastal wetlands

Environmental policy development increasingly refers to procedural approaches where local organisational structures are set up to initiate social interactions, to establish common working methods and to formulate collective agreements. In a context of complexity and uncertainty regarding environmental issues at stake, deliberations are mostly about managing interdependencies, i.e., building agreements and implementing changes so as to reconstruct the links between natural, technical and social phenomena. We see these deliberations as situations where social learning occurs; as an iterative process of knowledge co-production (i.e., of ‘knowing’) among stakeholders brought into interaction. Our research aims at better understanding these processes in the context of French Atlantic coastal wetlands where multi-stakeholder platforms for decision-making have become the dominant process for implementing natural resources management policies. Our studies focus on the challenge of managing the production and application of knowledge in social settings, in which scientists themselves come to play a role. They show how scientific knowledge can acquire heuristic value when used in the context of intervention research, as well as revealing some of the ethical dilemmas this may pose for the role of researcher.     

Public ecology: an environmental science and policy for global society

Public ecology exists at the interface of science and policy. Public ecology is an approach to environmental inquiry and decision making that does not expect scientific knowledge to be perfect or complete. Rather, public ecology requires that science be produced in collaboration with a wide variety of stakeholders in order to construct a body of knowledge that will reflect the pluralist and pragmatic context of its use (decision context), while continuing to maintain the rigor and accountability that earns scientific knowledge its privileged status in contemporary society. As such, public ecology entails both process and content. The process is that of a post-modern scientific method: a process that values the participation of extended peer communities composed of a diversity of research specialists, professional policy-makers, concerned citizens and a variety of other stakeholders. The content of public ecology is a biocultural knowledge of dynamic human ecosystems that directly relates to and results from the participatory, democratic processes that distinguish public ecology as a citizen science. The primary goal of public ecology is to build common ground among competing beliefs and values for the environment. The purpose of this paper is to help unify and establish public ecology as a distinctive approach to environmental science and policy in global society.     

Institutionalising social learning: Towards systemic and adaptive governance

This paper critically examines how public policy makers limit policy and other institutional design choices by a failure to appreciate (i) how situations may be characterised or framed; (ii) how practices that generate neologisms (invented terms or concepts) or reify (make into a thing) abstract concepts can displace understandings, and (iii) the epistemological bases of governance mechanism choices. An inquiry into the coining of the neologisms ‘wicked’ and ‘tame’ problems is reported and the implications for research and policy practice explored. As practices, neologising, reifying, categorising and typologising have unintended consequences – they remove us from the primary experiences and underlying emotions that provided the motivation for formulating these concepts in the first place. The failure to institutionalise the understandings and experiences that sit behind the invention of the terms ‘wicked’ and ‘tame’ problems (or similar framing choices such as ‘problematique’, ‘messes’, ‘lowland real-life swamps’, ‘resource dilemmas’ or ‘complex adaptive systems’) present systemic constraints to institutionalising social learning as an alternative yet complementary governance mechanism within an overall systemic and adaptive governance framework. Ultimately situations usefully framed as ‘wicked’,’ such as water managing and climate change are problems of relationship – of human beings with the biosphere. Re-framings, such as institutions as social technologies and other research and praxis traditions concerned with the breakdown of relationships may offer ways forward in the purposeful designing and crafting of more effective institutions.     

How to be a more effective environmental scientist in management and policy contexts

This paper is intended for young researchers with an environmental conscience, alerting them that a self-centred ecology can work against conservation and other desirable goals. I propose that there is confusion in the biophysical ecologists’ community about the role of knowledge, stemming from several already surpassed beliefs that have been strongly criticized by scholars in the field of science and technology studies. In particular, environmental scientists still often seem trapped in the information deficit model, assuming a linear and unidirectional flow of knowledge from experts to users. This leads to an incomplete understanding and unrealistic expectations of ongoing processes of citizen participation (co-production of knowledge), impatience regarding the speed at which issues can be dealt with by politics, and a fuzzy notion of the role of our convictions regarding the value of nature conservation when we are consulted as experts. I analyse the consequences of disregarding tacit knowledge, i.e. the one knowledge beyond that codified in academic papers and books. I emphasize that preferences and values have a large influence on how we perceive, process, and act (or postpone to act) on information on our non-exclusive roles as scientists, decision makers or citizens. I argue that this is why political and ideological preferences have a large influence not only on which teams are appointed to solve problems, but also on which situations are perceived as problematic and given higher priorities. I include a cheat-sheet to enhance communication with decision-makers and other non-scientists that could prevent environmental zeal to be transformed into society’s annoyance and our eventual irrelevance. I plea for a more realistic attitude towards ecological research, highlighting that in environmental debates we are also long-term stakeholders, and not only casual, external and aseptic observers.     

Knowledge users’ perspectives and advice on how to improve knowledge exchange and mobilization in the case of a co-managed fishery

Environmental scientists have long been frustrated by the difficulties involved in transferring their research findings into policy-making, management, and public spheres. Despite increases in scientific knowledge about social-ecological systems, research has consistently shown that regulators and stakeholders draw on tacit, informal, and experiential knowledge far more than scientific knowledge in their decision-making. Social science research in the fields of knowledge exchange (KE) and knowledge mobilization (KMb) suggest that one of the major barriers to moving knowledge into practice is that scientists fail to align their communication strategies with the information-seeking behaviours and preferences of potential knowledge users. This article presents findings from in-depth qualitative research with government employees and stakeholders involved in co-managing Pacific salmon fisheries in Canada’s Fraser River. We investigate how members of these groups access, view, and use scientific information, finding both similarities and differences. Members of both groups express a strong interest in academic science, and self-report using scientific information regularly in their work and advocacy. However, the two groups engage in different information-seeking behaviours, and provide notably different advice to academic scientists about how to make research and communication more relevant to potential users. For example, government employees focus on the immediate applications of research to known problems, while stakeholders express greater concern for the political context and implications of scientific findings. We argue that scientists need to “go where the users are” in the behavioural and intellectual sense, and tailor their communications and engagement activities to match the habits, preferences, and expectations of multiple potential user groups. We conclude with recommendations on how this may be done.     

Effective risk governance for environmental policy making: A knowledge management perspective

Effective risk management within environmental policy making requires knowledge on natural, economic and social systems to be integrated; knowledge characterised by complexity, uncertainty and ambiguity. We describe a case study in a (UK) central government department exploring how risk governance supports and hinders this challenging integration of knowledge. Forty-five semi-structured interviews were completed over a two year period. We found that lateral knowledge transfer between teams working on different policy areas was widely viewed as a key source of knowledge. However, the process of lateral knowledge transfer was predominantly informal and unsupported by risk governance structures. We argue this made decision quality vulnerable to a loss of knowledge through staff turnover, and time and resource pressures. Our conclusion is that the predominant form of risk governance framework, with its focus on centralised decision-making and vertical knowledge transfer is insufficient to support risk-based, environmental policy making. We discuss how risk governance can better support environmental policy makers through systematic knowledge management practices.     

Making sense of complexity in risk governance in post-disaster Fukushima fisheries: A scalar approach

This paper evaluates how geographical theories of scale can give a more robust understanding of the governance of complex environmental risks. We assess the case of fisheries in Iwaki City, Fukushima Prefecture in Japan following the 2011 nuclear disaster. Fisheries in Iwaki and Fukushima more widely are operating on a trial basis as understanding of the marine radiation situation becomes clearer, however questions remain over whether consumers will buy produce and to what extent full-scale fisheries will resume. Based on empirical fieldwork undertaken in Fukushima plus supporting documentary analysis, we construct a scalar account of post-disaster Iwaki fisheries. We use this to argue that framing post-disaster fisheries governance at the municipal scale rather than the prefectural scale has opened up opportunities for enacting the more two-way forms of risk governance that contemporary environmental issues may require. We also argue locally-situated ‘experts’ (e.g. fisheries extension officers and citizen science groups) play a key role in negotiating citizens’ and fishers’ relationships with larger-scale scientific discourses due to their ability to work across scales, despite having less techno-scientific expertise than their national-level counterparts. In turn, we suggest that in governance of complex environmental issues, policymakers ought to (a) consider how community-level expectations may differ from risk governance processes developed at larger scales; (b) identify key institutions or figures who can work across scales and support them accordingly; and (c) show cognisance to the social effects that may arise from spatial demarcation of environmental problems.     

Multi-level governance for large marine commons: Politics and polycentricity in Palau's protected area network

This paper brings together institutional theories of polycentricity and critical human geography theory on scalar politics to advance understanding of the form and function of nested, polycentric regimes for the governance of large-scale common pool resources. We focus on institutional changes associated with a national marine protected area network in Palau through which national government and NGOs gain influence in local decision-making processes. Influence is gained through an attempt to scale up common-pool resource governance to an ecologically-relevant spatial scale in an effort to protect coral reef resilience and biodiversity across Palau. An institutional approach informed by scalar politics brings into focus potential tradeoffs between organizing governance reform around ecologically versus institutionally relevant scales. Our analysis suggests that prioritization of ecologically-relevant scales in institutional reform resulted in more nested but less polycentric institutional arrangements governing the network. We conclude that less distributed decision-making in the overall nested governance system could threaten the sustainability and resilience of coral reefs in the long-term by constraining institutional innovation and diversity. Results demonstrate the potential for interdisciplinary dialog to advance the research frontier on multi-level governance for large common pool resources.     

国际环境执政理论研究进展透视

要想真正改善中国的环境条件,需要中国领导人和整个社会齐心合作,加强环境执政.在欧洲、日本和美国,环境执政手段正在发生变化.20世纪六七十年代起,国家政府开始积极致力于环境保护工作,是政策形成的初期阶段,而环境执政的主要特点是命令与控制的环境法规规范.这些法规一般技术性很强,关注特定污染物;虽然其过去在改善西方环境条件方面作出了重要贡献,人们还是日益认识到这种方式的局限性.因此,现在已开始采纳新的环境执政模式,其特点是多方利益相关者参与、决策过程更透明,重点从处理已发生的污染问题,向源头控制和更具预防性质的计划方式转变,也越来越重视以人类健康和生态系统的保护为目标的途径,而不再是简单减少某种污染物的排放水平.政府的成功取决于政府强化环境执政的种种步骤.