Learning in participatory environmental governance – its antecedents and effects. Findings from a case survey meta-analysis

ABSTRACT

Theory on participatory and collaborative governance maintains that learning is essential to achieve good environmental outcomes. Empirical research has mostly produced individual case studies, and reliable evidence on both antecedents and environmental outcomes of learning remains sparse. Given conceptual ambiguities in the literature, we define governance-related learning in a threefold way: learning as deliberation; as knowledge- and capacity-building; and as informing environmental outputs. We develop nine propositions that explain learning through factors characterizing governance process and context, and three propositions explaining environmental outcomes of learning. We test these propositions drawing on the ‘SCAPE’ database of 307 published case studies of environmental decision-making, using multiple regression models. Results show that learning in all three modes is explained to some extent by a combination of process- and context-related factors. Most factors matter for learning, but with stark differences across the three modes of learning, thus demonstrating the relevance of this differentiated approach. Learning modes build on one another: Deliberation is seen to explain both capacity building and informed outputs, while informed outputs are also explained by capacity building. Contrary to our expectations, none of the learning variables was found to significantly affect environmental outcomes when considered alongside the process- and context-related variables.     

Navigating multi‐level natural resource governance: an analytical guide

A plethora of terms are used to describe the form of governance of complex social‐ecological systems, such as multi‐level governance, polycentricity and network governance. This plethora of terms is associated with a diffuse literature from which it can be challenging to identify which variables are important for investigation of the governance system and what questions could be asked. The purpose of this article is to present the development of a guide for the analysis of the complex governance systems of renewable natural resources, informed by a breadth of literature from which key characteristics, challenges and concepts are identified. The guide consists of three dimensions: multiplicities of levels, actors and institutions; the existence, opportunities for, and challenges of, interactions within and between levels (vertical and horizontal interactions); and an assessment of governance performance through application of governance principles. The guide is applied to a case study of mangrove forests in Kenya, to illustrate its utility in generating understanding and identification of challenges and opportunities for more effective multi‐level governance. It is proposed that the guide could be beneficial to researchers and practitioners seeking to develop an understanding of structures, performance and outcomes of multi‐level governance.     

Good governance for terrestrial protected areas: A framework,principles and performance outcomes

Governing norms by which to steer traditional government functions are well established and understood; however, this is not the case for the new multi-level and collaborative approaches that characterize protected area governance. This is largely new territory that makes novel demands on governance institutions and policy. In this context, establishing and maintaining good governance across the diversity of ownership and responsibility arrangements is critical for the future effectiveness and acceptability of protected areas. Fulfilling the promise and avoiding the pitfalls inherent in contemporary protected area governance will require an understanding of what is meant by ’good governance’ and development of associated mechanisms to assess performance and provide a basis for improvement. This paper’s contribution lies in the guidance it provides for the hitherto under-developed area of governance quality assessment. I first present a framework that positions governance quality in relation to governance and management effectiveness. I then characterize good protected area governance according to a set of seven principles – legitimacy, transparency, accountability, inclusiveness, fairness, connectivity and resilience. Together, the framework, governance principles and related performance outcomes provide a platform for assessment of governance quality for an individual terrestrial protected area, a network of several protected areas, or a national protected area system.     

Designing regional-level stakeholder engagement processes: striving for good governance while meeting the challenges of scale

Stakeholder engagement processes have sought to ensure that state government meets public trust and good governance obligations to citizens. As the expectations of stakeholders and state agencies change, and management focuses on landscape-level interventions, a change in the level at which agencies engage the public is needed. This involves tradeoffs, as different levels call for different engagement design and implementation considerations. To understand how these differences affect decision making, we examine a regional engagement model for deer management in New York that was piloted to replace a sub-regional model. We identify concerns with the old model, objectives for the redesigned model, and explain the logistical and good governance considerations that informed its design. We share our evaluation of the model's process and outcomes, including implications for program design and scale. Overall, despite the pilot model's attention to design components aimed at addressing potential barriers to regional engagement as well as limitations of the previous engagement model, the pilot did not meet many of its objectives, especially those related to representation, resulting in some of the same concerns associated with the model it was intended to enhance and replace. Implications of this for regional-level engagement efforts are discussed.     

Reflexive governance: exploring the concept and assessing its critical potential for sustainable development. Introduction to the special issue

ABSTRACT

Elaborated in publications on transition management, sustainability governance and deliberative environmental governance, ‘reflexive governance’ addresses concerns about social-ecological vulnerabilities, flawed conceptualisations of human-nature relations fragmented governance regimes and conditions for a sustainability transition. Key barriers to reflexive government include unavoidable politics; the influence of broader discursive systems that shape actors’ strategic interests; and structural and deliberate limitations to the range of admitted epistemological understandings, normative perspectives and material practices. Against this background, the contributions to the special issue provide novel conceptual linkages between reflexive governance and boundary objects, intercultural dialogue, conflict management heuristics, discourse linguistics, theories of the policy cycle and reflexive law, network and learning theories, and Lasswell’s ‘developmental constructs’. Based on the contributions, we identify five inherent conceptual tensions of reflexive governance: between the openness of horizontal learning processes and the desired direction towards sustainable development; between reflexive governance as a normative or procedural concept; between expected learning orientations and other, strategic orientations; between governance as a precondition for reflexivity and reflexive learning as a precondition for reorganized governance structures; and between reflexivity as an open-ended, evolutionary process and the need to strategically defend the space for reflexivity against powerful groups with an interest in the status quo.     

Policy learning in collaborative environmental governance processes

ABSTRACT

Collaborative governance processes have become a popular mechanism for addressing complex environmental problems. Their success is premised, in part, on the assumption that they promote learning among diverse participants, who are then better equipped to develop creative, consensus-oriented environmental management actions. Significant gaps remain, however, in our understanding of how collaborative governance processes foster learning and what impact increased learning has on policymaking outputs. To investigate these relationships, this study provides one of the first empirical applications of Heikkila and Gerlak's collective learning framework. Key framework concepts are operationalized via interview data and existing literature and then measured via survey data collected from participants in a collaborative environmental governance process in Colorado, U.S. Findings indicate that both internal and exogenous contextual factors affect how much an individual learns within a collective context. Additionally, participants who report more learning also more strongly agree that the process produced favorable outputs and outcomes. These findings advance theories of learning in collaborative contexts and inform process design to maximize learning.     

Transparency in global sustainability governance: to what effect?

ABSTRACT

Transparency in environmental governance is no longer an uncontroversial answer to problems of accountability and effectiveness. How to design effective transparency systems and in what policy contexts they are effective remain contested issues. This special section, consisting of this introduction and four research articles, interrogates complex and potentially conflicting links between transparency, accountability, empowerment and effectiveness in environmental governance. Building on existing literature and the four contributions, we discuss persisting diversity in varieties of transparency, the evolving dynamics of commodity chain transparency, and the consequences of emerging novel forms of digitalized transparency. As we show, the contributions to this special section interrogate in novel ways the transformative potential of transparency, through shedding light on the performative effects of transparency in ever more complex environmental governance contexts. These contexts may include, inter alia, the growing ubiquity of traceability in transnational commodity chains, the need for ever more anticipatory (ex-ante) forms of environmental governance, and an ever-broadening quest for digitally monitored environments. In particular, the impacts of the real-time ‘radical’ transparency engendered by use of novel digital technologies remain under-analyzed in the sustainability domain. We conclude by raising several critical concerns that deserve further scientific research and policy debate.     

Hyperautomobility and Governmentality in Auckland

Abstract

A number of cities around the world are associated with very high levels of private motor car usage, and Auckland provides an example of one of these ‘hyperautomobile’ cities. There are many problems with this system of transportation and dependence on the private car, including environmental, social and city design dimensions. Though there is a clear aspiration to move towards reduced levels of car usage in the city's transport and spatial planning strategies, there are major difficulties in implementation terms. We develop and consider future scenarios to 2041 to reduce these levels of motorization, and subsequent transport CO₂ emissions, with a much greater use of public transport, walking and cycling, urban planning, and low emission vehicles. The current implementability of such a ‘sustainable mobility’ future is however questioned in the current political and social context, and critically debated in terms of the available governance mechanisms and the limited attempts to shape the behaviour of the public. We conclude by calling for a reconsideration of the policy measures being considered, including the range and levels of application and investment; with a much wider framing of the transport planning remit, and carried out within a much stronger participatory framework for decision-making.     

Urban contractual agreements as an adaptive governance strategy: under what conditions do they work in multi-level cooperation?

ABSTRACT

The Norwegian urban growth agreement (UGA) is a governance platform combining transport-infrastructure development with land-use and transport policy. It is a policy package of measures involving network cooperation between national, regional and local government levels established to coordinate transport and land-use development. Shared responsibility for goal achievement, autonomy and learning and adaptation as new knowledge and experience arise are clear prerequisites for the UGAs. This makes it relevant to investigate the conditions for the UGAs to work as an adaptive governance strategy because their central features are in line with the attributes of adaptive governance. Further, adaptive governance is an approach to handle complex problems like transport development issues. The study shows that UGAs have several strengths in terms of autonomy and learning. However, the multi-level cooperation in the UGAs is framed by complex underlying structures of roles and powers, which challenge the working and legitimacy of the governance structures. Multi-level adaptive governance processes like the UGAs require attention to issues of power and legitimacy. Securing transparency and democratic anchorage is paramount in bringing such processes in line with the intended benefits of adaptive governance.     

From leaders to majority: a frontrunner paradox in built-environment climate governance experimentation

This paper seeks to better understand the possible paradox of frontrunners in experimental climate governance. This paradox refers to the situation where frontrunners are required to push boundaries in terms of developing governance innovations and to experiment with these, but where, at the same time, a too strong focus on frontrunners may result in a situation where lessons from these experiments and the innovations developed do not resonate with the majority. In such a situation, an innovation may not be capable of being scaled up or of being transferred to another context. This paper draws lessons from a series of nine experimental and innovative governance instruments for low-carbon building development and transformation in Australia. It points out that for these instruments the frontrunners paradox provides a partial explanation as to why they have not yet been able to scale up from a small group of industry leaders to the large majority.     

Environmental justice for the governance of aquatic environments

Environmental justice sheds light on the distributive and procedural aspects of planning and decision-making. We examined the challenges arising from the perspective of environmental justice on multi-level and participatory environmental governance by exploring the governance of aquatic environments in the Helsinki Metropolitan Area. We found three main challenges and potential responses to them. First, even though most of Helsinki’s shoreline is free and/or accessible by road and accordingly used actively by people for recreational purposes, many parts of the shoreline are perceived as inaccessible, reflecting a need to combine factual and perceived accessibility of aquatic environments in detail during the planning processes and to discuss reasons for possible discrepancies between these two. Second, there was a remarkable seasonal variation in the use of aquatic environments, so more attention should be paid to social-demographic factors explaining the distribution of the use of urban nature. Third, it seems to be difficult to capture the variety of perceptions of people and to integrate them into planning and decision-making processes even on a local scale, and this challenge is likely even more pronounced on higher levels of planning and governance. Thus, better integration of regional and local-scale planning procedures should be encouraged. Building on these observations, we conclude that integration of procedural and distributive environmental justice into the practices of the governance of aquatic environments could remarkably decrease unwanted trade-offs and potential conflicts in their use and management.     

The importance of context for effective public engagement: learning from the governance of waste

This paper takes a new look at the importance of context – institutional and political – in effective public engagement processes. It does so through a rare comparative opportunity to examine the effectiveness of processes of public engagement in two UK waste authorities, where the same waste company was involved as both the primary contractor for the delivery of the waste management service (including new energy-from-waste facilities) and, furthermore, the same staff delivered the public engagement. Interrogating these cases affords the opportunity to place flesh on the bones of the sometimes ‘abstract’ skeleton of context. While engagement processes support effective local governance in an era of partnerships and deliberative democracy, the paper identifies that the methods adopted cannot be played out devoid of detailed understanding and response to local context, including the strength of partnership working between the public and private sector, the degree of political support for engagement, and the extent to which a traditional institutional paternalism still dominates.     

Assessing the sustainability of water governance systems: the sustainability wheel

We present and test a conceptual and methodological approach for interdisciplinary sustainability assessments of water governance systems based on what we call the sustainability wheel. The approach combines transparent identification of sustainability principles, their regional contextualization through sub-principles (indicators), and the scoring of these indicators through deliberative dialogue within an interdisciplinary team of researchers, taking into account their various qualitative and quantitative research results. The approach was applied to a sustainability assessment of a complex water governance system in the Swiss Alps. We conclude that the applied approach is advantageous for structuring complex and heterogeneous knowledge, gaining a holistic and comprehensive perspective on water sustainability, and communicating this perspective to stakeholders.     

Emerging dynamics of environmental governance in northern post-productivist regions

The northern, resource-dependent regions of Canada have long faced distinctive social, economic, and environmental challenges and vulnerabilities. However, these regions and communities increasingly find themselves in a transitional and post-productivist context – the implications of which are largely unclear. Therefore, research is needed to identify the current and emerging challenges facing such regions and how environmental governance and planning must adjust to meet these challenges. We utilise the case study of the Northeast Superior region of Ontario to identify and analyse the dynamics developing in post-productivist, resource-dependent regions and what the implications may be for environmental governance. Several key themes and issues that emerged include an increasingly pluralistic context, new regionalism and north–south tensions, First Nation initiatives and power imbalances, and northern identities which are tied to ideas of historical resource-dependence, remoteness, and intimate and complex links to the landscape, all of which inform environmental governance and sustainability debates. As a result, the Northeast Superior case provides insight into these ongoing dynamics which encompass individuals, government, industry, organisations, and the landscape, with the resultant lessons being transferable to initiatives in other northern, remote, and circumpolar regions.     

Contesting neoliberal knowledge politics in restoration governance: the restorationist’s dilemma

ABSTRACT

The success of ecological restoration efforts is tightly coupled with the effectiveness of many U.S. environmental policies. Yet scholars have raised questions about the ability of restoration to produce intended results. We use a case study of tidal wetland restoration planning in Oregon to examine how neoliberal environmental governance exercises influence through a set of knowledge politics that produces subpar outcomes. We present three main findings: (1) restoration policies produce a restoration economy based on a conception of wetland as commodity (2) practitioners in this restoration economy exhibit competitive behavior resulting in a piecemeal rather than a landscape approach to restoration; and (3) limited monitoring prevents changes to existing policies. Practitioners offer insight into the challenge of treating wetlands as a commodity and call for more monitoring to challenge the assumptions of hegemonic knowledge practices that reinforce a neoliberal environmental governance regime. The divergent ideas of reflexive practitioners, though not yet manifest as action, show where changes to restoration governance might be possible.     

A rights foundation for ecological democracy

ABSTRACT

What would it mean to conceptualize some environmental relationships as bundles of rights, rather than as a good as generally defined by liberalism? Environmental rights are a category of human rights necessarily central to both democracy and global environmental protection and governance (ecological democracy). The world of democratic politics and governance since mid-twentieth century has been transformed by a rights revolution in which recognized rights have come to constitute a ‘global normative order.’ There are several policy spaces in which persuasive environmental rights discourses have been emerging from existing or foreseeable congruences of elite and popular environmental norms, including (1) rights involving access to information and decision-making processes; (2) rights ensuring access to food and water; and (3) rights providing environmental security to all. We analyze these three rights discourses and assess their current and necessary future trajectories. We identify next steps in achieving better understanding and more meaningful establishment of environmental rights and their integration into our thinking about human rights, with attention to how they can be reconciled with the social and cultural diversity of democratic environmental governance in coming turbulent times.     

Significant developments in sustainable development law and governance: A proposal

This article develops a practical proposal for progress on sustainable development law. It examines the prospects for an international sustainable development law to provide a framework for more effective, coherent governance. Sustainable development law is briefly defined and an analytical framework is provided. Different degrees of integration between economic, social and environmental law are described. Certain principles of international law related to sustainable development are also highlighted. It is argued that these principles may serve to guide law‐makers and jurists where social, economic and environmental law and policy conflict or overlap. Continuing, underlying questions of sustainable development governance are addressed and its global frameworks analysed. The article also focuses on the 2002 World Summit on Sustainable Development, held in Johannesburg in August‐September 2002, and its specific mandate for the United Nations Commission on Sustainable Development (UNCSD) to take related legal developments into account. The article advances a proposal: that governments, economic, social and environmental intergovernmental organizations and other actors establish a ‘network of inquiry’ with members from relevant groups, including legal and academic organizations, and other expert groups, in order to follow, research, analyse and debate legal developments in a balanced way.     

Speaking of fire: reflexive governance in landscapes of social change and shifting local identities

ABSTRACT

The concept of reflexive governance has to a large extent emerged from an increasing recognition of the need to consider different meanings of nature in the environmental policy-making process. Yet, so far, little attention has been paid to creating conditions for reflexive governance among different actors in intercultural settings, particularly in the context of environmental conflict and strong cultural change among indigenous peoples. This paper reviews three participatory research projects carried out in the Gran Sabana in Canaima National Park, Venezuela, which facilitated dialogue among indigenous people regarding their conflicting views of fire, in part by developing community-wide critical reflections on processes of cultural change and identity formations. These experiences suggest that once marginalized environmental knowledge is publicly acknowledged within the context of endogenous cultural processes, indigenous people feel more confident to engage in dialogue with other actors, thus allowing the emergence of reflexive environmental governance.     

EU policy on the move – mobility and domestic translation of the European Union’s renewable energy policy

We discuss how the EU’s Renewable Energy Directive was designed to be mobile, and how it was moved to and implemented in Finland by translating it to enhance wood-based energy production through specific subsidies. We study policy-making as a mobile process, which approach has its original roots in political science and more recent basis in political geography. The article aims to develop conceptual understanding of how the mobility of a supranational policy is generated and how a policy is translated into complex and contentious geographical contexts. We aim to show that mobility of a directive is enabled by an empty governance space which is aimed to be ‘filled in’ in each spatial context, and that the filling in process makes each translation a contentious and path-dependent process. In Finland, the selected policy tools and practices continued the path-dependent ways of favouring forestry industry’s traditional position as the primary utiliser of forest resources.     

Multi-level water governance – the case of the Morsa River Basin in Norway

Management of fresh water resources meets a range of often conflicting interests. Waterways usually run across political and administrative borders and hence make management difficult and collective action politically challenging. In order to meet these challenges, multi-level bioregional approaches to water management have been called for. Such an approach is institutionalised in the EU's Water Framework Directive (WFD). This paper presents the experiences of the Morsa water sub-district in southern Norway, a pilot for implementing the WFD. The paper discusses Morsa in the light of four principles for multi-level water governance: management on a bioregional scale; polycentric governance; public participation; and an experimental approach to water governance. Contrary to widely held assumptions that collective action in polycentric networks will be difficult because actors will follow their own narrow interests, the findings demonstrate how this is not an absolute truth, and how social action cannot be fully explained by rational action theories. The analysis concludes that the relative success of Morsa relates to a complex of factors, including openness of practices and active involvement of key actors, strong but including leadership, and a knowledge based ‘hybrid’ type of multi-level network combining horizontal and vertical network governance.