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.     

Knowledge brokerage designs and practices in four european climate services: A role model for biodiversity policies?

Environmental policies are broadly claimed to rely on sound scientific evidence because of the complexity, the uncertainty and the diverging political stakes that characterize issues like biodiversity decline or climate change. Classical advisory formats like assessments or standing advisory bodies have proliferated widely – especially at the global and national levels – yet exert only a limited influence on political decision-making, particularly in sub-national and local implementation contexts. Against this background, scholars have called for ‘bottom-up’ approaches to Science-policy interfaces that move from ‘problem to policy’. In the area of climate change, numerous ‘climate services’ have evolved at national, sub-national and even local levels, with the promise of being more decision-oriented. Four climate services in three European countries (the United Kingdom, Germany and Switzerland) are investigated regarding whether and how they institutionalize and enact knowledge brokerage in a credible, salient and legitimate way. Focusing on the institutional and strategic design principles of this advisory setting in climate policy, insights are generated for the biodiversity policy field, where comparable settings are still broadly lacking.     

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.     

Nuclear power and post-2012 energy and climate change policies

At present there is no binding agreement (at a global level) to address the risk of anthropogenic climate change after 2012. Disagreements abound with respect to a post-2012 climate change agreement, on issues such as economic development, policy criteria, environmental effectiveness, cost-effectiveness, equity, dynamic flexibility, complementarity, enforceability and so on. One such disagreement is whether or not nuclear power should play a role in a post-2012 climate change agreement. This qualitative analysis explores the conditions under which nuclear power could contribute to addressing climate change in post-2012 architectures. It reveals that – given the right framework conditions – some architectures, like ‘cap and trade’ regimes or ‘policies and measures’ can improve the competitiveness of nuclear power plants, while others are unlikely to provide incentives for nuclear energy development in the short to medium term, such as adaptation and technology cooperation. Overall, the study concludes that post-2012 climate change policy should aim at providing policy flexibility without compromising technology flexibility. For example, the provision of long-term commitment periods has the potential to enable better investments in existing low-carbon technologies but stifle the policy flexibility that political decision makers are often keen to retain so that they can respond more quickly to new scientific evidence or advances in clean technology development.     

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.     

可持续发展指标：发展中国家的决策过程和适用性整合

实现可持续发展已经成为了重要的全球性目标,这反映了公众以及决策者对环境问题日益增长的关注。虽然可持续发展指标为决策提供了坚实的基础,但许多国家特别是发展中国家并没有向可持续发展迈进。本文考查了在发展中国家测量可持续发展指标面临的挑战,这些指标在决策中的有效性和指标对决策过程的影响。特别地,本文将评估这些指标是否被整合到了决策进程中而且是否促进了可持续发展。环境数据的约束,缺乏相关机构的协调,发展中国家资源的缺乏都阻碍了可持续发展指标的测量。水、卫生条件的案例表明在政策和决策过程中整合可持续发展指标的无效性。既要有可持续发展的核心指标集以整合决策者关注环境问题,也要辅助以反映地方关注和文化多样性的地方性指标,这是至关重要的。报告应该包括对环境因素和健康产出相关的分析,也应该相应地转化为对经济的影响。     

The intermediary role of an industry association in policy-making processes: the case of the Dutch paper and board industry

In the policy-making process concerning energy and environmental issues, cooperation between government and firms is a means to create a more efficient energy and environmental policy. Intermediary organizations can play an important role in this policy-making process. Aim of this study is to get insight into the role of one specific intermediary organization: the industry association. In this paper, we focus on the Dutch paper and board industry. Important policy themes for this industry are waste water, waste, and energy efficiency. We distinguished four types of governmental policy instruments: top-down regulation, interactive regulation, negative economic instruments, and positive economic instruments. We analyzed the role of the industry association in the policy-making process for all of these four instruments. The results clearly show different (relative) roles of the industry association in different steps of the policy-making processes and for different types of instruments.     

Expert risk perceptions and the social amplification of risk: A case study in invasive tree pests and diseases

The Social Amplification of Risk Framework (SARF) is often used as a conceptual tool for studying diverse risk perceptions associated with environmental hazards. While widely applied, it has been criticised for implying that it is possible to define a benchmark ‘real’ risk that is determined by experts and around which public risk perceptions can subsequently become amplified. It has been argued that this objectification of risk is particularly problematic when there are high levels of scientific uncertainty and a lack of expert consensus about the nature of a risk and its impacts. In order to explore this further, this paper examines how ‘experts’ – defined in this case as scientists, policy makers, outbreak managers and key stakeholders – construct and assemble their understanding of the risks associated with two invasive tree pest and disease outbreaks in the UK, ash dieback and oak processionary moth. Through semi-structured interviews with experts in each of the case study outbreaks, the paper aims to better understand the nature of information sources drawn on to construct perceptions of tree health risks, especially when uncertainty is prevalent. A key conclusion is that risk assessment is a socially-mediated, relational and incremental process with experts drawing on a range of official, anecdotal and experiential sources of information, as well as reference to past events in order to assemble the risk case. Aligned with this, experts make attributions about public concern, especially when the evidence base is incomplete and there is a need to justify policy and management actions and safeguard reputation.     

Does environmental information overcome practice compartmentalisation and change consumers' behaviours?

This paper questions the long-held paradigm of consumers' rationality as well as its corresponding policy tool, the supply of information. Theoretical considerations as well as empirical evidence from a research on residential energy consumption in Belgium show that both environmental information – namely on climate change – and customised advice to save energy at home are neither just taken in as such by consumers nor translated into corresponding practices. In consumerist societies, practice compartmentalisation and moods are indeed normalised mechanisms for not adopting ‘green’ lifestyles that would threaten social normality as defined in valued networks.     

Cleaner production in Danish fish processing – experiences,status and possible future strategies

Danish fish processing industry has been one of the pioneers regarding implementation of cleaner production and environmental management systems. This article describes the experiences with cleaner production (CP) among leading Danish industries producing pickled herring and canned mackerel. The article emphasizes two case studies of ‘first mover’ companies, but data from other ‘proactive’ companies are also included.The article provides an overview of different types of CP solutions, improvement potentials, synergistic effects and possible trade-offs. The development of the applied solutions from the late 1980s until today are analysed and recommendations to future strategies at company level and policy level are provided.It is concluded that significant environmental improvements have been obtained for the analysed companies – especially concerning reductions in water consumption, wastewater emissions, and utilisation of fish ‘waste’ for valuable by-products. Still, more focus could be placed on the reduction of energy consumption, change of packaging types, and environmental impacts in other stages of the products life cycle.Authorities and companies have mainly focused on on-site reductions of wastewater emissions, but life cycle assessments show that more attention should be given to the reductions of environmental impacts in other parts of the product chain, e.g. fishing operations and transport as well.     

Conceptual development of a harmonised method for tracking change and evaluating policy in the agri-environment: The Agri-environmental Footprint Index

An aggregated farm-level index, the Agri-environmental Footprint Index (AFI), based on multiple criteria methods and representing a harmonised approach to evaluation of EU agri-environmental schemes is described. The Index uses a common framework for the design and evaluation of policy that can be customised to locally relevant agri-environmental issues and circumstances. Evaluation can be strictly policy-focused, or broader and more holistic in that context-relevant assessment criteria that are not necessarily considered in the evaluated policy can nevertheless be incorporated. The Index structure is flexible, and can respond to diverse local needs. The process of Index construction is interactive, engaging farmers and other relevant stakeholders in a transparent decision-making process that can ensure acceptance of the outcome, help to forge an improved understanding of local agri-environmental priorities and potentially increase awareness of the critical role of farmers in environmental management. The structure of the AFI facilitates post-evaluation analysis of relative performance in different dimensions of the agri-environment, permitting identification of current strengths and weaknesses, and enabling future improvement in policy design. Quantification of the environmental impact of agriculture beyond the stated aims of policy using an ‘unweighted’ form of the AFI has potential as the basis of an ongoing system of environmental audit within a specified agricultural context.     

A comparative analysis between composite indexes of environmental performance: An analysis on the CIEP and EPI

The measurement of environmental impact through composite indexes provides information about the effects of human activities on the ecosystem. Over recent years proposals regarding the environmental composite indexes (ECI) have emerged, suggesting that they can be used to help in decisions about public policies. Due the number of these indicators, issues arise about the asymmetry of information provided, although all ECI seek to measure ecosystem quality or damage. The present paper compares the Composite Index of Environmental Performance (CIEP) (García-Sánchez et al., 2015) and the Environmental Performance Index (EPI) (Hsu et al., 2014) in order to find convergent and divergent characteristics, studying methodological aspects and empirical evidence through statistical analysis, in order to favour the decision-making by stakeholders and to improve the existing ECI in order to determine adequately the environmental impact. The results show that the indexes were developed using different methods and variables, however, they share around 20% identical variables. Despite these differences, the rate of variation in ranking countries between the indexes is 21%, on average. The EPI policy category ‘water & sanitation (effects on humans)’ has two common variables and explains part of the CIEP performance. The effect dimension of the CIEP has one more identical variable and it reduces the individual variation between rank positions.     

Correlating negotiation hotspot issues,Paris climate agreement and the international climate policy regime

The concerns over climate change negotiation, decision texts and links to domestic policy interests of countries to keep warming within an acceptable limit have become the ‘hotspot issues’ of the United Nations Framework Convention on Climate Change (UNFCCC). Hotspot issues are the human – political economy factors which have evolved over time from negotiation texts or phrases, principles or behaviors with tendencies to influence climate negotiations yet cannot be identified with the scientific literature. Whilst big emitters have been accused as having hegemony over the negotiations, the effects of disunity amongst the parties over domestic policy interests have been overlooked. Hence the article examines the emergence of hotspot issues and how they manifest within the international climate policy regime. The Intended Nationally Determined Contributions (INDCs) of 130 countries submitted before the Paris agreement, were analyzed using the following texts: Adaptation, Mitigation, Co-benefits, Finance, Land use, Food security, Poverty, Resilience, Green growth, Green economy, Sustainable development, Biodiversity, Ecosystem services and Conservation. Of these, ‘adaptation’ was cited 2780 times, 1956 for ‘mitigation’ and 32 for ‘ecosystem services’ in the nature conservation category. Ten phases of the climate policy regime and historical hotspot issues were identified for the period 1980–2030. ‘Adaptation’ and mitigation appeared more frequently in the INDCs and correlated with each other (r = 0.56), as the two correlated further with ‘land use’ (0.50 < r < 0.60), and similarly with sustainable development (0.40 < r < 0.70) where ‘r’ is the Pearson Rank Correlation. Therefore the success of the ‘ambitious targets’ for mitigation will depend on similar ambitious goals for adaptation, land use and sustainable development. Several differences existed in the correlation of the hotspot issues within the regional geographical blocs (Africa, Asia, Europe, North America, Oceania, South America) and split along the hotspot issues yet Europe mostly oriented towards mitigation and land use, and Oceania on resilience building. These differences provide favorable conditions for increased cooperation and true multilateralism if they are properly diagnosed.     

Decline of ‘biodiversity’ in conservation policy discourse in Australia

Market-based instruments along with conceptualizing the environment as a collection of ‘ecosystem services’ has become increasingly common within environmental and conservation policy. This kind of thinking is also increasingly prominent in the public discourse surrounding environment and conservation policy, particularly in the context of communicating the importance of policy measures. Language used in public discourse can have a powerful influence on how people engage with policy issues, and changes within the biodiversity and conservation discourse may have consequences for public engagement in conservation. We explored how these factors are changing with time by documenting the use of the terms ‘bio’ and the prevalence of economic language in the text of 3553 media releases between 2003 and 2014 from the Australian Government environment portfolio, and 1064 media releases from the Australian Conservation Foundation (ACF). Results show that in the last decade, the term ‘biodiversity’ has become less prevalent whilst economic language has increased in both Australian Government and ACF communication. A further content analysis in a subsample of 745 media releases explored the prevalence of ecosystem services framing, results indicating that it has become a mainstream concept. While this may reflect a strategic response by these agencies to better engage with both the general public and decision makers within what is an increasingly dominant neoliberal paradigm, we argue it may also have unintended (possibly adverse) impacts on how people think about and engage with biodiversity conservation.     

A new tool to map the major worldviews in the Netherlands and USA,and explore how they relate to climate change

For addressing climate change, public support for changes in policy is needed, as well changes in individual lifestyles. Both of these appear to be intimately related with people’s worldviews. Understanding these worldviews is therefore essential. In order to research and ‘map’ them, we translated the theoretical ‘Integrative Worldview Framework’ (IWF) into an empirical, quantitative approach. We constructed a worldview-scale aiming to distinguish between four major worldviews – labeled traditional, modern, postmodern, and integrative – and explored their interface with opinions and behaviors with respect to climate change. The survey was conducted with representative samples of citizens in the Netherlands and the USA (n = 527 and n = 556). The hypothesized worldviews were found in the data with a reasonable degree of reliability, especially in the Dutch sample. We also found consistent relationships between these worldview-clusters and a range of opinions, political priorities, and behaviors. In both countries postmoderns and integratives displayed significantly more concern about climate change as well as more sustainable behaviors, compared with moderns and traditionals. The implications of these findings for environmental policy and social science are noteworthy.     

Regulating carbon emissions from indirect land use change (ILUC): U.S. and California case studies

As lifecycle emissions accounting becomes more widely used in policy, it is important to understand how it has been applied. This paper analyses policy-making for two U.S. fuel regulations—the federal Renewable Fuel Standard (RFS) and the California Low Carbon Fuel Standard (LCFS)—that were pioneering not only in using life cycle assessment (LCA) in performance-based environmental regulations, but especially for including emissions from indirect land use change (ILUC). The case studies in this paper focus, in particular, on the decision to include ILUC in lifecycle emissions accounting. Tracing the development of these policies shows the key role of environmental policy entrepreneurs in advocating for ILUC emissions accounting during policy formulation. Moreover, it highlights a paradox in the use of science: although ILUC policy proponents were motivated by best available research, they were also politically enabled by scientific uncertainty and lack of understanding. Understanding this political dimension of decision-making is valuable for scholars as well as practitioners facing similar decisions.     

‘Dynamic behavioral fingerprinting’: what drives the deployment of environmental information and communication capabilities?

This article investigates the impact of organizational drivers for the implementation of business process and network information and communication capabilities (ICCs) supporting cleaner production in the Dutch food and beverage industry. We do so with the intention to promote ‘dynamic behavioral fingerprinting’.Survey results show, that sub-sectors of this industry are driven to adopt environmental ICCs to a different level. Responses range from compliance-oriented (Slaughterhouses & meat sub-sector) to market-oriented (Bakery and biscuits sub-sector). Knowledge of key drivers and their impact offers opportunities to adjust the environmental policy and instruments to sub-sector specifics so that its effectiveness is improved. We therefore propose ‘dynamic behavioral fingerprinting’: mapping “typical” patterns of managerial response towards environmental issues, in order to improve the effectiveness of public–private interaction and cooperation.     

An analysis of the likely success of policy actions under uncertainty: Recovery from acidification across Great Britain

In the context of wider debates about the role of uncertainty in environmental science and the development of environmental policy, we use a Generalised Likelihood Uncertainty Estimate (GLUE) approach to address the uncertainty in both acid deposition model predictions and in the sensitivity of the soils to assess the likely success of policy actions to reduce acid deposition damage across Great Britain. A subset of 11, 699 acid deposition model runs that adequately represented observed deposition data were used to provide acid deposition distributions for 2005 and 2020, following a substantial reduction in SO₂ and NO_x emissions. Uncertain critical loads data for soils were then combined with these deposition data to derive estimates of the accumulated exceedance (AE) of critical loads for 2005 and 2020. For the more sensitive soils, the differences in accumulated exceedance between 2005 and 2020 were such that we could be sure that they were significant and a meaningful environmental improvement would result. For the least sensitive soils, critical loads were largely met by 2020, hence uncertainties in the differences in accumulated exceedance were of little policy relevance. Our approach of combining estimates of uncertainty in both a pollution model and an effects model, shows that even taking these combined uncertainties into account, policy-makers can be sure that the substantial planned reduction in acidic emissions will reduce critical loads exceedances. The use of accumulated exceedance as a relative measure of environmental protection provides additional information to policy makers in tackling this ‘wicked problem’.     

Technological environmental innovations (TEIs) in a chain-analytical and life-cycle-analytical perspective

This paper is based on an empirical survey of technological environmental innovations (TEIs), i.e. new products, processes and practices that come with benign environmental effects. The survey is based on product chain analysis and innovation life cycle analysis. It turns out that most TEIs occur upstream rather than downstream, i.e. chain-upwards in the beginning rather than in the end of product chains, and in early stages of technology or product development rather than in later, more mature stages. There are conclusions to be drawn for ‘upstreaming’ environmental activities and for focusing environmental policy upon innovation.     

Top-down and Europe-wide versus bottom-up and intra-regional identification of key issues for sustainability impact assessment

Sustainability impact assessment tools aim at optimising the development of policy measures. Here, we present an approach to designing policies for multifunctional land use with application to Europe and its regions. After the 35 environmental, social and economic impact issues of the European Impact Assessment Guidelines were reviewed on the basis of spatiotemporal indicators at both the top-down Europe-wide and bottom-up intra-regional resolution level, cluster analysis identified classes with specific sustainability characteristics and thus regions most likely facing similar sustainability problems. Sensitive region types such as post-industrial zones, mountains, coasts and islands were analysed separately. The results of the cluster analysis were tested against evidence-based information such as UNEP priorities and regional stakeholder evidence. Stakeholder evidence was specifically explored for the land use policy ‘bioenergy promotion’ in Lusatia, Germany. We concluded that these top-down and bottom-up spatiotemporal data classifications with cluster analysis represent useful ex-ante impact assessment tools and need to be supplemented by participatory assessments. This procedure with top-down and bottom-up data analysis, and also participatory evidence, provide a valuable three-step sustainability impact assessment approach in policy making.