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.     

Noisy and definitely not normal: responding to wicked issues in the environment,energy and health

Attempts by researchers and policy-makers to address the ‘wicked’ issues which pervade environmental policy usually revolve around attempting – or recommending – both more participatory and transparent, and more systematic and evidence-based, policy-making. Post-normal science (PNS), with its ‘extended peer community’, has emerged as one approach, whilst others focus on procedural reforms of the policy process, particularly on enhancing democratic decision-making. This paper applies a novel analytical framework to a primarily documentary analysis of three cases we argue are wicked—Canadian regulatory review of health products and food, European union (EU) environmental thematic strategies, and United Kingdom (UK) energy and climate change policy. It explores how various responses to wicked issues are implemented, through the ‘lenses’ of PNS and, more generally, ‘democratic and effective decision-making’. It finds such responses are often limited by practical and fundamental barriers relating to handling of uncertainty, issue framing, participation, power, politics, and attitude to evidence. We draw conclusions about future research on PNS, particularly the need to more clearly relate theory to different strands of literature on the evidence–policy-making relationship, and to continue empirical testing.     

Climate change and transdisciplinary science: Problematizing the integration imperative

In this article we critically examine the ‘integration imperative’ in transdisciplinary environmental science and build on social constructivist and political theories to suggest alternative approaches of knowledge co-production in transdisciplinary settings. Our argument builds upon a body of literature in social studies of science to cull insights about knowledge co-production, social learning, and the ecology of team science, particularly as it relates to climate change adaptation. Couched in this transdisciplinary literature, we demonstrate, is the assumption that integration necessarily can and should be a regulative ideal. We critique this assumption by examining the ‘messy’ politics of achieving consensus among radically different, and sometimes irreconcilable, ways of knowing. We argue that the integration imperative conceals the friction, antagonism, and power inherent in knowledge co-production, which in turn can exclude innovative and experimental ways of understanding and adapting to climate change. By way of conclusion, the final section explores three alternative models of knowledge co-production – triangulation, the multiple evidence-based approach, and scenario building – and illustrates their application in the context of transdisciplinary research in climate change adaptation in the arctic, focusing on alternative means of cross-boundary engagement with indigenous ways of knowing.     

Making water policy work in the United Kingdom: A case study of practical approaches to strengthening complex,multi-tiered systems of water governance

We propose a suite of actions for strengthening water governance in contexts with complex, multi-tiered arrangements. In doing so, we focus on the collective water policies and approaches of the United Kingdom (UK), including those of devolved governments, which confront a host of serious water-related challenges—from massive flooding of urban areas and agricultural lands, to pressure on aquifers from rising water demand and drought. Further complexity in addressing these challenges has emerged in the wake of the June 2016 vote to leave the European Union (EU), so-called ‘Brexit’, and the ensuing ‘separation process’ with uncertainties for institutional and governance arrangements to follow. We make ten proposals for improving and reinvigorating water policy in complex, multi-layered situations, and comment specifically on their application in the UK setting. These are: put in place a system-wide water policy; fully embrace community-led nested river basin planning and management; fully fund river basin planning and management; re-focus the policy framing; use best-available data and information; create conversational spaces and become a more water-literate society; mobilise people; support and sustain core community networks; underpin river basin plans with regulatory provisions and effective monitoring and enforcement; and address systemic institutional amnesia. Individually and collectively, we contend that these actions will have a marked effect on transforming the planning and management of water resources. A system-wide water policy that maintains and builds on the substantive biophysical and socio-economic benefits delivered through implementation of the EU Water Framework Directive, together with the more recent Floods Directive, will galvanise stewardship of water in the UK. We urge more active engagement with and empowerment of the multiplicity of system ‘actors’, and highlight the role of non-government actors in a post-Brexit world as conduits for reaching out to and connecting directly with a wide range of water-related actors, especially across the EU. While attention to-date has focused on a plethora of specifically water-related projects, initiatives, plans and regulations, what is really needed is a systemic, long-term view of water resource management.     

“The governance and practice of change of sustainable consumption and production.” Introduction to the ideas and recommendations presented in the articles in this special issue of the journal of cleaner production

This special issue is a result of work of Sustainable Consumption Research Exchanges (SCORE!). This EU supported network project under the 6th Framework Program engaged a few hundred professionals interested in sustainable consumption and production (SCP) in Europe and beyond. A key goal of the network is to enhance understanding how radical reductions of environmental impacts and at global level a more equitable growth can be realised. In April 2006, SCORE! organised a workshop in Copenhagen with support of the European Environment Agency, titled ‘Governance of change to Sustainable Consumption and Production’. This special issue contains 7 papers based on presentations during that workshop. It further contains a summary of the main conclusions drawn by the SCORE! project team on the basis of a broader review of radical change to SCP from a business, design, consumer and system innovation perspective. The conclusion is unambiguously that governments cannot ‘outsource politics’, but must form a ‘triangle of change’ with business and consumers. We have further to understand the systemic nature of the change required. Some policies are currently more viable than others, given existing mega-trends, mega-structures and mega-views, which cannot be changed easily in the short-term and usually cannot be tackled head-on. Such issues, like paradigms on the possibility of continuous exponential growth, the belief in free markets and trade, need a longer-term deliberative process before change is possible.     

Stimulating learning and innovation in networks for regional sustainable development: the role of local authorities

Inter-organizational collaboration in networks and partnerships is supposed to promote the potential for learning and innovation needed for environmental transformation and sustainable development. This paper aims at exploring the roles of local authorities (LAs) in actor-networks related to regional sustainable development, and examining their potential in stimulating learning and innovation related to sustainable development. From empirical case studies it is suggested that LAs can act as ‘teachers’ or ‘tutors’ in the networks. From further analysis, drawing also from literature on partnerships, innovation management, socio-technical change, and educational science, it is proposed that in the short run both the ‘teacher’ and ‘tutor’ approach would promote incremental innovation rather than the radical system innovations needed for sustainable development. However, there is potential for stimulating more long-term, radical change if the LA takes on the role of a ‘teacher’. This approach may favour close collaboration in long-lived, multi-actor networks with potential to (i) serve as forum for continuous dialogue on sustainable development at a community level, (ii) stimulate experimentation and learning needed for system innovations, and (iii) provide a basis for strategic niche management for development and testing of new technologies.     

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.     

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.     

Geochemical and microbial reactions affecting the long-term performance of in situ ‘iron barriers’

The in situ application of granular iron (Fe⁰) has become popular for the destruction of halogenated organic compounds and for the immobilization of specific metals in groundwater. However, a knowledge gap exists concerning the long-term performance of the Fe⁰-barriers. The corrosion of Fe⁰ may produce mineral precipitates that alter the system’s hydraulic integrity. For example, data from existing barriers show varying trends in pH, alkalinity, mineral precipitation, and microbial activity. Although the chemical behaviors are site-specific, this paper discusses the concepts involved in developing a generic approach for predicting the trend of aqueous and surface speciation, and the resulting effects on Fe⁰ treatment systems. Observations from existing Fe barriers are summarized, and the chemical and microbial processes that influence chemical speciation, both in water and on surfaces, are reviewed. A conceptual geochemical model is presented, which illustrates the factors that must be considered in developing a quantitative model that can be used to design monitoring plans for timely detection of clogging in Fe⁰ reactive barriers. In order to develop quantitative predictive models, field and laboratory research should: (1) assess the extent and rates of media deterioration by analyzing coupled chemical and microbial reactions; and (2) identify the controlling mechanisms for hydraulic alteration within and around Fe⁰ barriers.     

Exploring barriers to climate change adaptation in the Swiss tourism sector

Increasingly, various sectors are affected by climate change and need to find ways to adapt with much public guidance and support. This paper examines the adaptation process of a sector that started it some time ago – Swiss Alpine tourism. It identifies barriers that may be relevant for all sectors, all along the successive phases of the adaptation process. It additionally identifies the barriers which are most important and how these can be overcome. In order to do this we use an online survey directed to Swiss tourism stakeholders. Our results indicate that both economic and social feasibility barriers are important impediments to the adjustment process, whereas the acceptability among inhabitants and the willingness to act of stakeholders appear less critical. These barriers can be overcome and adaptation facilitated with more and especially better information about the regional consequences of climate change and feasible adaptation measures, by some top-down leadership and coordination, and by providing financial support.     

What is ‘normative’ at cooling water intakes? Defining normalcy before judging adverse

Judgments of adverse environmental impact from cooling water intake structures need to be preceded by an appreciation of what is normal. In its report, Return to the River, the Independent Scientific Group (now called the Independent Scientific Advisory Board) — the scientific peer review arm of the Northwest Power Planning Council — advanced the notion of a ‘normative river ecosystem’ as a new conceptual foundation for salmonid recovery in the Columbia River basin. With this perspective, the sum of the best scientific understanding of how organisms and aquatic ecosystems function should be the norm or standard of measure for how we judge the effects of human activities on aquatic systems. For the best likelihood of recovery, key aspects of altered systems should be brought back toward normative (although not necessarily fully back to the historical or pristine state); new alterations should be judged for adversity by how much they move key attributes away from normative or what might be considered normal. In this paper, I ask what ‘normative’ is for the setting of cooling water intake structures and how this concept could help resolve long-standing disputes between groups interested in avoiding damage to all organisms that might be entrained or impinged and those who take a more population or community perspective for judging adverse environmental impact. In essence, I suggest that if a water intake does not move the aquatic ecosystem outside the ‘normative’ range, based on expressions of normalcy such as those discussed, then no adverse impact has occurred. Having an explicit baseline in normal or normative would place 316(b) analyses on the same conceptual foundation as 316(a) analyses, which strive to demonstrate the continuation of a balanced, indigenous community of aquatic organisms at the power station location.     

Coping with changing water resources: The case of the Syr Darya river basin in Central Asia

This paper discusses how climatic-hydrological and socio-political developments will affect water allocation in the Syr Darya river basin and which adaptation measures will be needed to cope with changing water resources. In view of the geo-political complexity, climate-driven changes in water availability are of particular importance in this region. Water shortages during summer will become more frequent as precipitation is expected to further decrease and glacial meltwater releases will decrease in the long-term due to reduced glacier volume. Being the main valve to the entire Syr Darya river system, the Toktogul reservoir in Kyrgyzstan could take over, at least partly, the role of glaciers as seasonal water redistributors, thus allowing the generation of energy in winter – benefiting upstream countries – and irrigation for large-scale agriculture in summer – benefiting downstream countries. To date, however, there is no regional consensus on a balanced reservoir management, which currently favours irrigation according to past Soviet priorities. Moreover, the perception of water as a ‘national concern’ in Central Asia discourages efforts towards cooperation between states at the regional level. So far, climate change adaptation has focused on technical rather than institutional solutions. We suggest that policy-relevant adaptation measures should include consistent data collection and dissemination, cross-sectoral collaboration, promotion of national responsibility and initiative, and agreeing on a regional strategy.     

Values,rules and knowledge: Adaptation as change in the decision context

Responding to global change represents an unprecedented challenge for society. Decision makers tend to address this challenge by framing adaptation as a decision problem, whereby the responses to impacts of change are addressed within existing decision processes centred on defining the decision problem and selecting options. However, this ‘decision-making perspective’ is constrained by societal values and principles, regulations and norms and the state of knowledge. It is therefore unsuitable for addressing complex, contested, cross-scale problems. In this paper we argue that simply broadening the decision-making perspective to account for institutions and values is not enough. We contend the decision-making perspective needs to be connected with a broader ‘decision-context perspective’ that focuses on how the societal system of decision processes affects the manner in which a particular problem is addressed. We describe the decision context as an interconnected system of values, rules and knowledge (vrk). The interaction of systems of vrk both creates and limits the set of practical, permissible decisions; the types of values, rules and knowledge that influence the decision and the capacity for change and transformation in the decision context. We developed a framework to analyse the interactions between values, rules and knowledge and their influence on decision making and decision contexts of adaptation initiatives, and applied it retrospectively to three projects on adaptation to sea-level rise. Our analysis revealed: (1) specific examples of how interactions between vrk systems constrained existing framings of decision making and the development of options for coastal adaptation; (2) limitations in the adaptive management strategies that underpinned the projects and (3) how the linked systems of vrk can allow adaptation practitioners to structure adaptation as a process of co-evolutionary change that enables a broader set of social issues and change processes to be considered. Adaptation projects that focus on the decision context represent a pragmatic alternative to existing decision-focused adaptation. By using the vrk model to diagnose constraints in decision processes, we show how the reframing of adaptation initiatives can reveal new approaches to developing adaptation responses to complex global change problems.     

Evaluating and controlling pharmaceutical emissions from dairy farms: a critical first step in developing a preventative management approach

Concern that pharmaceuticals may be escaping into the environment where the potency and persistence of certain compounds at trace concentrations could be chronically affecting biota is growing. Hitherto the main focus has been on human medications, personal care products and industrial endocrine disrupting chemicals. These generally enter sewerage systems where there is at least the prospect of partial removal by treatment plants before they enter waterways. By contrast, the agricultural sector, a significant user of veterinary pharmaceuticals, has no such treatment – compounds are deposited straight to ground in dung and urine or washed from hides in the case of topical applications.This study investigates the fate of a number of antibiotic compounds (as well as the insect repellent, DEET, via a pilot assessment) used in herd health programs on dairy farms in the cow-rich Macalister Irrigation District in Victoria, Australia. Results from samples taken from irrigation drainage channels and streams demonstrate that these compounds are foot printing into an aquatic environment that extends to the Ramsar-designated Gippsland Lakes and associated wetland system. Conclusions are drawn as to how this problem might be lessened by a targeted water quality monitoring program and some rather straightforward changes to farm management practices.     

Sustainability experiments in Asia: innovations shaping alternative development pathways?

Global sustainability is increasingly influenced by processes of industrialisation and urbanization in non-OECD countries, especially in Asia. Growth models suggest that developing economies and regions will become first relatively more resource- and pollution-intensive, before converging on more resource-efficient and low-pollution production and consumption patterns expressed in developed countries. Alternative less resource- and pollution-intensive growth models for latecomer countries promise social and economic benefits in the short- and long-term. Drawing on insights from system innovation research on long-run change in socio-technical systems, we discuss the potential role of ‘sustainability experiments’ to generate innovations that will constitute new ‘greener’ growth models. We observe a great number of technology-based initiatives that we characterize as sustainability experiments in East and South Asian countries. These experiments emerge in the context of the growth of new socio-technical regimes in key sectors, including energy, transport, manufacturing, food and the built environment. We set out a conceptual framework for assessing the role of experiments, and for evaluating how they link with and become anchored into alternative more sustainable regimes. In this paper we argue that sustainability experiments represent a significant new source of innovation and capability-formation, linked to global knowledge and technology flows, which could reshape emergent socio-technical regimes and so contribute to alternative development pathways in latecomer countries. We conclude by summarizing the six papers published in this Special Issue.     

“一带一路”沿线国家碳排放:外商直接投资与发展要素的共同影响分析

“一带一路”倡议下,推动绿色低碳发展,共建碳达峰、碳中和目标下国际合作共赢的生态圈,已经成为“一带一路”沿线国家的共识. 本文基于“一带一路”沿线国家1997—2018年的面板数据,通过逐步回归、异质性分析和门槛回归方法探究外商直接投资(FDI)的碳排放效应. 结果显示:①“一带一路”沿线国家FDI显著增加碳排放,体现出“污染天堂”效应. ②我国提出的“一带一路”倡议注重绿色低碳发展,削弱了“一带一路”沿线国家FDI对碳排放的“污染天堂”效应,体现出我国在环境治理特别是应对气候变化方面发挥的引领示范作用. ③经济发展可削弱FDI对碳排放的“污染天堂”效应,然而经济快速发展特别是工业发展可显著增加碳排放. ④政策、创新和发展三类机制均导致FDI的碳排放效应发生显著变化,其中发展机制影响最大,创新机制的碳减排效果相对稳定. ⑤强化环境规制促进了FDI的“污染光环”效应,“一带一路”倡议则推动“一带一路”沿线各国加强了环境规制. 研究显示,为促进“污染光环”效应形成,应深化绿色“一带一路”,利用来自中国投资的低碳化特征,增加与中国的投资往来并提高负有环境责任FDI的比例. “一带一路”沿线各国也应加强绿色低碳科技创新,在此基础上协同政策、创新和发展三类机制,引导FDI投向绿色低碳领域. 此外,还应综合运用环境准入机制和环境经济手段,实现高质量发展.      

Impact caps: why population,affluence and technology strategies should be abandoned

This paper classifies strategies to reduce environmental impact according to the terms of the I = PAT formula. Policies limiting resource depletion and pollution (Impact) – by heavily taxing resources or rationing them on a country basis – are thus called ‘direct’ or ‘left-side’ strategies. Other policies to achieve the environmental goal of lowering Impact strive to limit Population and Affluence, or to use Technology to lower the ratio of resource inputs to goods-and-services outputs. Next it is shown that lowering any of these ‘right-side’ factors causes or at least enables the other two to rise or ‘rebound’. This has two consequences: 1) Since I = PAT does not express these interdependencies on the right side, it is more accurately written I = f(P,A,T); and 2) Success in lowering any of the right-side factors does not necessarily lower Impact. Rationing or Pigouvian taxation of resources or pollution, on the other hand, necessarily lower impact and are therefore preferable to population, consumption and technological environmental strategies. Finally, lifestyle and technology changes towards more sufficiency and efficiency would follow the caps as consumers and producers work to retain the greatest amount of welfare within the limits given.     

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.     

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.     

Governance of sustainable transitions: about the 4(0) ways to change the world

Transitions are radical system innovations that usually take 1–2 generations. Using Cultural Theory as a heuristic, this paper presents four archetypical approaches to transition management. The fatalist approach refrains from transition management (motto: ‘First, disaster must happen’). The system is in a stalemate that no experiment or hierarchy can break; external events must bring the window of opportunity for change. The hierarchic approach relies on a dominant actor coalition to steer change (motto: ‘Let's put a man on the moon!’). The individualist approach relies mainly on changing the financial ground rules (motto: ‘Sustainability through the market’). Finally, the egalitarian approach relies on process management, doing experiments, etc. (motto: ‘A good transition arena will solve it all’). This approach makes sense if the situation is not clear enough to be managed via one of the other approaches, and there is a clearly identifiable learning objective.