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.     

Adaptation as a Political Process: Adjusting to Drought and Conflict in Kenya’s Drylands

In this article, we argue that people’s adjustments to multiple shocks and changes, such as conflict and drought, are intrinsically political processes that have uneven outcomes. Strengthening local adaptive capacity is a critical component of adapting to climate change. Based on fieldwork in two areas in Kenya, we investigate how people seek to access livelihood adjustment options and promote particular adaptation interests through forming social relations and political alliances to influence collective decision-making. First, we find that, in the face of drought and conflict, relations are formed among individuals, politicians, customary institutions, and government administration aimed at retaining or strengthening power bases in addition to securing material means of survival. Second, national economic and political structures and processes affect local adaptive capacity in fundamental ways, such as through the unequal allocation of resources across regions, development policy biased against pastoralism, and competition for elected political positions. Third, conflict is part and parcel of the adaptation process, not just an external factor inhibiting local adaptation strategies. Fourth, there are relative winners and losers of adaptation, but whether or not local adjustments to drought and conflict compound existing inequalities depends on power relations at multiple geographic scales that shape how conflicting interests are negotiated locally. Climate change adaptation policies are unlikely to be successful or minimize inequity unless the political dimensions of local adaptation are considered; however, existing power structures and conflicts of interests represent political obstacles to developing such policies.     

From social ‘acceptance’ to social ‘acceptability’ of wind energy projects: towards a territorial perspective

Social acceptance is central in many debates surrounding energy projects. Wind energy, in particular, has been described as a ‘learning laboratory’ in terms of social acceptance of energy projects. It has given way to a socio-technical paradox: the social dimension has become a factor of equal importance to technology in the wind farms implementation. Based on a literature review concerned with the social acceptance of wind energy, the paper seeks to demonstrate both the richness and the limits of the key concepts that inform the ongoing work of scholars. By doing so, we intend to emphasise the complex processes underneath in order to then elaborate a conceptual definition of social acceptability. Various modulations and limits that characterise current thinking are thus underlined. We then propose a grid analysis relying on a territorial perspective. It is structured around three levels that connect micro-social, meso-political and macro-economic processes.     

Using a social learning configuration to increase Vietnamese smallholder farmers’ adaptive capacity to respond to climate change

Social learning is crucial for local smallholder farmers in developing countries to improve their adaptive capacity and to adapt to the current and projected impacts of climate change. While it is widely acknowledged that social learning is a necessary condition for adaptation, few studies have systematically investigated under which conditions particular forms of social learning are most successful in improving adaptive capacity of the most vulnerable groups. This study aims to design, implement and evaluate a social learning configuration in a coastal community in Vietnam. We make use of various methods during four workshop-based interventions with local smallholder farmers: interviews with key farmers and commune leaders, farmer-to-farmer learning, participatory observations and focus group discussions. The methods for evaluation of social learning configuration include in-depth interviews, focus group discussions and structured survey interviews. Our findings show that the social learning configuration used in this study leads to an increased problem ownership, an enhanced knowledge-base with regard to climate change impacts and production adaptation options, improved ability to see connections and interdependencies and finally, strengthened relationships and social cohesion. The results suggest that increased social learning in the community leads to increase in adaptive capacity of smallholder farmers and improves both their economic and environmental sustainability. We discuss the key lessons for designing learning configurations that can successfully enhance adaptive capacity and smallholder farmers’ agency and responsiveness to the challenges posed by climate change impacts.     

The ‘green’ and ‘self’ in green self-governance – a study of 264 green space initiatives by citizens

Scholars observe an increased involvement of citizens in green space governance. This paper focuses on green self-governance, in which citizens play a major role in realizing, protecting and/or managing green space. While existing research on green self-governance focuses mostly on specific cases, we aim to contribute towards a large overview via an inventory of 264 green self-governance practices across The Netherlands. With this, we discuss the relevance of green self-governance for nature conservation and its relationship with authorities. In our analysis, we show that green self-governance practices are very diverse: they pursue a wide variety of physical and social objectives; employ a multitude of physical and political activities; involve different actors besides citizens; mobilize different internal and external funding sources; and are active within and outside of protected areas. While green self-governance can contribute towards protection and management of green space and towards social values, we highlight that this contribution is mostly of a local relevance. Most practices are small scale and objectives do not always match those of authorities. Although we speak of self-governance, authorities play an important role in many practices, for example, as financial donor, landowner or regulatory authority. In this, self-governance is often not completely ‘self’.

Abbreviations: PAA: Policy Arrangement Approach; NNN: National Nature Network; N2000: Natura 2000; NCOs: Nature Conservation Organizations; NGOs: Non-governmental organizations     

The importance of the will to improve: how ‘sustainability’ sidelined local livelihoods in a carbon-forestry investment in Uganda

This paper describes a ‘win–win’ discourse on local sustainable development and global climate change mitigation regarding Kachung, a Swedish–Norwegian climate forestry investment in Uganda certified under the Clean Development Mechanism (CDM). In many ways, this investment is a typical example of how private interests and capital accumulation are prioritised over local concerns in natural resource management under neoliberalism. This study, however, indicated that investors had genuine intentions of creating mutual benefits for the global environment and local people. Drawing on Li (2007), we show that this ‘will to improve’ was nevertheless constructed in ways that resulted in prioritisation of global climate change mitigation over local context-specific concerns.

We identify three core factors making the win–win discourse around Kachung plantation especially resilient: (i) the perceived urgency of climate change mitigation, (ii) the apolitical framing of ‘sustainability’ as an environmental issue that can be fixed through external technical interventions and (iii) the devaluation of local and context-specific knowledge. We end by suggesting that research on the neoliberalisation of nature focus more on analysing the rationales behind specific interventions. This would leave us better equipped to suggest how such interventions should be modified to produce true wins for local contexts.     

‘We cannot be at the forefront,changing society’: exploring how Swedish property developers respond to climate change in urban planning

It is increasingly expected that private actors play the role as entrepreneurs and front-runners in implementing climate measures, whereas empirical studies of the position, role and engagement of private actors are scarce. Situated in the context of urban planning, a critical arena for triggering climate transitions, the aim of this paper is to explore how Swedish property developers respond to climate change. Qualitative analyses of corporate policy documents and semi-structured interviews with property developers reveal a vast divergence between the written policies, where leadership ambitions are high, and how the practice of property development is discussed in interviews. In the latter, there is little evidence of property developers pursuing a forward-looking or cutting-edge climate change agenda. Instead, they are critical of increased public regulation for climate-oriented measures. Explanations both confirm previous studies, highlighting lack of perceived customer demand, uncertainty of financial returns and limited innovations, and add new elements of place-dependency suggesting that innovative and front-runner practices can only be realized in the larger urban areas. Municipalities seeking to improve their climate-oriented profile in urban planning by involving private property developers need to develop strategies to maneuver the variance in responses to increase the effectiveness of implementation.     

Surrounded by Chemical Valley and ‘living in a bubble’: the case of the Aamjiwnaang First Nation,Ontario

This study examines the perceptions and coping strategies of the Aamjiwnaang First Nation, which is surrounded by ‘Chemical Valley’, the largest complex of petrochemical plants in Canada. Analysis of in-depth interviews showed that residents perceive ‘Mother Earth to be sick’; however, a strong level of community cohesion prevails, with ‘place’ as a significant anchor to the culture and history of the community. Residents articulated a collective sense of responsibility for the well-being of members both within and surrounding the community, whereby some residents would never leave, regardless of the toxic environment and concern for high rates of cancer and respiratory diseases among both adults and children. Residents employed action-focused coping strategies such as ‘indoor evacuation’ and the ‘Cop-sniff test’, and emotional coping strategies including blocking out the effects of ‘Chemical Valley’ by frequently ignoring warning sirens from industry. The results call on the need for a collaborative environmental planning intervention involving clear community participation. Findings suggest the need for an indoor recreational facility for both children and adults, and a graded warning system.     

Locating ‘power’ in wind power planning processes: the (not so) influential role of local objectors

There have been conflicting accounts of the role and influence of local opposition within planning application outcomes for wind power developments. There is an expanding literature that considers public responses to proposed renewable energy developments and much of this suggests that public opposition is a key factor in the slow growth in renewable energy capacity. However, this paper will show that local opposition groups' power over such planning processes is very limited, and in fact extends only so far as delaying an outcome. Through a thematic content analysis of objection letters to one particular proposed wind power development, the key issues raised in connection with the development will be highlighted. Subsequently, these issues will be compared with those discussed in the official report of the planning appeals process, and it will be shown that the concerns of local objectors had little influence over the eventual verdict.     

A national strategy for environmental education: an approach to a sustainable future?

Chapter 36 of Agenda 21 called on each nation to bring together a widely cross-sectoral group of people to prepare a national strategy for environmental education and training. In Scotland this process had already begun and the Secretary of State's Working Group on Environmental Education presented him with its recommendations for a strategy in April 1993, which he accepted in a statement of intent in June, 1995. The process itself, the comments received on the report since publication and continuing developments in the field, have demonstrated the importance of adopting broad definitions for both environment and education, spreading involvement in production of the strategy to all sectors and as wide a range of individuals as possible, dividing up the work so as to focus on all the main contexts in which learning takes place, working with the main potential implementers and not depending entirely on the availability of new resources. The process was in itself rewarding and its importance should not be underestimated. The approach adopted and the issues which it raised appear to have wide applicability to similar programmes elsewhere. This paper describes the process adopted in preparing the strategy, reviews some of the subsequent developments in Scotland, and assesses the factors which may have contributed to its success so far.Professor John C. Smyth, OBE is Emeritus Professor of Biology at the University of Paisley. He is President of The Scottish Environmental Education Council and he presented this paper at the Global Forum '94 Academic Conference Towards a Sustainable Future: Promoting Sustainable Development, Manchester, UK.     

The conservationists’ concerns: on national administration response to integrated use and protection planning

This paper examines the Norwegian national authorities’ responses to combined use and protection planning for huge protected areas and their buffer zone in northern Norway. The processes were chaired by county delegates and included a wide range of stakeholders. In-depth semi-structured interviews, participatory observation and document analyses have been conducted to investigate the potential of these processes and response from national environmental authorities. The paper suggests that national environmental authorities partly ignored the potential strengths associated with combined use and protection plans and over-emphasised the potential environmental threats stemming from local management. Moreover, these trade-offs seemed to be guided on a rather vague scientific basis. In conclusion, the paper argues that central environmental administration needs to (i) engage actively in participatory processes, (ii) present clear rationales, if rejecting local initiatives, (iii) acknowledge the potential for man–nature relationships as beneficial for environmental assets, and (iv) relate interpretation of law to integrative policies.     

Local environmental monitoring in Sweden: The need for a new strategy?

This paper discusses the present character of environmental monitoring in Swedish municipalities. We have found that local environmental monitoring in Sweden is insufficient. There is very little connection between monitoring activities and local environmental goals, and environmental goals have been established without considering information from the environmental monitoring. In practice, this means that local environmental monitoring has only a limited influence on political decisions and priorities in the municipalities. Our study also showed that local environmental monitoring was almost entirely focused on monitoring the state of the environment and showed a lack of flow-oriented information. There is a strong need to develop a unified strategy for local environmental monitoring to avoid sub-optimisations in local environmental management. A new strategy would, to a much higher degree, have to focus on monitoring diffuse sources of pollution and personal lifestyles. In this case, monitoring only the state of the environment would not be sufficient. It would have to include also the flows of materials through society, i.e. the whole metabolism of society, including biogeochemical as well as anthropogenic material flows.     

Midas’ Not-So-Golden Touch: On the Demise of Methyl Iodide as a Soil Fumigant in California

The demise of the soil fumigant, Midas, was heralded as a major environmental movement achievement, when Arysta LifeScience eventually deemed it economically non-viable and withdrew from US markets just before resolution of a lawsuit. Building on scholarship that focuses on strategy to understand how social movements sometimes win, we show how activist tactics were able to exploit the missteps of their opponents. These included the unreasonable expectations of Arysta for grower adoptions, the foibles of the director of California's Department of Pesticide Regulation in registering the chemical, and the reluctance of California's strawberry industry to discontinue use of methyl bromide. Although activist tactics, such as public comments and protests, had only a modest impact on the regulatory process, they had a major impact on grower adoptions of the chemical. This, together with a lawsuit that was not going well for the defendants, ultimately led to the withdrawal. Still, there was a great deal of luck involved, especially in the lawsuit in which the judge made rulings and statements favourable to the plaintiffs. Here, ‘scientization’, worked in favour of the movement rather than the industry.     

A new role for citizens’ initiatives: the difficulties in co-creating institutional change in urban planning

In this paper, we analyze the institutional work that underlies the attempt to institutionalize a more active role of citizens in urban planning. We draw on a case in which a group of citizens aims to redevelop a brownfield site into a vital urban area. This citizens’ initiative is co-creating a new form of urban planning with the municipality, private organizations and individual citizens. The study shows how citizens’ initiatives can be a driver for institutional change, but that uncertainties about new institutions tend to reinforce the maintenance of existing ones. This paradox explains why even if the ambition for a new form of planning is widely shared, actually realizing institutional change can still be difficult and time-consuming.     

Floods in the Douala metropolis,Cameroon: attribution to changes in rainfall characteristics or planning failures?

With urban populations worldwide expected to witness substantial growth over the next decades, pressure on urban land and resources is projected to increase in response. For policy-makers to adequately meet the challenges brought about by changes in the dynamics of urban areas, it is important to clearly identify and communicate their causes. Floods in Douala (the most densely populated city in the central African sub-region), are being associated chiefly with changing rainfall patterns, resulting from climate change in major policy circles. We investigate this contention using statistical analysis of daily rainfall time-series data covering the period 1951–2008, and tools of geographic information systems. Using attributes such as rainfall anomalies, trends in the rainfall time series, daily rainfall maxima and rainfall intensity–duration–frequency, we find no explanation for the attribution of an increase in the occurrences and severity of floods to changing rainfall patterns. The culprit seems to be the massive increase in the population of Douala, in association with poor planning and investment in the city's infrastructure. These demographic changes and poor planning have occurred within a physical geography setting that is conducive for the inducement of floods. Failed urban planning in Cameroon since independence set the city up for a flood-prone land colonization. This today translates to a situation in which large portions of the city's surface area and the populations they harbor are vulnerable to the city's habitual annual floods. While climate change stands to render the city even more vulnerable to floods, there is no evidence that current floods can be attributed to the changes in patterns of rainfall being reported in policy and news domains.