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.     

Reflexive capacity in local networks for sustainable development: integrating conflict and understanding into a multi-level perspective Transition Framework

ABSTRACT

One core element of reflexive governance is the reflexive capacity-building of actors involved in governance networks. A wider range of actors have to be empowered to understand and improve governance arrangements in order to create second-order reflexivity. As a contribution to this challenge, a heuristic framework is developed from two complementary approaches to reflexive governance: the multi-level perspective (MLP) and the conflict-orientated understanding (COU) approach. The new framework is applied to two case studies – water management and long-term climate adaptation – where it has helped to develop a participatory process to analyse and reflect on local networks and multi-stakeholder arenas. The two contrasting processes are analysed and their contribution to reflexive capacity building is assessed. Building on the findings, further advancements of MLP, COU, and the concept of reflexive governance are recommended.     

Governing sustainability: a dialogue between Local Agenda 21 and transition management

Since the 1990s, the local level of governance has become increasingly important in addressing the challenge of sustainable development. In this article, we compare two approaches that seek to address sustainability locally, namely Local Agenda 21 and transition management. Discussing both approaches along six dimensions (history, aim, kind of change, governance understanding, process methodologies, and actors), we formulate general insights into the governance of sustainability in cities, towns, and neighbourhoods. This dialogue illustrates two related modes of thinking about sustainability governance. We touch upon the importance of an integrated perspective on sustainability transitions through which sustainability is made meaningful locally in collaborative processes. We suggest that the explicit orientation towards radical change is a precondition for governing sustainability in a way that addresses the root causes of societal challenges. Governing sustainability should address the tensions between aiming for radical change and working with status quo-oriented actors and governing settings. We conclude that governing sustainability should be about finding creative ways for opening spaces for participation, change, and experimentation, that is, for creating alternative ideas, practices, and social relations. These spaces for innovation encourage a reflexive stance on ways of working and one's own roles and attitudes, thereby preparing a fertile terrain for actors to engage in change from different perspectives.     

Environmental Management Systems and Co-operation in Municipalities

Due to the complex character of environmental issues there has been a call for change towards integration and co-operation on the development and environmental management scene. This holds true at all levels of society, from the global to the local. Due to cultural differences between different professions in municipalities, it may be hard to reach co-operation between different actors in municipal environmental management (MEM). Based on the present situation in Sweden in general and the municipality of Västera § s in particular, this paper discusses how co-operation in MEM may be promoted by the adoption of an environmental management system (EMS) in an entire municipality. Results from the study suggest that municipality-wide implementation of EMSs may help to bridge professional culture and language gaps. An EMS may provide the basis of a formal network that functions as a common platform and structure for environment-related discussion and work in different municipal authorities and companies, and thereby facilitate communication and co-operation among the actors in MEM.     

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.     

A tale of ‘fat cats’ and ‘stupid activists’: contested values,governance and reflexivity in the brno railway station controversy

ABSTRACT

The article explores one of the biggest controversies over sustainability in modern Czech history, a protracted conflict over whether the Brno railway station should be re-built in a new location. By examining the language of the interaction between a ‘modernizing discourse’ and a ‘sustainability discourse’, the article highlights reflexivity as analytic enterprise that bares the governance dimension of policy conflicts. The reflexive analysis focuses on how actors justify their positions, how they distinguish themselves from their opponents and how they express trust in their own group. It reveals that both discourses are not only related to the re-location issue per se, but that they entail contested notions of legitimate knowledge and modes of governance. Since such power contest is common in sustainability controversies, the reflexive analysis suggests a novel analytical agenda for addressing policy conflicts in sustainability issues.     

Transboundary marine spatial planning: a reflexive marine governance experiment?

Because seas and coastlines are shared between states, the formulation and implementation of marine spatial planning (MSP) should be transboundary by nature. The main argument of this paper is that MSP should be organized as a transboundary policy-making process, but this is hampered by the conceptual and institutional fragmentation MSP is facing. Based on an analysis of four transboundary planning processes in different European seas, the paper gives insight into the possibilities to develop and implement transboundary marine spatial planning (TMSP). To overcome the conceptual and institutional challenges, TMSP should be developed as a reflexive governance arrangement, in which the actors involved are able to change the rules of the game and to challenge the existing (national-oriented) MSP discourses. The paper develops four forms of reflexivity (unreflectiveness; performative reflectiveness; structural reflectiveness; and reflexivity) to assess TMSP processes and to formulate conditions which are crucial to develop TMSP as a reflexive marine governance arrangement.     

Pigs in the city: reflective deliberations on the boundary concept of agroparks in The Netherlands

ABSTRACT

The concept of an agro-production park combines industrial with environmental and animal friendly agriculture. In The Netherlands, academics and government introduced this idea—what we consider a boundary concept—to align economic and environmental ambitions. In this contribution, we argue that boundary concepts are important in deliberations as they create a sphere of engagement that enables participants to scrutinize their routines and to explore new interpretations and practices that replace their normal ways. In this way we ground the notion of ‘reflexive governance’ in deliberative practices for sustainable agriculture. We explored if and how the concept of an agropark induced frame-reflective conversations about conflicting and overlapping interpretations. We conducted a frame analysis of four Dutch national newspapers from which we derived four possible interpretations of an agropark: Pigs in the City, Surviving Farmers, Pigs in the Mud and Surviving Citizens. Next, we analysed 10 deliberative sessions about agroparks to study if reflectivity occurred. Our findings suggest that to move to more sustainable agriculture, the introduction of innovative boundary crossing concepts invites participants to reflect on conflicting frames and engage in reflective governance. However, facilitators and governmental actors need to support this boundary crossing for it to become tangible.     

“Just Another Hoop to Jump Through?” Using Environmental Laws and Processes to Protect Indigenous Rights

Protection of culturally important indigenous landscapes has become an increasingly important component of environmental management processes, for both companies and individuals striving to comply with environmental regulations, and for indigenous groups seeking stronger laws to support site protection and cultural/human rights. Given that indigenous stewardship of culturally important sites, species, and practices continues to be threatened or prohibited on lands out of indigenous ownership, this paper examines whether or not indigenous people can meaningfully apply mainstream environmental management laws and processes to achieve protection of traditional sites and associated stewardship activities. While environmental laws can provide a “back door” to protect traditional sites and practices, they are not made for this purpose, and, as such, require specific amendments to become more useful for indigenous practitioners. Acknowledging thoughtful critiques of the cultural incommensurability of environmental law with indigenous environmental stewardship of sacred sites, I interrogate the ability of four specific environmental laws and processes—the Uniform Conservation Easement Act; the National Environmental Policy Act and the California Environmental Quality Act; the Pacific Stewardship Council land divestiture process; and Senate Bill 18 (CA-2004)—to protect culturally important landscapes and practices. I offer suggestions for improving these laws and processes to make them more applicable to indigenous stewardship of traditional landscapes.     

The Commons in Transition: Agrarian and Environmental Change in Central and Eastern Europe

This paper analyzes institutional dynamics surrounding common-pool resources in postsocialist Central and Eastern Europe. It is conceived in close conjunction with the case studies by Penov, Schleyer, and Wasilewski and Krukowski (this issue). The purpose of this paper is to frame the individual case inquiries, compare their findings, and relate those to broader agrarian and environmental changes in the region.The case studies report a broad shift in resource governance from the previously dominant legal and administrative state hierarchies towards markets. In addition, state power has moved from central towards local authorities. The waning and decentralization of state power has caused the emergence of significant gaps between property legislation and rights-in-practice, which have been particularly stark in fragmented political systems. The discrepancy between legal texts and rights-in-practice leads to the exclusion of wider interests in favor of individual interests in the management of common-pool resources, resulting in resource deterioration and dwindling resource stocks. Thus, the comparative assessment suggests a tentative framework for understanding the effects of postsocialist transformations on governance of the commons and environmental change in Central and Eastern Europe. Its findings indicate an additional dimension to the diversity and distributive conflicts characterizing postsocialist privatization: the distribution of various rights to a resource among different actors. The findings also suggest the need for postsocialist states to take an active role in the governance of common-pool resources, particularly in the enforcement of legal rights. Note: This version was published online in June 2005 with the cover date of August 2004.     

How knowledge is used in collaborative environmental governance: water classification in New Brunswick,Canada

Collaboration is an increasingly important approach to dealing with complex environmental challenges. Participation of diverse actors in collaborative processes necessitates attention to the use of different forms of knowledge. We use a multi-case study of governance for water in New Brunswick, Canada, to explore knowledge-related concerns that are prominent in collaborative processes. As is common in other contexts, local or lay (experiential) forms of knowledge appeared to play complementary but ultimately subordinate roles to expert technical and scientific knowledge in the cases. Importantly, we found that the distinction between ‘expert’ and ‘local’ knowledge was not at all clear for the many participants. This study reinforces the importance of designing reflexive and flexible processes for encouraging the active engagement and use of knowledge in collaboration.     

Les Reciproqueteurs: post-regulatory corporatism

ABSTRACT

Reflexive governance can be understood as an emergent encapsulated trust-building corporatism where network participants are neither state functionaries nor market entrepreneurs but network reciproqueteurs. This paper argues that such reflexive network governance results in a post-regulatory corporatism (PRC)—a more adaptable, less formalized, and flexible mode of interest intermediation, policy-making, and policy-implementation than previous modes of corporatist intermediation. Functional differentiation processes engender ‘negotiated connected contracts' in rescaled space in between inter-regional assemblages, a mode of structurally coupling new social partners in the emergent transnational knowledge-based economy. This involves the building of new social capital of network trust-building manifested in the norms of reciprocity and reflexive law constituted as a new mode of protocolism: one associated with the social learning and policy designing necessary for ecological systems' autopoeisis, resilience, and sustainability. This paper conceptualizes reflexive network governance as protocolism in constellations of PRC and discusses examples from the area of environmental policy-making. PRC is understood as a new mode of negotiated rule-making: as a recursive protocolism of multi-stakeholder social pacts constituted by frame agreements and negotiated connected network contracts.     

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.     

Environmental justice as a (potentially) hegemonic concept: a historical look at competing interests between the MST and indigenous people in Brazil

ABSTRACT

This article explores the need to recognise and compensate the plurality of environmental justice claims, while paying close attention to the outcomes of the most marginalised groups – cultural and ecological – in political decision-making to avoid vestiges of hegemony. The early history of the Movimiento dos Trabalhadores Rurais sem Terra (MST) serves as a case study in which environmental justice claims clash with indigenous rights claims. In recent decades, the MST has refused settling Amazonian indigenous territories, consistent with the organisation’s Via Campesina platform, which focuses on redistributing the 50% of national territory controlled privately by Brazil’s richest 4%. Yet, in the 1970s and early 1980s, Brazil’s military government pitted landless peasants and indigenous people’s struggles against each other, circumventing land reform potentially disruptive to the country’s de facto colonial fazenda land system. This tactic pressured competing groups – landless peasants and indigenous people – to fight against each other, concluding predictably: the most powerful factions ended up getting their way, conceding less in negotiations than their less-advantageously positioned, marginalised counterparts. When marginalised groups gain concessions in environmental justice struggles, often the goods comprising those concessions come at a cost to marginalised groups with even less political visibility. Hegemonic structures of power remain non-negotiable in the process of alleviating other injustices in perceived zero-sum politics. Such systemic displacement and dispersion of violence in systems built on violence suggests hegemony affects not just to other marginalised groups, but to nonhumans too.     

Realising local food policies: a comparison between Toronto and the Brussels-Capital Region’s stories through the lenses of reflexivity and co-learning

ABSTRACT

This paper revisits the development of Toronto and Brussels’ local food policies by analysing reflexivity and co-learning as important dimensions within a Hybrid Governance Approach (HGA); it approaches the interaction between four forms of governance (bottom-up, networked, state, market-led) and the tensions between them as hybrid dynamics. Within this approach, reflexivity refers to the positionality of agents, i.e. to the ways local food actors embody as well as reflect on and reconsider their principles and practices through time. Closely related to reflexivity, co-learning involves agential interactions to co-construct enabling food policy delivery systems. The HGA is mobilised to understand the ways in which reflexive capacities, as well as co-learning, take place in the two cases and how they lay the basis of particular modes of (de)institutionalisation. Learning from the two cases’ trajectories, this paper highlights: (a) the role of key governance tensions as triggers as well as breeding grounds for reflexivity and co-learning outcomes; (b) the challenges of food movement actors to surmount or valorise key tensions in order to build accountable modes of food policy delivery through time; (c) the struggles to build legitimacy and accountability in local food movements through the development of bottom-linked organisations and governance modes.     

Is Learning without teaching possible? The productive tension between network governance and reflexivity

ABSTRACT

Theories of reflexive governance are closely linked with the claim that more traditional modes of coordination have been replaced by networked structures, allowing reflexivity to emerge and reflexive learning to function as a steering mechanism in rapidly changing policy contexts. This paper explores this connection between reflexivity, governance, learning and networks in societal transitions, focusing particularly on the claim that networks will deliver reflexive learning. Using network theories from both policy networks and network governance and a case study of the Canadian agricultural biotechnology (agbiotech) policy network, it suggests that the kind of learning produced in networks will be a function of network structure. In particular, higher order reflexive learning will be compromised by the inevitability of the political struggle for nodality or central place in networks and the ensuing distribution of opportunities for bridging and bonding activities. Networks such as the Canadian agbiotech policy network that may promote learning but not necessarily reflexive learning are increasingly disadvantaged in contemporary policy settings.     

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.     

Local Governance and Climate Change: Reflections on the Swedish Experience

Abstract

The focus of this article is the Swedish experience of local governance and climate change, including mitigation and adaptation. The municipal response to these two challenges is set within a broader policy context that acknowledges Sweden as a pioneer in environmental governance, including its comparatively high ambitions with regard to the reduction of greenhouse ga emissions. Central–local relations in climate policy are analysed, and climate change mitigation and adaptation are exemplified by some snapshots of municipal initiatives, including the popular habit of networking between municipalities within as well as across national borders. In conclusion we briefly evaluate the Swedish local governance experience of climate change mitigation and adaptation to date as characterized by radical rhetoric and ambitious goals combined with a lot of promising initiatives, although still with fairly modest results in terms of tangible outcomes. Finally, we reflect upon what we consider to be the most important questions for future research on local governance and climate change.     

Establishing the green neighbourhood: approaches to neighbourhood-scale sustainability certification in Portland,Oregon

ABSTRACT

While local governance is widely acknowledged as an important element in the pursuit of sustainability, local action alone is insufficient to produce lasting change. One recent solution to this quandary has been the production of certification frameworks that encourage sustainable development at the neighbourhood scale by providing local actors with standardised definitions of sustainable practices. While these frameworks facilitate the spread of sustainable development strategies between local communities, there are significant contrasts between their approaches to encouraging local sustainable development that simultaneously fulfils global objectives. This article explores these contrasts through two neighbourhood-scale sustainability certification frameworks: LEED for Neighborhood Development (LEED-ND) and the EcoDistricts Protocol. Analysis of these frameworks in the context of two centrally-located neighbourhoods in Portland, Oregon, reveals substantial contrasts between the two frameworks in terms of the relative flexibility of their sustainability metrics, the time frame over which decisions regarding sustainable development are made, and community involvement in the process of pursuing specific objectives. Furthermore, it suggests that greater flexibility in the application of standards, continuous governance, and greater community involvement lead to more dynamic and holistic forms of sustainability that evolve as both local community needs and broader understandings of sustainability change over time.     

Common Core Themes in Geomorphic, Ecological, and Social Systems

Core themes of geomorphology include: open systems and connectivity; feedbacks and complexity; spatial differentiation of dominant physical processes within a landscape; and legacy effects of historical human use of resources. Core themes of ecology include: open systems and connectivity; hierarchical, heterogeneous, dynamic, and context-dependent characteristics of ecological patterns and processes; nonlinearity, thresholds, hysteresis, and resilience within ecosystems; and human effects. Core themes of environmental governance include: architecture of institutions and decision-making; agency, or ability of actors to prescribe behavior of people in relation to the environment; adaptiveness of social groups to environmental change; accountability and legitimacy of systems of governance; allocation of and access to resources; and thresholds and feedback loops within environmental policy. Core themes common to these disciplines include connectivity, feedbacks, tipping points or thresholds, and resiliency. Emphasizing these points of disciplinary overlap can facilitate interdisciplinary understanding of complex systems, as well as more effective management of landscapes and ecosystems by highlighting drivers of change within systems. We use a previously published conceptual framework to examine how these core themes can be integrated into interdisciplinary research for human–landscape systems via the example of a river.