Policy integration: Do laws or actors integrate issues relevant to flood risk management in Switzerland?

Existing research emphasizes interdependencies between social and ecological systems in climate change adaptation. Ecological systems are often complex and span several issues that are not integrated in the social governance system. In order to increase the fit between social and ecological systems, understanding factors that promote the integration of interdependent issues is crucial. In this paper, we consider 11 issues related to flood risk management, e.g., technical flood protection and habitat loss, which are typically addressed in different policy sectors but exhibit ecological, functional, or geographical interdependencies. We analyze two bases for issue integration: a) political actors connecting issues and, b) the legal framework cross-referencing issues. We propose a network method for systematic comparisons between issue integration based on actors and integration based on laws. For the case of Swiss flood risk management, we find that actor- and law-based issue integration co-vary and might be self-reinforcing. We further find that issue integration mostly rests on laws, although cases exist where actors are the main basis of integration. Results promote our understanding of potential bases for the integration of policy issues, thereby contributing knowledge about adaptive governance capacities in social-ecological systems that buffer the effects of climate change.     

Sustainability transformations: socio-political shocks as opportunities for governance transitions

Faced with accelerating environmental challenges, research on social-ecological systems is increasingly focused on the need for transformative change towards sustainable stewardship of natural resources. This paper analyses the potential of rapid, large-scale socio-political change as a window of opportunity for transformative change of natural resources governance. We hypothesize that shocks at higher levels of social organization may open up opportunities for transformation of social-ecological systems into new pathways of development. However, opportunities need to be carefully navigated otherwise transformations may stall or lead the social-ecological system in undesirable directions. We investigate (i) under which circumstances socio-political change has been used by actors as a window of opportunity for initiating transformation towards sustainable natural resource governance, (ii) how the different levels of the systems (landscape, regime and niche) interact to pave the way for initiating such transformations and (iii) which key features (cognitive, structural and agency-related) get mobilized for transformation. This is achieved through analyzing natural resource governance regimes of countries that have been subject to rapid, large-scale political change: water governance in South Africa and Uzbekistan and governance of coastal fisheries in Chile. In South Africa the political and economic change of the end of the apartheid regime resulted in a transformation of the water governance regime while in Uzbekistan after the breakdown of the Soviet Union change both at the economic and political scales and within the water governance regime remained superficial. In Chile the democratization process after the Pinochet era was used to transform the governance of coastal fisheries. The paper concludes with important insight on key capacities needed to navigate transformation towards biosphere stewardship. The study also contributes to a more nuanced view on the relationship between collapse and renewal.     

Bringing resilience-thinking into water governance: Two illustrative case studies from South Africa and Cambodia

Resilience is a multidimensional concept that is increasingly used to understand environmental change in hydrological systems. Yet, the current discussion about water governance and resilience remains relatively limited, with resilience typically seen as a normative outcome for governance (i.e., to be resilient against change). Using a theoretical multiplicity approach, we explore how the theories of social-ecological systems (SES), resilience and interactive (water) governance can provide new insights for water governance studies. We propose a resilience–governance framework that captures the partly overlapping but distinct characteristics from these three theories. The framework aims to develop a more nuanced way of using resilience-thinking for water governance, viewing resilience as a function of three capacities (absorptive, adaptive and transformative capacity) and noting the simultaneous existence of three interpretations for resilience (as a property, process and outcome) across different scales. The framework also considers issues of power and equity, which are often missing from resilience framings. We illustrate the framework with two case studies – the Tonle Sap Lake in Cambodia and a small sub-catchment of the Limpopo River Basin in South Africa – to provide two distinct examples of the possibilities of resilient governance. Finally, we consider what the framework suggests more broadly for ongoing discussions around resilience and water governance, including the possibilities for governance to also ‘bounce forward’ – i.e., transform – to a new, improved state. We argue that resilience-thinking may be valuable in understanding governance characteristics and guiding governance processes, in addition to seeing resilience (just) as a normative end-goal. In this way, the article supports an epistemological shift away from focusing on institutional structure, towards capturing the dynamic processes within governing systems.     

Harnessing scientific and local knowledge to face climate change in small-scale fisheries

Small-scale fisheries in developing regions are particularly vulnerable to climate change, but the assessment of climate-induced changes and impacts are often hampered by the data poor-situation of these social-ecological systems. Based on 40 years of scientific and local ecological knowledge, we provide a coherent narrative about the effects of a marine hotspot of climate change on a small-scale fishery across different geographical and temporal scales. We applied a mixed-methods approach to assess biophysical changes, social-ecological impacts, and the incremental spectrum of actions implemented at multiple levels to increase the adaptive capacity of a small-scale clam fishery. The warming hotspot here analyzed was the fastest-warming region in the South Atlantic Ocean. Long-term changes in wind intensity and direction were also noticeable at a regional scale. Both sea surface temperature and winds showed a clear shifting pattern in the late 1990 s. These climate-related stressors determined ecosystem and targeted population changes (e.g. clam mass mortalities, slow stock recovery rates after ecological shocks, habitat narrowing), and favored harmful algal bloom-forming organisms. Climate-induced drivers also affected the human component of the social-ecological system, preventing fishers from securing a fulltime livelihood and limiting the fishery economic potential. Adaptive responses at multiple levels provided some capacity to address climate change effects, and transformative pathways are being taken to adapt to climate-induced changes over the long-term. Transformative changes were fostered by the local perception of environmental change, shared narratives, sustained scientific monitoring programs, and the interaction between knowledge systems, facilitated by a bridging organization within a broader process of governance transformation. The combination of autonomous adaptations (based on linking social capital and fishery leaders agency) and government-led adaptations were essential to face the challenges imposed by climate change. Our results serve as a learning platform to anticipate threats and envision solutions to a wide range of small-scale fisheries in fast-warming regions worldwide.     

Co-productive governance: A relational framework for adaptive governance

Adaptive governance focuses our attention on the relationships between science and management, whereby the so-called ‘gaps’ between these groups are seen to hinder effective adaptive responses to biophysical change. Yet the relationships between science and governance, knowledge and action, remain under theorized in discussions of adaptive governance, which largely focuses on abstract design principles or preferred institutional arrangements. In contrast, the metaphor of co-production highlights the social and political processes through which science, policy, and practice co-evolve. Co-production is invoked as a normative goal (Mitchell et al., 2004) and analytical lens (Jasanoff, 2004a, Jasanoff, 2004b), both of which provide useful insight into the processes underpinning adaptive governance. This paper builds on and integrates these disparate views to reconceptualize adaptive governance as a process of co-production. I outline an alternative conceptual framing, ‘co-productive governance’, that articulates the context, knowledge, process, and vision of governance. I explore these ideas through two cases of connectivity conservation, which draws on conservation science to promote collaborative cross-scale governance. This analysis highlights the ways in which the different contexts of these cases produced very different framings and responses to the same propositions of science and governance. Drawing on theoretical and empirical material, co-productive governance moves beyond long standing debates that institutions can be rationally crafted or must emerge from context resituate adaptive governance in a more critical and contextualized space. This reframing focuses on the process of governance through an explicit consideration of how normative considerations shape the interactions between knowledge and power, science and governance.     

Down to Earth: Contextualizing the Anthropocene

The ‘Anthropocene’ is now being used as a conceptual frame by different communities and in a variety of contexts to understand the evolving human–environment relationship. However, as we argue in this paper, the notion of an Anthropos, or ‘humanity’, as global, unified ‘geological force’ threatens to mask the diversity and differences in the actual conditions and impacts of humankind, and does not do justice to the diversity of local and regional contexts. For this reason, we interpret in this article the notion of an Anthropocene in a more context-dependent, localized and social understanding. We do this through illustrating examples from four issue domains, selected for their variation in terms of spatial and temporal scale, systems of governance and functional interdependencies: nitrogen cycle distortion (in particular as it relates to food security); ocean acidification; urbanization; and wildfires. Based on this analysis, we systematically address the consequences of the lens of the Anthropocene for the governance of social-ecological systems, focusing on the multi-level, functional and sectoral organization of governance, and possible redefinitions of governance systems and policy domains. We conclude that the notion of the Anthropocene, once seen in light of social inequalities and regional differences, allows for novel analysis of issue-based problems in the context of a global understanding, in both academic and political terms. This makes it a useful concept to help leverage and (re-)focus our efforts in a more innovative and effective way to transition towards sustainability.     

Governance,complexity, and resilience

This special issue brings together prominent scholars to explore novel multilevel governance challenges posed by the behavior of dynamic and complex social-ecological systems. Here we expand and investigate the emerging notion of “resilience” as a perspective for understanding how societies can cope with, and develop from, disturbances and change. As the contributions to the special issue illustrate, resilience thinking in its current form contains substantial normative and conceptual difficulties for the analysis of social systems. However, a resilience approach to governance issues also shows a great deal of promise as it enables a more refined understanding of the dynamics of rapid, interlinked and multiscale change. This potential should not be underestimated as institutions and decision-makers try to deal with converging trends of global interconnectedness and increasing pressure on social-ecological systems.     

From shared socio-economic pathways (SSPs) to oceanic system pathways (OSPs): Building policy-relevant scenarios for global oceanic ecosystems and fisheries

There is an urgent need for developing policy-relevant future scenarios of biodiversity and ecosystem services. This paper is a milestone toward this aim focusing on open ocean fisheries. We develop five contrasting Oceanic System Pathways (OSPs), based on the existing five archetypal worlds of Shared Socioeconomic Pathways (SSPs) developed for climate change research (e.g., Nakicenovic et al., 2014 and Riahi et al., 2016). First, we specify the boundaries of the oceanic social-ecological system under focus. Second, the two major driving forces of oceanic social-ecological systems are identified in each of three domains, viz., economy, management and governance. For each OSP (OSP1 “sustainability first”, OSP2 “conventional trends”, OSP3 “dislocation”, OSP4 “global elite and inequality”, OSP5 “high tech and market”), a storyline is outlined describing the evolution of the driving forces with the corresponding SSP. Finally, we compare the different pathways of oceanic social-ecological systems by projecting them in the two-dimensional spaces defined by the driving forces, in each of the economy, management and governance domains. We expect that the OSPs will serve as a common basis for future model-based scenario studies in the context of the Intergovernmental Panel on Climate Change (IPCC) and the Intergovernmental Platform on Biodiversity and Ecosystem Services (IPBES).     

The anticipatory governance of sustainability transformations: Hybrid approaches and dominant perspectives

Anticipation methods and tools are increasingly used to try to imagine and govern transformations towards more sustainable futures across different policy domains and sectors. But there is a lack of research into the steering effects of anticipation on present-day governance choices, especially in the face of urgently needed sustainability transformations. This paper seeks to understand how different perspectives on anticipatory governance connect to attempts to guide policy and action toward transformative change. We analyze perspectives on anticipatory governance in a global network of food system foresight practitioners (Foresight4Food) – using a workshop, interviews, and a survey as our sources of data. We connect frameworks on anticipatory governance and on transformation to analyse different perspectives on the future and their implications for actions in the present to transform food systems and offer new insights for theory and practice. In the global Foresight4Food network, we find that most foresight practitioners use hybrid approaches to anticipatory governance that combine fundamentally different assumptions about the future. We also find that despite these diverse food futures, anticipation processes predominantly produce recommendations that follow more prediction-oriented forms of strategic planning in order to mitigate future risks. We further demonstrate that much anticipation for transformation uses the language on deep uncertainty and deliberative action without fully taking its consequences on board. Thus, opportunities for transforming future food systems are missed due to these implicit assumptions that dominate the anticipatory governance of food systems. Our combined framework helps researchers and practitioners to be more reflexive of how assumptions about key human systems such as food system futures shape what is prioritized/marginalized and included/excluded in actions to transform such systems.     

Scalar capital as ingredient of success in conservation governance: evidence from Melanesia

Problems of scale abound in the governance of complex social-ecological systems. Conservation governance, for example, typically occurs at a single scale, but needs to inform governance and action at other scales to be truly effective at achieving social and ecological outcomes. This process is conventionally conceived as unidirectional – either scaling down or scaling up – in the way it both exploits and creates the natural, social, human, institutional, and financial resources and benefits that are collectively known as conservation ‘capital’. Here we analyse multiscale conservation governance and the different types of capital that impede or facilitate its effectiveness. Comparative analysis of conservation planning in Papua New Guinea and the Solomon Islands, through in-depth document review, key informant interview, and participant observation, reveals limited evidence of unidirectional processes. Instead, we observe multidirectional scaling pathways, cultivated by the following six scale-explicit characteristics of effective conservation governance: 1) multiscale understanding, 2) scale jumping, 3) scaled leadership characteristics, 4) scaled stakeholder engagement, 5) scaled policy frameworks, and 6) scaled institutional settings. While the latter four are familiar concepts, though not always recognised as explicitly scalar, we know little about the first two attributes of conservation governance. Based on this novelty and relevance, we propose a new form of capital – ‘scalar capital’ – to complement natural, social, human, institutional, and financial capitals as both input and outcome of effective conservation governance. We find that scalar capital facilitates flows of different resources (data, conservation objectives, practitioner experience, institutional support, and funding) in multiple directions. Critically, we present empirical evidence that conservation governance can foster scalar capital to improve outcomes across multiple scales.     

适应性治理与气候变化：内蒙古草原案例分析与对策探讨

适应性治理通过边学边做,针对各地方的社会经济条件、自然生态系统、地方知识文化等基本特征,基于一个动态、自下而上和自组织的过程不断测试和修正制度安排与知识体系,形成一个旨在解决实际问题的循环过程。通过内蒙古3个地区案例的对比分析研究,基于对其气候变化风险和社会脆弱性的评估,发现其在气候变化影响下形成的不同程度的社会脆弱性正是源于不同的草原利用机制和基于此的社会合作机制。正是因为3个案例地的牧民有着不同的社会资本和社会记忆,所以他们面对极端天气导致的自然灾害时,采取了不同的应对方式,有的牧户可以依赖于社会资本移动牲畜来渡过难关,有的牧户则可以在嘎查范围内重启社会记忆,通过合理安排草场利用和移动牲畜提高自身的抗灾能力,而有的牧户则只能通过买草料独立抗灾。这样不同的结果有力证明了适应性治理在提升这些地区气候变化应对能力方面的必要性和可行性。在地区层面引入适应性治理,可以满足各利益相关方的需求,有利于自然、社会及管理的多学科协同,与“未来地球计划”的协同设计、协同实施和协同推广理念不谋而合,是“未来地球”思想在气候变化适应研究中的实践。     

Local collective action: Adaptation to coastal erosion in the Monkey River Village,Belize

Successful adaptation to environmental change and variability is closely connected with social groups’ ability to act collectively, but many social-ecological challenges exceed local adaptive capacity which necessitate assistance from governmental institutions. Few studies have investigated how local collective action can be used to enrol external support for adaptation. This paper reduces this research gap by analysing a locally driven adaptation process in response to coastal erosion in Monkey River Village, Belize. Drawing on literature on adaptation and political ecology, we examine the different strategies the local residents have used over time to influence government authorities to support them in curbing the coastal erosion. Our findings show that the local mobilisation generated government support for a temporary sea defence and that collective strategies emerge as a response to threats to a place specific way of life. Our case illustrates that it was essential that the villagers could ally with journalists, researchers and local NGOs to make their claims for protection heard by the government. The paper contributes to adaptation research by arguing that local collective action, seen as contestation over rights to protection from environmental change, can be a means for places and communities not prioritised by formal policies to enrol external support for adaptation. Our study supports and adds to the perspective that attention to formal arrangements such as adaptation policy alone has limited explanatory power to understand collective responses to change.     

Collapse and recovery in a remote small island—A tale of adaptive cycles or downward spirals?

Few studies consider how social-ecological systems recover from disturbance. We consider the small semi-autonomous island of Rodrigues (Indian Ocean). Based on semi-structured interviews (n = 70), a fisher survey (n = 73), weather data and official records we build a timeline of key events. We tabulate local perceptions (5+ mentions) of changes (social, economic and natural capital) and look for signs of adaptive cycles in the island's social-ecological past. Rising human pressure and extreme weather event impacts are reported since first settlement. We propose a recent “collapse” phase catalysed in the 1970s by severe drought, based on respondents’ perceptions of still-ongoing changes in farming and fishing, water, external dependence, migration and inter-island political change. Connectivity (flows of people, goods, information, money, power) appear to have strengthed local island recovery, but degradation continued, not least due to water scarcity and a lack of shared political vision as Rodrigues became more tied into the wider world.Overall, our findings suggest social-ecological systems may get stuck in a post-collapse recovery without any new structure emerging, presuming adaptive cycles can even be detected. Data gaps and global change redefining spatial and temporal scales could mean the adaptive cycle's usefulness is limited in development policy-making contexts.     

Patience,persistence and pre-signals: Policy dynamics of planned relocation in Austria

Within the wide array of adaptive responses to flood hazards, planned relocation of residents at risk is usually only taken into account if other responses are ineffective or unavailable. Residents targeted by planned relocation are confronted with radical changes in their livelihood; therefore, relocation is highly contested within public risk discourse. The present paper assesses dynamic processes in the design and implementation of voluntary planned relocation in the Austrian Danube catchment over five decades. Using the Multiple Streams Approach, the emergence of policy windows is mapped to developments in the problem, political, policy and population streams. A mixed-methods design combines semi-structured interviews of 88 affected households and 21 decision-makers with archival research. Repeated flood events underscored that standard protection did not suffice for all riverside communities. In consequence, national authorities acted as policy entrepreneurs to advocate planned relocation and direct the discourse; by contrast, local stakeholders and residents played a mostly passive role. The relocation policy developed from ad-hoc informal arrangements towards a formalised procedure. Relocation governance evolved as incremental change over a long time span instead of immediate, radical disruption. Policy acceptance by residents depended crucially on social learning and on coincidence with personal circumstances and biographical stages. Policy windows opened for several years, when pre-signals from ongoing public debate accumulated and the different timescales in the decision-making of public administrators, elected representatives and residents aligned. Key factors were long-term perspective, flexibility, engagement and social capacity at a local level to deal with and manage planned relocation.     

Policy innovation in a changing climate: Sources,patterns and effects

States have been widely criticized for failing to advance the international climate regime. Many observers now believe that a “new” climate governance is emerging through transnational and/or local forms of action that will eventually plug the resulting governance gaps. Yet states, which remain oddly absent from most discussions of the “new” governance, will remain key players as governance becomes more polycentric. This paper introduces a special issue that explores the ability of states to rise to these interconnected challenges through the analytical prism of policy innovation. It reveals that policy innovation is much more multi-dimensional than is often thought; it encompasses three vital activities: invention (centering on the ‘source’ of new policy elements), diffusion (that produces different ‘patterns’ of policy adoption), and the evaluation of the ‘effects’ that such innovations create in reality. The papers, which range from qualitative case studies to large ‘n’ quantitative studies, offer new insights into the varied roles that states play in relation to all three.They show, for instance that: the policy activity of states has risen dramatically in the past decade; that state innovation is affected to similar degrees by internal and external factors; and that policies that offer flexibility to target groups on how to meet policy goals are most effective but that voluntary reporting requirements are ineffective. This paper draws upon these and many other insights to offer a much more nuanced reflection on the future of climate governance; one that deservedly puts states at the front and center of analysis.     

Creating adaptive social-ecological fit: The role of regional actors in the governance of Sea-level rise adaptation in San Francisco bay

Sea level rise is one of the most pressing climate adaptation issues around the world. Often, coastal communities are interdependent in their exposure to sea level rise – if one builds a seawall, it will push water to another – and would benefit from a coordinated adaptive response. The literature on social-ecological systems (SES) calls for actors placed at higher levels of governance (e.g. regional government in a metropolitan area) to improve coordination between local managers by serving as brokers. However, we lack empirical insight on how higher-level actors might improve coordination in practice, and theoretical development on the implications of their intermediation. To address these gaps, we study the case of adaptation to sea level rise in the San Francisco Bay Area. We build a social-ecological network of social actors and shoreline segments using original survey data and simulated scenarios of tidal and traffic interdependencies between shoreline segments. We perform a frequency analysis of network motifs that operationalize social-ecological ‘fit’ in the context of the Bay Area. We find that regional actors and non-governmental organizations increase social-ecological fit by providing intermediation between actors who work on different shoreline segments, whether interdependent or not. This shows that these actors provide adaptive social-ecological fit, future-proofing the Bay Area to current and future climate adaptation challenges.     

Catching sea cucumber fever in coastal communities: Conceptualizing the impacts of shocks versus trends on social-ecological systems

Research on vulnerability and adaptation in social-ecological systems (SES) has largely centered on climate change and associated biophysical stressors. Key implications of this are twofold. First, there has been limited engagement with the impacts of social drivers of change on communities and linked SES. Second, the focus on climate effects often assumes slower drivers of change and fails to differentiate the implications of change occurring at different timescales. This has resulted in a body of SES scholarship that is under-theorized in terms of how communities experience and respond to fast versus slow change. Yet, social and economic processes at global scales increasingly emerge as ‘shocks’ for local systems, driving rapid and often surprising forms of change distinct from and yet interacting with the impacts of slow, ongoing ‘trends’. This research seeks to understand the nature and impacts of social shocks as opposed to or in concert with trends through the lens of a qualitative case study of a coastal community in Mexico, where demand from international seafood markets has spurred rapid development of a sea cucumber fishery. Specifically, we examined what different social-ecological changes are being experienced by the community, how the impacts of the sea cucumber fishery are distinct from and interacting with slower ongoing trends and how these processes are affecting system vulnerability, adaptations and adaptive capacity. We begin by proposing a novel framework for conceptualizing impacts on social systems, as comprised of structures, functions, and feedbacks. Our results illustrate how the rapid-onset of this fishery has driven dramatic changes in the community. New challenges such as the ‘gold-rush-style’ arrival of new actors, money, and livelihoods, the rapid over-exploitation of fish stocks, and increases in poaching and armed violence have emerged, exacerbating pressures from ongoing trends in immigration, overfishing and tourism development. We argue that there is a need to better understand and differentiate the social and ecological implications of shocks, which present novel challenges for the vulnerability and adaptive capacity of communities and the sustainability of marine ecosystems.     

Interface bureaucrats and the everyday remaking of climate interventions: Evidence from climate change adaptation in Zambia

When climate change policies are implemented in practice, they travel through the hands of a range of practitioners who not only mediate but also potentially transform climate interventions. This article highlights the role of a group of actors whose practices have so far received little attention in the study of climate change governance, namely the public servants who are responsible for the everyday implementation of national climate change policies and associated programmes on the ground. Situated at the frontline of the state and often engaging directly with citizens, these “interface bureaucrats” occupy a complex position in which they must balance their role as representatives of the state with the need to accommodate the pressures, interests and practical challenges associated with everyday policy implementation. In this article we examine how interface bureaucrats in Zambia seek to navigate this role as they go about implementing national climate change adaptation policies in practice, and what this means for the nature and outcome of these interventions. We identify key dilemmas of the interface bureaucrats in our study areas, namely (i) intervening with limited reach, (ii) implementing generic policies, and (iii) managing conflicting interests. We show how they address these dilemmas through highly pragmatic practices involving informal agreements with community members, discretionary adjustments of official policies, and negotiation of contested interventions. As a result, the nature and outcomes of climate change adaptation interventions end up differently from the official policies and the underlying governance interests of the central state. Our findings suggest a need for greater attention to the role of interface bureaucrats as everyday climate policy makers and point to the significance of pragmatism and compromise in the interaction between state actors and citizens in environmental interventions.     

Unpacking governance: Building adaptive capacity to climate change of river basins in Brazil

Governance and institutions are critical determinants of adaptive capacity and resilience. Yet the make-up and relationships between governance components and mechanisms that may or may not contribute to adaptive capacity remain relatively unexplored empirically. This paper builds on previous research focusing on integrated water resources management in Brazil to ‘unpack’ water governance mechanisms that may shape the adaptive capacity of water systems to climatic change. We construct a river basin index to characterize governance approaches in 18 Brazilian river basins, apply a reliability test to assess the validity of these governance indicators, and use in-depth qualitative data collected in a subsample of the basins to explore the relationship between the governance indicators and adaptive capacity. The analysis suggests a positive relationship between integrated water governance mechanisms and adaptive capacity. In addition, we carry out a cluster analysis to group the basins into types of governance approaches and further unveil potential relationships between the governance variables and overall adaptive capacities. The cluster analysis indicates that tensions and tradeoffs may exist between some of the variables, especially with equality of decision making and knowledge availability; a finding that has implications for decision makers aiming to build adaptive capacity and resilience through governance and institutional means.