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Governance Pillars and Competences: Power, Knowledge and Norms as Cross-Cutting Issues in Governance for the SDGs

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Part of the book series: Sustainable Development Goals Series ((SDGS))

Abstract

Based on the findings and analyses in the previous chapters, this chapter suggests some key areas around which the Integrative SDG Governance (ISG) framework could be developed. This is in line with the question ‘Which theoretical pillars (cross-cutting themes) and competences can be drawn from existing literature and the case studies together on the areas in which Integrative SDG Governance should be more encompassing than extant sustainability governance?’ The indicator areas or ‘frames’ are grouped around the three pillars of power, knowledge and norms because the literature review, interviews and case studies together show the importance of (the interplay between) these themes as ultimate drivers for sustainability governance (Conventional strategies for sustainable development operate on the ‘proximate drivers’ of governance, namely technology, demographics and institutions. These proximate drivers are mainly responsive to short-term intervention. The ultimate drivers for sustainable development are power, knowledge, norms and culture (Raskin et al. 2002). These drivers are subject to long-term systemic processes.). However, there is not much research available on sustainability governance that looks into the role of all three of these theoretical pillars. Still, much of the existing literature on power, knowledge and norms is problematic in the context of interdisciplinary and transdisciplinary research fields (such as sustainability science) and tends to reach high levels of abstraction and terminological subtleties.

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Notes

  1. 1.

    The draft negotiating text for the Paris Climate Agreement which came out of UNFCCC COP 20 in Lima (available at http://unfccc.int/resource/docs/2014/cop20/eng/10a01.pdf), in Paragraph 29, Option 1 states: ‘Monitoring and evaluation of, reporting on, and learning from plans, policies and programmes shall (…) consider indicators for governance and planning’.

  2. 2.

    Following Termeer et al. (2013: 4–5), I define governance capability as ‘the ability of policy-makers to observe wicked problems (also see Annex 7) and to act accordingly, and the ability of the governance system to enable such observing and acting’. Every capability should include the three dimensions of acting, observing and enabling.

  3. 3.

    Capacities are defined as the ability of individuals, institutions and societies to perform functions, solve problems and set and achieve objectives in a sustainable manner (UNDP 2007).

  4. 4.

    Power, knowledge and norms are examples of family resemblance concepts. The term family resemblance concept originates in Wittgenstein’s philosophy of language (Haugaard 2002: 3). A typical example of a ‘family resemblance concept’ is the word ‘game’: its meaning inherently depends on the context in which it is used. The ‘playfulness’ of a card game played at home starkly contradicts with the ‘seriousness’ of a political game. All possible meanings of the word ‘game’ partly overlap and partly contradict each other, hence making it impossible to agree on one all-encompassing definition.

  5. 5.

    This is also due to the fact that whereas ‘power’ in the English language mostly covers a number of meanings, in other languages such as Dutch, German and French, there are separate words for these separate meanings. Dutch language for example in general distinguishes between ‘macht’ (might) and ‘kracht’ (force).

  6. 6.

    Further, influence and impact can be arbitrary and unintentional. This is related to the distinction between affecting and effecting. While ‘affecting’ refers to altering or impinging on something in any kind of way, ‘effecting’ is about accomplishing something.

  7. 7.

    Similarly, power relations can be categorized based on the nature of the interactions between actors into three types based on classic institutional economics (Commons 1934) and social anthropology (Mauss 1923): ‘negotiation transactions’ (as usually observed in market transactions), ‘directive transactions’ (often in hierarchical relations) and ‘reciprocity transactions’ (as in networks).

  8. 8.

    https://www.wto.org/english/news_e/sppl_e/sppl142_e.htm.

  9. 9.

    The precautionary principle or precautionary approach to risk management holds that if an action or policy has a suspected risk of causing harm to the public or to the environment, in the absence of scientific consensus that the action or policy is not harmful, the burden of proof that it is not harmful falls on those taking an action.

  10. 10.

    National energy policies are difficult to compare for example in terms of nuclear power and risk acceptance. For example, in the USA, nuclear power is seen as a way to address climate change. Several European countries on the other hand decided to phase out nuclear power after the Fukushima disaster. EU environmental policy is based on the precautionary principle (paragraph 2 of Article 191 of the Lisbon Treaty). Restriction in the EU on using hormones for growing meat faster and on the use of genetically modified organisms are also based on the precautionary principle and have led to trade disputes with the USA.

  11. 11.

    86% of respondents to the WEF's Survey on the Global Agenda 2014 agreed that there is a leadership crisis in the world today.

  12. 12.

    In September 2015 Environment Minister Mochizuki announced that he was considering the introduction of a national ETS. In October 2015, he was dismissed following opposition from the private sector and Premier Abe’s renewed drive for regaining economic growth.

  13. 13.

    Meaning-making can be defined as the ability to integrate challenging or ambiguous situations into a framework of personal meaning using conscious, value-based reflection (van den Heuvel et al. 2009).

  14. 14.

    http://web.unep.org/geo/assessments/global-assessments/global-environment-outlook-5.

  15. 15.

    For Castells (2009), power is exercised through networks. He sees four different forms of power:

    1. 1.

      Networking Power: the power of the core actors and organizations included in the networks

    2. 2.

      Network Power: the power resulting from the standards required to coordinate social interaction in the networks.

    3. 3.

      Networked Power: the power of social actors over other social actors in the network.

    4. 4.

      Network-making Power: the power to program networks according to the interests and values of the programmers.

  16. 16.

    Actors with a higher than average number of ‘links’ with other actors.

  17. 17.

    In the case of the trade remedy measures that the EU wanted to take on imports of solar panels from China, China also threatened with taking retaliatory measures on products (wine and luxury cars) that would mainly impact two of the EU’s core member states: France and Germany. A more explicit link between the climate and trade regimes is that the EU used its economic power when it made its approval of Russia's accession to the WTO contingent upon Russia’s ratification of the Kyoto Protocol. Also see http://www.theguardian.com/world/2004/may/22/environment.russia.

  18. 18.

    Intrinsic task motivation ‘involves positively valued experiences that individuals derive directly from a task’ resulting from the cognitions about a task that produce motivation and satisfaction (Thomas and Velthouse 1990: 668).

  19. 19.

    To deliver and build the social dialogue for a just transition, the International Trade Union Confederation and its partners have established a Just Transition Centre. Also see https://www.ituc-csi.org/just-transition-centre.

  20. 20.

    E.g. though the ESRI platform for the SDGs, anyone can follow how specific areas of the world perform in terms of the SDGs based on a Geographic Informations System (GIS): http://sdg.esri.com/.

  21. 21.

    IPCC assessment reports are compiled and reviewed by leading scientists, but the politically more relevant ‘Summaries for Policy makers’ (SPMs) have to be agreed upon by all delegates from participating countries.

  22. 22.

    Meuleman (2012a) sees in this context the statement of a former Dutch Environment minister as illustrative when she says that ‘I will not accept any more mistakes from the IPCC. As a politician, I must be able to have blind trust in what science says’.

  23. 23.

    For one of many investigations on whether a scientific consensus exists on climate change, see Oreskes (2004), available at http://www.sciencemag.org/content/306/5702/1686.full.

  24. 24.

    Gramsci contended that the modern prince ‘cannot be a real person or concrete individual’ but ‘can only be an organism, a complex element of society in which a collective will, which has already been recognized and has to some extent asserted itself in action, begins to take concrete form’ (Hoare and Nowell-Smith 1971: 129). Similarly, Olsson et al. (2014) suggest that a theory on the role of agents in sustainability transformations may involve moving the focus from the role of individual leaders to interacting key individuals. Mental and social learning processes could further trigger public participation in collective cultural change and a mass transformation of human understanding through public participation and improved decision making. Cognitive science and philosophy of science is exploring in this context the concept of ‘distributed cognition’ (Giere and Moffat 2003; Hutchins and Klausen 1996; Nersessian 2006), which means that collective learning can take place through objects occurring outside individual minds, (e.g. through the use of a computer) in order to address complex problems more distributively.

  25. 25.

    Legitimacy, broadly understood, can rest on a range of qualities and characteristics including law, but also authenticity, responsiveness, and problem-solving capacities (Ansell 2011: 149–50).

  26. 26.

    The rule of law is in general considered as important for sustainable development, but legal frameworks can conflict with adaptive approaches. For example, Kemal Derviş (former head of UNDP and member of the IMF mission to Greece) in a meeting in Geneva in May 2015 said that even though the Troika approach to the financial crisis in Greece was understood not to work much earlier, there were agreements that had to be respected so that it was difficult to perform adaptive governance.

  27. 27.

    For example, Jan Ossenbrink, interview in person with Roland-Jan Meijer (Global Solar Council) in Brussels on 16 October 2013.

  28. 28.

    Small events that trigger changes that are impossible to reverse.

  29. 29.

    Gladwell (2000) defines a tipping point as ‘the moment of critical mass, the threshold, the boiling point’ and describes three types of people that are crucial in the creation and spread of social tipping points: Connectors, Mavens and Salesmen. Connectors are the social equivalent of computer network hubs; they know people across social, cultural, professional, and economic communities and introduce people who function in different circles. Mavens are information specialists and knowledge brokers. Salesmen are charismatic people with strong negotiation skills who can persuade others.

  30. 30.

    Events that produce immense consequences across scales, systems and time.

  31. 31.

    http://www.climate.gov/news-features/climate-case-studies/how-sandy-affected-new-york-city%E2%80%99s-long-term-planning.

  32. 32.

    The term ‘reflexivity’ is used by Giddens to refer to the ability of an agent to consciously alter his or her place in the social structure; thus globalization and the emergence of the ‘post-traditional’ society might be said to allow for ‘greater social reflexivity’. Social and political sciences are therefore important because social knowledge, as self-knowledge, is potentially emancipatory.

  33. 33.

    Cultural self-reflexivity is the critical examination of the collective, cultural, or intersubjective elements of the worldview that one is embedded in.

  34. 34.

    The three major strands in the Western philosophy of ethics are

    • consequentialism/utilitarianism (ends can justify a certain action);

    • virtue ethics (the action is justified because a specific person is acting); and

    • Deontology (an action is justified through the way it is implanted) (García‐Rosell and Moisander 2008).

  35. 35.

    Ethics are important in scientific research (research ethics). Whereas the origins of research ethics lie in medical science and are based on protecting a weaker research object (patient) from a powerful doctor, in social science the roles can be reversed often when a researcher has powerful objects as research subject.

  36. 36.

    Procedural justice is concerned with fairly including people and communities in decision-making about energy systems.

  37. 37.

    Distributive justice entails equitably sharing the benefits and burdens of, e.g. energy production and consumption across individuals and societies.

  38. 38.

    UNESCAP (2008) found that poorer households paid 171% more (relative to their income) for cooking fuels and 120% more for transportation, 67% more for electricity, and 33% more for fertilisers when compared to the expenditures on energy from middle- and upper-class households.

  39. 39.

    Renewable energy can make people more independent if they do not need access to the grid any more, for example, and are less dependent on centralised utilities. Gaining liberty through renewables is one reason why in the US state of Georgia, the Tea Party cooperated with the Sierra Club to lobby for distributed solar power. Also see http://www.newyorker.com/tech/elements/green-tea-party-solar.

  40. 40.

    Sovacool (2009) suggests that energy technologies can be read as congealed culture: ‘The social interests of those designing the electric utility system get built into the system, rather than becoming a latent or unintended result. The system thus redistributes social power and entrenches established practices and methods of reasoning that have grave consequences for society, including the emission of greenhouse gases and toxic pollutants’.

  41. 41.

    This is why politically, the Energiewende was originally a Socialist-Green Party initiative but also gained support from the conservative Christian Democrat Party CDU (the party favoured in general by German farmers).

    An unintended side-effect of the Energiewende is that subsidized renewables undercut relatively climate-friendly natural gas on price. Therefore, traditional utilities have turned to coal-powered electricity generation. Thus, prices of electricity have gone up in Germany and the use of renewable sources has expanded, but Germany ended up emitting more carbon until the year 2014.

  42. 42.

    Social capital is the aggregate trust that individuals in a group of community have in one another. Social capital is crucial for the workings of a society and for sustainability governance as it allows diverse participants to work together towards sustainability transitions in heterogeneous networks. Institutional capacities fall under four categories: intellectual, social, material and political (Huppé and Creech 2012).

  43. 43.

    Reciprocity refers to a relationship whereby the behaviour of one actor occurs in the justified belief of another actor behaving in a certain way (e.g. positive actions by one actor are reciprocated by positive action by another).

  44. 44.

    Mutuality is the recognition of mutual interdependence and common interest between actors. Interdependence creates a strong motive for collaboration, and is seen as the starting point for any networked governance process (Imperial 2005). Trust, mutuality and reciprocity are built upon interactions and a certain history of collaboration, in what is often understood as an iterative, virtuous cycle of communication, trust, commitment, understanding and outcomes (ibid.). Trust between interdependent actors is likely to lead to reciprocating positive behaviour and to mutually beneficial outcomes—outcomes that subsequently generate a higher level of trust among relevant actors (Ostrom 2000).

  45. 45.

    A major advance in understanding the role of values in networks is provided by Hajer (1995) as he examines the role of values in networks and describes norm creation within networks.

  46. 46.

    A mental frame of perception contains the actor’s knowledge, assumptions, interests, values and beliefs and determines what they see as being of interest, and what interests they perceive as conflicting with others (Schön and Rein 1994; Fischer 2000), and thus has an important impact on the actor’s construction of meaning of information, shaping his or her policy positions and attitudes towards the policy-making process (Kolkman et al. 2005).

  47. 47.

    https://trustyourplace.com/.

  48. 48.

    For Ansell and Gash (2007: 544) collaborative governance is ‘A governing arrangement where one or more public agencies directly engage non-state stakeholders in a collective decision-making process that is formal, consensus-oriented, and deliberative and that aims to make or implement public policy or manage public programs or assets’.

  49. 49.

    Trust in politicians has always been volatile, but in recent decades trust in politicians in both Europe and the USA has declined (Pew Research Center 2014) available at http://www.people-press.org/2014/11/13/public-trust-in-government/.

  50. 50.

    The benefit of a global MBM in terms of transparency could be showing the emissions of individual airlines and airports. This raises awareness, and makes airlines more comparable and competitive in terms of lowering emissions.

  51. 51.

    Studies on product development (e.g. Lester and Piore 2004) show that radical innovation involves combinations across different fields (e.g. smart grids draw on ICT and traditional network technologies, medical devices draw from basic life sciences and clinical practice, aviation technologies draw from defence and aerospace technologies). Friction between different systemic frames and discourses can thus challenge the status quo (Stark 2009). Engagement between different fields can also support innovation by redistributing risk and enabling innovation by communal absorption of risks taken by innovative actors. But this tool also has limits, as the example of innovative banking in the financial crisis shows.

  52. 52.

    Luhmann (1995) distinguished three types of social systems: interactions (conversations), organizations and function systems (the systems of communication that fulfil a function in (global) society at large, e.g. law, economy, politics, religion, science and education). This conceptualization of social systems rejects the idea that systems should be based on hierarchical relations and control from higher levels. Luhmann argues that society is a polycentric collection of interacting social systems.

  53. 53.

    Many well-known models of value patterns, like Maslow’s hierarchy of human needs, have a strong Western bias. In Maslow’s model, individualist self-actualisation constitutes the top of the pyramid, whereas in collectivist countries (e.g. China) the basic need is belonging and self-actualisation concerns societal needs (Gambrel and Cian-ci 2003). The individualist/collectivist divide is one of the five indexes with which intercultural differences have been explained by Hofstede (2001).

  54. 54.

    For policy development, it is a still a widely neglected phenomenon that an understanding of the concept of time depends on one’s cultural background. Cote and Tansuhaj (1989) formulated the challenge as follows: ‘If we ask someone about their future behaviour, the respondent must have some conception of ‘future’ for their answer to be meaningful. Westerners have relatively little difficulty conceiving the ‘future’. This is not true of all cultures. Different cultures often have different perceptions about time (McGrath and Rotchford 1983). Graham (1981) identifies three general orientations toward time, linear-separable, circular-traditional, and procedural-traditional. Linear time is most similar to western perceptions of a past, present and future stretching to infinity. Time is also seen as being separable into discrete units along this line. People with a circular time orientation perceive time relative to repeated patterns such as cycles of the sun, moon and seasons. They have no perception of time stretching into the future and therefore, expect the future to be like the past. Instead they focus on the present. People with a procedural time orientation view time as being irrelevant. Behaviour is activity driven rather than time driven.

  55. 55.

    Available at http://www.nature.com/news/working-together-a-call-for-inclusive-conservation-1.16260.

  56. 56.

    One might claim that the climate change discourse split the climate change community in two ‘discourse coalitions’ (Hajer 1995) in the 1990 and 2000s: one is alarmistic, proclaiming a climate crisis, dramatic ecological consequences, the collapse of civilization (e.g. Brown 2009, 2011) and the need for immediate, hierarchical and strong mitigation action (e.g. by limiting consumption and building wind turbines). Originally, this discourse was promoted by climatologists, NGOs, but increasingly main stream institutions like the OECD, IMF, the UNFCCC and the World Bank are promoting this discourse. The other discourse coalition is focused on energy, economic rationality, and development space (e.g. industry and self-proclaimed ‘experts’ like Lomborg).

  57. 57.

    Noell-Neuman’s theory of the ‘spiral of silence’ (1984) suggests that those who perceive themselves to be in a minority will refrain from voicing their perspective.

  58. 58.

    Ideological amplification is psychological behaviour that occurs when people with similar views engage and subsequently develop their views to a further extreme. It can unify and solidify the group, and move the group to excessive positions that none of the members individually would likely have reached on their own.

  59. 59.

    In social psychology, group polarization refers to the tendency for groups to make decisions that are more extreme than the initial inclination of its members.

  60. 60.

    Annex 26 discusses the trade-offs between different governance arrangements in terms of input and output legitimacy further.

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Monkelbaan, J. (2019). Governance Pillars and Competences: Power, Knowledge and Norms as Cross-Cutting Issues in Governance for the SDGs. In: Governance for the Sustainable Development Goals. Sustainable Development Goals Series. Springer, Singapore. https://doi.org/10.1007/978-981-13-0475-0_5

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