Karen Vella

A method for risk analysis across governance systems: a Great Barrier Reef case study

Healthy governance systems are key to delivering sound environmental management outcomes from global to local scales. There are, however, surprisingly few risk assessment methods that can pinpoint those domains and sub-domains within governance systems that are most likely to influence good environmental outcomes at any particular scale, or those if absent or dysfunctional, most likely to prevent effective environmental management. This paper proposes a new risk assessment method for analysing governance systems. This method is then tested through its preliminary application to a significant real-world context: governance as it relates to the health of Australias Great Barrier Reef (GBR). The GBR exists at a supra-regional scale along most of the north eastern coast of Australia. Brodie et al (2012 Mar. Pollut. Bull. 65 81-100) have recently reviewed the state and trend of the health of the GBR, finding that overall trends remain of significant concern. At the same time, official international concern over the governance of the reef has recently been signalled globally by the International Union for the Conservation of Nature (IUCN). These environmental and political contexts make the GBR an ideal candidate for use in testing and reviewing the application of improved tools for governance risk assessment.

Twenty years of pacifying responses to environmental management

Using a state, pressure, response framework, we provide an evidence-based reflection on environmental outcomes in Australia and New Zealand across the domains of climate change, biodiversity, freshwater and marine management, emphasising the role of Indigenous and business perspectives. Significant developments have occurred in the past 20 years through affirmation of Indigenous rights and responsibilities. Responses to climate change have tended to emphasise passive risk management with unclear outcomes. Despite meeting biodiversity protection targets, outcomes are worsening, suggesting a need to challenge the dualistic preservation/production land categorisations. In freshwater and marine management, a mix of collaborative and market-based responses has emerged, although their efficacy remains untested. A reliance on voluntary approaches by business makes critical assessment of progress difficult. Thus, despite strong progress in some areas, the adaptiveness of environmental management remains limited, and many indicators suggest continuing decline in environmental condition. Our responses have been largely pacifying in nature, leading to perverse outcomes and failure to acknowledge alternatives that might address deteriorating environmental conditions. A shift is needed towards deliberative policy experimentation that truly values the application of novel and diversified approaches and facilitates integrated learning across environmental domains.

Carbon, biodiversity and regional natural resource planning: towards high impact next generation plans

Given the increased importance of adaptation debates in global climate negotiations, pressure to achieve biodiversity, food and water security through managed landscape-scale adaptation will likely increase across the globe over the coming decade. In parallel, emerging market-based, terrestrial greenhouse gas abatement programs present a real opportunity to secure such adaptation to climate change through enhanced landscape resilience. Australia has an opportunity to take advantage of such programs through regional planning aspects of its governance arrangements for NRM. This paper explores necessary reforms to Australias regional NRM planning systems to ensure that they will be better able to direct the nations emerging GGA programs to secure enhanced landscape adaptation.

Evaluating Governance Arrangements and Decision Making for Natural Resource Management Planning: An Empirical Application of the Governance Systems Analysis Framework

ABSTRACT Governance continues to be a challenge in the management and conservation of natural resources. It is difficult to strategically address governance challenges without understanding the dynamics, capacities, and knowledge application of institutions within such governance systems. This article examines the use of Governance Systems Analysis (GSA) to compare, evaluate, and benchmark governance arrangements for regional natural resource management (NRM) planning. It is applied in two Australian regional NRM case studies in Cape York and the Wet Tropics. Our analysis of governance arrangements for NRM planning in the two regions finds that while they are structurally and functionally similar, they have different capacities for decision making about planning. The article concludes with a discussion of the usefulness and implications of using the GSA as an evaluative framework to analyze governance in regional NRM planning systems.

Not Learning from the Past: Adaptive Governance Challenges for Australian Natural Resource Management

Australia’s governance arrangements for NRM have evolved considerably over the last thirty years. The impact of changes in governance on NRM planning and delivery requires assessment. We undertake a multi-method program evaluation using adaptive governance principles as an analytical frame and apply this to Queensland to assess the impacts of governance change on NRM planning and governance outcomes. Data to inform our analysis includes: 1) a systematic review of sixteen audits/evaluations of Australian NRM over a fifteen-year period; 2) a review of Queensland’s first generation NRM Plans; and 3) outputs from a Queensland workshop on NRM planning. NRM has progressed from a bottom-up grassroots movement into a collaborative regional NRM model that has been centralised by the Australian Government. We found that while some adaptive governance challenges have been addressed, others remained unresolved. Results show that collaboration and elements of multi-level governance under the regional model were positive moves, but also that NRM arrangements contained structural deficiencies across multiple governance levels in relation to public involvement in decision-making and knowledge production for problem responsiveness. These problems for adaptive governance have been exacerbated since 2008. We conclude that the adaptive governance framework for NRM needs urgent attention so that important environmental management problems can be addressed.

Working knowledge for collaborative water planning in Australia’s Wet Tropics region

Cooperation between multiple environmental decision-makers and activities is necessary to address the impacts of diffuse sources of agricultural pollution on the water quality entering Australia’s Great Barrier Reef (GBR). Water planning efforts requires available knowledge to inform this co-operative water program implementation and reform. This paper uses knowledge sharing, translation and feedback features of collaboration as a way to assess knowledge work practices during key phases of the water planning process. This enabled a systematic review of knowledge work practices in partnership with collaborative water planning groups established to inform water quality program investment decisions in the GBR’s Wet Tropics region. This research builds on the growing academic and policy interest in the conditions required to enable different types of knowledge to be successfully used for policy-making by focusing on when, how and why knowledge work to meet these conditions is required.

Voluntary Collaboration for Adaptive Governance The Southeast Florida Regional Climate Change Compact

The Southeast Florida Regional Climate Change Compact (SFRCCC) has been highlighted as a regional climate change governance exemplar for land use planning. After six years, we find the compact has given momentum to local climate change planning through the Regional Climate Action Plan and provides a foundation for adaptive governance for climate change adaptation. We also find aspects of the compact lacking in terms of representation, decision making, learning, and problem responsiveness. Efforts are now needed to scale down implementation and scale up governance and planning more systematically to address climate change adaptation needs at multiple levels.

Relocating a Flood-Affected Community: Good Planning or Good Politics?

Problem, research strategy and findings: On January 10, 2011, the town of Grantham, Queensland (Australia), was inundated with a flash flood in which 12 of the towns 370 residents drowned. The overall damage bill in Queensland was AUD∃2.38 billion (USD∃2.4 billion) with 35 deaths, and more than three-quarters of the state was declared a flood disaster zone. In this study, we focus on the unusual and even rare decision to relocate Grantham in March 2011. The Lockyer Valley Regional Council (LVRC) acquired a 377-hectare (932-acre) site to enable a voluntary swap of equivalent-sized lots. In addition, planning regulations were set aside to streamline the relocation of a portion of the town. We review the natural hazard literature as it relates to community relocation, state and local government documents related to Grantham, and reports and newspaper articles related to the flood. We also analyze data from interviews with key stakeholders. We document the process of community relocation, assess the relocation process in Grantham against best practice, examine whether the process of community relocation can be upscaled and if the Grantham relocation is an example of good planning or good politics. Takeaway for practice: Our study reveals two key messages for practice. Community relocation (albeit a small one) is possible, and the process can be done quickly; some Grantham residents moved into their new, relocated homes in December 2012, just 11 months after the flood. Moreover, the role of existing planning regulations can be a hindrance to quick action; political leadership, particularly at the local level, is key to implementing the relocation.

Viewpoint: social and economic dimensions of involving savanna communities in carbon management systems

In this paper we discuss the social, economic and institutional aspects of the development of carbon management systems within Australias tropical savannas. Land-use values in savanna landscapes are changing as a result of changing economic markets, greater recognition of native title, and growing social demands and expectations for tourism, recreation and conservation. In addition, there is increasing interest in developing markets and policy arrangements for greenhouse gas abatement, carbon sequestration and carbon trade in savannas. We argue that for carbon management to lead to national greenhouse outcomes, attention must be paid to social, economic and institutional issues in environmental planning and policy arrangements. From an economic perspective, the financial impact of carbon management on savanna enterprises will depend on appropriate and available policy mechanisms, unit price for carbon, landscape condition, existing management strategies and abatement measurements used. Local social and cultural features of communities and regions may enhance or constrain the implementation of carbon abatement strategies, depending on how they are perceived. In terms of institutional arrangements, policies and plans must support and enable carbon management. We identify three areas that require priority investigation and adjustment: regional planning arrangements, property rights, and rules for accounting at enterprise and regional scales. We conclude that the best potential for managing for carbon will be achieved while managing for range of other natural resource management outcomes, especially where managing for carbon delivers collateral benefits to enterprises.

The Practice of Water Policy Governance Networks: An International Comparative Case Study Analysis

ABSTRACT Governments are increasingly using network governance arrangements to engage stakeholders in tackling complex water policy issues. Claims that this involves a shift from government to governance, with associated loss of state authority, are challenged by empirical literature. We draw on governmentality theory to explore the practices and power dynamics of water policy networks in six significant longitudinal case studies in Australia, the United States, and France. Though contexts differ, the analysis highlights the dynamic nature of these complex policy arenas, where governance arrangements and objectives are periodically revised in response to changing pressures. Governments clearly retain decision-making authority despite adopting more deliberative, networked approaches, and implementation remains challenging. Findings suggest that the hybrid and multiscalar nature of water policy governance warrants a more sophisticated understanding of the power dynamics and political dimensions of networked governance employed within hierarchical systems.