Abstract
The poor performance of biodiversity institutions has prompted calls for reform. Adaptive governance has been promoted as a means of supporting improved biodiversity outcomes. However, incorporating adaptive elements into biodiversity governance has been a challenge. In particular, efforts to make institutions more “adaptive” often fail to account for existing capacity and context-specific factors. Clear guidance on how to move from general, ambitious adaptive governance prescriptions to specific, context-dependent recommendations is needed. This paper demonstrates how insights from pragmatism can inform an approach for designing institutional reforms that address current shortcomings in adaptive governance approaches. This design scaffolds reform options on a platform of existing competency and institutional legacy. Informed by the results of a prior institutional diagnosis, reform development followed a three-stage process: defining plausible reform spaces; identifying reform possibilities within these spaces; and elaborating reform options. Two very different landscapes provided the case studies: (1) a highly modified agricultural landscape, where private landholders are responsible for managing biodiversity as a public good; (2) a group of national parks, where the state holds primary responsibility. The reforms in the agricultural landscape build on successful landholder and organizational efforts to self-organize and pursue innovative solutions, while those for the protected area enable greater managerial discretion and address the challenges of working across multiple government jurisdictions. This context-driven approach draws on insights from pragmatism to provide guidance on the design of institutional reforms that meet the demands of adaptive governance in a way that is both systematic and realistic.
Similar content being viewed by others
References
Ansell, C. (2011). Pragmatist democracy: Evolutionary learning as public philosophy. New York, NY: Oxford University Press.
Ansell, C., & Gash, A. (2008). Collaborative governance in theory and practice. Journal of Public Administration Research and Theory, 18(4), 543–571. doi:10.1093/jopart/mum032
Armitage, D., de Loë, R., & Plummer, R. (2012). Environmental governance and its implications for conservation practice. Conservation Letters, 5(4), 245–255. doi:10.1111/j.1755-263X.2012.00238.x
Armitage, D., & Plummer, R. (Eds.). (2010). Adaptive capacity and environmental governance. Heidelberg: Springer.
Bardsley, D. K., & Pech, P. (2012). Defining spaces of resilience within the neoliberal paradigm: Could French land use classifications guide support for risk management within an Australian regional context? Human Ecology, 40(1), 129–143. doi:10.1007/s10745-011-9453-4
Bates, G. M. (2010). Environmental law in Australia (7th ed.). Chatswood, NSW: LexisNexis Butterworths.
Baumgartner, F. R., Jones, B. D., & Mortensen, P. B. (2014). Punctuated-equilibrium theory: explaining stability and change in public policymaking. In P. A. Sabatier & C. Weible (Eds.), Theories of the policy process (pp. 59–104). Boulder, CA: Westview Press.
Behn, R. D. (2001). Rethinking democratic accountability. Washington, DC: Brookings Institution Press.
Bennett, A. F., Haslem, A., Cheal, D. C., Clarke, M. F., Jones, R. N., Koehn, J. D., et al. (2009). Ecological processes: a key element in strategies for nature conservation. Ecological Management and Restoration, 10(3), 192–199. doi:10.1111/j.1442-8903.2009.00489.x
Benson, M. H. (2012). Intelligent tinkering: The endangered species act and resilience. Ecology and Society, 17(4), 28. doi:10.5751/es-05116-170428
Berman, R., Quinn, C., & Paavola, J. (2012). The role of institutions in the transformation of coping capacity to sustainable adaptive capacity. Environmental Development, 2, 86–100. doi:10.1016/j.envdev.2012.03.017
Borrini-Feyerabend, G., Dudley, N., Jaeger, T., Lassen, B., Broome, N. P., & Phillips, A. (2013). Governance of protected areas: From understanding to action. Gland: IUCN.
Boyd, E., & Folke, C. (Eds.). (2011). Adapting institutions: Governance, complexity and social-ecological resilience. Cambridge: Cambridge University Press.
Brennan, A. (2004). Biodiversity and agricultural landscapes: Can the wicked policy problems be solved? Pacific Conservation Biology, 10(2), 124–142.
Brenner, J. C., & Davis, J. G. (2012). Transboundary conservation across scales: A world-regional inventory and a local case study from the United States–Mexico border. Journal of the Southwest, 54(3), 499–519.
Brunner, R. D. (2010). Adaptive governance as a reform strategy. Policy Sciences, 43(4), 301–341. doi:10.1007/s11077-010-9117-z
Burch, S., Berry, P., & Sanders, M. (2014). Embedding climate change adaptation in biodiversity conservation: A case study of England. Environmental Science & Policy, 37, 79–90. doi:10.1016/j.envsci.2013.08.014
Butchart, S. H. M., Walpole, M., Collen, B., van Strien, A., Scharlemann, J. P. W., Almond, R. E. A., et al. (2010). Global biodiversity: Indicators of recent declines. Science, 328(5982), 1164–1168. doi:10.1126/science.1187512
Campbell, J. L. (2004). Institutional change and globalization. Princeton, NJ: Princeton University Press.
Campbell, J. L. (2010). Institutional reproduction and change. In G. Morgan, J. L. Campbell, C. Crouch, O. K. Pedersen, & R. Whitley (Eds.), The Oxford handbook of comparative institutional analysis (electronic resource) (p. 707). Oxford: Oxford University Press.
Cardinale, B. J., Daily, G. C., Duffy, J. E., Gonzalez, A., Grace, J. B., Hooper, D. U., et al. (2012). Biodiversity loss and its impact on humanity. Nature, 486, 59–67. doi:10.1038/nature11148
Chaffin, B. C., Gosnell, H., & Cosens, B. A. (2014). A decade of adaptive governance scholarship: Synthesis and future directions. Ecology and Society, 19(3), 56. doi:10.5751/ES-06824-190356
Chapin, F. S, I. I. I., Mark, A. F., Mitchell, R. A., & Dickinson, K. J. (2012). Design principles for social-ecological transformation toward sustainability: Lessons from New Zealand sense of place. Ecosphere, 3(5), 40. doi:10.1890/ES12-00009.1
Cleaver, F. (2012). Development through bricolage: Rethinking institutions for natural resource management. London: Routledge.
Clement, S., Moore, S. A., Lockwood, M., & Mitchell, M. (2015a). Understanding and designing fit-for-purpose institutions for conserving biodiversity in the Australian Alps. Hobart, TAS: Landscapes and policy hub. Retrieved from http://www.lifeatlarge.edu.au/__data/assets/pdf_file/0007/653506/Alps-Institutional-Analysis.pdf.
Clement, S., Moore, S. A., Lockwood, M., & Mitchell, M. (2015b). Understanding and designing fit-for-purpose institutions for conserving biodiversity in the Tasmanian Midlands. Hobart, TAS: Landscapes and policy hub. Retrieved from http://www.lifeatlarge.edu.au/__data/assets/pdf_file/0020/653510/Midlands-Institutional-Analysis.pdf.
Connell, D., & Grafton, R. Q. (Eds.). (2011). Basin futures: Water reform in the Murray–Darling basin. Canberra, ACT: ANU E Press.
Cote, M., & Nightingale, A. J. (2012). Resilience thinking meets social theory: Situating social change in socio-ecological systems (SES) research. Progress in Human Geography, 36(4), 475–489. doi:10.1177/0309132511425708
Cox, M., & Ross, J. M. (2011). Robustness and vulnerability of community irrigation systems: The case of the Taos valley acequias. Journal of Environmental Economics and Management, 61(3), 254–266. doi:10.1016/j.jeem.2010.10.004
Crabb, P., & Dovers, S. (2007). Managing natural resources across jurisdictions: Lessons from the Australian Alps. Australasian Journal of Environmental Management, 14(4), 210–219. doi:10.1080/14486563.2007.10648719
Creswell, J. W. (2013). Qualitative inquiry and research design: Choosing among five approaches (3rd ed.). Thousand Oaks, CA: Sage Publications.
Curtis, A. L., & Lefroy, E. C. (2010). Beyond threat- and asset-based approaches to natural resource management in Australia. Australasian Journal of Environmental Management, 17(3), 134–141. doi:10.1080/14486563.2010.9725260
Davis, S. D., Heywood, V. H., & Hamilton, A. C. (Eds.). (1994). Centres of plant diversity: A guide and strategy for their conservation (Vol. 2). Cambridge: WWF and IUCN.
de Sainte Marie, C. (2014). Rethinking agri-environmental schemes. A result-oriented approach to the management of species-rich grasslands in France. Journal of Environmental Planning and Management, 57(5), 704–719. doi:10.1080/09640568.2013.763772
Department of the Environment (2009) Biodiversity hotspots. http://www.environment.gov.au/biodiversity/conservation/hotspots/national-biodiversity-hotspots. Accessed 11 April 2012.
Dietz, T., Ostrom, E., & Stern, P. C. (2003). The struggle to govern the commons. Science, 302(5652), 1907–1912. doi:10.1126/science.1091015
Djelic, M.-L., & Quack, S. (2007). Overcoming path dependency: path generation in open systems. Theory and Society, 36(2), 161–186. doi:10.2307/4501783
Doremus, H. (2003). A policy portfolio approach to biodiversity protection on private lands. Environmental Science & Policy, 6(3), 217–232. doi:10.1016/S1462-9011(03)00036-4
DPIPWE (2013). Protected areas on private land program. http://www.dpiw.tas.gov.au/inter.nsf/WebPages/DRAR-7T8VB6. Accessed 28 June 2013.
Dudley, N. (2008). Guidelines for applying protected area management categories. Gland: IUCN.
Dupraz, P., & Rainelli, P. (2004). Institutional approaches to sustain rural landscapes in France. In F. Brouwer (Ed.), Sustaining agriculture and the rural environment: Governance, policy, and multifunctionality (pp. 162–182). Cheltenham: Edward Elgar.
Eagles, P. F. J. (2009). Governance of recreation and tourism partnerships in parks and protected areas. Journal of Sustainable Tourism, 17(2), 231–248. doi:10.1080/09669580802495725
Earl, G., Curtis, A., & Allan, C. (2010). Towards a duty of care for biodiversity. Environmental Management, 45(4), 682–696. doi:10.1007/s00267-010-9444-z
Ebrahim, A. (2005). Accountability myopia: Losing sight of organizational learning. Nonprofit and Voluntary Sector Quarterly, 34(1), 56–87. doi:10.1177/0899764004269430
Emerton, L., Bishop, J., & Thomas, L. (2006). Sustainable financing of protected areas: A global review of challenges and options (Vol. 13). Gland: IUCN.
Evans, L. S., Ban, N. C., Schoon, M., & Nenadovic, M. (2014). Keeping the ‘Great’ in the Great Barrier Reef: large-scale governance of the Great Barrier Reef Marine Park. International Journal of the Commons, 8(2), 396–427 https://www.thecommonsjournal.org/index.php/ijc/article/view/405
Fitzsimons, J., Pulsford, I., & Wescott, G. (Eds.). (2013). Linking Australia’s landscapes: Lessons and opportunities from large-scale conservation networks. Collingwood, VIC: CSIRO Publishing.
Folke, C., Hahn, T., Olsson, P., & Norberg, J. (2005). Adaptive governance of social-ecological systems. Annual Review of Environment and Resources, 30(1), 441–473. doi:10.1146/annurev.energy.30.050504.144511
Fung, A. (2004). Empowered participation: Reinventing urban democracy. Princeton, NJ: Princeton University Press.
Galaz, V., Olsson, P., Hahn, T., Folke, C., & Svedin, U. (2008). The problem of fit among biophysical systems, environmental and resource regimes, and broader governance systems: Insights and emerging challenges. In O. Young, L. A. King, & H. Schroeder (Eds.), Institutions and environmental change: Principal findings, applications, and research frontiers (pp. 147–182). Cambridge, MA: MIT Press.
Gonthier, D. J., Ennis, K. K., Farinas, S., Hsieh, H.-Y., Iverson, A. L., Batáry, P., et al. (2014). Biodiversity conservation in agriculture requires a multi-scale approach. Proceedings of the Royal Society of London B: Biological Sciences, 281(1791), 20141358. doi:10.1098/rspb.2014.1358
Goodin, R. E. (Ed.). (1996). The theory of institutional design. Cambridge: Cambridge University Press.
Hill, R., Halamish, E., Gordon, I. J., & Clark, M. (2013). The maturation of biodiversity as a global social-ecological issue and implications for future biodiversity science and policy. Futures, 46, 41–49. doi:10.1016/j.futures.2012.10.002
Hobbs, R. J., Higgs, E. S., & Hall, C. M. (Eds.). (2013). Novel ecosystems: Intervening in the new ecological world order. Chichester: Wiley-Blackwell.
Hollingsworth, J. R. (2000). Doing institutional analysis: Implications for the study of innovations. Review of International Political Economy, 7(4), 595–644. doi:10.1080/096922900750034563
Imperial, M. T. (2005). Using collaboration as a governance strategy: Lessons from six watershed management programs. Administration and Society, 37(3), 281–320. doi:10.1177/0095399705276111
Kaljonen, M. (2008). Bringing back the lost biotopes: The practice of regional biodiversity management planning in Finland. Journal of Environmental Policy & Planning, 10(2), 113–132. doi:10.1080/15239080801928394
Lebel, L., Anderies, J. M., Campbell, B., Folke, C., Hatfield-Dodds, S., Hughes, T. P., et al. (2006). Governance and the capacity to manage resilience in regional social-ecological systems. Ecology and Society, 11(1), 19. http://www.ecologyandsociety.org/vol11/iss1/art19/
Lebel, L., Nikitina, E., Pahl-Wostl, C., & Knieper, C. (2013). Institutional fit and river basin governance: A new approach using multiple composite measures. Ecology and Society,. doi:10.5751/es-05097-180101
Lehmann, P., Schleyer, C., Wätzold, F., & Wüstemann, H. (2009). Promoting of agriculture: An economic analysis of new approaches in Germany. Journal of Environmental Policy & Planning, 11(4), 315–332. doi:10.1080/15239080903033879
Lindblom, C. E. (1990). Inquiry and change: The troubled attempt to understand and shape society. New Haven, CT: Yale University Press.
Lockie, S., & Higgins, V. (2007). Roll-out neoliberalism and hybrid practices of regulation in Australian agri-environmental governance. Journal of Rural Studies, 23(1), 1–11. doi:10.1016/j.jrurstud.2006.09.011
Lockwood, M. (2010). Good governance for terrestrial protected areas: A framework, principles and performance outcomes. Journal of Environmental Management, 91(3), 754–766. doi:10.1016/j.jenvman.2009.10.005
Lockwood, M., & Davidson, J. (2010). Environmental governance and the hybrid regime of Australian natural resource management. Geoforum, 41(3), 388–398. doi:10.1016/j.geoforum.2009.12.001
Lockwood, M., Mitchell, M., Moore, S. A., & Clement, S. (2014). Biodiversity governance and social-ecological system dynamics: Transformation in the Australian Alps. Ecol Soc, 19(2), 13. doi:10.5751/ES-06393-190213
Mahoney, J., & Thelen, K. (2010). Explaining institutional change: Ambiguity, agency, and power. New York, NY: Cambridge University Press.
Matthews, R., & Sydneysmith, R. (2010). Adaptive capacity as a dynamic institutional process: Conceptual perspectives and their application. In D. Armitage & R. Plummer (Eds.), Adaptive capacity and environmental governance (pp. 223–242). Heidelberg: Springer.
Minichiello, V. (1995). In-depth interviewing: Principles, techniques, analysis (2nd ed.). Melbourne, VIC: Longman.
Mitchell, M., Lockwood, M., Moore, S. A., & Clement, S. (2014). Incorporating governance influences into social-ecological system models: A case study involving biodiversity conservation. Journal of Environmental Planning and Management. doi:10.1080/09640568.2014.967387.
Mitchell, M., Lockwood, M., Moore, S. A., & Clement, S. (2015). Scenario analysis for biodiversity conservation: A social–ecological system approach in the Australian Alps. Journal of Environmental Management, 150, 69–80. doi:10.1016/j.jenvman.2014.11.013.
Nelson, D. R., Adger, W. N., & Brown, K. (2007). Adaptation to environmental change: Contributions of a resilience framework. Annual Review of Environment and Resources, 32(1), 395–419. doi:10.1146/annurev.energy.32.051807.090348
North, D. C. (1990). Institutions, institutional change, and economic performance. Cambridge: Cambridge University Press.
O’Farrell, P. J., & Anderson, P. M. L. (2010). Sustainable multifunctional landscapes: A review to implementation. Current Opinion in Environmental Sustainability, 2(1–2), 59–65. doi:10.1016/j.cosust.2010.02.005
Ojha, H. R., Hall, A., & Rasheed, S. V. (Eds.). (2013). Adaptive collaborative approaches in natural resource governance: Rethinking participation, learning and innovation. New York: Routledge.
Olsson, P., Folke, C., & Hughes, T. P. (2008). Navigating the transition to ecosystem-based management of the Great Barrier Reef, Australia. Proceedings of the National Academy of Sciences, 105(28), 9489–9494. doi:10.1073/pnas.0706905105
Olsson, P., Gunderson, L. H., Carpenter, S. R., Ryan, P., Lebel, L., Folke, C., et al. (2006). Shooting the rapids: Navigating transitions to adaptive governance of social-ecological systems. Ecology and Society, 11(1), 18. http://www.ecologyandsociety.org/vol11/iss1/art18/
Ostrom, E. (2009). A general framework for analyzing sustainability of social-ecological systems. Science, 325(5939), 419–422. doi:10.1126/science.1172133
O’Toole, L. J., & Meier, K. J. (2011). Public management: Organizations, governance, and performance. Cambridge: Cambridge University Press.
Paavola, J., Gouldson, A., & Kluvánková-Oravská, T. (2009). Interplay of actors, scales, frameworks and regimes in the governance of biodiversity. Environmental Policy and Governance, 19(3), 148–158. doi:10.1002/eet.505
Pacheco, D. F., York, J. G., Dean, T. J., & Sarasvathy, S. D. (2010). The coevolution of institutional entrepreneurship: A tale of two theories. Journal of Management, 36(4), 974–1010. doi:10.1177/0149206309360280
Pasari, J. R., Levi, T., Zavaleta, E. S., & Tilman, D. (2013). Several scales of biodiversity affect ecosystem multifunctionality. Proceedings of the National Academy of Sciences, 110(25), 10219–10222. doi:10.1073/pnas.1220333110
Powell, W. W., & DiMaggio, P. J. (1991). The new institutionalism in organizational analysis. Chicago, IL: University of Chicago Press.
Reyers, B., O’Farrell, P. J., Nel, J. L., & Wilson, K. (2012). Expanding the conservation toolbox: Conservation planning of multifunctional landscapes. Landscape Ecology, 27(8), 1121–1134. doi:10.1007/s10980-012-9761-0
Rickards, L., Wiseman, J., Edwards, T., & Biggs, C. (2014). The problem of fit: Scenario planning and climate change adaptation in the public sector. Environment and Planning C: Government and Policy, 32(4), 641–662. doi:10.1068/c12106
Rijke, J., Brown, R., Zevenbergen, C., Ashley, R., Farrelly, M., Morison, P., et al. (2012). Fit-for-purpose governance: A framework to make adaptive governance operational. Environmental Science & Policy, 22, 73–84. doi:10.1016/j.envsci.2012.06.010
Ring, I. (2008). Biodiversity governance: Adjusting local costs and global benefits. In T. Sikor (Ed.), Public and private in natural resource governance: A false dichotomy? (pp. 107–126). London: Earthscan.
Sabel, C. F., & Zeitlin, J. (Eds.). (2010). Experimentalist governance in the European Union: Towards a new architecture. Oxford: Oxford University Press.
Salamon, S. D., & Robinson, S. L. (2008). Trust that binds: The impact of collective felt trust on organizational performance. Journal of Applied Psychology, 93(3), 593–601. doi:10.1037/0021-9010.93.3.593
Sattler, P., & Creighton, C. (2002). Australian terrestrial biodiversity assessment 2002. Canberra, ACT: National Land and Water Resources Audit, Land & Water Australia.
Sayre, N. F. (2005). Working wilderness: The Malpai Borderlands Group and the future of the western range. Tuscon, AZ: Rio Nuevo Publishers.
Schoon, M. (2013). Governance in transboundary conservation: How institutional structure and path dependence matter. Conservation and Society, 11(3), 420–428. doi:10.4103/0972-4923.125758
Scott, W. R. (2014). Institutions and organizations: Ideas, interests, and identities (4th ed.). Thousand Oaks, CA: Sage.
Selznick, P. (2002). The communitarian persuasion. Washington, DC: Woodrow Wilson Center Press.
Steele, W., Sporne, I., Dale, P., Shearer, S., Singh-Peterson, L., Serrao-Neumann, S., et al. (2013). Learning from cross-border arrangements to support climate change adaptation in Australia. Journal of Environmental Planning and Management, 57(5), 682–703. doi:10.1080/09640568.2013.763771
Stewart, D. W., Shamdasani, P. N., & Rook, D. W. (2007). Focus groups. Thousand Oaks, CA: Sage.
Termeer, C. J. A. M., & van den Brink, M. A. (2012). Organizational conditions for dealing with the unknown unknown. Public Management Review, 15(1), 43–62. doi:10.1080/14719037.2012.664014
Thelen, K. (1999). Historical institutionalism in comparative politics. Annual Review of Political Science, 2(1), 369–404. doi:10.1146/annurev.polisci.2.1.369
Thomas, C. W. (2003). Bureaucratic landscapes: Interagency cooperation and the preservation of biodiversity. Cambridge, MA: MIT Press.
Torfing, J., Peters, B. G., Pierre, J., & Sørensen, E. (2012). Interactive governance: Advancing the paradigm. Oxford: Oxford University Press.
Van Huylenbroeck, G., & Durand, G. (2003). Multifunctionality agriculture: A new paradigm for European agriculture and rural development. Hampshire: Ashgate.
Virji, H., Padgham, J., & Seipt, C. (2012). Capacity building to support knowledge systems for resilient development: Approaches, actions, and needs. Current Opinion in Environmental Sustainability, 4(1), 115–121. doi:10.1016/j.cosust.2012.01.005
Voß, J., & Bornemann, B. (2011). The politics of reflexive governance: challenges for designing adaptive management and transition management. Ecology and Society, 16(2), 9. http://www.ecologyandsociety.org/vol16/iss2/art9/
Westley, F., Olsson, P., Folke, C., Homer-Dixon, T., Vredenburg, H., Loorbach, D., et al. (2011). Tipping toward sustainability: Emerging pathways of transformation. Ambio, 40(7), 762–780. doi:10.1007/s13280-011-0186-9
Wolfson, D. J. (2012). Situational contracting: Building reciprocity between rights and obligations. Governance, 25(4), 661–685. doi:10.1111/j.1468-0491.2012.01595.x
Wyborn, C. A. (2015). Connecting knowledge with action through coproductive capacities: Adaptive governance and connectivity conservation. Ecology and Society, 20(1), 11. doi:10.5751/ES-06510-200111
Yin, R. K. (2009). Case study research: Design and methods. Thousand Oaks, CA: Sage.
York, A., & Schoon, M. (2011). Collaboration in the shadow of the wall: Shifting power in the borderlands. Policy Sciences, 44(4), 345–365. doi:10.1007/s11077-011-9138-2
Young, O. R. (2008). Building regimes for socioecological systems: Institutional diagnostics. In O. R. Young, L. A. King, & H. Schroeder (Eds.), Institutions and environmental change: Principal findings, applications, and research frontiers (pp. 115–144). Cambridge, MA: MIT Press.
Young, O. R. (2013). Sugaring off: enduring insights from long-term research on environmental governance. International Environmental Agreements: Politics, Law and Economics, 13(1), 87–105. doi:10.1007/s10784-012-9204-z
Acknowledgments
This research is an output from the Landscapes and Policy Research Hub. The hub is supported through funding from the Australian Government’s National Environmental Research Program and involves researchers from the University of Tasmania (UTAS), The Australian National University (ANU), Murdoch University, the Antarctic Climate and Ecosystems Cooperative Research Centre (ACE CRC), Griffith University, and Charles Sturt University (CSU).
Author information
Authors and Affiliations
Corresponding author
Rights and permissions
About this article
Cite this article
Clement, S., Moore, S.A., Lockwood, M. et al. Using insights from pragmatism to develop reforms that strengthen institutional competence for conserving biodiversity. Policy Sci 48, 463–489 (2015). https://doi.org/10.1007/s11077-015-9222-0
Published:
Issue Date:
DOI: https://doi.org/10.1007/s11077-015-9222-0