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Knowledge leads, policy follows? The Two Speeds of Collaboration in IRBM

Knowledge leads, policy follows? The Two Speeds of Collaboration in IRBM. Ellen Pfeiffer, Jan Leentvaar. 30 May 2013. Content. The case: Rhine Action Programme 1986-2000 A phenomenological take on the Rhine regime Institutional dynamics and cross-level interplay

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Knowledge leads, policy follows? The Two Speeds of Collaboration in IRBM

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  1. Knowledge leads, policy follows? • The Two Speeds of Collaboration in IRBM Ellen Pfeiffer, Jan Leentvaar 30 May 2013

  2. Content • The case: Rhine Action Programme 1986-2000 • A phenomenological take on the Rhine regime • Institutional dynamics and cross-level interplay • Implications for Capacity Development

  3. Purpose of 5th Symposium The Rhine river • Europe‘s most economically important river • Oneof 19 worldwideriverswithmorethan 5 basin countries • Transboundary collaboration on navigationstarted 1815 • Massive pollutionproblems: Rhine called „open sewer“ already in 1901

  4. Purpose of 5th Symposium The Case: International Commission for the Protection of the Rhine (ICPR) – Rhine Action Programme (RAP) • 1950: ICPR founded, formal treaty 1963 • For decades: joint research, but conflict and diplomatic deadlock over treaties for Chloride and Chemical Pollution • 1986: Environmental Disaster – Fire at Sandoz, Switzerland • 1987: Rhine Action Programme adopted •  A “new era” of successful collaboration starts

  5. Purpose of 5th Symposium Success Story RAP – Example Chloride Pollution

  6. Purpose of 5th Symposium Iconic goal of the RAP: Return Salmon to the Rhine Original Salmon Population Adult salmon confirmed

  7. Purpose of 5th Symposium What made the RAP so successful? • Non-binding agreement, but water quality improved massively • Knowledge and trust seen as core contributors to success • But mechanisms of the process little understood • Which factor led the process: • Knowledge and learning or political will?

  8. Purpose of 5th Symposium Many toolboxes based on such case examples  Do wereallyknowwhatmakesbestpractice?

  9. Purpose of 5th Symposium The Problem: A ‘Black Box’ take on IRBM „The Regime“ Research Cluster 1: Regime Development Research Cluster 2: Impact Assessments

  10. Purpose of 5th Symposium A phenomenological take on the Rhine regime • Regimes ‘happen’ in social encounters • Experiences and interpretations are ‘facts’ • Detailed accounts by actors needed • Multiple theoretical approaches • to triangulate best explanation •  Pilot study to test method

  11. Purpose of 5th Symposium Interviews Pilot Study

  12. Purpose of 5th Symposium Results: Identity, learning, leadership & trust • Exceptional levels of personal identification • Working groups unconsciously produced informal knowledge needed to facilitate better collaboration at the strategic level • Working group leadership is crucial for the quality of outcomes • High value of scientific output in working groups depended on building trust

  13. Purpose of 5th Symposium Analysis I: ‘classic’ international relations theory • “New spirit” coincided with systemic disruption of environmental policy in Europe • “Ambitious goals” mirror existing treaties • “Gentlemen’s agreement” is the norm in river basin management • National Identities very visible in the process • The “European Experience” is not an exception • Power- and interest-based theories expect regime transformation

  14. Purpose of 5th Symposium Analysis II: Epistemic Communities • Formation of an epistemic community in the ICPR at the time • It included some working groups and actors at the strategic level • Strong influence on process design of European Water policy • Knowledge leadership for many water quality questions • But late to integrate ecological considerations •  Effect of strong knowledge-based communities ambiguous

  15. Purpose of 5th Symposium Analysis III: Institutional Bargaining • Dynamics show all characteristics of institutional bargaining • Results suggest that working group formed a separate scale-dependent regime at the time • Internal dynamics resemble cross-level interplay • Working groups might form sub-regimes • Formation is a separate process for each new group • ICPR outcomes might by shaped by interplay dynamics

  16. Purpose of 5th Symposium River basin organizations: A portfolio?

  17. Purpose of 5th Symposium Implications for Capacity Development • IRBM more portfolio managment than process management? • Would require more entrepreneurial leadership • Are epistemic communities in working groups desirable? • Might support or obstruct a collective response to crises • Is cross-level interplay within a regime desirable? • Strong ‘sub regimes’ can both lead and block innovation •  Not all ‘knowledge’ capacity is unambiguously good for IRBM

  18. Purpose of 5th Symposium Thankyouforyourattention. Contact details Ellen Pfeiffer Independent Researcher mail@ellen-pfeiffer.de

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