French version available in IDRC Digital Library: Environnement, société, économie : parties d'un ensemble

Brooks, David B.

Schnurr, Jamie

International Development Research Centre: IDRC Digital Library

1996 (April - December)      Environment, Society, and Economy: PoliciesWorking Togetherby David B. Brooks and Jamie Schnurr Viet Nam is one of many countries attempting to harmonize environmental, social, and economic policies Among Southeast Asian nations, Viet Nam is poised to join the next wave of Asian "tigers." But the headypace of economic growth has carried with it significant social and environmental stresses -- and this in acountry where four of every five persons works in agriculture, fisheries, or forestry. Rapid industrializationof these sectors, coupled with hurried urbanization as people are forced from traditional employment inrural areas, has contributed to the degradation of the natural resources that in many ways are thefoundation of Viet Nam's society and economy. Therefore, Viet Nam is now attempting to harmonize itsenvironmental, social, and economic objectives through a national environmental action plan.The Vietnamese experience is by no means unique. In no country of the world are there neat divisionsamong goals for ecological sustainability, social equity, and economic efficiency. Policies and programstargeted at each objective have impacts in more than one sector -- typically, many sectors -- at once.Nonetheless, researchers and policy makers are more likely to focus on particular problems. Although theneed for policy integration is assumed, it is often left to others to address explicitly.BARRIERSNot surprisingly, the task of integrating policy invariably faces significant barriers. Interactions amongecological, social, and economic systems create complex cause and effect relationships that are not easilyunravelled. Government agencies, corporate departments, and research and academic institutes aretypically set up according to discrete sectors and disciplines, each with its own interests (and interestgroups), virtually assuring policy segregation. Our political economy emphasizes discounting the futurevalue of human development, natural resources, and ecological processes in exchange for shorter-termeconomic development. We find ourselves short of experience in the effective application of analyticaltools and decision-making processes to identify, evaluate, and manage the necessary trade-offs amongobjectives.WHAT SORT OF INTEGRATED POLICY?One way of confronting the problem of complexity is to define the different levels at which integrationshould take place, whether this is local, regional, national, or international. Another strategy is to approachpolicy from an ecosystem perspective, such as fluvial or watershed regions, or bio-regions based onvegetation.There are varying degrees of integration. A sectoral policy that is sensitive to other sectoral policies orissues could be considered one degree of integration. Command and control forms of legislation thatrequire social and/or environmental impact assessments of development projects, or "end-of-the-pipe"abatement technology applied to industrial production systems, are more advanced forms of integration.Even deeper degrees of integration involve market-based instruments, green or socially responsibleprocurement measures, and various types of voluntary arrangements to attempt to make environmentallyand socially responsible management a priority throughout government, industry, and among citizens.Strategic environmental planning, life cycle assessment and integrated impact assessment techniques areother tools that can foster forms of deeper integration.One case study suggests that various degrees of integration can occur incrementally along a continuum. Inthis case, a series of legislated impact assessments created awareness of the environmental impacts ofbuilding hydro lines on a preselected site. The "learning" that took place during the assessments and thedesire to apply the new knowledge, eventually led to change within the utility, which instituted strategicenvironmental planning processes and self-directed assessments. In the end, new management practiceswere introduced that proactively assessed the impacts of alternate sites for its transmission lines.COORDINATION AND PARTICIPATIONIntegration of any sort requires coordination and collaboration in designing, planning, and implementingpolicy to establish clear objectives and divisions of responsibility. More advanced degrees of integrationrequire more sophisticated forms of communication, decision-making, and organizational behaviour.Mechanisms and tools such as multi-stakeholder fora and "user-friendly" information systems can providea range of people with the means for having input into policy processes. As well as contributing toinformed decision-making, the process also helps policy makers understand the socio-economic andecological context in which they work, and all stakeholders to appreciate the trade-offs entailed in a givenpolicy decision.GOVERNANCE SYSTEMSWhether multi-stakeholder processes and other forms of participation can be applied in developingcountries depends on specific political, social, and cultural conditions. Systems of "governance" that cananticipate societal responses to various integrative measures and accommodate the policy objectives of arange of stakeholders and sectors are crucial.In this perspective, governance means the inter and intra-organizational arrangements, decision-makingprocesses, incentives, and disincentives through which government and non-government actors --including civil society, the public, communities, and the private sector -- influence decisions about societalpriorities and resource allocations. It goes beyond the formal institutions of government and recognizes thesignificant role of non-governmental actors in policy formulation and implementation, particularly indeveloping countries.INTEGRATION MODELSOne model for policy integration uses a triangle whose points represent environmental, social, andeconomic objectives. This approach is useful, but it subsumes political activity under the "social" category.Political activity is the main way that any society does the integration. A tetrahedral -- or three-sidedpyramid -- model, where the upper point is politics, would include not only government as elected officialsbut also all the institutions set up by government to carry out its policies.Despite coordination and participation strategies, efforts to balance conflicting objectives often cannotavoid some degree of conflict. Success in managing conflict lies in structuring the process so that itinvolves the affected parties' representatives in the design and evolution of the process itself, as well as inthe negotiation of substantive issues.Interest-based negotiation is one example of a structured, deliberate attempt to cooperatively seek anoutcome that attempts to accommodate rather than compromise the interests of all concerned.LEARNINGIn structured multi-stakeholder and negotiation processes, learning is fostered through decision-makingguidelines, communication rules and process steps. Learning can also be fostered even when specificstructures are absent. In the case of the hydro utility discussed above, legislation, along withencouragement from management and an inter-departmental committee, prompted line departments tolearn from their experiences and develop more effective integrative tools.Learning can best be encouraged when the various parties jointly define rules for communication andnegotiation, have equal access to information, create incentives for risk taking, and allow a margin forerror. Other positive elements involve the delegation of responsibility and a willingness and ability tocapture and build on unexpected results.IDRC'S APPROACH TO POLICY INTEGRATIONIDRC has taken a dual approach to policy integration as a research question. One component isexploration and the other is "learning by doing." Among other things, the Centre has reviewed all projectsit funds under the theme of integrating environmental, social, and economic policy (INTESEP) to identifycommon threads. It has supported case studies where specific information was lacking and fundedworkshops in different regions to learn how researchers and policy makers address policy integration.ROLE OF RESEARCHThere is no longer any question that research can play a valuable role in a successful integration process.For example, research can identify policy options or alternative institutional mechanisms under differentscenarios, and analyze their advantages and disadvantages. Research can also develop the tools andtechniques for analysis and evaluation.Not surprisingly, the policy emphasis in integration varies by region or country. The focus in Africa tendsto be on impacts of macro-level economic policies on social development, whereas in Asia theenvironmental implications of economic growth are paramount.The findings also highlight challenging questions for policy integration. In what context is integrationappropriate? From a governance perspective, how should integration be managed and by whom?LESSONS LEARNEDOne key conclusion drawn from the research to date is that integration hinges on the process by which thetrade-offs inherent in any policy choice are evaluated and managed. Political institutions and policy-making processes need to have the flexibility to promote and foster integration when appropriate.Ultimately, policy integration unleashes processes whose outcomes cannot be predicted at the outset. Avariety of stakeholders may be relevant in any given context, which will affect both substance and process.As a result, inputs can arrive from diverse sources, leading to several possible outcomes, any of whichmay meet goals of equity and sustainability.David B. Brooks and Jamie Schnurr are chief scientist and research officer, respectively, for integratingenvironmental, social, and economic policy (INTESEP) at IDRC. Neale MacMillan is editor-in-chief ofIDRC Reports.Integration: a skeptic's view David Brooks discusses the problems with using integration as an analyticaltool for policy development.Unless otherwise stated, all articles and photos may be freely reproduced providing suitable credit is given.ISSN 0315-9981. This magazine is listed in the Canadian Magazine Index.Subscription informationReturn to the IDRC Reports homepageReturn to the IDRC homepage Copyright © International Development Research Centre, Ottawa, Canada Please send your comments to editor of Reports.     IDRC Reports ArchivesIDRC Reports is published by the International Development Research Centre. Its aim is to keep aninternational readership informed about the work IDRC supports in developing countries as well as otherdevelopment issues of interest. Visit the new Reports onlineAPRIL-DECEMBER 1996April 5 Bednets for malaria control by Robert BourgoingApril 12 Environment, society and economy : policies working together by David B. Brooksand Jamie SchnurrApril 12 Global action on local agenda 21 by Kirsteen MacLeodApril 19 Sustainable urban planning in Santos, Brazil by Patrick KnightApril 26 Integrated pest management for Colombian small farmers by David MowbrayMay 3 Infectious diseases : a growing global threat by John EberleeMay 10 Naturalized knowledge systems of indigenous communities by Salli M.K. BenedictMay 17 Public stake in Senegal's environmental planning by Khodia NdiayeMay 17 Environment, society and economy : policies working together by David B. Brooksand Jamie SchnurrMay 24 Cambodia : bringing sewage treatment onstream by Emilia CasellaMay 31 Community participation in planning for Jinja, Uganda by Anna BorzelloJune 7 Children's health in Ghana's North by Jason LothianJune 14 Water policy in Manila by Estrella ManiquisJune 21 Reconciling ecological, economic, and social imperatives by Pattie LaCroixJune 28 Reconstructing war-torn societies by Jennifer PepallJuly 5 Project Leader Tracer Study reviews IDRC's performance by Curt LabondJuly 12 Ecotourism in Northern Thailand by Glen HvenegaardJuly 19 Ecotourism in the Himalayas : the Nepalese experience by Elizabeth KalbfussJuly 26 New weapon in war on micronutrient deficiencies by Michael BouletAugust 2 Breeding a better bean : the horizontal resistance approach by Douglas PowellAugust 9 High maize yields offer hope for Burundi farmers by Andrew Kerand Dunstan MalithanoAugust 16 Aboriginal tourism in Venezuela : walking lightly on the land by Lauren WalkerAugust 23 Yucape Project : economic development in Mexico's Yucatán Peninsula by Chris HayesKnowledge economy and the social economy : university support for community August 23 enterprise development as a strategy for economic regeneration in distressed regions inCanada and Mexico by Greg Macleod, Bruce McFarlane and Charles H. DavisAugust 30 Map Maker simplifies cartography in the field by Curt LabondSeptember 6 Protecting Mexico's tropical forests : the Calakmul model forest programby Michael BouletSeptember 13 Teaching mixed - market economics in Havana by Roula el-RaifiSeptember 20 Road to democracy in Sub-Saharan Africa by André LachanceSeptember 27 Sustainable hillside agriculture in Colombia by Ronnie VernooyOctober 4 Assessing and monitoring sustainable development in Colombia by Rhoda MetcalfeOctober 11 Fungus fights cereal killer in Africa by Philip FineOctober 18 Levelling the playing field for international trade by Henry F. HealdOctober 25 Putting a price on indigenous knowledge by Jennifer PepallNovember 1 Lessons from Canada's tobacco war by Lauren WalkerNovember 8 Bringing tropical organic products North by Kirsten KozolankaNovember 15 Emerging southern markets fueling global economic growth by Curt LabondNovember 22 Costs of mining in Latin America by Steve HuntNovember 29 Tradition among the Gran Sabana Pemón by John EberleeDecember 6 PAN Mongolia experience by Geoff LongDecember 13 Protecting natural resources : bioaccess legislation in Laos by Richard LittlemoreDecember 20 Building one's house of adobe by André LachanceUnless otherwise stated, all articles and photos may be freely reproduced providing suitablecredit is given.ISSN 0315-9981 This magazine is listed in the Canadian Magazine Index. Copyright 2003 © International Development Research Centre, Ottawa, Canada Octubre 2003INTEGRATION: A SKEPTIC'S VIEWFor the most part, we assume integration is a good thing. We talk quite blithely about integrated ruraldevelopment or integrated river basin management. Of course, in some sense, such integration is highlydesirable. All too often, sectoral policies and programs have been implemented with little concern for, ifnot sheer ignorance of, their broader effects. However, I am less concerned with integration as a practicaltool for implementing policy than as an analytical concept for developing policy.ANALYSIS PARALYSIS?I see at least three problems with integration in analysis. First, integration tends to reduce intellectualrigour. It is a fact of life that affects all inter-disciplinary and, to a lesser extent, multi-disciplinary,research. True, academic disciplines often become straitjackets on innovative thinking. But thosedisciplines did not evolve entirely for their own sakes and they do, in the end, have some meaning. Byobscuring those boundaries, making us all into generalists, we risk achieving what one observer called"profound superficiality".Second, as we integrate across analytical lines in the logical attempt to emulate the real world, the verycomplexity of the process typically forces us to ever higher levels of abstraction. Hence, we move furtherand further from policies that can be applied to that real world.Third, and perhaps most important, I worry that by integrating analytically and deriving policies on thebasis of that integration, we are stepping beyond the role of analysts and playing politician. I am notarguing that a clear line exists between value-free analysis and value-laden politics. Rather, our mostappropriate analytical role is to present alternatives and suggest how they will work under variousscenarios, but not to propose the integration itself.David B. Brooks is the chief scientist for integrating environmental, social, and economic policy(INTESEP) at IDRC.RESOURCE PERSON:David B. Brooks, IDRC, PO Box 8500, Ottawa, ON K1G 3H9, CANADA; E-mail: dbrooks@idrc.ca Copyright © International Development Research Centre, Ottawa, Canada Please send your comments to editor of Reports. 

Environment, society and economy : policies working together

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Environment, society and economy : policies working together

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