Knowledge and Perceptions in Participatory Policy Processes: Lessons from the Delta-Region in the Netherlands

Abstract

Water resources management issues tend to affect a variety of uses and users. Therefore, they often exhibit complex and unstructured problems. The complex, unstructured nature of these problems originates from uncertain knowledge and from the existence of divergent perceptions among various actors. Consequently, dealing with these problems is not just a knowledge problem; it is a problem of ambiguity too. This paper focuses on a complex, unstructured water resources management issue, the sustainable development-for ecology, economy and society-of the Delta-region of the Netherlands. In several areas in this region the ecological quality decreased due to hydraulic constructions for storm water safety, the Delta Works. To improve the ecological quality, the Dutch government regards the reestablishment of estuarine dynamics in the area as the most important solution. However, re-establishment of estuarine dynamics will affect other uses and other users. Among the affected users are farmers in the surrounding areas, who use freshwater from a lake for agricultural purposes. This problem has been addressed in a participatory decision-making process, which is used as a case study in this paper. We investigate how the dynamics in actors' perceptions and the knowledge base contribute to the development of agreed upon and valid knowledge about the problemsolution combination, using our conceptual framework for problem structuring. We found that different knowledge sources-expert and practical knowledge-should be integrated to create a context-specific knowledge base, which is scientifically valid and socially robust. Furthermore, we conclude that for the convergence of actors' perceptions, it is essential that actors learn about the content of the process (cognitive learning) and about the network in which they are involved (strategic learning). Our findings form a plea for practitioners in water resources management to adopt a problem structuring approach in order to deal explicitly with uncertainty and ambiguity.

Stakeholder participation in the distribution of freshwater in the Netherlands

“…These are problems for which knowledge is uncertain and perceptions of stakeholders involved are diverging and sometimes conflicting (Hommes et al 2009b). Perceptions encompass ideas about facts, interests, norms and values, regarding their environment and the problems and opportunities within it (Koppenjan and Klijn 2004;Schön and Rein 1994).…”

“…The aim of problem-structuring is that stakeholders develop-through communication and interaction-a joint formulation of the problem and its solutions, i.e. a problem-solution combination (Hommes et al 2009b). Ideally, this problem-solution is based on 'negotiated knowledge', i.e.…”

“…Cognitive learning refers to stakeholders' increased knowledge and insight about the nature, causes and effects of the problem, possible problem-solution combinations, and their consequences. Strategic learning refers to stakeholders' increased awareness about the involvement of other parties and mutual dependencies (Hommes et al 2009b;Koppenjan and Klijn 2004). Furthermore, the created knowledge base needs to be context-specific.…”

“…The problems addressed in such processes are typically characterized by uncertainty, complexity and disagreement (Kolkman et al 2005). Such complex, unstructured problems benefit from a problemstructuring or learning-oriented approach (Hisschemöller 2005;Hommes et al 2009b). Problem-structuring refers to "one or multiple rounds of interaction in which actors actively participate in the formulation of a problem and its solutions" (Hommes et al 2009b).…”

“…Such complex, unstructured problems benefit from a problemstructuring or learning-oriented approach (Hisschemöller 2005;Hommes et al 2009b). Problem-structuring refers to "one or multiple rounds of interaction in which actors actively participate in the formulation of a problem and its solutions" (Hommes et al 2009b). This paper presents two case studies, which are both part of a fundamental discussion about the distribution of freshwater in the southwestern Delta in the Netherlands.…”