Power,Par)cipa)onandMSP
WesleyFlanneryQueen’sUniversityBelfastEmail:[email protected]:@WesleyFlannery
AwordaboutPower
• AhaspoweroverBtotheextentthatAcangetBtodowhatheotherwisewouldnotdo
• PowertoandPowerover• Poweraswielded• Foucaultarguesthatpowerisnotwielded...
Really?
Overview
• WhyMSP?AndMSPasa‘raBonal’process• MSPasanextendedprocess• AbriefintroducBontopower• Examplesofpower,parBcipaBon,exclusioninMSP
• Wayforward
MarineManagement:AspaBalturnThreeinterrelatedissues:1. IncreasingindustrialisaBonofmarineareas.
2. Increasingconflictamongstmarineusers.
3. IncreasedcumulaBvepressuresonmarineecosystems.
ArisingfromFragmentedandSectoralgovernance.
GovernanceIssuesTheIrishSea NorthSea
Source:AMPMER,2004 Source:Maesetal.,2005
Fishing
Rene
wableEne
rgy
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reAqu
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Decision Decision Decision DecisionDecision Decision
Gov.Dept
Gov.Dept
Gov.Dept
Gov.Dept
Gov.Dept
Gov.Dept
SectoralManagement
SpaBalFragmentaBon
FragmentedGovernance
Crowderetal.,2006
MarineSpaBalPlanning
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reAqu
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Decision Decision Decision DecisionDecision Decision
MarineSpaBalPlan
MSP:AMovefromchaosto....
Maesetal.,2005
SpaBallyPlanned
Maesetal.,2005
The‘RaBonal’MSPProcess
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Whatis‘raBonality’?
• Alogicthatcanbededucedfromreasonalone?
• RaBonalityiscontextdependentandthecontextofraBonalityispower(Flyvbjerg,1998).
• RaBonaliBesconstructedwithinplanningprocessesareneverimparBal,theyare“framedonspecific,andoaenunarBculatedassumpBonsandvalues”thatreflectthehegemonyortheinterestsofpowerfulactors(Flanneryetal.2016,p.123).
WhatisRaBonality?• RaBonalityshould,therefore,bereadas“thelegi+mizingofpower,ratherthanasachallengetoit”(JonesandPorter,1994,p.2).
• RaBonalityisnotalogicthatcanbededucedfromreasonalone
• RaBonalityissociallyconstructedwithinparBcularcontextswhichreflectprevailingpowerrelaBons.
MSPasaraBonalprocess?
• the“raBonalorganizaBonoftheuseofmarinespace”(Douvere2008,p.766).
• Thephrase‘raBonalorganizaBon’advancestheideathatthereisanunproblemaBcspaBallogicthatcanbedeployedtoorganisethemanyactorswhocompeteforlocaBons.
• ThisasocialandapoliBcalconceptualisaBonofMSPviewsitasalogicalprocess,sifngabovepower,whichwillproducearaBonaluseofmarineareas.
The‘RaBonal’MSPProcess
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Decision Decision Decision DecisionDecision Decision
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FourPhasesofPlanningPhase1
NormaBvePhase2Strategic
Phase3OperaBonal
Phase4Monitoring
Desiredendsandideals
themeanstoachievestatedgoalsandobjecBvesareselected
MeanstoachievegoalsarespecifiedthroughSpecific,Measurable,Assignable,RealisBc,Time-related(SMART)objecBvesandimplemented
Monitoringandassessment
ExamplesphasesofplanningPhase1
Norma)vePhase2Strategic
Phase3Opera)onal
Phase4Monitoring
ConserveFishStocks
SelecBonmadefrom:
MPAs,Quotas,reducelicences,
Demand:Tax,educaBon
DesignandimplementMPAs(%
targets,Bmeframe)–bringfisherstothe
table
MonitortheeffecBvenessoftheMPA(butprobablynotmonitorthesocio-economicimpacts)
POWER
Power
Power• MulBpledefiniBonsand
conceptualisaBonsofpower(Powerto,over,with,within,against,etc;poliBcal,social,etc;individual,networked,etc.)
• CommonquesBon:howispoweriscreatedandexercisedinsociety
• Goal:introducethreesourcesofpowerandthreetypesofpower.
PowerSources1. RelaBonalPower2. DiscursivePower3. IdeologicalPowerActualisa)onofPower:1. CoerciveandDecision-
making2. BiasandFraming3. ManipulaBvePower
SourcesofPower
• Cannotalwaysbeseparated–highlyinterrelated;willmakereadingsavailable.
1. RelaBonalPower–myunderstandingderivedfromBourdieu’stheories.
2. DiscursivePower–derivedfromFoucault,Mouffe,Swyngedouw.
3. IdeologicalPower–derivedfromLukes,BourdieuandFoucault.
RelaBonalSourcesofPower
• Powerisderivedfrom:– anactorsposiBoninasocietyornetwork;
– theiraccessto,andaccumulaBonof,differentformsofcapital(social,poliBcal,financial,knowledge,symbolic,etc.);
– andtheircapacitytotransformoneformofcapitalintoanother.
DiscursiveSourceofPower
• Discursivepowerrelatedtobiasandframing.• CreatedthroughdominaBngdiscourses– ControllingtheseenablessomeactorstolimittheacBonsofothers
– Powerisdiscursiveinsofarasitiswrinen/spokenintoframingofissues
– ItisidenBfiablebythedominatedbuttheyarerelaBvelypowerlesstochallengeit
IdeologicalSourceofPower• Ideologicalpoweris,
oaen,invisibleasitcomesfromthecreaBonofsystemsofthought.
• Itssourceishowactorsunderstandthemselvesandothersinsociety–theirsocialconsciousness.
• Mayhavebeencreatedthroughdiscoursebutcanprevailbeyondthediscourse
• Comesfrom:– internalisedbiases– falseconsciousness
1.Coerciveanddecision-makingpower
• ThistypeofPowerisvisibleandwielded.
• Coercive:AhaspoweroverBtotheextentthatAcangetBtodosomethingthatBwouldnototherwisedo.
• Requiresacceptanceofsocialorder– AknowshowBwillreactduetothepredictabilityofsocialorder
– BconfirmsA’spowerbyreacBnginthemannerthatispredictedfromunderstandingthisorder
• Decision-makingpower:Anindividualcandecidewhichintereststopursue.
2.BiasandFraming
• ThisPowerislessvisible• Bias:AexercisespoweroverBbykeepingB’sinterestsofftheagenda.– Bknowswhattheirinterestis–butalsoknowsthelimitsofprevailingcondiBons.
– ForBtoacttheyneedAtoconfirmthatB’sinterestsarelegiBmate/valid.
• Framing:AexercisespowertopreservetheirinterestbylimiBngdiscussion/debatetoitemsthatareharmlesstoA.
3.ManipulaBve• Hidden/InvisiblePower• Lukes:Aexercisespower
overB,whenAgetsBtodoA’sbiddingevenwhenitisagainstB’srealinterest.
• Foucault:Aactsintheirowninterest,createsdiscourses,knowledgeandtechnologieswhichtakeonalifeoftheirownand,unintenBonally,mayshapetheconductofB.
PowerandPar)cipa)oninMSP
StakeholderPar)cipa)onandMSP
Intheory:1. Minimiseuserconflict.2. AccountforcumulaBve
impacts.3. Increaseknowledgeofthe
ecosystems.4. Enhancedtrustin
planningprocess.5. Promotesacceptanceof
plans.6. Leadstogreater
implementaBon.
MSP,ParBcipaBonandPower• EmergingMSPpracBceappearstobepost-poliBcal(Ritchie2014,Flanneryetal.,2016,Tafon,2017)
• MSP:– dominatedbyneoliberallogicdiscourse;– Apost-ideologicalconsensusisdevelopingaroundtheverypurposeofMSP=BlueGrowth–noroomforotherissues(e.g.AlleviaBngcoastalpoverty).
– uncriBcallyfocusesonproducingtechnologicalormanagerialfixesforcomplexsocio-poliBcalissues(Flannery,etal2016);
FourphasesofMSPPhase1
Norma)vePhase2Strategic
Phase3Opera)onal
Phase4Monitoring
SpaBallyplannedmarine
environment
Servewiderpublicinterest(e.galleviaBon
ofcoastalpoverty),
preservethestatusquo,toolforthe
neoliberalisaBonofmarinegovernance;De-Growth
CollectandcollatespaBaldata,GISdatabases,
bringstakeholderstothetable,arguethatplansare
raBonalbasedontheacBons
above
MonitorthesuccessofMSPin
achievingitsowngoals–no
anenBongivento
unintendedimpacts,
collectmorespaBaldata,
repeatPhase3
PoliBcal Post-PoliBcal
RaBonality ParBcipaBon
IllusionofInclusion
ExamplesofPowerinMSP
“AkeycomponentofanypoliBcalstrategyisfindingadecisionsefngthatoffersthebestprospectsforreachingone’spolicygoals”(Pralle,2003).
NaBonalGovernment
PlanningTeam
ParBcipaBonProcess
PowerfulStakeholder
WeakStakeholder
NorthSeaPlan
ChannelIslandsNa)onalMarineSanctuary
CINMS:Rela)onalPower?
SanctuarySuperintendent
SanctuaryPlanningTeam(DraaPlan)
StakeholderAdvisoryCouncil(CollaboraBvePlanningIniBaBve)
ConservaBon Tourism Shipping RecreaBon Fishers
EasternSco)anShelfIntegratedManagementIni)a)ve
ESSIMCollabora)vePlanningModel
ESSIM Forum
ESSIM Planning O
ffice
Government Sector
Structure
Stakeholder Advisory Council
BiasandFraming?
Rela)onalPower?
IdeologicalPower?
Flanneryetal.,2018
Wayforward
• PoweriseasytoidenBfybuthardtoclassify• WeneedtounderstandthetypeandsourceofpowerwithinMSP
• NeedtoengagewithMSPfrombeginning–ortraceitsraBonaliBes
• NeedtocapturetheradicalpotenBalofMSP– DevelopprogressivefutureMSPvisions– ExplorehowtheycouldbeachievedthroughtransiBonlens(Kellyetal.,2018)
Wayforward
• StopsellingMSPasaraBonalprocess!• DonotdefineMSPsuccessinnarrow,economicterms–e.g.Speedofpermifngprocess
• Emphasizesocial,power,poliBcaldimensions• Actasadvocatesforthosewithoutpower• MSPisagoodidea–needtounderstandwhatplanningcanachievebeyond‘theraBonaluseofmarinespace’.
ForPaddle
• IhavereadMSPthroughNorthern,MetropolitanSocialTheory
• OpportunitytoapplynewsociologicallensestoMSPinPADDLE
Thanksforlistening
References• Douvere,F.,2008.TheimportanceofmarinespaBalplanninginadvancingecosystem-basedseausemanagement.
MarinePolicy,Vol.32,pp.762-771• Flannery,W.,Ellis,G.,Ellis,G.,Flannery,W.,Nursey-Bray,M.,vanTatenhove,J.P.,Kelly,C.,Coffen-Smout,S.,
Fairgrieve,R.,Knol,M.andJentoa,S.,2016.Exploringthewinnersandlosersofmarineenvironmentalgovernance/MarinespaBalplanning:Cuibono?/“Morethanfishybusiness”:epistemology,integraBonandconflictinmarinespaBalplanning/MarinespaBalplanning:powerandscaping/Surelynotallplanningisevil?/MarinespaBalplanning:aCanadianperspecBve/MariBmespaBalplanning–“aduBlitatemomnium”/MarinespaBalplanning:“itisbenertobeonthetrainthanbeinghitbyit”/ReflecBonsfromtheperspecBveofrecreaBonalanglers....PlanningTheory&Prac+ce,17(1),pp.121-151,DOI:10.1080/14649357.2015.1131482
• Flyvbjerg,B.,1998.RaBonalityandpower:DemocracyinpracBce,Chicago:UniversityofChicagoPress• Jones,C.andPorter,R.,1994.ReassessingFoucault:Power,Medicine&TheBody,NewYork,USA:Routledge• Kelly,C.,Ellis,G.andFlannery,W.inpress.Conceptualizingchangeinmarinegovernance:Learningfrom
TransiBonManagement,MarinePolicy.• Pralle,S.B.,2003.Venueshopping,poliBcalstrategy,andpolicychange:TheinternaBonalizaBonofCanadian
forestadvocacy.Journalofpublicpolicy,23(3),pp.233-260.”• Ritchie,H.,2014.UnderstandingemergingdiscoursesofMarineSpaBalPlanningintheUK.LandUsePolicy,38,pp.
666–675.• Tafon,R.V.,2017.Takingpowertosea:Towardsapost-structuralistdiscoursetheoreBcalcriBqueofmarinespaBal
planning,EnvironmentandPlanningC:Poli+csandSpace,Vol.36,No.2,pp.1–16,DOI:10.1177/2399654417707527