Policy Capacity, Design and the Sustainable Development Goals

The introduction of the book is aimed at providing the reader with a comprehensive analytical framework on the purpose and content of sustainable development analysis as a wicked problem in policymaking. The UN's 2030 Agenda is an ambitious and far-reaching initiative that encompasses 17 broad goals and 169 targets, which may be too general and potentially conflicting. Translating this agenda into practice is a challenging and possibly frustrating task that requires a pragmatic and methodologically structured approach. Accordingly, the introduction is organized around five key concepts that favor a translation into practice: the definition of problems and solutions, the policymaking of Sustainable Development Goals (SDGs), the wicked nature of policy problems in a sustainable development perspective, the specific kinds of capacity the policymakers must get to accomplish any task in the field of sustainable development, and, lastly, the type of policy design allocating ends and means for solving the problems. In particular, the theoretical framework supports the reader in understanding the wicked nature of sustainable development policies and the additional capacities policymakers must have in order to be able to design effective and coherent strategies. After a detailed presentation of each of the 12 chapters divided into two parts (six chapters in a section dedicated to the analysis of wicked sustainable development policies and six chapters dedicated to the analysis of the capacity of institutional instruments in resolving wickedness), the introduction anticipates the reader the rationale of the book.

Why is Finland failing to adequately address the issue of child poverty? Approximately 150,000 children are currently “at risk of poverty.” As data on at-risk-of-poverty (AROP) and financial assistance over a 30-year period illustrates, numbers, in percentage terms, remain fairly constant despite continuing “political” recognition of the problem. Child poverty thus seemingly presents as a classic “wicked problem” particularly in the emerging social space that constitutes UN Sustainable Development Goal implementation. In line with “wickedness theory,” the chapter discusses the various technical and value-based possibilities for persistent policy failure around child poverty which sees increasing polarization between the majority and some increasingly marginalized social groups such as single parent and immigrant families. While definitive explanations for the persistence of child poverty in a Nordic welfare state such as Finland remain elusive, the Finnish experience suggests that interorganizational conflicts, siloed-thinking, and outdated implementation in relation to the benefits system represent key hindrances to better policymaking and thus to more equitable policy outcomes.

As national governments and international organizations strive to combat climate change and limit greenhouse gas emissions, the energy transition is at the center of the global agenda. Sustainable Development Goal (SDG) 7 of the UN 2030 Agenda calls for affordable, reliable, sustainable, and modern energy for all, but there is ample ambiguity on what is to be considered “sustainable” as opposed to “renewable.” This chapter discusses the role of nuclear power in this context, and more specifically the thorny issue of nuclear waste: unless a sustainable strategy for the disposal of nuclear waste is found, the inclusion of nuclear power as a legitimate recipient of Green Deal and other aid will be contested. The cases of Italy, Germany, and France are discussed, showing how these countries have struggled over decades to solve the “wicked problem” of nuclear waste and have dealt with conflict through different mixes of stakeholder engagement, procrastination, or use of scientific expertise for legitimation.

Through the comparative analysis of the three cases, conclusions are drawn on relevant factors that contribute to the policy capacity needed to tackle complex, integrated, super-wicked problems of sustainability policy: issues of problem definition, multilevel coordination, time management, and the engagement of community and science are described and identified as critical.

Gas flaring is a crucial issue in the energy transition era, as it is a major source of carbon emissions in the gas production chain. The reduction of flaring could potentially contribute to eliminating energy poverty, as the amount of gas currently flared each year could power the entirety of Sub-Saharan Africa. Despite Iran's zero-clearing target, the country ranks third in gas flaring globally, with 12% share. This case study examines the reasons behind gas flaring in Iran within the Sustainable Development Goals framework. The study reveals that while technological and economic difficulties were the primary obstacles in early years, policy malfunctioning has demonstrated the wicked nature of a sustainability problem in recent years. The traditional top-down institutional structure has led to interference from public agencies and Operations and Maintenance (O&M) companies, complicating decision-making. The lack of precise criteria for finding best solutions, as well as the absence of appropriate control and monitoring mechanisms, has further paralyzed efforts to reduce flaring. The intensification of conflict between interest groups has added complexity to the situation. The issue has been further complicated at higher levels due to economic sanctions. This study offers practical solutions for reducing flaring in Iran based on global experiences and policies and programs of some selected countries. These suggestions address the policy, technological, and institutional aspects of the problem and aim to pave the way for sustainable and responsible energy transition. By reducing gas flaring, Iran can contribute to global efforts to mitigate climate change and create a more equitable and sustainable energy future.

This chapter explores how the capacity of different sectors of the government influences which topics are prioritized in the legislative agenda. We focus on the complex and challenging topic of agriculture and the environment in Brazil and analyze how it's framed in both the media and the legislature. Our analysis shows that, in normal circumstances, the governmental actors with the highest state capacity prevent threatening topics from entering the legislative agenda, biasing it toward the status quo. However, we find that the media can act as a tool for sectors with lower capacity to bring their priorities to the forefront and trigger a legislative response.

In this chapter, we propose a strategic framework for capacity-building in cross-border transport megaprojects. First, we make the case for infrastructure megaprojects as wicked policy fields marked by a complex web of stakeholders' interests and characterized by uncertainty and entrenched value divergence and conflict. Second, inspired by Pettigrew's contextualism and by drawing evidence from the case of the Lyon-Turin high-speed railway megaproject, we suggest that strategic management involves the analysis of three different albeit interconnected dimensions: the content of change, the process of change, and the context of change. Our study shows that variations in performance (content) are determined by and determine variations in (1) the openness or closure of national institutional contexts to civil society stakeholders (inner context), (2) the intensity of supervision and control functions realized by actor seating in the supranational institutional context (outer context), and (3) national and supranational actors' capability of making agreements over contested megaprojects aspects (process). We suggest that, from a strategic point of view, there is not a linear relationship between the content, context, and process of change in megaproject development. This is rather a complex nonlinear relationship that varies over time with little predictability. Time is a key factor in understanding these interactions between the content, context, and process. We claim that the capacity for organizing wickedness in megaprojects should rest on a socioeconomic logic and, in particular, on three core governance features: (1) open decision-making systems, (2) bottom-up performance management, and (3) active dialogue between proponents and opponents.

This chapter examines how Latvia manages Sustainable Development Goals (SDGs) within a policymaking process in Latvia – how SGDs are interpreted into policy actions in Latvia. This chapter is based on the two cases to reveal a link between SDGs and wicked problems. The case of education is about policy and strategic planning considering the high priority of the education sector in society. At the same time, climate change reflects the opposite perspective – limited public attention and fewer policy actions. Thus, both cases reveal actual policy implementation with several uncertainties. In the meantime, both topics are essential to identify strategies for solving wicked agendas related to policy coherence and interconnection among goals. As a result, the implementation of SDGs needs more institutional mechanisms for future-oriented policymaking where the present development needs are met without compromising the ability of future generations to meet their needs.

Global demand for agricultural commodities, including beef, soy, and palm oil, has driven tropical deforestation throughout the 21st century, threatening biodiversity and ecosystem services while contributing significantly to greenhouse gas emissions. Deforestation in the tropics is a wicked problem because there is no consensus on its solution, conflicting moral and political considerations among stakeholders, and uncertainty about the potential effects of intended solutions. Faced with such complex policy challenges, jurisdictional approaches (JAs) are being increasingly embraced as potential means of increasing policy capacity to tackle deforestation and support the Sustainable Development Goals. JAs integrate tools such as public and private regulations, collaborative planning processes, and payments for ecosystem services to respond to the complexity that characterizes deforestation. In this chapter, we study PROAmazonia, an anti-deforestation JA implemented in Ecuador’s Amazon region since 2017.

Our study shows that enhancing policy capacities to manage wicked problems associated with deforestation requires confronting the inherent complexity of these problems and the wider socio-environmental system in which they emerge. However, this requires integrated policy strategies that exceed the scope of JAs, also demanding support from wider governance structures.

The management of inter-regional basins in the Spanish case is a clear example of the complexity of water policy. The entry into force of the Water Framework Directive changed the objective and design process of public policy, prioritizing the conservation of river ecosystems and establishing the mandate for participation and inter-administrative coordination. This expanded the number of participants, creating a network of public and private actors with different interests and perceptions, bringing the water issue closer to what is often referred to in public policy as a wicked problem. In this chapter, we highlight how the Spanish political sphere has approached water policy in this new context, paying special attention to the role played by river basin organizations. To this end, we deal with two conflicts: the first concerning the Ebro Delta and the second on the water transfer between the Tajo and Segura rivers. Both cases show the inability of the central bodies of the State, the autonomous communities, and private agents to reach a consensus on water policy, which ends up shaping a decision-making system in which, although the legislative resources of the stakeholders are key, and the policy capacity of the basin organizations is reduced.

This chapter analyzes the French Citizens Convention for Climate (CCC), a democratic experiment in public policy cocreation, responding to climate change and the democratic crisis. The CCC, involving 150 citizens, aimed to propose measures for reducing greenhouse gas emissions. Despite producing 149 proposals, the government's limited implementation led to widespread dissatisfaction, which highlights the complexities of policy cocreation. Through textual statistics analysis, the study reveals the “wicked” nature of cocreation, intensified by diverse values and interests among participants. It underscores the critical need for the government's political readiness and absorptive capacity in cocreation processes. While citizens showed commitment and capability, political-administrative elites displayed resistance, indicating a policy capacity gap. This resistance not only undermined the CCC's efforts but also exacerbated public distrust in political processes. The CCC's experience suggests that future cocreation initiatives in public policy must better integrate with political decision-making. The balance between standardization and contextual adaptation is key to effectively addressing complex societal issues. This chapter advocates for close monitoring of cocreation applications in public policy to assess their effectiveness in resolving societal challenges.

The UN 2030 Agenda defines sustainable development (SD) in a multidimensional approach that encompasses economic, social, and environmental aspects. The Sustainable Development Goals (SDGs) serve as conceptual ideals, specific targets, and standards that determine global and local priorities. SD falls into the realm of wicked problems due to its multilayered definitions, untamable nature, and possible solutions at an operational level. Addressing these complex problems and challenges requires the localization of the SDGs and the creation of a new governance model tailored to sustainability. These efforts aim to improve policy coherence for SD. This contribution focuses on the importance of localizing the SDGs, which aims to streamline the 2030 Agenda and tailor the SDGs to local needs. Therefore, the importance of multi-stakeholder participation in the formulation of local definitions of the SDGs, policymaking strategies, and consequently the measurement of the SDGs is emphasized. This chapter provides insights into the specific tools and strategies used by the Metropolitan Cities (MCs) in the implementation of coherent SDG policies, with Florence serving as a case study. Despite the challenges faced by MCs, including ambiguous leadership, conflicting objectives between municipalities, and challenges in coherent policy design, this institutional level shows interesting elements, such as functions of long-term planning and coordination, inclusive tools of participation, and the development of new capacities (political and administrative) that could be useful for strengthening governance for SD.

Understanding the challenges and opportunities of policy coherence when dealing with wicked problems is a particularly relevant approach to policy analysis. Coherence and complexity condition each other in the context of the different policy domains, jointly offering an enabling debate angle to account for and unbox policy success and failure. A complexity perspective invites an analysis of the interdependencies between the different elements of a system (Argyris & Schön, 1996). This is very similar to the ambition of policy coherence of promoting synergies between policy domains in order to encourage policy success (Nilsson et al., 2012). The current chapter looks at the nexus between policy coherence and complexity, analyzing lessons learned from the UK context while aiming to fulfill policy commitments related to the policy goals of the Sustainable Development Framework. Looking at the United Kingdom's policy journey includes analyzing the ambitions of the United Kingdom as a European country with global presence, aiming for policy coherence and integrating, for example, its security, defense, development, and foreign policy strategies, through the Integrated Review, therefore creating the institutional arrangements for materializing ambitions across different policy domains.

The analysis developed here uses an outward perspective to understand how a complexity reading of the United Kingdom's efforts for achieving the SDGs can unveil an understanding of how and if its nature as a global governance actor within the Sustainable Development Framework has changed in significant ways and which are the potential related challenges.

The UN Sustainable Development Goals (SDGs) use indicators in an attempt to foster policy integration and coherence in order to achieve transformative societal change. But the SDGs, like their predecessor Millennium Goals, have not been entirely successful in this effort. Many studies have identified continuing challenges to integrating multiple goals in this way, linked to the complex patterns of interaction between the goals and the nature of the policy systems and subsystems in which they operate. This chapter builds on the policy design literature to argue that the main aim of the SDGs is to reconcile what are otherwise incoherent policy goals and inconsistent policy instruments in a process of policy integration. This process is made more complex in the case of this kind of “super-wicked” problem in which multiple actors face time constraints across multiple policy levels, sectors and venues. It identifies four different techniques for policy integration in such policy nexuses – policy harmonization, mainstreaming, coordination, and institutionalization – and assesses their possibilities for success in the SDG case against what is possible given the nature of the nexus and the capacity of governments to deal with it. The paper contributes to the current literature on policy integration, wicked problems, and the SDGs by further conceptualizing how integrative strategies can be better designed and implemented through capacity-building efforts aimed at developing coordinative relationships within conflict-ridden, multi-actor and multilevel cross-sectoral policy domains.

The conclusions summarize the main empirical evidence that emerged in the book and put forward final reflections and some recommendations for scholars and policymakers. First, the reader is reminded that the book focuses on how a desirable and ambitious agenda that contemplates a progress-oriented policy system is feasible when confronted with the challenges of its implementation and the related problem of coordination between the goals it postulates. The purpose of the concluding chapter is to extrapolate the findings from the individual analyses and synthesize them into a single interpretative proposal centered on two analytical pillars. The first is the analysis and management of the complexity generated by wickedness, through the reconstruction of types of complexity and consequences that the policymaker must acquire in terms of problem setting. The second is the analysis of the skills needed to manage said complexity, distinguishing between linear and nonlinear skills. These are the skills that the policymaker must acquire in terms of problem-solving. Both problem setting and problem solving are summarized in some final recommendations on what to do to improve the feasibility and effectiveness of sustainable development policies: the pragmatic culture of government and some supporting institutional tools, the importance of training as a lever of change, and the building of knowledge infrastructures in terms of evidence-based policymaking.