Download - Governance shift case study biobanking
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GOVERNANCE SHIFT
Service Delivery of Biobanking
September, 2011
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CONTENT
1. Scope
2. A Theoretical Framework for Governance
3. Regular Approvala. Overviewb. Service Deliveryc. State and non-state actors
4. Biobankinga. Overviewb. Service Deliveryc. State and non-state actors
5. State capacity involved
6. Move from Government to Governance
7. Summary of conclusions
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1. INTRODUCTION
Focusing on service delivery, and comparing regular approval for developments, which impact threaten species and biodiversity, with Bio-banking alternative launched by NSW Government, this case study shows that:
• With ‘biobanking’, NSW Government increased its capacity to govern the process of land clearance and biodiversity offsetting in private land, as a result of development.
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2. THEORETICAL FRAMEWORK
VARIATION
Policy sectorsPeriods of
time
Affected by
Institutional Capacity
Relational State
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3. REGULAR APPROVAL
Applies to:
Overview
Major Developments: Part 3A -DoP
Other Development: Part 4 – DoP,
councils
Development Activities: Part
5 – local councils, State
agencies
National Parks and Wildlife Act- often integrated with above
Environmental Planning and Assessment Act
+
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3. REGULAR APPROVAL
• Involves:
• Assessing methodology:
= +
• Requires or enables:
Overview
Impact Assessment
Threatened Species
Case by Case Costly Subjective
Public consultation
Submissions and appeals
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3. REGULAR APPROVAL
Application for approval
Impact assessment
Public notification submissions
Offsetting may be required
Approval granted or refused
Service Delivery: Developer
Possibility of appeal
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3. REGULAR APPROVAL
State and Non-state actors
More actor input into the approval process
• Federal level restrictions
• State & local regulatory authoritiesGovernment
• Role in impact Assessment and
• Catchement action Plans
Catchment Management
Authorities
• Applicants and holder of approvalsDevelopers
• Includes community groups & NGO's
• Consultation, appealGeneral Public
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4. BIO-BANKING
Market-based offsetting scheme
Overview BIODIVERSITY
Extinction &Degradation
Maintain orimprove
Credits ImpactsCOUNTERBALANCE
LandholdersConservation
perpetuity
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4. BIO-BANKING
• Types of credits:
• Assessing methodology:
= +
• Payments:
Overview
Ecosystem Species
Credit Calculator
SystemIn-site data
Built-in databases
Landholder report
Agreement Compliance
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4. BIO-BANKING
• Scheme applies:
Overview
Developments Part 3A -Minister
Developments Part 4 – need
consent
Activities Part 5
Native Vegetation
Act - clearing
Environmental Planning/ Development
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4. BIO-BANKING
Values assessment
Agreement / registration
Credits creation and trading (purchase)
Agreement funded: credit retirement
Management actions
Service Delivery: Site Owner
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4. BIO-BANKING
Impact assessment
Statement Request
Credits purchasing
Statement Issuing
Payment: Trust Fund and Site Owner
Service Delivery: Credit Purchaser
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4. BIO-BANKING
Bio-banking first experience:
Growth Centers
Biodiversity Offset
Program
Minister for the
Environment and Climate
Change / Agreement
Society of the
Missionaries
$1.7million for 607 biodiversity credits
/ 555,543 Trust Fund
Urban development
Northwest and Southwest over
next 30 to 40 years
St. Mary’s Tower: 80 hectares
Cumberland, near Douglas
Park in Sydney.
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4. BIO-BANKING
Actors
Government
Developers / assessors
NGO’sLandholders
Catchment Management
Authorities
MARKETMore actor’s input into the management of the land subject to offsetting
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5. STATE CAPACITY
Bio-banking enhances state capacity:
Centralized decision-making
Administrative apparatus
Fiscal resources
Less fragmented
More robust, consistent, simpler, cost-effective,
objective
More money provided by the Market
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5. STATE CAPACITY
Bio-banking enhances state capacity:
Policy Instruments
Legitimacy / democratic
decision
Relationships with NGO’s and interest groups
Greater control over site management
For site management
For offsetting approval
For site management
For offsetting approval
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6. GOVERNANCE SHIFT
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6. GOVERNANCE SHIFT
Hierarchy
Bio-bankingRegular
Approval
Medium
• Approval and amount to offset is less discretional.
• Government retains regulation and enforcement control.
• Program is voluntary
High
• Impact assessment and approval are decided by officials.
• Communication is mainly through administrative processes.
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6. GOVERNANCE SHIFT
Market
Bio-bankingRegular
Approval
Relatively High
• Key relationships are managed through contracts.
• Cost of offsetting is determined by the Market.
Low
• Market is not directly involved in the process.
• Offsetting is decided case-by-case.
• Flexibility is discretional to authority.
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6. GOVERNANCE SHIFT
Networks
Bio-bankingRegular
Approval
High / Arguably
• More resources are available for networks interested in offsetting.
• Encourages positive and continue involvement, rather than a case by case reactive approach.
Medium
• Other groups can submit requirements and appeal approvals.
• Involvement in managing offset areas depends on developer
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6. GOVERNANCE SHIFT
Community Engagement
Bio-bankingRegular
Approval
Medium
• Community consultation is replaced by market mechanism.
• More resources are available for setting up sites, credit purchasing and site management.
Medium
• Community consultation is strong.
• Engagement for offsetting and site management is largely not up them.
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6. GOVERNANCE SHIFT
Persuasion
Bio-bankingRegular
Approval
Relatively High
• Landholders are more willing to conserve with economic incentive.
• Other actors are more willing to accept development.
Low
• Penalties are used to disincentive illegal clearing.
• Other actors less likely to get benefits.
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6. GOVERNANCE SHIFT
Bio-banking
From the site/owner point of view the scheme works:
Lowndes, Vivien and Chris Skelcher (1998)
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7. SUMMARY OF CONCLUSIONS
Recap :
• With ‘biobanking’, NSW Government increased its capacity to govern the process of land clearance and biodiversity offsetting on private land, as a result of development.
• Biobanking involves a move on the continuum from Government towards Governance.
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7. SUMMARY OF CONCLUSIONS
Further conclusions and points of interest:
• Shift towards Market and Networks, with less Hierarchy, and more Persuasion.
• Delegates determining amount of offsetting to private sector.
• Strengthens the capacity of networks to participate in biodiversity conservation.
• Allows more societal autonomy.
• Is a use of Metagovernance strategy involving a different mix of governance modes.
• Still highly regulated; with high degree of state intervention.
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7. SUMMARY OF CONCLUSIONS
Further conclusions and points of interest
• Decreases public’s ‘democratic voice’ related to approvals.
• Favors output legitimacy, ensuring a speedy, more certain and cost effective outcome.
• Limited use, so far, indicates that practical implementation is difficult.
• May indicate a future trend towards more governance of biodiversity, with even less state intervention.
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REFERENCES
• Barney, Darin (2004), The Network Society
• Lowndes, Vivien and Chris Skelcher (1998), ‘The Dynamics of
Multi-organizational Partnerships: an Analysis of Changing
Modes of Governance‟,
• Daugbjerg, C. and Fawcett, P. (2011), „Governance Theory and
Power: Lesson Drawing from the Network Governance and
Policy Network Analysis Schools‟.
• Peters, B.G. and Pierre, J. (2006), ‘Governance, Government
and the State‟.
• Jordan, A., Wurzel, R.K.W. and Zito, A. (2005), ‘The Rise of
“New” Policy Instruments in Comparative Perspective: Has
Governance Eclipsed Government?‟.
• Meulemann, Louis (2008), Public Management and the
Metagovernance of Hierarchies, Networks and Markets: The
Feasibility of Designing and Managing Governance Style
Combinations.
• Bell, S., Hindmoor, A. and Mols, F. (2010), „Persuasion as
Governance: A State-Centric Relational Perspective‟.