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Between Nowhere and Everywhere: the Challenges of Placing the Intergovernmental Platform on Biodiversity and Ecosystem Services

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Between Nowhere and Everywhere: the Challenges of Placing the Intergovernmental Platform on Biodiversity and Ecosystem Services Between Nowhere and Everywhere: The Challenges of Placing the Intergovernmental Platform on Biodiversity and Ecosystem Services (IPBES) Maud Borie Thesis submitted for the Degree of Doctor of Philosophy to the School of Environmental Sciences, University of East Anglia January 2016 This copy of the thesis has been supplied on conditions that anyone who consults it is understood to recognise that its copyright rests with the author and that use of any information derived from there must be in accordance with current UK copyright law. In addition, any quotation or extract must include full attribution. 1 Abstract Global Environmental Assessments (GEAs) have become influential processes in environmental governance, with the objective to gather policy-relevant knowledge on environmental issues for decision-makers. This thesis offers the first ethnographic account of the nascent Intergovernmental Platform on Biodiversity and Ecosystem Services (IPBES) which, in contrast to earlier GEAs, aims to implement an inclusive model of expertise. Underlying this move are concerns regarding both the effectiveness of GEAs and their democratization. GEAs have also faced numerous criticisms for being dominated by the global North and for failing to consider the diversity of ways of making sense of global environmental change. Drawing on Science and Technology Studies and on the emerging literature on geographies of science, I view science and policy as being mutually entangled, rather than as two separate domains, and conceptualise GEAs as sites of co-production. It is important therefore to study how categories such as ‘science’, ‘policy’, ‘local’ and ‘global’ are produced and to investigate the practices and places through which knowledge is constructed as policy-relevant. I argue that, despite the aspiration to be global institutions that transcend specific national and cultural contexts and interests, GEAs themselves are situated initiatives which produce a ‘view from somewhere’. Using qualitative methods, I examine three processes within IPBES: (1) the choice of location for its Secretariat; (2) the development of its conceptual framework; and (3) the constitution of the Multidisciplinary Expert Panel. Results confirm that IPBES presents a number of innovative features but also reveal significant ambiguities as to whether IPBES is actually ‘opening-up’ its frame of reference and embracing multiple forms of knowledges and expertise. While IPBES aspires to provide the inclusive ‘view from everywhere’, the narrative of science as providing the disinterested ‘view from nowhere’ and the interest-riven context in which it operates undermines its ambitions. 2 ‘The universal is at the heart of contemporary humanist project: scientists, economic reformers, and social justice advocates all appeal to the universal. Yet universals, taken at their face value, erase the making of global connections. This raises a disturbing question: How can universals be so effective in forging global connections if they posit an already united world in which the work of connection is unnecessary? (…) Neither those who place their ideas inside the universal nor those who discredit it as false pause to consider how universals work in a practical sense. To move beyond this it is important to see generalization to the universal as an aspiration, an always unfinished achievement, rather than the confirmation of a pre-formed law. Then it is possible to notice that universal aspirations must travel across distances and differences, and we can take this travel as an ethnographic object.’ (Tsing 2004:7) ‘Scientific knowledge is made in lots of different places. Does it matter where? Can the location of scientific endeavour make any difference to the conduct of science? And even more important, can it affect the content of science? In my view the answer to these questions is yes.’ (Livingstone 2003: xiii) 3 Contents Abstract ............................................................................................................................................ 2 Acronyms ......................................................................................................................................... 6 List of figures, tables and boxes ....................................................................................................... 8 Acknowledgements ........................................................................................................................ 10 Chapter 1 - Overview ..................................................................................................................... 12 Chapter 2 - From Ozone to Biodiversity: 35 Years of Global Environmental Assessments ........... 19 2.1. Global environmental change and the multiplication of GEAs ..................................... 19 2.2. Four landmark GEAs ...................................................................................................... 23 2.3. Looking back and looking forward: 35 years of GEAs ................................................... 37 2.4. Towards a new generation of GEAs: Introducing IPBES ............................................... 50 2.5. Summary and research questions ................................................................................. 54 Chapter 3 - IPBES: An experiment in constituting global biodiversity knowledge and policy ....... 56 3.1. Introduction .................................................................................................................. 56 3.2. Conceptualizing science-policy relations : GEAs as sites of co-production .................. 58 3.3. STS, geographies of science and the places of knowledge-making: placing GEAs ....... 71 3.4. GEAs and situated knowledges ..................................................................................... 75 3.5. GEAs and expertise ....................................................................................................... 81 3.6. Summary ....................................................................................................................... 86 Chapter 4 – Research design and methodological approach ........................................................ 88 4.1 Characterizing the object of study ................................................................................ 88 4.2 A case study research design ........................................................................................ 93 4.3 Values and limits of multi-sited ethnography ............................................................. 103 4.4 Data-analysis ............................................................................................................... 115 4.5 Positionality and ethical aspects ................................................................................. 116 Chapter 5 – Setting the stage for IPBES ....................................................................................... 120 5.1. Hesitant beginnings .................................................................................................... 120 5.2. The roots of IPBES: two science-driven multi-stakeholder processes ........................ 124 5.3. Imagining IPBES ........................................................................................................... 128 5.4. Placing IPBES in an intergovernmental context .......................................................... 141 5.5. Discussion and conclusions ......................................................................................... 148 4 Chapter 6 – Co-producing IPBES, Bonn and biodiversity knowledge .......................................... 151 6.1 Introduction ................................................................................................................ 151 6.2 Selecting Bonn and imagining IPBES elsewhere ......................................................... 154 6.3 Making Bonn the United Nations (UN) city of Germany ............................................ 162 6.4 Biodiversity knowledge in Bonn: Bonn as the ‘capital of biodiversity’? ..................... 174 6.5 Discussion and Conclusion .......................................................................................... 178 Chapter 7 – Framing global biodiversity: IPBES between Mother Earth and Ecosystem Services183 7.1. Introduction ................................................................................................................ 183 7.2. Following the IPBES conceptual framework ............................................................... 187 7.3. Developing the IPBES conceptual framework ............................................................ 193 7.4. Discussion: what does the framework achieve? ......................................................... 202 7.5. Conclusions ................................................................................................................. 205 Chapter 8 – Making the IPBES Multidisciplinary Expert Panel .................................................... 208 8.1. Introduction ................................................................................................................ 208 8.2. Constituting the Multidisciplinary Expert Panel ......................................................... 211 8.3. Analysing the first interim Multidisciplinary Expert Panel.......................................... 226 8.4. Discussion and Conclusions .......................................................................................
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