17.

Navigating turbulence for

sustainability
Leah Shipton and Peter Dauvergne

Successfully navigating turbulence in world politics is necessary for the pursuit

of global sustainability. To shed light on how to do this, chapters in this book
analyzed the causes and consequences of turbulence associated with actors
(e.g., states, civil society organizations, philanthropic foundations), issues
(e.g., tropical forest governance, natural resource extraction, water rights,
plastics), and cross-cutting concerns (e.g., technology, gender, environmental
injustice). Chapters also explored tools for building more resilient institutions,
approaches for managing risks and cascading consequences, conditions for
facilitating participatory and equitable governance, and ideas for guiding citi-
zens toward more balanced and sustainable decision-making.
This concluding chapter synthesizes the findings of these preceding chapters
and draws on insights from existing literature to reflect further on possible
ways to navigate toward sustainability in a turbulent world. It does this in
two sections. The first outlines qualities of effective and ineffective govern-
ance through turbulence. The second section considers ideas, narratives, and
strategies that might facilitate more effective governance as well as a broader
systemic transition toward a more sustainable world order.

GOVERNING THROUGH TURBULENCE

Qualities of Ineffective Governance

Treating turbulence as a dysfunction can contribute to ineffective governance

because, rather than presuming governance structures need to be able to
withstand, ease, and adapt to turbulence, this assumes institutions and organ-
izations, generally built in times of greater stability, will have the capability
and flexibility to handle turbulence (Ansell and Trondal 2017; Dryzek 2016).
Seeing turbulence as an anomaly also fixates political attention and admin-
istrative agencies on “riding out” the discomforts of turbulence until calmer
times return, rather than confronting the root causes of turbulence (Dobbs et
al. 2021: 319).

211

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Path dependency may keep an institution in a pattern of treating turbu-

lence as a dysfunction even if the institution is failing to achieve its goals
(Dryzek 2016). In Chapter 3, Ekaterina Chertkovskaya, Jacob Hasselbalch,
and Johannes Stripple see this pattern in the repeated use of “containment,
clean-up, and control” strategies for plastics governance, despite their abject
failure to alter unsustainable plastics production and consumption, contain
plastic litter, or stem plastics pollution of rivers, lakes, and oceans (Mah 2021;
2022; Shipton and Dauvergne 2021a; Dauvergne 2018). And as Marielle
Papin, Linda Westman, Rachel Macrorie, Ahmad Shoaib Azizi, Michael Dede,
Julie Greenwalt, Ibinabo Johnson, and Barbara Summers show in Chapter 6,
path dependencies in cities maintain legacies of inequality and turbulence,
while also limiting opportunities for innovative and comprehensive solutions.
Path dependency is particularly problematic because it bolsters institutions—
such as states, sovereignty, transnational corporations, and markets—that are
degrading, disrupting, and destabilizing ecosystems (Dryzek 2016). Susan
Park exposes these consequences in Chapter 9, revealing how state strategies
to reduce the risks of “disasters” are contributing to planetary turbulence by
treating the sovereign state system as separate from the global environment,
and by externalizing the risks and costs of global competition for natural
resources. This short-term thinking and myopic approach, as she says, is
not only leaving states ill-equipped to solve escalating global environmental
crises, but also aggravating global turbulence.

Qualities of Effective Governance

Uncertainty is a hallmark of turbulent politics (Rosenau 1990). Marielle Papin

and colleagues (Chapter 6) and Leslie Thiele (Chapter 12) in their analyses
of city governance and technology, respectively, advocate for the importance
of internalizing uncertainty into governance systems. This approach, which
Dobbs et al. (2021: 318, 320, 323) call “governing with turbulence,” assumes
that longstanding patterns and outcomes are now indeterminate and volatile,
with institutions designed to be flexible, dynamic, and adept enough to react
creatively to fast-changing conditions. Such governance should also be inclu-
sive and participatory, facilitating constructive dialogue, empowering margin-
alized voices, and enabling institutional learning (Thiele 2020). Participatory
processes, as many in this book underline, are essential for advancing envi-
ronmental justice. Táíwò and Talati (2022) emphasize this point too, making
a case for the importance of meaningfully including voices from the Global
South into governance structures for solar geoengineering technology.
Designing robust institutions for turbulent times will further entail greater
knowledge exchange, sharing, and collaboration both within and across socie-
ties (Pereira and Freitas 2017). Reflecting this, to expand access to water and

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 Navigating turbulence for sustainability 213

sanitation, Ekta Patel and Erika Weinthal in Chapter 4 call for more collabora-
tive research, participation, and decision-making toward co-creating solutions
with Indigenous peoples, marginalized groups, and nature rights advocates.
Huhana Smith’s team of climate, agricultural, and cultural researchers and com-
munity members offers one example of such collaborative, solution-oriented
research. Studying Māori coastal communities in New Zealand, her team drew
on Western science, Māori knowledge, and Māori worldviews to look for ways
to support existing dairy farming as well as identify alternative livelihoods in
the face of coastal inundation and soil erosion (Smith et al. 2017).
Effective governance in a turbulent era also requires confronting turbulence
holistically to avoid designing institutions and responses to handle one type
of turbulence, only to be derailed by another. Indeed, many environmental
programs and institutions routinely face persistent crises, sudden shocks, and
ongoing and escalating turbulence. Since being approved in 2020, for instance,
the European Green Deal has already had to navigate turbulence associated
with the COVID-19 pandemic, the fallout of Brexit, resistance from Poland
and Hungary, the Russian invasion of Ukraine, and spikes in fuel and food
prices (Siddi 2021). Aligned with this holistic approach, Henrik Selin presents
a framework in Chapter 14 for integrating ecological and political turbulence
into the building of institutions to advance sustainability.
An “integrated, whole-of-landscape” approach is another holistic way to
integrate turbulence into governance (Malley et al. 2017). This approach
aims to engage multiple stakeholders and meet socio-environmental and
developmental goals by incorporating “policy and practice for multiple land
uses, within a given area, to ensure equitable and sustainable use of land while
strengthening measures to mitigate and adapt to climate change” (Reed et al.
2014: 1). One reason to embrace a landscape approach is that under the insta-
bility of the Anthropocene, at least some protected areas, wildlife sanctuaries,
and conservation zones are going to face encroachment, be degraded, or be lost
to industrial activities and human settlements (Christoff 2016; Dryzek 2016).
In short, stakeholders are going to need to govern land and natural resources
sustainably for multiple, competing uses as rising instability makes it increas-
ingly difficult to set aside land for single-use purposes (e.g., for conservation,
forestry) (Christoff 2016).
In Chapter 13, Philip Schleifer explores “jurisdictional programs” (a type of
landscape approach) in Brazil and India to uncover their potential for improv-
ing the governance of tropical forests. Schleifer sheds light on the vital role of
local leadership in the success of these programs. He further reveals how these
programs have been able to overcome siloed forest governance by empow-
ering public authority, connecting world markets to local jurisdictions, and
integrating marginalized groups in decision-making. Of course, as Schleifer
emphasizes, this jurisdictional approach is not without challenges: these

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include the risk of setting impractical and unrealistic goals for local institutions
and communities; the inability to curtail the global forces of unsustainable
production and overconsumption; the lack of engagement by emerging econo-
mies; and the danger of perpetuating exclusionary practices by supporting state
policymakers. In all, Schleifer’s analysis illustrates just how sensitive tropical
forest governance is to global and local dynamics.
Along the same lines, effective governance also requires decision-makers
to watch out for the potential of a policy or initiative to cause turbulence in
other issue areas or places (Ansell and Trondal 2017; Dobbs et al. 2021). In the
case of decarbonization and energy transitions, for instance, Stacy VanDeveer,
Hyeyoon Park, Yixian Sun, and Michele Betsill in Chapter 7 emphasize the
importance of internalizing ecological, social, and economic goals into gov-
ernance to try to prevent solutions for one area (e.g., increasing investment
in renewable energy) from undercutting progress in another (e.g., spurring
biodiversity loss from the mining of cobalt, copper, lithium, and rare earth
elements). International environmental decisions and processes can generate
turbulent ripple effects for cities, too, as Marielle Papin and colleagues show in
Chapter 6. City governance of global problems such as climate change, mean-
while, can also alter the lives of city residents in far-ranging ways (Bulkeley
2021).
Relatedly, in Chapter 11, Nicole Detraz shows the value of feminist perspec-
tives for enhancing the effectiveness of governance, including by spotlighting
the unjust and harmful ripple effects of policies—such as how greening the
economy can disproportionately burden women and deepen the “crisis of care”
(Camilletti and Nesbitt-Ahmed 2022). Thus, effective governance through
turbulence also means minimizing the unfair distribution of burdens arising
from environmental policies and programs—such as by compensating com-
munities for historical harms, requiring industrial polluters to pay for damage,
and investing in climate-resilient infrastructure for marginalized populations
(Táíwò 2022).

PATHWAYS TOWARD EFFECTIVE GOVERNANCE

AND SYSTEMIC TRANSFORMATION

How does a transition to effective governance, along with a broader systemic

transformation to the world order, take place? For Beck (2016), the turbulence
of climate change and ecological catastrophe lays bare the imperative for sys-
temic change, and in doing so, opens the door for transformation. Yet, as Beck
(2016) also cautions, this transformation will not occur without tough choices,
concerted action, and courageous imagination. Transnational solidarity, civil
society mobilization, an openness to alternative ways of organizing politics,

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transformation-seeking leadership from above and below, and reflexive prac-

tice can also all help facilitate this transformation.

Reflexive Practice

The value of reflexive practice is worth underscoring. As Dryzek (2016) notes,

reflexivity can help enable governance to internalize turbulence by breaking
the cycle of institutional path dependency. Reflexivity is the practice (and
capacity) of altering ideas, processes, or structures after critically reflecting
upon (and learning from) failures and successes (Dryzek 2016: 938, 942).
This practice goes beyond adaptation, which only seeks to modify systems
in response to changing circumstances. Put simply, reflexivity involves the
ability “to be something different, rather than just do something different”
(Dryzek 2016: 942). A reflexive practice for a crisis such as climate change, as
Dryzek (2016) says, can help confront complacency in the face of “dangerous
incrementalism” (Allan 2019), and, rather than settling for political compro-
mises, encourage the imagining of new structures and ways of living.
This is the reimagination that Susan Park in Chapter 9 thinks is necessary for
states to break free of the turbulent cycle of creating environmental disasters
and responding to them with bandage solutions that leave the fundamental
causes intact. Park sees a way out of this cycle: by states accepting that their
existence depends on nature and taking ownership of their role in generating
and exacerbating ecological disasters. This would require a shift in being,
with states acting as if they were dependent upon and constituted by nature,
rather than separate from nature. In this reimagining, states would no longer
conceive of environmental disasters as external risks, and consequently, would
end the destructive cycle of managing them through risk reduction frame-
works. Of course, there are barriers to states undertaking this transformation.
Environmental stewardship, to draw an example from the English School of
international relations, has yet to transform the identity of states into guardians
of the global environment because other core institutions (e.g., sovereignty,
development, territoriality, capitalism) resist this redefining of statehood and
limit its importance for state legitimacy in international society (Falkner and
Buzan 2019: 147).
David Schlosberg, in his Chapter 2 concluding remarks, reflects on what
it means for settler states, specifically, to be disrupted by turbulence, and
ponders whether this might offer an opportunity to “deconstruct settlement.”
There is also a possibility, as Whyte (2020) cautions, that escalating turbu-
lence could end up justifying solutions that harm—and yet again betray—
Indigenous peoples. Truly deconstructing settlement would require prioritizing
Indigenous self-governance and self-determination, including returning stolen
land, empowering Indigenous leadership, and reimagining and transforming

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societies in line with Indigenous values and governance (Davis and Todd
2017). Doing this would challenge the sovereign state system and highlight its
incompatibility with global sustainability. Indigenous knowledge, as scholars
such as Whyte (2017; 2020; 2021) emphasize, offers many insights for navi-
gating ecological turbulence. At the same time, non-Indigenous scholars need
to take great care to avoid once again exploiting Indigenous peoples in pursuit
of this knowledge. Reflexive practice, particularly by settlers upholding the
structures of settler colonialism, will be essential for deconstructing settlement
and initiating a systemic transformation toward global sustainability.
This reflexive practice, as Dryzek (2016) explains, will need to adjust in
response to shifting stability of the global environment. What, for example,
does environmental justice look like as turbulence becomes increasingly
extreme? David Schlosberg picks up on this query in Chapter 2. Turbulence
from the reinforcing, converging, and compounding consequences of slow
violence and sudden shocks, he argues, is a profound environmental injustice,
incessantly disorienting and dislocating people, disconnecting them from
nature and a sense of community, and causing hardships, traumas, and “eco-
logical grief” (Cunsolo and Ellis 2018). For Schlosberg, just and effective
governance in the future is going to demand more than building more resilient
infrastructure; it is also going to require creating ways for people and commu-
nities to process and manage the life-altering consequences, new vulnerabili-
ties, and environmental injustices of turbulence.
Reflexivity can also help govern the role of technology in global sustainabil-
ity. Technological innovation, most analysts agree, can help alleviate at least
some environmental pressures (Dauvergne 2020; 2022; Folke et al. 2021).
Still, as Leslie Thiele warns in Chapter 12, relying on new technology for
sustainability brings wide-ranging risks, with the potential to foster reactive,
short-sighted, quick-fix governance rather than wise governance relying on
critical thinking and learning. Such governance, as Thiele says, will need to
reflect phronesis, or the practical wisdom of the ancient Greeks: doing “the
right thing” at “the right time” for “the right reason” (Schwartz and Sharpe
2010). Granted, achieving practical wisdom is extraordinarily difficult in
an adrenaline-fueled, impulsive, and impatient world (as Thiele laments in
Chapter 12), where political institutions are under the sway of neoliberalism,
racial capitalism, and utility maximization (Cameron 2018). Nonetheless, pur-
suing practical wisdom could help governors break free of cycles of turbulence
and chart reflexive pathways through turbulence.

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Revealing the Failures of Neoliberal Capitalism and Empowering

Alternatives

Processes of social reproduction, as Wright (2010) brings to light, inhibit

systemic transformation by stifling criticism of the world order. Many differ-
ent forces shape these processes in the climate arena, including corporations
that finance political parties, oppose policy reforms (Stuart et al. 2020), and
disseminate misinformation (as Peter Jacques discusses in Chapter 8). These
processes of social reproduction position “free” markets, economic growth,
and “green” technology as climate solutions, and in doing so, re-empower
liberal environmentalism as the guiding norm of global environmental gov-
ernance (Bernstein 2002; Stuart et al. 2020). Such solutions reproduce—and
deepen—capitalism even as the global environmental crisis continues to
escalate (Stuart et al. 2020). Institutions such as philanthropic foundations,
as Agni Kalfagianni shows in Chapter 10 in her analysis of global agrifood
governance, participate in this social reproduction by espousing neoliberal
solutions relying on markets, technology, and consumer responsibility.
Yet, the consequences of neoliberal capitalism—including extreme inequal-
ity, mass migration, and ecological collapse—can also create the conditions
for transformation. Exposing a system’s failures (and its inability to prevent
them) can spark a push for broader transformation (McKeon 2015; Stuart et
al. 2020; Wright 2010). D.G. Webster, Mark Axelrod, and Semra Aytur reach
a similar conclusion in Chapter 15, arguing that the consequences of ineffec-
tive, turbulence-inducing governance can create the conditions for transition-
ing to “healthy governance.” Notably, as history has shown, powerful elites
can end up challenging governance structures no longer cloistering them from
the discomforts of turbulence.
Growing turbulence, including for elites, does seem to be opening up oppor-
tunities for systemic transformation (Stuart et al. 2020; Wright 2019). Building
on Wright (2010, 2019), Stuart et al. (2020) see environmental activists
increasingly seeking these opportunities. Some movements, such as Extinction
Rebellion and Fridays for Future, are doing this through protests, civil disobe-
dience, or other acts of resistance to state authority. Other groups are working
instead to demonstrate sustainable and viable alternatives. Although this strat-
egy commonly focuses on individual-level actions, Ekaterina Chertkovskaya,
Jacob Hasselbalch, and Johannes Stripple in Chapter 3 go much further,
imagining new ways to produce, consume, and govern plastics, and, in doing
so, rejecting the norms and practices underlying today’s escalating crisis of
plastics pollution. Likewise, La Via Campesina, an international association
of farmers, also goes much further. La Via Campesina argues that the neo-
liberal agrifood system is destroying ecosystems, generating food insecurity,
and enriching transnational corporations, but then advances food sovereignty

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through small-scale farmers and Indigenous agriculture as a feasible, sustain-

able, and equitable alternative (McKeon 2015). Many feminist movements
around the world, as Nicole Detraz illustrates in Chapter 11, are also imagining
transformative alternatives to the foundations of today’s world order.
Other groups, meanwhile, are striving to transform political and economic
systems through alliances with state and corporate powers. This has been the
approach, for instance, of the Sunrise Movement for climate action, which
has pushed the Democratic Party in the United States to embrace the Green
New Deal. Similarly, Sheryl Lightfoot (2016) theorizes the global Indigenous
rights movement as a “subtle revolution” from within the international gov-
ernance system. This subtle revolution, she argues, could gradually restructure
the world order, as implementing the rights of Indigenous peoples is going
to necessitate “a rethinking and reordering of sovereignty, territoriality,
decolonization, liberalism, and human rights” (Lightfoot 2016: 4). Following
Lightfoot’s reasoning, locally driven solutions for environmental change by
frontline communities and grassroots movements, such as those advancing
food sovereignty (McKeon 2015), might also spur broader transformation.
Specifically, as communities and movements pursue sustainable ways of
co-existing within changing local environments, the actors and structures that
connect and embed them could well come under intense pressure to undergo
an accompanying transformation. Implementing the Indigenous right to free,
prior, and informed consent (FPIC) for mining and logging projects, for
example, may result in a gradual reforming of the exploitative and neocolonial
structures now governing global extraction of natural resources.
To illustrate, despite the Australian federal government refusing to require
FPIC from the Mirrar Indigenous people before approving development
of the Jabiluka uranium deposits on their territory, the company looking
to mine the deposits, Rio Tinto, nevertheless signed a binding agreement
in 2005 promising to only proceed with the written consent of the Mirrar
people (O’Faircheallaigh 2014). Rio Tinto’s decision to bypass the state
and legally commit to FPIC is one minor example of how FPIC can reorient
stakeholder relations and advance (even if slightly) Indigenous peoples’ right
to self-determination. Applying Lightfoot’s theory, the sum of such influence
could gradually transform the existing order of extractive governance. Future
researchers, it would seem, could valuably investigate how sustainably paths
may emerge and produce “subtle revolutions,” in line with Lightfoot’s theory
(Lightfoot 2016).
Of course, transformative strategies face formidable obstacles and advanc-
ing environmental justice is inevitably slow going (Neville and Martin 2022).
As Chertkovskaya, Hasselbalch, and Stripple caution in Chapter 3, scaling
alternate solutions can be difficult and there is always a risk of falling back
to default strategies (or norms) governing an issue area. Social movements

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also risk being co-opted when engaging with international organizations and
transnational corporations (McKeon 2015; Dauvergne and LeBaron 2014).
Meanwhile, reforms are always contested and uneven, as Hayley Stevenson
shows in her Chapter 5 analysis of the Escazú environmental agreement for
Latin America and the Caribbean.

Transnational Civil Society Solidarity and Mobilization

Transnational civil society power and solidarity will be critical for advancing
these transformative strategies, even as worsening state repression stifles some
nongovernmental organizations (NGOs) and transnational advocacy networks
(Matejova et al. 2018; Shipton and Dauvergne 2021b). While Philip Schleifer
in Chapter 13 emphasizes the importance of local authority and uptake for the
success of jurisdictional approaches to tropical forest governance, he also finds
that international NGOs have played a key role in orchestrating a “transnational
community of practice” that supports local governments and civil society
organizations striving to develop and participate in jurisdictional programs.
Likewise, one reason why Yixian Sun and Chuyu Liu, in Chapter 16, see rising
West–China geopolitical tensions as an opportunity to improve environmental
governance is because transnational advocacy networks are raising awareness
of the negative environmental and social impacts of Chinese-backed invest-
ment projects. Such advocacy could prompt, and indeed some argue already
has prompted, Chinese policymakers to study, and take seriously, international
standards for environmental conduct (Yeophantong 2013a; 2013b).
Peter Jacques in Chapter 8 also highlights the value of local-to-global
solidarity among civil society organizations for navigating turbulence and
advancing effective governance, especially when this solidarity strengthens
the power and rights of marginalized peoples. One example, as Jacques dis-
cusses, is the climate actions of the Indigenous Amazigh people in Morocco,
which have been facilitated by the efforts of an international NGO to organize
local collectives to implement consensus-based projects for advancing sus-
tainability while generating income. These collectives create communal safety
nets for people abandoned by the authoritarian regime and patronage economy
of Morocco.
In cities, too, civil society organizations can bring valuable skills, ideas, and
energy to help create and implement governance initiatives that reimagine the
relationship between environment and development (Chan 2016; Pereira and
Freitas 2017). To transition toward more effective governance, as Marielle
Papin and colleagues remind us in Chapter 6, it is especially vital to prioritize
marginalized voices when reimagining this relationship, as only then will
political institutions be able to implement the full range of socio-economic and
environmental reforms necessary for sustainability.

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CONCLUSION

Scholars and practitioners of global environmental politics and related disci-

plines, including in this book, have laid out many valuable ideas for navigating
toward sustainability in the midst of turbulence. This chapter brings some of
them together in one place to offer a sense of what can be, and is being, done.
In undertaking such a task, we were only able to scratch the surface of the best
ideas. Nor were we able to explore the compatibility, potential conflicts, and
contradictions within and across these ideas. Nonetheless, we hope the chapter
offers a starting point to grapple with these ideas further. This includes contin-
uing to explore the importance for effective governance of preparing for (and
expecting) uncertainty. This includes continuing to probe the importance of
participatory decision-making, and the necessity of staying alert to the ripple
effects of decisions across places, people, and ecosystems. And this includes
continuing to seek ways to mobilize civil society, advance social justice, and
transition to flexible, adaptable, and agile governance systems designed to
withstand extreme turbulence.
What is clear and consistent across all authors in this book is that how we
move forward is just as important as what we do and where we strive to go.
Transforming the world order, in other words, cannot come at the expense of
continued harm and injustice. Indeed, moving toward global sustainability in
a turbulent era is going to require reconciliation, reparations, and equity as
much as policy reforms, adaptation, and different lifestyles (Davis and Todd
2017; Táíwò 2022; Whyte 2021). Not moving in this direction, on the other
hand, risks destabilizing world politics, destroying ecosystems, and causing
terrible hardship now and in the future.

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