Cartography of pathways: A new model for environmental policy assessments

How can assessments of environmental policy issues be policy-relevant without being policy-prescriptive? The predominant technocratic and decisionist responses to this question misleadingly assume that value-neutral scientific recommendations for public policy means, or even objectives, are possible. On the other end of the spectrum, the literature on democratic and pragmatic models of expertise in policy often does not satisfactorily explain what researchers can contribute to public discourses surrounding disputed, value-laden policy objectives and means. Building on John Dewey's philosophy, this article develops the “pragmatic-enlightened model” (PEM) of assessment making, which refines the existing pragmatic models. It is used to some extent by Working Group III of the Intergovernmental Panel on Climate Change. According to the PEM's policy assessment methodology, policy objectives and their means can only be evaluated in light of the practical consequences of the means. Learning about the secondary effects, side effects and synergies of the best means may require a revaluation of the policy objectives, for instance, regarding the use of bioenergy for climate mitigation. Following the PEM, assessments would-based on a thorough problem analysis-explore alternative policy pathways, including their diverse practical consequences, overlaps and trade-offs, in cooperation with stakeholders. Such an arduous interdisciplinary cartography of multiple objectives, multi-functional policy means and the broad range of their quantitative and qualitative practical consequences may face considerable practical challenges and uncertainty. Yet, it could make assessments more policy-relevant and less prescriptive, and could effectively support a learning process about the political solution space.