Wicked problems and creeping crises: A framework for analyzing governance challenges to addressing environmental land-use problems

Abstract

Human societies face significant difficulties in the governance of environmental land-use problems. The challenges involved must be thoroughly understood to develop effective and legitimate governance of these often inherently wicked problems. However, in environmental governance literature, governance challenges have been described rather generally, and the characteristic features of different types of problems have not been specified. Drawing on this literature, this paper presents an analytical framework for governance challenges typical of a “wicked problem” and a “creeping crisis”. We empirically illustrate the combined framework by applying it to the environmental land-use problem of land subsidence in the Dutch peatlands. Land subsidence exemplifies a wicked problem because it is neither definable nor solvable. Due to the lack of effective governance, the problem has allowed threats with crisis potential to develop. However, land subsidence represents a “creeping” crisis because, despite the increasing risk of damage, there is little sense of urgency. The case study illustrates that governance challenges posed by such problems often originate from a lack of comprehensive sense-making of these problems’ complexity and that responses, therefore, tend to be counterproductive. Hence, the paper empirically substantiates the need for governance approaches that help achieve the systemic change that is arguably needed to address environmental land-use problems adequately.