Explorative Nature of Negotiation in Participatory Decision Making for Sustainability

Land use planning and policy making for environmental systems involve uncertainty, long time scales, and complex socio-natural systems and processes; most decisions are often characterized by conflict and tension and give rise to disagreements which are widely considered and managed as disagreement about socio-environmental values. Although the growing acceptance of participatory models in environmental planning and policy making is forcing the public authorities to implement participatory mechanisms, participation practices are not showing much effectiveness in reducing conflict and tension. This paper argues that negotiation approaches in participatory decision making often pose the attention on disputing actors and their related values (in the field of environmental planning, on socio-environmental values) thus amplifying the risk for conflict to sharpen. Participation practices, in fact, often use Decision and Conflict Analysis models as means to disclose structures of parties’ values and preferences to parties themselves, thus risking to enhance sources for conflict and tension. In this article, participation is conceptualized as an exploration process looking for decision ‘opportunities’ which allow transforming participatory decision making into operational collaboration. To illustrate the discussion we present a case of participatory decision making process in the Torre Guaceto wetland, a Natural Reserve in Southern Italy. The process refers to the formulation of the land use plan and is analysed by the application of a cognitive model. The analysis shows how the negotiation process evolves from a conflict to collaboration and becomes centred on the content of the decision rather than the social and environmental values involved.