Reflecting on boundary dynamics in a case study setting: Insights from systemic intervention STS

1. Reflecting on boundary dynamics in a case study setting: Insights from systemic intervention & STS Virginia Baker & Wendy Gregory Integrative Research for Sustainability Group, ESR Kia ora koutou, I�m Virginia Baker, Social Scientist with ESR. Begin by thanking NZ Ministry of Health for funding the study The author works as a social scientist in a science agency whose key clients are the New Zealand government, namely the NZ Police, and relative to this case, the Ministry of Health. ESR (Institute for Environmental Science and Research Ltd) is one of nine Crown Research Institutes in New Zealand. Predominantly it provides scientific services in forensics, toxicology, and public health laboratory analysis (including surveillance of infectious diseases, and food and drinking water quality). A business group within ESR, the Integrative Research for Sustainability Group (IRfS) houses social research capacity including qualitative and quantitative sociology, systems thinking, and action research. The title of my talk today is Making boundaries malleable: Systemic intervention in a contested setting. This case is Phase I: Consultation phase of a multidisciplinary science project done by ESR, beginning October 2001. Kia ora koutou, I�m Virginia Baker, Social Scientist with ESR. Begin by thanking NZ Ministry of Health for funding the study The author works as a social scientist in a science agency whose key clients are the New Zealand government, namely the NZ Police, and relative to this case, the Ministry of Health. ESR (Institute for Environmental Science and Research Ltd) is one of nine Crown Research Institutes in New Zealand. Predominantly it provides scientific services in forensics, toxicology, and public health laboratory analysis (including surveillance of infectious diseases, and food and drinking water quality). A business group within ESR, the Integrative Research for Sustainability Group (IRfS) houses social research capacity including qualitative and quantitative sociology, systems thinking, and action research.

2. Based on previous publication: Baker, V., Fowles, J., Gregory, W. & Phillips, D. �(2008) Making boundaries Malleable: Systemic Intervention in a Contested Setting, The�International�Journal of�Interdisciplinary Social Sciences,�vol 3, no 3, pp31-43.

3. Presentation outline Case study - purpose & background Theoretical approaches to boundaries Boundary critique (systems thinking) Hoppe�s typologies of boundary work (STS) Strategies for boundary work (research design, ethics, methods) Conclusion Scope of paper: Making boundaries malleable Systemic intervention � Intervention - purposeful action by an agent to create change, interventionist, rather than observational approach Systemic � critical reflection on boundaries Revisit the case to consider theories that might help explain the dynamics of practice Two key approaches: Midgley - boundary critique Hoppe � typology of boundary work Written paper focuses more on Hoppe (word limit) Strategies for making boundaries malleable � divided into policy design, ethics, methods � in practice the distinctions mixed, pragmatic and emergent intervention logic This paper is a reappraisal of a multi-disciplinary intervention, and thus a �refit� of theory to practice. The practice of �doing� worked to a fast cycle, which was underpinned with a strong ethical commitment to understand the community�s concerns and to involve community in the deliberations about the scientific design, and ensure that this approach would indeed best meet their needs. Working in a multi-stakeholder engagement that was at times highly politicised involved a fairly reactive mix of tacit knowledge, intuition and fast decision-making and positioning based on ethics and pragmatism. Not quite the classic �muddling through� (Lindblom ), but certainly a reactive, rapid and dynamic form of learning ensued to understand the negotiated spaces between community, government, science and policy, and to innovate methods accordingly. The theoretical discussions and analytic framework presented in this paper seek to capture the key dynamics and learnings to better support future government, community and science based interventions in controversial situations. Scope of paper: Making boundaries malleable Systemic intervention � Intervention - purposeful action by an agent to create change, interventionist, rather than observational approach Systemic � critical reflection on boundaries Revisit the case to consider theories that might help explain the dynamics of practice Two key approaches: Midgley - boundary critique Hoppe � typology of boundary work Written paper focuses more on Hoppe (word limit) Strategies for making boundaries malleable � divided into policy design, ethics, methods � in practice the distinctions mixed, pragmatic and emergent intervention logic This paper is a reappraisal of a multi-disciplinary intervention, and thus a �refit� of theory to practice. The practice of �doing� worked to a fast cycle, which was underpinned with a strong ethical commitment to understand the community�s concerns and to involve community in the deliberations about the scientific design, and ensure that this approach would indeed best meet their needs. Working in a multi-stakeholder engagement that was at times highly politicised involved a fairly reactive mix of tacit knowledge, intuition and fast decision-making and positioning based on ethics and pragmatism. Not quite the classic �muddling through� (Lindblom ), but certainly a reactive, rapid and dynamic form of learning ensued to understand the negotiated spaces between community, government, science and policy, and to innovate methods accordingly. The theoretical discussions and analytic framework presented in this paper seek to capture the key dynamics and learnings to better support future government, community and science based interventions in controversial situations.

4. Study Purpose & Background New Zealand government (Ministry of Health) funded study To investigate allegations of exposure (current and historical) to dioxins for residents living in proximity to the former Ivon Watkins Dow chemical plant in Paritutu, New Plymouth. Scope: Scientific study � social science would precede a science investigation to take blood samples Different disciplines � public health medicine, toxicology, toxico-kenetics, epidemiology, multi-factorial environmental modelling (air, soils) resulted in the development of a multi-pathway exposure model to select a sample for serum testing for the presence of 2,3,7,8-TCDD, this being a signature marker for exposure to dioxin contaminant from production of 2,4,5-T. Expsure study but the links to adverse health outcomes was the key concern for community Community articulated their exposure concerns related to possible links to adverse health effects incl. multiple sclerosis, cancers, type II diabetes, chronic fatigue, miscarriages, lupus, reproductive problems, congenital birth defects - graphic pictures of these published in media at the time of the investigation Personal stories about these effects Scope: Scientific study � social science would precede a science investigation to take blood samples Different disciplines � public health medicine, toxicology, toxico-kenetics, epidemiology, multi-factorial environmental modelling (air, soils) resulted in the development of a multi-pathway exposure model to select a sample for serum testing for the presence of 2,3,7,8-TCDD, this being a signature marker for exposure to dioxin contaminant from production of 2,4,5-T. Expsure study but the links to adverse health outcomes was the key concern for community Community articulated their exposure concerns related to possible links to adverse health effects incl. multiple sclerosis, cancers, type II diabetes, chronic fatigue, miscarriages, lupus, reproductive problems, congenital birth defects - graphic pictures of these published in media at the time of the investigation Personal stories about these effects

5. New Zealand Moving to background �Moving to background �

6. Shows the site where 2,4,5-T was manufactured at Ivon-Watkins Dow chemical plant in Paritutu from 1962-1987. Plant still there but not producing 2,4,5-T Dioxin is a contaminant of 2,4,5-T manufacture, 2,4,5-T was widely used agrichemical for brush and gorse control, factory also exported 2,4,5-T manufacture ceased in 1987 Farming mainstay of economy � NZ �heaviest user of 2,4,5-T in the world� (Brinkman 1986) NZ highly dependent on 2,4,5-T for brush gorse control - so one of last countries in the world to phase out. Other industry as source of potential contaminants, confounding factor in looking for evidence of historical exposure Study addresses this by looking specifically for presence of 2,3,7,8-TCDD a signature contaminant of 2,4,5-T manufacture Shows the site where 2,4,5-T was manufactured at Ivon-Watkins Dow chemical plant in Paritutu from 1962-1987. Plant still there but not producing 2,4,5-T Dioxin is a contaminant of 2,4,5-T manufacture, 2,4,5-T was widely used agrichemical for brush and gorse control, factory also exported 2,4,5-T manufacture ceased in 1987 Farming mainstay of economy � NZ �heaviest user of 2,4,5-T in the world� (Brinkman 1986) NZ highly dependent on 2,4,5-T for brush gorse control - so one of last countries in the world to phase out. Other industry as source of potential contaminants, confounding factor in looking for evidence of historical exposure Study addresses this by looking specifically for presence of 2,3,7,8-TCDD a signature contaminant of 2,4,5-T manufacture

7. Housing not there initially, several family farms in 1960 / 2 when the factory was built and started manufacture � Housing adjacent to the plant was subsequently approved by local authorities Prevailing wind from sea towards housing Community groups had raised complaints about airborne emissions, odours, and health effects since the 1960�s. Waste incinerator and chemical production In addition two incidents occurred: 1972 �mushroom cloud� explosion, 1986 bursting pressure disc � releasing chlorophenols and TCDD into the air. Housing not there initially, several family farms in 1960 / 2 when the factory was built and started manufacture � Housing adjacent to the plant was subsequently approved by local authorities Prevailing wind from sea towards housing Community groups had raised complaints about airborne emissions, odours, and health effects since the 1960�s. Waste incinerator and chemical production In addition two incidents occurred: 1972 �mushroom cloud� explosion, 1986 bursting pressure disc � releasing chlorophenols and TCDD into the air.

8. Epidemiolgical problems for study design from this disciplinary perspective � small cohort, retrospective cohort, low decile, high mobility, rental not ownership, Time elapsed, old information, restructuring of public authorities in 1980�s meant many records missing Low home ownership, Housing NZ restructured - did not hold records back to 1960�s, considered local government electricity records, but these and rating records lost in fire Low socio economic - multiple causation for adverse health outcomes low decile, so many potential confounding factors in relation to adverse health effects Later in the study this presented problems, difficult to construct population estimates or historical cohort Using Census (national popn survey) data estimated 1000-2000 current residents (depn on boundaries), estimating historical residents problematicEpidemiolgical problems for study design from this disciplinary perspective � small cohort, retrospective cohort, low decile, high mobility, rental not ownership, Time elapsed, old information, restructuring of public authorities in 1980�s meant many records missing Low home ownership, Housing NZ restructured - did not hold records back to 1960�s, considered local government electricity records, but these and rating records lost in fire Low socio economic - multiple causation for adverse health outcomes low decile, so many potential confounding factors in relation to adverse health effects Later in the study this presented problems, difficult to construct population estimates or historical cohort Using Census (national popn survey) data estimated 1000-2000 current residents (depn on boundaries), estimating historical residents problematic

9. Case / setting characteristics Conflict Long standing historical conflict between government and community Polarised views Community distrustful (many concerned about adverse health effects) Boundaries hardened Community activists vs industry/government/policy/science Science contested (historically part of problem, not solution) Project controversial � some members of the community angry, perceived years of government not responding to their concerns - Multiple organised �single issue� activist groups - high level of distrust of government and science, perception that science part of the problem so important we took the time to get things right so that science would not simply add to the problem. Facts hotly contested community felt their local information has been disregarded and that previous govt studies had got things wrong These were the �Visible� boundaries that we saw when introduced to the caseProject controversial � some members of the community angry, perceived years of government not responding to their concerns - Multiple organised �single issue� activist groups - high level of distrust of government and science, perception that science part of the problem so important we took the time to get things right so that science would not simply add to the problem. Facts hotly contested community felt their local information has been disregarded and that previous govt studies had got things wrong These were the �Visible� boundaries that we saw when introduced to the case

10. Key dynamics & assumptions Boundaries become hardened by conflict Boundary softening is an important activity for interventions to transform an intractable conflict into a search for shared understandings and possible solutions Better understanding of boundary dynamics can improve the effectiveness of boundary work

11. Theoretical orientation of this paper is to explore boundaries and aspects of boundary work. Introduce a couple of approaches Firstly Systems thinking � Gerald Midgley � Boundary critique Interventionist approach, origins in Habermas, Checkland, Churchman, Ulrich � multiple boundaries, world views, definitions coexist between different actors, these are in tension In structuring an intervention it is important to consider judgments about boundary, this process is value based in conflict situations, if one group makes a narrow boundary judgement and another makes a wider one, there will be a marginal area between the two boundaries. Marginalisation neither fully included or fully excluded from the system. Theoretical orientation of this paper is to explore boundaries and aspects of boundary work. Introduce a couple of approaches Firstly Systems thinking � Gerald Midgley � Boundary critique Interventionist approach, origins in Habermas, Checkland, Churchman, Ulrich � multiple boundaries, world views, definitions coexist between different actors, these are in tension In structuring an intervention it is important to consider judgments about boundary, this process is value based in conflict situations, if one group makes a narrow boundary judgement and another makes a wider one, there will be a marginal area between the two boundaries. Marginalisation neither fully included or fully excluded from the system.

12. when two ethical boundary judgements come into conflict, the situation tends to be stabilised by the imposition of either a sacred or a profane status on marginal elements. The words �sacred� and �profane� mean valued and devalued respectively. Terminology based on Douglas 1966 anthropology studies on social constructions of risk. Ritualistic expression in interaction, actions, discourse (conversation), Through ritual (repeated form) the conflict becomes patterned and set. Useful in describing the situation encountered. when two ethical boundary judgements come into conflict, the situation tends to be stabilised by the imposition of either a sacred or a profane status on marginal elements. The words �sacred� and �profane� mean valued and devalued respectively. Terminology based on Douglas 1966 anthropology studies on social constructions of risk. Ritualistic expression in interaction, actions, discourse (conversation), Through ritual (repeated form) the conflict becomes patterned and set. Useful in describing the situation encountered.

13. Hoppe�s boundary work Interdisciplinary: Science, technology and society (STS) Knowledge utilisation (KU) strand of policy studies Social constructivist theory of boundary traffic and boundary work Focus on power relations between science and policy Writing at the nexus of the knowledge utilisation (KU) strand of policy studies (Lindblom & Cohen, Laswell, Weiss etc) and the field of science, technology and society (STS) (Latour etc refs), Focusing on power relations between policy and science Hoppe�s (2005) interdisciplinary appraisal brings together a social constructivist theory of boundary work. Many realities, things are not innately �real�, things exist because we make and interpret them that way. Writing at the nexus of the knowledge utilisation (KU) strand of policy studies (Lindblom & Cohen, Laswell, Weiss etc) and the field of science, technology and society (STS) (Latour etc refs), Focusing on power relations between policy and science Hoppe�s (2005) interdisciplinary appraisal brings together a social constructivist theory of boundary work. Many realities, things are not innately �real�, things exist because we make and interpret them that way.

14. Hoppe�s boundary work The science and policy relationship Power struggle Demarcation and coordination Dialectic and parallel development Scientisation of politics Politicisation of science Typology of eight models of boundary work Demarcation � separate divisions of labour Coordination � working together Boundary traffic = variable conceptions of the division of labour - contested Activities and conceptions - discourse (conversations, texts) and transactions (exchanges, agreements, some contractual) �repertoires� � performance, regularly used pieces are resources used by actors (individual and institutional to settle boundary disputes Repertoires � regularly used performances, repitition and ritual (connect to Midgley, also to New Institionalism) Dialectic � process of testing and working through, critical inquiry by discussion Politics � evidence base, intervention logic Science � democratisation of science, useable knowledge Growing literature in these areas � happens in numerous ways � democratisation of science � my reason for existence in ESR, and crudely summed up in tussle for �evidence based policy� but science also for survival implicit delivering �policy based evidence�. Demarcation � separate divisions of labour Coordination � working together Boundary traffic = variable conceptions of the division of labour - contested Activities and conceptions - discourse (conversations, texts) and transactions (exchanges, agreements, some contractual) �repertoires� � performance, regularly used pieces are resources used by actors (individual and institutional to settle boundary disputes Repertoires � regularly used performances, repitition and ritual (connect to Midgley, also to New Institionalism) Dialectic � process of testing and working through, critical inquiry by discussion Politics � evidence base, intervention logic Science � democratisation of science, useable knowledge Growing literature in these areas � happens in numerous ways � democratisation of science � my reason for existence in ESR, and crudely summed up in tussle for �evidence based policy� but science also for survival implicit delivering �policy based evidence�.

15. Typology of eight models drawn from bringing together the knowledge utilisation in policy studies and the STS literature � drawing on Habermas and Wittrock (1991) Two axis of competing logics Horizontal � whether science or policy dominates � supreme Vertical � divergent or convergent logics, in relation to science and policy, Whether the operational codes of these two disciplines are distinctly different and incompatible � this is either science /or politics Or convergent logics � blurry boundaries, a both/and relational logic that �no matter how different their operational codes science and politics eventually serve the same functions � the creation of consensus and the fight against chaos Horizontal science policy axis obvious, but second less articulatedTypology of eight models drawn from bringing together the knowledge utilisation in policy studies and the STS literature � drawing on Habermas and Wittrock (1991) Two axis of competing logics Horizontal � whether science or policy dominates � supreme Vertical � divergent or convergent logics, in relation to science and policy, Whether the operational codes of these two disciplines are distinctly different and incompatible � this is either science /or politics Or convergent logics � blurry boundaries, a both/and relational logic that �no matter how different their operational codes science and politics eventually serve the same functions � the creation of consensus and the fight against chaos Horizontal science policy axis obvious, but second less articulated

16. Enlightenment � objective knowledge for �truth�, independent curiousity driven pursuit creates new insight, concepts, hypotheses, and technical instruments - new knowledge trickle into politics, values, normative issues are left to politics Technocracy � science supreme, but coming together of policy and science, science has colonised policy, techno-science experts hold �defacto� power in day to day business/ admin of politics, scientists are free to impose their subjective notions of what is �good�, lay knowledge is played down as not credible. Bureaucracy (32)� policy supreme divergent model, overly protected nature of public knowledge and apparatus of the state, origins in Weber�s �iron cage� of bureaucracy � order, rationality, rigid and uncreative. Uncertainty is dealt with through pretence of reduction, if not elimination. Conflicting knowledge. Science instrument of policy Engineering � �politicians stay on top and experts remain on tap�, principal and agent, scientists as engineers � not creative, �applying existing bodies of knowledge for local solutions to local problems�. Choice of values and goals predetermined by politics, uncertainty accepted so that it can be coped with, trial and error, incrementalism Orientation to advocacy = dealing with divergent logics, negotiating between Orientation to learning = working together, shared understandings, shared learning Enlightenment � objective knowledge for �truth�, independent curiousity driven pursuit creates new insight, concepts, hypotheses, and technical instruments - new knowledge trickle into politics, values, normative issues are left to politics Technocracy � science supreme, but coming together of policy and science, science has colonised policy, techno-science experts hold �defacto� power in day to day business/ admin of politics, scientists are free to impose their subjective notions of what is �good�, lay knowledge is played down as not credible. Bureaucracy (32)� policy supreme divergent model, overly protected nature of public knowledge and apparatus of the state, origins in Weber�s �iron cage� of bureaucracy � order, rationality, rigid and uncreative. Uncertainty is dealt with through pretence of reduction, if not elimination. Conflicting knowledge. Science instrument of policy Engineering � �politicians stay on top and experts remain on tap�, principal and agent, scientists as engineers � not creative, �applying existing bodies of knowledge for local solutions to local problems�. Choice of values and goals predetermined by politics, uncertainty accepted so that it can be coped with, trial and error, incrementalism Orientation to advocacy = dealing with divergent logics, negotiating between Orientation to learning = working together, shared understandings, shared learning

17. These are the areas where our project was positioned: These are where relations between science, politics, divergence, convergence are blurry, closer to middle of axes. ALL presuppose not primacy but DIALOGUE. Things are negotiated � boundary work Learning Equal status between science and policy is presupposed Pure Learning Scientisation of politics, shared learning, policy making as intellectual activity social experimentation, evaluation, monitoring, hypothesis testing, problem solving to inform considered incremental change Coping Learning not key, too idealistic, power, tactical alligance, political support, mutual resource dependencies, interactive process of problem coping that occur is a serial and recurring fashion (43) trial and error, serial adjustment Advocacy � (divergent logics) Multiple interests � equalising spaces for dialogue to enable debate, judgement and decisionmaking Adversarial Cradle of the research as ammunition theory of knowledge use (36) �Experts and analysts are like lawyers; advocacy is their business� 36 Scientific expertise utilised to legitimise a political stance Struggle between different political viewpoints and interests and science used selectively to inform political compromise and adjustment Attached to this model � �frigidair� function � policy refers problem to science in order to create time delays, enabling the least committing steps to be taken for incremental policy Dispositional or discourse coalition model (Most relevant for dioxin work) Sciences influences more important than in adversarial, still advocacy coalitions � struggle and competing interests Science aims to recognise and �make sense� of �wicked problems�, complex interdependencies. Intricate patterns of cooperation and opposition that bring together very different types of policy actors, professional and scientific communities, ngo�s, local citizen groups & media commentators. The ensemble of this multifacted (heterogeneous) group is called a functional policy sub system or network (37) Bringing and holding together many require very active management (Hoppe says permanent management) to avoid heterogeneity overload. Discourse - story lines � function as �rhetorical bridges� between the divergent but overlapping interests Science role clear to provide new fuzzy concepts which may function as conceptual bridges between separate field of knowledge Fuzzy concepts � imply rhetorical commitment, yet respect divergent life worlds of the members of the policy sub-system. When these work successfully there is a commitment to practice. Claims and interests not fixed, actors can behave differently and be flexible about dealing with values than in adversarial model. Unsteady balance between trust and distrust between science and politics Different also ALL primacy models uncertainty is bad, uncertainty is accepted and is beneficial because is can be transformed Hoppe claims all pragmatist models �the equal status of lay and expert knowledge is key�. In practice, when came to crunch this was perhaps not the case and required a shift for both policy and science. These are the areas where our project was positioned: These are where relations between science, politics, divergence, convergence are blurry, closer to middle of axes. ALL presuppose not primacy but DIALOGUE. Things are negotiated � boundary work Learning Equal status between science and policy is presupposed Pure Learning Scientisation of politics, shared learning, policy making as intellectual activity social experimentation, evaluation, monitoring, hypothesis testing, problem solving to inform considered incremental change Coping Learning not key, too idealistic, power, tactical alligance, political support, mutual resource dependencies, interactive process of problem coping that occur is a serial and recurring fashion (43) trial and error, serial adjustment Advocacy � (divergent logics) Multiple interests � equalising spaces for dialogue to enable debate, judgement and decisionmaking Adversarial Cradle of the research as ammunition theory of knowledge use (36) �Experts and analysts are like lawyers; advocacy is their business� 36 Scientific expertise utilised to legitimise a political stance Struggle between different political viewpoints and interests and science used selectively to inform political compromise and adjustment Attached to this model � �frigidair� function � policy refers problem to science in order to create time delays, enabling the least committing steps to be taken for incremental policy Dispositional or discourse coalition model (Most relevant for dioxin work) Sciences influences more important than in adversarial, still advocacy coalitions � struggle and competing interests Science aims to recognise and �make sense� of �wicked problems�, complex interdependencies. Intricate patterns of cooperation and opposition that bring together very different types of policy actors, professional and scientific communities, ngo�s, local citizen groups & media commentators. The ensemble of this multifacted (heterogeneous) group is called a functional policy sub system or network (37) Bringing and holding together many require very active management (Hoppe says permanent management) to avoid heterogeneity overload. Discourse - story lines � function as �rhetorical bridges� between the divergent but overlapping interests Science role clear to provide new fuzzy concepts which may function as conceptual bridges between separate field of knowledge Fuzzy concepts � imply rhetorical commitment, yet respect divergent life worlds of the members of the policy sub-system. When these work successfully there is a commitment to practice. Claims and interests not fixed, actors can behave differently and be flexible about dealing with values than in adversarial model. Unsteady balance between trust and distrust between science and politics Different also ALL primacy models uncertainty is bad, uncertainty is accepted and is beneficial because is can be transformed Hoppe claims all pragmatist models �the equal status of lay and expert knowledge is key�. In practice, when came to crunch this was perhaps not the case and required a shift for both policy and science.

18. I have overlayed Hoppe�s - red square around the four models of activity that typify the current science policy environment Historical � residual, pure forms of operational mode, still there but latent forms of power, control, authority of knowledge and action, BUT when things get wobbly, contested these older positions are a powerful default Current � where most of our boundary work is getting done, negotiated spaces For Hoppe this is area where �pragmatism� reigns supreme � defn �dealing with matters according to their practical significance or immediate importance� Like any model, not clear cut, simply reflecting tendencies or patterns The 8 modalities coexist with positions between. I have overlayed Hoppe�s - red square around the four models of activity that typify the current science policy environment Historical � residual, pure forms of operational mode, still there but latent forms of power, control, authority of knowledge and action, BUT when things get wobbly, contested these older positions are a powerful default Current � where most of our boundary work is getting done, negotiated spaces For Hoppe this is area where �pragmatism� reigns supreme � defn �dealing with matters according to their practical significance or immediate importance� Like any model, not clear cut, simply reflecting tendencies or patterns The 8 modalities coexist with positions between.

19. Where our case fits � Pragmatist Dialogue based Advocacy area Science �owned� Dispositional or discourse coalition model �pragmatist� � defn �dealing with matters according to their practical significance or immediate importance� Adversarial, science different to policy, some fusing of mutual interests but separate by design � possibly elements of �frigidair� function, science not place to delay but for govt to displace and diffuse the coping, adversarial aspects of the historical problem, this was a temporary pass of the problem to another party that enabled the problem to be looked at differently Also multiple competing interests � community, stakeholders Science owned � BUT this was temporary and tenuous, science and policy areas were being tested, contested, and demarked throughout the study Dispositional � re-ordering, reframing control according to the qualities of the field�pragmatist� � defn �dealing with matters according to their practical significance or immediate importance� Adversarial, science different to policy, some fusing of mutual interests but separate by design � possibly elements of �frigidair� function, science not place to delay but for govt to displace and diffuse the coping, adversarial aspects of the historical problem, this was a temporary pass of the problem to another party that enabled the problem to be looked at differently Also multiple competing interests � community, stakeholders Science owned � BUT this was temporary and tenuous, science and policy areas were being tested, contested, and demarked throughout the study Dispositional � re-ordering, reframing control according to the qualities of the field

20. Critical success factors for this boundary work Research design (policy-research nexus) Ethics for authentic dialogue Methods for authentic dialogue Bridging technologies Reflect back to Hoppe and the Dispositional / Discourse coalition model throughoutReflect back to Hoppe and the Dispositional / Discourse coalition model throughout

21. Research Design (Policy-research nexus) Involvement of third party (ESR) Project split into 2 Phases Phase I: Community consultation Phase II: Scientific study (two surveys, multi-pathway exposure modelling, blood sampling and analysis) Government brings in third party Split of policy and science Design of project negotiated into 2 phases Attempt to decouple connections between govt, community and science. Social science as brokering, softening technology to negotiate between government and community, and make science workable Phase II: two sets of surveys and multi pathway exposure modelling Government brings in third party Split of policy and science Design of project negotiated into 2 phases Attempt to decouple connections between govt, community and science. Social science as brokering, softening technology to negotiate between government and community, and make science workable Phase II: two sets of surveys and multi pathway exposure modelling

22. Ethics for authentic dialogue Listen to local concerns and ensure science addresses these to best extent possible Involve those most affected by the issue in the study design Active listening, acknowledgement of community expertise, open information sharing, being accessible, making decisions transparent Dialogue on ethics within our team Relationships and trust building with key stakeholders Dialogue fundamental - within team - between ESR and community - between ESR and client Rebuilding of trust � community and science, careful to decouple from historical government, but advocate for current governments good intentions Relationship building � trying to establish better trust, particularly with local interest groups Facts � important � hotly contested community felt their local information has been disregarded and that previous govt studies had got things wrong Engage with international scientific literature, particularly methods Dialogue on ethics within our team Relationships and trust building with key stakeholders Dialogue fundamental - within team - between ESR and community - between ESR and client Rebuilding of trust � community and science, careful to decouple from historical government, but advocate for current governments good intentions Relationship building � trying to establish better trust, particularly with local interest groups Facts � important � hotly contested community felt their local information has been disregarded and that previous govt studies had got things wrong Engage with international scientific literature, particularly methods

23. Methods: making workable space for dialogue Consultation (stakeholder analysis) Paritutu Community Health Liaison Group maintained only as �ceremonial� decision making Actual dialogue, decision preferences and negotiations done in �one on one� interviews (identity work) Stakeholder mapping exercise key method for understanding and interests, determining ethics (valid and robust community representation) balance these different interests in the design of the study. Paritutu Community Liaison Group � multi stakeholder and multi community interest group membership, inherited forum - site for maintenance of ritualisitic conflict � to Midgley�s boundary critique Decoupled meaningful consultation into one on one interviews, place of boundary work Identity work could be done to deepen trust and understanding � decoupling my personal ethics and identity from science or government, sharing information about Personal involvement in community action or protest - �I am more like you than you think� Began with working group established by local Health Authorities � Paritutu Legitimacy and representation issues debated hotly in our Team � the stakeholder mapping exercise was good in positioning these groups and allowing us to make explicit the focus on the Paritutu community groups in terms of our key accountability during the consultation phase. (ought � boundary critique) Much of consulation work one on one, scientist & sociologist to explore and document science and contextual issues Community Health Liaison Group, comprised of different local stakeholder groups community interface Official decision making forum Shared information (ie. international literature) 3 meetings in total Stakeholder mapping exercise key method for understanding and interests, determining ethics (valid and robust community representation) balance these different interests in the design of the study. Paritutu Community Liaison Group � multi stakeholder and multi community interest group membership, inherited forum - site for maintenance of ritualisitic conflict � to Midgley�s boundary critique Decoupled meaningful consultation into one on one interviews, place of boundary work Identity work could be done to deepen trust and understanding � decoupling my personal ethics and identity from science or government, sharing information about Personal involvement in community action or protest - �I am more like you than you think� Began with working group established by local Health Authorities � Paritutu Legitimacy and representation issues debated hotly in our Team � the stakeholder mapping exercise was good in positioning these groups and allowing us to make explicit the focus on the Paritutu community groups in terms of our key accountability during the consultation phase. (ought � boundary critique) Much of consulation work one on one, scientist & sociologist to explore and document science and contextual issues Community Health Liaison Group, comprised of different local stakeholder groups community interface Official decision making forum Shared information (ie. international literature) 3 meetings in total

24. Methods: making dialogue work to reshape Dialogue helped to re-establish agreed �facts� Sharing international literature Revisit previous NZ govt studies Rhetorical bridges (mirroring) �jigsaw� metaphor �moving forward� Dialogue � mirroring (active/ reflective listening basis) - back as form of sense making and settlement Rhetorical bridges � some temporary Ie. jigsaw � ESR partial mandate, partiality of study in addressing community concerns and uncertainty Mirroring Using local knowledge to underpin and create new shared agreements and sense making devices � NOT useful unless clearly used local knowledge Discourse - story lines � function as �rhetorical bridges� between the divergent but overlapping interests to enable commitment to practice Science role clear to provide new fuzzy concepts which may function as conceptual bridges between separate field of knowledge Fuzzy concepts � imply rhetorical commitment, yet respect divergent life worlds of the members of the policy sub-system. When these work successfully there is a commitment to practice. Claims and interests not fixed, actors can behave differently and be flexible about dealing with values than in adversarial model. Dialogue � mirroring (active/ reflective listening basis) - back as form of sense making and settlement Rhetorical bridges � some temporary Ie. jigsaw � ESR partial mandate, partiality of study in addressing community concerns and uncertainty Mirroring Using local knowledge to underpin and create new shared agreements and sense making devices � NOT useful unless clearly used local knowledge Discourse - story lines � function as �rhetorical bridges� between the divergent but overlapping interests to enable commitment to practice Science role clear to provide new fuzzy concepts which may function as conceptual bridges between separate field of knowledge Fuzzy concepts � imply rhetorical commitment, yet respect divergent life worlds of the members of the policy sub-system. When these work successfully there is a commitment to practice. Claims and interests not fixed, actors can behave differently and be flexible about dealing with values than in adversarial model.

25. Bridging technologies Help to transform conversation or dialogue into durable �facts� 1. Survey tools � making voices and anecdote into data 2. GIS modelling � visual representations allow for sophisticated mirroring and overlay - refining local knowledge into data Support shared understandings, shared exploration

26. Spatial Prediction Model of Soil TCDD More concrete example of the type of tools emerged for more durable sense making Layering of data sets, multi-pathway exposure modelling - previously disputed, uncertainties through dialogue now local knowledge can be now be seen in the reordering and reconstruction of facts and scope � boundary judgements more robust and acceptable. Aspect of the multi-pathway exposure modelling Soil data � predicted high exposure area, linked to adresses to guide selection As example of types of tools that the science investigation produced � Visual depictions to help convey aspects of scope of problem, agreed settlements of fact Based on layering of local knowledge, Tools whereby community and science mix their knowledge and resources to help policy contain, control the issue. Left behind some durable settlements More concrete example of the type of tools emerged for more durable sense making Layering of data sets, multi-pathway exposure modelling - previously disputed, uncertainties through dialogue now local knowledge can be now be seen in the reordering and reconstruction of facts and scope � boundary judgements more robust and acceptable. Aspect of the multi-pathway exposure modelling Soil data � predicted high exposure area, linked to adresses to guide selection As example of types of tools that the science investigation produced � Visual depictions to help convey aspects of scope of problem, agreed settlements of fact Based on layering of local knowledge, Tools whereby community and science mix their knowledge and resources to help policy contain, control the issue. Left behind some durable settlements

27. Limitations BUT � The bridging tools (and the scientific judgements underpinning) privilege what can be validated within existing knowledge/power relations Uncertainties and many community concerns remained anecdotal and therefore outside the durable cartographies Tension: Privileging and representing local knowledge vs scientifically defensible study

28. Lessons � �Independent�, third party crucial BUT fraught Dialogue and rhetorical bridging is key to successful boundary work Bridging technologies can create durable knowledge, but �facts� still contested Local knowledge is key for bridging where science is both solution and problem Communication - where science is both solution and problem Communication -

29. Conclusion Government and community relationship was the most visible aspect of boundary and boundary work Boundary critique (Midgley) useful in explaining visible dynamics of conflict Hoppe articulates less visible knowledge/power boundaries between science and policy Both theories support that pragmatism and dialogue based approaches are key in designing interventions for contested situations Midgley � Systemic intervention, methodological framework Hoppe � boundary work � theoretical framework, greater explanation for tensions, blurring of instititonal boundaries, and multiple aspects of negotation, explanation of fluidity of methods and why dialogue, between actors and within team about science and policy, ethics so important. And why pragmatism was such an important reference point, default logic for the project team. Midgley � Systemic intervention, methodological framework Hoppe � boundary work � theoretical framework, greater explanation for tensions, blurring of instititonal boundaries, and multiple aspects of negotation, explanation of fluidity of methods and why dialogue, between actors and within team about science and policy, ethics so important. And why pragmatism was such an important reference point, default logic for the project team.

30. Key references Midgley, G. (2000) Systemic Intervention: Philosophy, Methodology and Practice Kluwer: New York Hoppe, R (2005) Rethinking the science-policy nexus Poiesis Prax 2005:3 pp199-215 Baker, V., Fowles, J., Gregory, W. & Phillips, D. �(2008) Making boundaries Malleable: Systemic Intervention in a Contested Setting, The�International�Journal of�Interdisciplinary Social Sciences,�vol 3, no 3, pp31-43

31. Acknowledgements ESR Ltd Jeff Fowles (toxicologist) Nick Garrett (statistician) Felicity Marriott (research assistant) David Phillips (programme manager) Ruth Pirie (GIS � spatial analysis) Keriata Stuart (Maori adviser) Air and Environmental Sciences Ltd Mathew Noonan (toxico-kinetic modelling) Craig Stevenson (air dispersal modelling) Ministry of Health http://www.moh.govt.nz/moh.nsf/238fd5fb4fd051844c256669006aed57/e7fe671ed87fabd1cc256fea00762da6?OpenDocument#1