Within the different policy clusters that are being assessed , different constellations of coherence or incoherence can occur between the various objectives and instruments.
The relevant policies are often of a different nature, encompassing directives, regulations, strategies, plans, and other types of policies. Some are directly relevant for the assessment, while others are more indirectly relevant, perhaps even belonging to separate policy areas. Some have clear and specific objectives, others more general policy visions.
For example, while three policies (A, B and C) might be coherent in terms of objectives, the instruments of policy A might be incoherent with the instruments of policies B and C. This might negatively affect the effectiveness of all three policies in delivering on their objectives (cross-compliance).
Coherence analysis of Biodiversity Policy Clusters
In this clip from the second CrossGov episode “Policy coherence in marine governance – How can we comprehensively assess and understand it?“, Suvi-Tuulli Puharinen (Maastricht University) showcases results from coherence analysis on the biodiversity policies of the Green Deal (Nature Directives, MSFD, WFD and the NRL).
As explained by Dr Puharinen, the objectives and instruments of the Nature Directives, the MSFD, the WFD and the NRL form a complex policy cluster for marine biodiversity protection.
The objectives and the instruments are by their general nature quite coherent and aim towards improving the state of marine biodiversity. However, fragmentation exists in the substance of the objectives, the timeframes for their achievement, the legal impacts of the objectives in relation to Member States obligation and the instruments, particularly rules on authorising new projects as well as the exemptions.
Coherence analysis of Fisheries Policy Clusters
In this clip from the second CrossGov episode “Policy coherence in marine governance – How can we comprehensively assess and understand it?“, Jonas Kyrönviita (University of Eastern Finland) showcases results from coherence analysis on the fisheries policies of the Green Deal.
How to assess policy coherence between measures of environmental policies?
Policies primarily focused on governing environmental status and protection should be mutually supportive (e.g., Marine Strategy Framework Directive, Water Framework Directive, Habitats Directive, Nature Restoration Law). The coherence assessment should focus on understanding whether the policy measures sufficiently promote synergies towards a coherent landscape of environmental policies, for example by asking:
What specific natural assets do the various measures of the policies within the group aim to manage?
Examples are individual species, groups of species, habitats, ecosystems.
Do the policy measures complement each other, or do they lead to inconsistencies, fragmentation, and additional burdens?
Examples include terminology and definitions, use of indicators, and definitions of threshold values.
Many environmental policies require strategic plans as a policy measure to coordinate across sectors that cause pressures on nature.
- Are all sectoral authorities that might have an impact on the natural asset’s environmental condition involved and coordinated in the strategic planning processes?
- To what extent are the planning cycles between the selected policies coherent:
- Are they temporally aligned?
- Are there collaborative efforts in monitoring and reporting across the policies?
- Are shared stakeholders and decision-making authorities engaged throughout the planning cycles of various policies to ensure coherence?
- Are programs of measures compatible and mutually supportive? Are they referring to each other?
It is important to be aware that the level of coherence between policies that belong to the same policy area should be high. This means that the measures and the objectives of such policies should reinforce one another, enabling synergetic planning, policymaking and decision-making with positive outcomes for the environment
How to assess policy coherence between measures of sectoral and environmental policies?
When assessing the coherence of a group of policies that includes at least one sectoral policy (such as Common Fisheries Policy, Common Agricultural Policy, Renewable Energy Directive) alongside an environmental policy(e.g., Marine Strategy Framework Directive, Water Framework Directive) it is essential to understand how the combination of policy measures within the group influences its overall policy direction.
This involves examining whether the policy measures are balanced to achieve all policy objectives simultaneously, or if some measures are more influential than others, potentially leading to incoherence where not all policy objectives are met. The assessment should focus on understanding these dynamics across the various policy measures, identifying where trade-offs could occur and where synergies can be pursued. The following questions are recommended:
Which policy measures that are part of the assessment target the same actors or activities?
Do the measures provide supporting or conflicting incentives?
- If the measures provide conflicting incentives, which of these policy measures are more influential? Compare for example their legal status, enforceability, and impact on decision-making processes.
- How does this affect the realization of policy objectives? Does this lead to one policy, or a set of policy objectives, being more easily achieved than others?
Are environmental considerations mainstreamed into the sectoral policy?
- If the sectoral policy includes subsidies and financial resource allocation, how does this impact the achievement of environmental policy objectives? Do these financial measures create conflicting incentives, or do they support the realization of environmental objectives?
- Are the licensing and permitting criteria within the sectoral policy aligned with the indicators and objectives of the environmental policy?
- Are the criteria with direct applicability aligned with the indicators and objectives of the environmental policy?
It is important to be aware that trade-offs are common in decision-making processes. Without strong and enforceable measures in the environmental policies, trade-offs can easily have negative consequences for the environmental objectives while fostering economic development.
The implementation of measures of sectoral policies should not hinder progress towards realizing the environmental policies’ objectives and measures. This is the minimum level of coherence that should be envisioned in such assessments.