Environmental problems that cross national borders are attracting increasing public and political attention; regulating them involves coordinating the goals and activities of various governments, which often presupposes simplifying and standardizing complex knowledge, and finding ways to manage uncertainty. This article explores how transboundary environmental problems are dealt with to render complex issues governable. By discussing oil pollution in the Baltic Sea and the gas pipeline between Russia and Germany, we elucidate how boundaries are negotiated to make issues governable. Three processes are found to be particularly relevant to how involved actors render complex issues governable: complexity reduction, construction of a spatial identity for an issue, and ascription of capabilities to new or old actor constellations. We conclude that such regulation is always provisional, implying that existing regulation is always open for negotiation and criticism.

Scientific complexity and uncertainty is a key challenge for environmental risk governance and to understand how risks are framed and communicated is of utmost importance. The Baltic Sea ecosystem is stressed and exposed to different risks like eutrophication, overfishing, and hazardous chemicals. Based on an analysis of the Swedish newspaper Dagens Nyheter, this study discusses media representations of these risks. The results show that the reporting on the Baltic Sea has been fairly stable since the beginning of the 1990s. Many articles acknowledge several risks, but eutrophication receives the most attention and is also considered the biggest threat. Authorities, experts, organizations, and politicians are the dominating actors, while citizens and industry representatives are more or less invisible. Eutrophication is not framed in terms of uncertainty concerning the risk and consequences, but rather in terms of main causes.

The protection of the Baltic Sea ecosystem is exacerbated by the social, environmental and economic complexities of governing European fisheries. Increased stakeholder participation and knowledge integration are suggested to improve the EU's Common Fisheries Policy (CFP), suffering from legitimacy, credibility and compliance problems. As a result, the CFP was revised in 2002 to involve fisheries representatives, NGOs and other stakeholders through so called Regional Advisory Councils (RACs) in the policy process. We address the RAC's task to incorporate stakeholder knowledge into the EU's fisheries governance system in empirical and theoretical perspectives. Drawing on a four-stage governance concept we subsequently suggest that a basic problem is a mismatch between participation purpose (knowledge inclusion) and the governance stage at which RACs are formally positioned (evaluation of management proposals). We conclude that, if the aim is to broaden the knowledge base of fisheries management, stakeholders need to be included earlier in the governance process.

Complex socio-environmental risks challenge society. In response to scientific uncertainty and sociopolitical controversies, environmental governance, precaution, and the ecosystem approach to management are held forward as complements to governmental risk-based sector-restricted regulation. We analyze this development for hazardous substances in the Baltic Sea. Based on interviews and policy analysis, we study informal governance and, in particular, four central EU and international policies, and investigate how present governance relates to risks and objectives at hand. While showing emergence of broader governance approaches, we conclude that central objectives will not likely be met. Furthermore, we question the quest for broad environmental governance and emphasize the value of command and control regulation, if it implements precaution. These findings contribute to the theorizing on environmental (risk) governance. Finally, we provide some ideas that could help development and implementation of risk policies for hazardous chemicals in the Baltic Sea as well as other complex risks.

Policy and research issues in the framing and qualities of uncertainties in risks are analyzed, based on the assessments of dioxin-like compounds (DLCs) and other ingredients in Baltic Sea fish, a high-profile case of governance. Risks are framed broadly, to then focus on dioxins and beneficial fatty acids, fish consumption, human health, and science-management links. Hierarchies of uncertainty (data, model, decision rule, and epistemic) and ambiguity (of values) are used to identify issues of scientific and policy contestation and opportunities for resolving them. The associated complexity of risks is illustrated by risk—benefit analyses of fish consumption and by evaluations of guideline values, highlighting value contents and policy factors in presumably scientific decision criteria, and arguments used in multi-dimensional risk and benefit comparisons. These comparisons pose challenges to narrow assessments centered, for e.g., on toxicants or on food benefits, and to more many-sided and balanced risk communication and management. It is shown that structured and contextualized treatment of uncertainties and ambiguities in a reflexive approach can inform balances between wide and narrow focus, detail and generality, and evidence and precaution.

Marine governance of oil transportation is complex. Due to difficulties in effectively monitoring procedures on vessels en voyage, incentives to save costs by not following established regulations on issues such as cleaning of tanks, crew size, and safe navigation may be substantial. The issue of problem structure is placed in focus, that is, to what degree the specific characteristics and complexity of intentional versus accidental oil spill risks affect institutional responses. It is shown that whereas the risk of accidental oil spills primarily has been met by technical requirements on the vessels in combination with Port State control, attempts have been made to curb intentional pollution by for example increased surveillance and smart governance mechanisms such as the No-Special-Fee system. It is suggested that environmental safety could be improved by increased use of smart governance mechanisms tightly adapted to key actors' incentives to alter behavior in preferable directions.

Environmental change challenges local and global survival of populations and species. In a species-poor environment like the Baltic Sea this is particularly critical as major ecosystem functions may be upheld by single species. A complex interplay between demographic and genetic characteristics of species and populations determines risks of local extinction, chances of re-establishment of lost populations, and tolerance to environmental changes by evolution of new adaptations. Recent studies show that Baltic populations of dominant marine species are locally adapted, have lost genetic variation and are relatively isolated. In addition, some have evolved unusually high degrees of clonality and others are representatives of endemic (unique) evolutionary lineages. We here suggest that a consequence of local adaptation, isolation and genetic endemism is an increased risk of failure in restoring extinct Baltic populations. Additionally, restricted availability of genetic variation owing to lost variation and isolation may negatively impact the potential for evolutionary rescue following environmental change.

This article examines the views of scientists on intricacies of scientific knowledge that affect science-policy interface in the Baltic Sea eutrophication governance in Finland. The analysis demonstrates that these intricacies can be divided into five categories: (1) uncertainty of knowledge concerning ecological processes, (2) heterogeneity of knowledge, (3) societal and political call for (certain) knowledge, (4) contingency of the knowledge that ends up taken as a baseline for decision making and further research, and (5) linkages of knowledge production, processing, and communication to particular characteristics of individual researchers and research societies. By explicating these aspects, this article illustrates the ways in which scientific knowledge concerning eutrophication is human-bound and susceptible to interpretation, thus adding on to the uncertainty of the Baltic Sea environmental governance. The aim is, then, to open up perspectives on how ambiguities related to science-policy interface could be coped with.

The spatial and temporal repercussions of climate change are of an extremely complex nature. Coping with climate change is, first and foremost, a challenge to political decision making and, considering the long-term effects of the climate system, to planning. However, there have never been more doubts that the political-administrative system is able to meet these requirements. Although much evidence has been put forward in favor of such skepticism, sometimes, it is dangerous to overstate the existing limits. Drawing on two case studies in the area of flood risk management in Germany, the article illustrates how and why significant path change came about. In both cases, the state proved to still being a pivotal actor, due to a number of functions that cannot be assumed by other actors. However, other actor groups—such as actors from science, the media, NGOs, and citizen groups—play a significant role as well by providing relevant expertise and influencing the public discourse, thus mobilizing significant political pressure.

In this article, focusing on the ongoing implementation of the EU Water Framework Directive, we analyze some of the opportunities and challenges for a sustainable governance of water resources from an ecosystem management perspective. In the face of uncertainty and change, the ecosystem approach as a holistic and integrated management framework is increasingly recognized. The ongoing implementation of the Water Framework Directive (WFD) could be viewed as a reorganization phase in the process of change in institutional arrangements and ecosystems. In this case study from the Northern Baltic Sea River Basin District, Sweden, we focus in particular on data and information management from a multi-level governance perspective from the local stakeholder to the River Basin level. We apply a document analysis, hydrological mapping, and GIS models to analyze some of the institutional framework created for the implementation of the WFD. The study underlines the importance of institutional arrangements that can handle variability of local situations and trade-offs between solutions and priorities on different hierarchical levels.

Between 1985 and 1995, fertility in Eastern Europe declined from 2.2 children per woman to merely 1.5 on region-average. Previous research has emphasized mainly the economic turmoil during transition or the influx of new ideas regarding fertility and family relations. This article suggests that applying a risk management perspective on fertility patterns may put additional light on the reasons behind the fertility decline in post-communist Europe. The complexity of modern social systems has made people increasingly dependent on the state for risk evaluation and risk management. The article formulates the hypothesis that transition itself disrupted the mental models that helped people to navigate among the risks associated to having and raising children. Left to their own devices, women in Eastern Europe became more inclined to postpone childbirth or discard this option altogether.

The term governance describes the multitude of actors and processes that lead to collectively binding decisions. The term risk governance translates the core principles of governance to the context of risk-related policy making. We aim to delineate some basic lessons from the insights of the other articles in this special issue for our understanding of risk governance. Risk governance provides a conceptual as well as normative basis for how to cope with uncertain, complex and/or ambiguous risks. We propose to synthesize the breadth of the articles in this special issue by suggesting some changes to the risk governance framework proposed by the International Risk Governance Council (IRGC) and adding some insights to its analytical and normative implications.