Advancing justice in flood risk management: Leveling political capabilities

Abstract

Land use change, managed retreat, and relocation programs are examples of exposure reduction measures in flood risk management (FRM). Exposure reduction measures are especially prone to conflict at the local level due to competing interests, values, and attachments. In this paper, we build upon the capability approach to justice and specifically the concept of political capabilities to advance justice in exposure reduction measures in FRM. A capabilities-based approach to justice helps to recognize the multiplicity of valuable ways of life and addresses a wide range of inequalities including concerns related to recognition justice. The innovation of our capabilities-based approach to justice is that we include both actors who have too little political influence as well as those who have too much and can thus excessively steer FRM in their advantage. A political capabilities analysis is different than a focus on principles or rights because it draws attention to realized political influence and includes the informal stages of FRM politics such as lobbying. The political capabilities concept also shifts the focus from vulnerability to human agency, thereby addressing concerns in the FRM literature about the loss of self-determination and misrecognition. The paper concludes with a critical discussion of the opportunities and limitations of using the political capabilities concept in FRM.