Politicizing the “unknown”: Territorial narratives, shared spatial imaginaries, and Bermuda’s oceans

Marine conservation advocates have promoted the designation of large-scale marine protected areas (LSMPAs) in the EEZs of small island states and territories. These offshore spaces, early proponents argued, are too remote for people to use and are thus “politically less risky” than nearshore areas to promote conservation. This paper counters this assertion through an empirical examination of how the mistaken assumption that offshore spaces are unpeopled contributed to a failed LSMPA designation attempt in Bermuda. Drawing on policy documents, speech transcripts, media, and 104 semi-structured interviews, it presents an analysis of the territorial narratives used to discursively (re)produce Bermuda’s EEZ during LSMPA negotiations. Three major findings emerge. First, rather than a blank slate on which conservation values could be easily inscribed, these narratives showed Bermuda’s EEZ to be a space entangled with diverse values, identities, and goals. Second, the narratives that actors used revealed broadly overlapping values related to Bermuda’s EEZ, even among people promoting opposing governance outcomes, demonstrating that opportunities for broad agreement on the EEZ’s purpose and governance did, and may still, exist. Third, by using an imaginary of Bermuda’s EEZ as “unknown” to legitimize its decision to delay negotiations, the Bermuda government effectively reinstated the “blank slate,” aligning itself with popular values while avoiding a definitive stance on the contentious national debate. This decision and the broader negotiations demonstrate how the use of territorial narratives and spatial imaginaries can alter offshore spaces, even when no regulatory changes occur, with implications for future ocean governance options.