Global Environmental Change 83 (2023) 102762 Contents lists available at ScienceDirect Global Environmental Change journal homepage: www.elsevier.com/locate/gloenvcha Slow justice and other unexpected consequences of litigation in environmental conflicts Marta Conde a, b, c, *, Mariana Walter a, b, Lucrecia Wagner d, Grettel Navas e a Institut de Ciència i Tecnologia Ambientals, Universitat Autonoma de Barcelona, Edifici C Campus de la UAB, 08193 Bellaterra (Cerdanyola del Vallès), Barcelona, Spain b JHU-UPF Public Policy Centre, Department of Political and Social Sciences, Universitat Pompeu Fabra, UPF Barcelona School of Management (UPF-BSM), Ramon Trias Fargas, 25-27, 08005 Barcelona, Spain c Centre for Social Responsability in Mining (CSRM), Sustainable Minerals Institute (SMI), The University of Queensland, Level 4, Sir James Foots Building (No. 47A) The University of Queensland, St Lucia, Queensland 4072, Australia d Institute of Nivology, Glaciology and Environmental Science - National Scientific and Technical Research Council (IANIGLA-CONICET), Centro Cientifico Tecnológico (CCT) Mendoza. Av. Ruiz Leal s/n, Parque General San Martín, Mendoza CP 5500, Argentina e Facultad de Gobierno, University of Chile, Santa Lucía 240, Región Metropolitana, Santiago, Chile A B S T R A C T Movements are increasingly taking companies to court for environmental and social harms. Yet little is known about the consequences this strategy has for movements and their struggles. Through a cross-country comparison of three environmental litigation cases in Argentina, Nicaragua, and Spain, we find that local groups encounter three interrelated consequences: i) ‘slow justice’, a strategy generally driven by companies to delay proceedings and demobilize movements; ii) courts reduce complex impacts to simplified, scientifically verifiable and legally punishable damages, thus invisibilizing certain harms, victims, narratives and demands; and iii) local groups lose control of the resistance process as judges and lawyers become key decision-makers. These dynamics interact with the specific features of environmental conflicts —uncertainty, slow violence and marginalized affected parties— to deepen power inequalities in litigation processes. Our findings are contextualized within the literatures on legal mobilization and the judicialization of politics. We conclude that social movements, when looking for a fair and just solution through the judicial system, encounter different but highly hierarchical power structures. And even if they win in the courts, companies can avoid complying with the judicial orders. 1. Introduction scholars have mainly explored the judicialization of rights-based strug­ gles (Chen and Cummings, 2013, Handler, 1978, Burstein 1991, McCann Social and environmental movements worldwide are increasingly 2008, Zemans 1983), paying attention to why these struggles occurred appealing to courts of law to challenge social and environmental in­ and their effectiveness (Boutcher and McCammon, 2018), but not the justices and claim compensation and environmental reparations effect that going to court has on the movements themselves. The (Scheidel et al., 2020, Boutcher and McCammon, 2018, Domingo, 2010, growing and more recent literature on the “judicialization of politics” Sovacool et al., 2022, Hess and Satcher, 2019). These movements now explores how a wider set of public policy and political controversies, rely overwhelmingly on litigation to address matters that were previ­ which include environmental claims, are being brought to court because ously “negotiated in an informal or nonjudicial fashion” (Hirschl, 2010, of the limitation of administrative and political processes to address p.121). Dealing with conflicts through legal processes has transformed them (Hirschl, 2010, Domingo, 2004, Vallinder, 1994). Much of this courts into important sites of environmental political decision making literature explores the reason for the emergence and scope of this judi­ worldwide (Sieder et al., 2005, Vallinder, 1994, Merlinsky, 2013). cialization (Sieder et al., 2005, Dressel, 2012, Hirschl, 2010, Couso et al., Situated at the intersection of three different scholarships —on social 2010, Domingo, 2004). Again, though, this research has only collater­ movement theory, environmental conflicts, and the judicialization of ally examined how judicialization impacts conflicts and movements. politics— few and scattered studies explore the effect that litigation has Here, we address these open questions by focusing on groups fighting for on conflicts and social movements (Albiston, 2010). Social movement environmental justice. * Corresponding author at: Institut de Ciència i Tecnologia Ambientals, Universitat Autonoma de Barcelona, Edifici C Campus de la UAB, 08193 Bellaterra (Cerdanyola del Vallès), Barcelona, Spain. E-mail addresses: marta.conde@uab.cat (M. Conde), mariana.walter@uab.cat (M. Walter), lwagner@mendoza-conicet.gob.ar (L. Wagner), grettel.navas@ gobierno.uchile.cl (G. Navas). https://doi.org/10.1016/j.gloenvcha.2023.102762 Received 10 August 2022; Received in revised form 1 June 2023; Accepted 17 September 2023 Available online 9 October 2023 0959-3780/© 2023 The Authors. Published by Elsevier Ltd. This is an open access article under the CC BY-NC-ND license (http://creativecommons.org/licenses/by- nc-nd/4.0/). M. Conde et al. Global Environmental Change 83 (2023) 102762 Environmental justice scholarship focuses on environmental con­ legislative leaders, going to the courts or invoking the law as a discursive flicts. Researchers in these fields explore how local groups and com­ and symbolic tool (McCann, 2008). Here we focus on a particular form munities are affected by and react to the impacts of pollution, extraction of legal mobilization: litigation strategies (or impact litigation) deployed and oppression (Martinez Alier, 2002, Conde, 2017). Within this field, by local groups to pursue social change through the courts. Boutcher and scholars have largely overlooked litigation strategies despite its ubiquity McCammon (2018) identify two streams of research. The first and most (Scheidel et al., 2020). According to the Environmental Justice Atlas prominent stream studies circumstances under which activists pursue (EJAtlas), a global registry of environmental conflicts, in about 46% of litigation strategies. This research highlights the importance of political its 3869 registered cases (until March 2023) environmental defenders opportunity structures such as state institutions or the receptivity of mobilized litigation strategies (EJATLAS, 2023). political leaders (Almeida and Stearns, 1998, Flynn, 2011, Sikkink, In this paper we adopt a comparative approach with three case 2005) as well as legal opportunity, which refers to structural and studies in Argentina, Nicaragua and Spain, in which local groups have contingent elements in the judicial system such as sympathetic judges or taken their struggles to court to try to stop pollution and/or achieve political pressure on the judiciary (Hilson, 2002). The second stream compensation or reparation for damages inflicted to the environment examines how taking their struggles to court affects movements’ po­ and human health. By local groups we mean formal or informal asso­ tential for creating social change and achieving their objectives. Initial ciations that form part of a wider movement that opposes environ­ studies were quite skeptical in this regard (Scheingold, 1974, Handler, mentally harmful projects. Our findings suggest that local groups 1978, Rosenberg, 1991), but later analyses pointed to the spillover engaging in environmental litigation encounter what we have termed (Meyer and Boutcher, 2007) or indirect effects that supposedly unsuc­ “slow justice”. The temporality of judicial processes is instrumentalized, cessful struggles can have on other movements (McCann, 1994, McA­ generally by companies, to delay proceedings and outlast the energy and dam 1982, Smulovitz, 2010). finances of affected parties and local organizations. Moreover, we find Sousa Santos and Rodríguez Garavito (2005)1 highlight the growing that groups also face a reductionism and invisibilization of impacts, grassroots contestation to the advancement of neoliberal institutions affected groups, narratives and demands; and a loss of control of the legal and globalization through “the formulation of alternative legal frame­ process with local groups and movements transferring (decision making work” (p. 4). Going to the courts is only part of what they term “sub­ and narrative building) power to judges, lawyers and movements’ altern cosmopolitan legality”. They show, through numerous examples leaders. Therefore, even though the use of judicialization in environ­ across the globe, how marginalized groups are conceiving new identities mental conflicts can have positive outcomes and boost environmental and rules that challenge, change and democratize national and inter­ justice (Scheidel et al., 2020, Hess and Satcher, 2019) our research adds national regulations that exclude or oppress them. Several authors point knowledge on how unexpected consequences can deepen concomitant to an intensification of a process known as juridification, whereby social unequal power relations and increase environmental and social actors are increasingly involved and empowered in processes of law injustices. creation (Azuela and Mussetta, 2009, Sieder et al., 2005, Lutz and Sik­ Next, Section 2 outlines key debates in the judicialization of politics, kink, 2001), the use of legal language and symbols (Rosén et al., 2021), legal mobilization, and social movement literatures. After explaining and come to see themselves as legal subjects through the process of our methods in Section 3, Section 4 introduces the case studies and claiming rights (Blichner and Molander 2008, Merlinsky, 2013). Section 5 develops the three main consequences that engaging in legal Although judicialization (i.e. going to courts) can be understood as a mobilization has for environmental movements. We conclude in Section subset of the wider phenomenon of juridification (Sieder, 2020), we 6 by highlighting the role of unequal power relations posed not only by distinguish that movements use both law creation (juridification) and companies but by the legal arena itself. litigation (judicialization) strategies. 2. Judicialization in environmental conflicts 2.2. Environmental conflicts, slow violence and litigation strategies In order to study the impacts of judicialization on environmental From the perspective of environmental justice studies, environ­ conflicts, this paper engages with three fields of research; it instigates a mental conflicts are struggles over the unfair distribution of pollution hitherto marginal debate in environmental conflict studies and political and health risks that arise from the extraction, transport and disposal of ecology, merging with and contributing to the literature on the judici­ resources and energy (Martinez Alier, 2002). Power and wealth in­ alization of politics and the branch of social movement theory that deals equalities direct environmental damage and risk toward groups that are with legal mobilization. marginalized along lines of race, ethnicity, gender and class (Bullard, 1990, Scheidel et al., 2020, Dell’Angelo et al., 2021; Martinez Alier, 2.1. Judicialization of politics and judicial mobilization 2002), which deepens power imbalances in contentious environmental processes. The 21st century has witnessed a retreat of the state (Sawyer, 2004). Affected groups and territories struggle to defend their land, liveli­ Political concerns have migrated toward the legal realm, creating a hoods, and culture. In environmental justice struggles, groups not only belief in legal processes’ potential to assist in the creation of a more just challenge the unfair distribution of the costs and benefits of polluting society (Couso et al., 2010). The growing literature on the judicialization activities (distributive dimension), but also pay attention to the lack of of politics aims to provide a broader definition and analyze its scope recognition of difference (recognition dimension) and how the two are across countries and regions (Dressel, 2012, Hirschl, 2010, O’Donnell, tied together in political and social processes - i.e. decision making, 2005, Ginsburg, 2009). It highlights two processes of institutional judicial processes (procedural dimension) (Young, 1990, Cole and Fos­ change: a top-down process that operates through political judicial ter, 2001, Schlosberg, 2007). activism and a “judicialization from below” (Hirschl, 2010, p. 11, Groups mobilize a variety of strategies that range from public Domingo, 2010) where grassroots organizations are increasingly using mobilization, campaigning and network building to counter-knowledge courts as the stage of their struggles to advance their goals (Couso et al., 2010, Dressel, 2012). While the study of legal mobilization is not new in social movement 1 We would like to signal that when this paper was in preparation, Boa­ studies it has received substantially less attention than other mobiliza­ ventura Sousa Santos was suspended and under investigation for different cases tion strategies (Boutcher and McCammon, 2018). The term “legal of sexual harassment. The authors of this paper would like to express our mobilization” refers to the wide range of efforts by social actors to support and solidarity to those that are subjected to such unacceptable challenge the current state of law, including putting pressure on behavior. 2 M. Conde et al. Global Environmental Change 83 (2023) 102762 creation and litigation (Scheidel et al., 2020, Conde, 2017, Sovacool 2.3. Judicialization strategies: A double-edged sword for affected groups et al., 2022, Hess and Satcher, 2019). In this paper we focus on litigation strategies. We pose that litigating in the context of socio-environmental Deploying legal strategies can be a double-edged sword (Guzman controversies, where stakes and uncertainties are high, and processes of Solano, 2016). Scholars have identified the constitutive role of legal slow violence take place, entail particular challenges. rights as a strategic resource and a constraint, a source of empowerment Groups mobilized in environmental conflicts are often victims of and disempowerment, a space where movements struggle to contest and slow violence: toxic pollution that builds and accumulates, everyday, reconstruct the terms of social relations and power (Scheingold, 1989, slowly on lands and bodies. Nixon (2011) describes this as “a violence Silverstein, 1996). While judicialization and juridification strategies can that occurs gradually and out of sight, a violence of delayed destruction have emancipatory potential “countering hegemonic globalization” and that is dispersed across time and space, an attritional violence that is “reimagining legal institutions from below” (Sousa Santos and Rodri­ typically not viewed as violence at all” (p. 2). Dayna Nadine Scott (2012) guez Garavito, 2005, p. 4), these can also reproduce “patterns of sheds light on how legal systems underestimate the consequences of domination and hegemony” intensifying unequal power relations slow violence on people’s bodies and territories. She points to two (Sieder, 2011, p. 242). barriers: (i) legal language that is generally not accessible to the global The attractiveness of judicialization as a mobilization strategy for poor, and (ii) the need to reduce harm claims in order to adapt to what social movements or local groups is multifold. The judiciary allows can be compensated or what ‘experts’ can prove. In this vein, (judicial) groups “to assert their rights” and “hold government and politicians procedural injustices (Cole and Foster, 2001) exacerbate in the context accountable” (Sieder et al., 2005, p. 2). Morales and Azócar (2019) of environmental struggles, as they involve complex processes of argue that companies are pushed to improve their behavior thanks to the pollution and slow violence that are only partially addressed by legal pressure from the judiciary on the state or the company itself. Authors proceedings. have pointed to numerous extra-legal benefits or indirect effects of Indeed the assessment of environmental and health impacts is judicialization such as an increase in social mobilization, educational marked by high and generally irreducible uncertainties (Funtowicz and reach and organizational funding (Smulovitz, 2008, NeJaime, 2010, Ravetz, 1994). In court, while local groups can emphasize uncertainties McCann, 1994, Cole, 1994, Vanhala, 2012). It can also hinder plaintiffs to try to delay the start of a new project, companies take advantage of from disengaging, giving “political vitality to their demands” (Smulo­ uncertainty to deny or justify harm (Michaels and Monforton, 2005, vitz, 2008, p. 303). In this line, litigation can give further momentum to Conde, 2014, Conde and Walter, 2022). Environmental litigation re­ movements as in the case of the Mapuche in Chile who gained a “legal quires evidence of harm or wrongdoings in which science becomes a consciousness” and understanding of their political battle (Skjaevestad, strategic language of the legal process (Boden and Ozonoff, 2008). 2010, p. 210). Sieder (2011). Other authors point to the “spillover ef­ Environmental and local organizations thus not only need lawyers but fects” where activists and strategies travel across movements creating also scientists to collect and present evidence on environmental and new political and legal opportunities (Meyer and Boutcher, 2007). So­ health risks, revise technical documents such as Environmental Impact cial movements might also engage in litigation not necessarily expecting Assessments, provide expert witness in judicial processes, and bestow a legal victory, looking instead to give publicity and visibility to the legitimacy to their claims (Corburn, 2005, Martínez-Alier et al., 2011, conflict and gain public support (Losekann and Bissoli, 2017, Taylor and Conde and Walter, 2022, Conde, 2014). Da Ros, 2008, Cole 1994, Vanhala, 2012). Another key actor in (environmental) litigation processes are local Yet, litigation is a lengthy and expensive strategy (Snow et al, 2018, and supra-local activist lawyers that can work for free, pro-bono or Sovacool et al., 2022). As the highly polluted Matanza-Riachuelo basin receive financial support from activist networks. There are numerous case in Argentina showed, communities worn out while their demands university-based environmental law clinics found especially in the US stuck in the legal system, not solving urgent and dynamic problems but also in China (He et al., 2017), Australia, Europe and Latin America (Fainstein, 2018, Merlinsky, 2013). Judicial processes pose additional (Hamman and Heaps, 2021) that support local groups, providing challenges by reducing complex social processes to representations learning opportunities for law students. previously defined by state actors or experts (Geertz, 2008, Petryna, The use of litigation strategies in environmental conflicts is not new. 2004, 2009). Court proceedings treat every person and situation as their In 1971, the Sierra Club, a US environmental organization, coordinated categorizable attributes, fixing the identities of local and indigenous the formation of an Environmental Defense Fund aimed at gaining legal groups and limiting or altering their demands (Sieder and Witchell, standing to file claims in courts for environmental protection (Turner 2001). This can generate a “manufactured truth” that does not represent and Clifton, 1990). Cole (1994) identifies a Texas civil rights case in the realities of those impacted or their self-narrations, limiting life- 1979 that challenged the siting of a garbage dump near an African stories into “generic narratives of suffering” (Scott, 2012, p. 486, American neighborhood as the “parent” of environmental justice liti­ Sieder, 2011). Through the analysis of the demands by those injured in gation in the US. Since then litigation has become a key component of US the Chernobyl fall-out in Ukraine, Petryna (2004) shows how the state environmental justice campaigns. In Europe, Vanhala (2012, 2018) defined who was a victim and who was not as well as which harms were highlights how NGOs use litigation despite substantial losses and limited compensated and which were not. In this line, sociolegal scholars have legal opportunity structures, seeking publicity and pushing the bound­ criticized the category of victim itself due to a tendency of positivist aries for future legal actions. In Latin America, the increased use of methods of data collection to invisibilize “narratives, subjectivities and litigation strategies by environmental movements has sparked a rich experiences” (Wilson, 2006, p. 81). Litigation can thus promote some social and scholarly debate on judicial strategies and the lack of demo­ factions within the movements at the expense of others Levitsky, 2015). cratic quality (Domingo, 2004, Merlinsky, 2013, Ryan, 2010, Special The imposition of legal language on bodies generates what Vazzi (2017) Issue Íconos, 2022). Another landmark case has been indigenous com­ terms the “biopower of law”. Through the judicial process, powerful munities’ long, wearing but legally successful case against Chevron actors can gain control over the lives, rights, and narratives of vulner­ Texaco in Ecuador. In 2013, the company was ordered to pay US$9.5 able inhabitants. This has psychological, social, and cultural impacts, billion to compensate affected groups and to remediate the oil pollution and can further exacerbate the socio-environmental conflict, margin­ in Lago Agrio. The court decision, however, was never recognized by the alize local groups and “deradicalize” the movement (NeJaime, 2010, p. company and the compensation was not paid (Pigrau, 2014). The 951). company continues to claim its innocence through international cam­ Several authors point to courts’ lack of democratic accountability. paigns and has legally persecuted local and international supporters The judiciary is the least democratic of the three branches of govern­ (Reuters, 2020). ment (Kramarz et al., 2017, Rios Figueroa and Taylor, 2006; Smulovitz, 2010). Warning against the use of the judiciary to change 3 M. Conde et al. Global Environmental Change 83 (2023) 102762 (environmental) policy, Kramarz et al. (2017, p. 47) point to a lack of 4. Background of the case studies “vertical accountability” where “at the end of the day, it is the judges, not the people, who have the last word”. Judges make decisions from a 4.1. The salt waste-pile of Sallent, Spain particular specialization and background (Fainstein, 2018) and can also act without the “detachment that is formally expected” (Bölter and Since the 1920s, phosphate mining operations, now owned by ICL Derani, 2018, p. 227), resulting in an individualization of the case (Israel-based company), have generated a well-established environ­ (Bölter and Derani, 2018) or its depoliticization (Smulovitz, 2008). On mental health controversy in Catalonia. The salt waste pile of Sallent (“el the other hand, Sieder et al. (2005) point out that judges can also be cogulló de Sallent” in Catalan) and other waste piles are polluting the activists representing the interest of the weak and can overrun unjust Llobregat River Basin, one of Barcelona’s main water sources. Several decisions made by democratically elected bodies. As with judges, law­ local groups emerged in the 1990s to denounce the activities of the yers can also play a crucial role dictating the litigation strategies and mining company. Their objective was not to shut down the mine — as it ultimately, that of the movement (Cummings and Eagly, 2001, Boutcher employed more than 1000 workers from the area — but to demand that and McCammon, 2018, Dressel, 2012, NeJaime, 2010). the company “do the right thing [environmentally]” (Interview Spain All these characteristics vary widely across countries and regions #2). The legal process started in 1997 when two local environmental (Dressel, 2012, Sieder et al., 2005). Especially relevant is the role of groups and a local lawyer submitted a criminal complaint. In the 2000s corruption and what has been termed as the “politicization of the judi­ three other administrative complaints were presented by the same ciary” (Domingo, 2004, p.106) in which powerful actors gain some groups. Despite numerous appeals by the company and the state, the degree of control over court outcomes through, for example, direct in­ plaintiffs received favorable court rulings in the High Court of Justice of fluence of ‘friendly’ judges (Ríos Figueroa and Taylor, 2006, Hirschl, Catalonia. This has obliged the company, 27 years after the first 2010). complaint, to stop dumping waste in their biggest waste pile and re- More generally, critics of litigation have argued that social move­ orient all its production to its second mine in Suria. This mine is ments adopting this strategy detach themselves from the arena of poli­ located only a few kilometers away and gathers huge local support. tics, where inequality and unequal power relations can be addressed Environmental groups are not the only actors to engage in legal strate­ directly, and instead interact in the legal arena where the issues are gies. AFASAL, the association of Spanish salt producers, feared the “abstract, technical, and depoliticized” (Munger, 2012, p.81), thus company’s plans to sell the (waste) salt on the market would likely losing control of the real issues at stake and legitimating the larger plummet the price of salt, and their lawyer successfully presented a structure of legal ideology and law (NeJaime, 2010). complaint at the European Court of Justice for unfair competition. Moreover, Sebastià Estradé, a retired lawyer and science-fiction writer 3. Methodological approach also successfully sued the company in 2013. He won the first legal case demanding a higher remediation closure fund and the start of a reme­ This paper’s research followed a grounded theory comparison diation plan for the biggest waste pile (Gorostiza, 2019). (Glaser and Strauss, 1967). We compared three different densely docu­ mented cases (Eisenhardt, 1989) that involve local groups taking large 4.2. Pesticide pollution in Nicaragua international companies to court for impacts on their health and the environment. The aim of the research was to learn from these different Dibromochloropropane (DBCP) is an organochlorine pesticide (also cases about the (common) consequences of litigation for local groups known by the brand names ‘Nemagón’ or ‘Fumazone’). In Nicaragua, and movements and their struggles. The case studies take place in DBCP was used as a soil fumigant in the banana plantations located in the countries in different stages of economic development although they province of Chinandega (Northwestern Pacific Coast of Nicaragua) from follow the civil law system, also called continental law. They involve 1973 to 1993 (Gómez Suárez, 2013). In 1992, when workers began to different commodities: mining extraction in Argentina (metals) and notice and suffer from the slow violence long-term effects of DBCP expo­ Spain (potash) and pesticide-intensive banana production in Nicaragua. sure in their bodies and their children’s bodies, formed the Association of The case studies address different litigation stages (from early stages to Workers and Ex-Workers Affected by Nemagon (ASOTRAEXDAN). after sentencing) and involve different demands (compensation, reme­ Workers sought monetary compensation by filing cases in the US where diation). Through an iterative process of analysis and comparison be­ the companies that produced DBCP (Shell Oil Company and Dow Chem­ tween the cases, and an iterative literature review on emerging themes, ical) and used it (Dole Food Company and other banana plantation cor­ we identified and conceptualized similar consequences that litigation porations) are based. To file cases in the US, workers were able to use a had on the movements and conflicts. precedent in which workers of a DBCP-producing plant in California were The three case studies were initially developed independently as part found to be infertile in 1977 and had won compensation. In 2007, after 20 of doctoral and post-doctoral research projects on environmental con­ years, some cases were successfully brought to trial. However most cases flicts. Nicaragua’s case entailed three-month fieldwork during 2018 in were dismissed through the “forum non conveniens doctrine”2 and sent the province of Chinandega. In-depth interviews were carried out with back to the workers’ home country (Bohme, 2015). Realizing the Nicar­ affected agricultural workers, leaders of the movements behind the legal aguan justice system would not provide legal support against foreign strategy, and three national NGOs supporting the workers’ organizations corporations, workers and their supporters worked to pass a new law in (see Navas et al., 2022). The Spanish case involved two-month field Nicaragua. This juridification process culminated in 2000 with the work with in-depth interviews with affected farmers as well as members enactment of Law 364 “Special Law for Banana Workers Victimized by the of the different environmental groups, government representatives and Use of DBCP-Based Pesticides” which effectively forced a trial in the US or one of the lawyers involved (see Gorostiza and Sauri, 2019, Gorostiza in Nicaragua (Bohme, 2015, p. 36). Since 2001, numerous lawsuits have et al., 2022). The Argentinean case was developed by a social sciences been filed in Nicaragua, many of them ending in favorable judgements. researcher based at the Argentine Institute of Nivology, Glaciology and However, so far, companies have refused to pay the compensation Environmental Science (IANIGLA). The head of this Institute was inad­ vertently drawn into the legal process here analyzed. This research involved interviews and informal conversations both with representa­ 2 Forum non conveniens allows courts that have jurisdiction over a case to tives from different local assemblies as well as scientists at the IANIGLA stay or dismiss the case upon a determination that the case may be heard more Institute (see Rojas and Wagner, 2021). appropriately in another court, for example because the plaintiffs are citizens of a foreign country and sources of evidence are found in the foreign country. (Oxford Public International Law). 4 M. Conde et al. Global Environmental Change 83 (2023) 102762 mandated by these few judicial victories. judicial process to avoid paying for reparation or compensation. We thus often find that plaintiffs involved in environmental litigation 4.3. Cyanide spill in Argentina complain of long legal procedures that can last for decades — nearly three decades for the Nicaraguan and Spanish cases. We argue that this is The Veladero gold mining project owned by Barrick Gold has been not due to the functioning of the judicial system but to what we have functioning in Argentina’s San Juan province since 2004. In 2015, termed slow justice. We define slow justice as an economic and political millions of liters of a cyanide solution spilled into nearby rivers and strategy used by certain actors to instrumentalize the speed of judicial ecosystems. In response, a member of the self-convened neighbors’ as­ procedures in order to serve their interests and/or avoid accountability. sembly Jáchal No Se Toca (Don’t Mess with Jáchal) submitted a criminal Slow justice is generally driven by companies whose aim is to prevent complaint against the company and the provincial government. The case and delay judicial decisions. Companies can afford to sustain long reached the national court. A conflict between judges about jurisdictions judicial processes and employ different strategies including filing mul­ ensued3 resulting in the decision in 2016 by the National Supreme Court tiple appeals, funding the elaboration of long technical reports, and of Justice (SCJN, in Spanish) to split the complaint between both ju­ attempting to influence judges and governments, exhausting the plain­ risdictions. Mining executives and provincial authorities were to be tiffs’ resources and time. Judges can also play a relevant role slowing, investigated by the provincial judge, and the federal authorities by the stopping or accelerating legal proceedings. Slow justice often involves federal judge. This division of the judicial investigation meant that the the transfer of legal proceedings across regional, national and trans­ main party responsible for the mining spill, the company, was to be national jurisdictions that delay the resolution of court cases. investigated in the provincial court, where environmental movements Slow justice perpetuates and exacerbates slow violence. In both the claim the government favors the company’s interests (Iezzi, 2011, Spanish and Nicaraguan cases local groups took the companies to court Antonelli, 2016, Gorenstein, 2020). in an attempt to make visible and overturn decades of slow violence, to Moreover, the federal judge decided to expand the complaint of the gain compensation or remediation. However they got pushed back Jáchal assembly, and indicted some government officials and a scientist, repeatedly as proceedings moved back and forth between courts and Dr. Ricardo Villalba, who was the director of IANIGLA, the institute in jurisdictions, delaying the sentences and their enforcement. By allowing charge of carrying out the national glacier inventory mandated by the slow violence to continue, slow justice increases environmental impacts Glacier Law. Argentina is the only country in the world that has a “Law and risks. for the Protection of Glaciers” (the Glacier Law), which was approved by Based on our case studies we identify different slow justice strategies the Argentinian National Congress in 2010 after an intense campaign led that companies have used before and after court rulings. Companies’ by environmental organizations, movements, and the scientific com­ lawyers systematically appealed each court ruling until it reached the munity. The judge considered that the methodology used by Dr. Villal­ highest possible court. In the Spanish case, the 17-year-long criminal ba’s research team, which included only glaciers of more than one complaint was won by the plaintiffs in every single court, but the hectare (the usual practice in the field, glaciologists claimed), limited company appealed the decisions through two lower courts until it the spirit of the Glacier Law and favored the Veladero mine, which was reached the High Court of Justice of Catalonia (TSJC, in Catalan) with a then able to pollute glaciers smaller than one hectare. The scientific decision favoring the plaintiffs in 2014. The decision was once again community protested this accusation (see national and international appealed and ratified two years later. Administrative complaints that support letters in CONICET (2017). While, at first, the Jáchal assembly started in 2008 had a similar fate; a complaint denouncing an incom­ remained silent, later they supported the judge’s decision (Página 12, plete environmental authorization also reached the TSJC after five 2017). This unexpected decision divided two key sets of actors in the years. The sentence, once more favoring the plaintiffs, was appealed but defense of the glaciers: the scientific community and the environmental corroborated by the Supreme Court two years later. Another complaint movement. challenging the expansion of the waste pile reached the TSJC which ordered the company to stop dumping waste in 2016. This decision was 5. Judicialization consequences: Slow justice, reductionism, unsuccessfully appealed by the company at the TSJC and the Supreme and loss of control Court. The day before the deadline to stop dumping waste (June 30th, 2017), the TSJC extended the deadline by two years. Similarly, in Based on these cases we have identified three interrelated ways in Nicaragua the cases reached the US courts in the early 2000s after which judicialization can deepen injustices and power inequalities in several years of proceedings to then be dismissed. Back in Nicaragua, socio-environmental conflicts. companies also appealed each court decision. Once the ruling is firm, companies can adopt several strategies to avoid the enactment of the sentence. They can ignore or delay 5.1. Slow justice and the role of temporality complying with the sentence, refuse or appeal the compensation or environmental remediation proposed, take their assets abroad, and Temporality is central in environmental litigation strategies. obstruct every step needed to execute the sentence. In Spain, the crim­ Depending on the stage of the conflict and their position in it, actors inal complaint and the court case put forward by Sebastià Estradé which might aim for an expedited or drawn-out legal process. Local groups that also reached the TSJC and the Supreme Court, demanded a realistic want to prevent a new extractive or polluting activity hope for a long remediation plan and funds to execute it. To date the waste pile is intact. legal process that deters or stops the project altogether (Domingo, The company has presented two remediation plans (the latest one in 2010). If the project has already started, on the other hand, local groups 2022) but the judges rejected both because they don’t aim for the full can engage in litigation hoping for a not-too-lengthy resolution that remediation of the waste pile. The company was also ordered to stops environmental harm, makes polluters pay to repair it and compensate affected farmers but has appealed each request for infor­ compensate affected parties. Conversely, companies want a swift judi­ mation and each step undertaken by the legal experts to quantify the cial resolution to push forward a new industrial development or a slow damage caused to the plaintiffs. With each allegation, the case got delayed weeks or months (Spain Interview #10). 3 Companies can also refuse the court rulings altogether. In the The federal judge initiated an investigation of provincial officials. The provincial judge requested that he stop his investigation arguing it was a case of Nicaraguan case the companies refused the authority of the Nicaraguan provincial jurisdiction. The federal judge denied this petition so the provincial courts. During a decade of favorable rulings following the enactment of judge filed a claim against this decision at the National Supreme Court of Law 364 in 2000, Nicaraguan courts ordered the payment of US$805 Justice (SCJN). million to workers. But companies have refused the verdicts and nothing 5 M. Conde et al. Global Environmental Change 83 (2023) 102762 has been paid to date. The companies have also removed all their op­ consequences of slow justice. This was the case of Prousal and Mon­ erations and assets from Nicaragua, preventing the government from tsalat, the local organizations in the Spanish case that demanded the confiscating them. This obliged workers to pursue new legal avenues in environmental remediation of the waste pile. Although they did lose other countries where their assets exist, without success so far. some steam (as we show below), they remained in latent mode and Judges can play an instrumental role in slow justice; they can move strengthened in key moments in the legal process, such as to respond to forward a case quickly or let it linger for years. In the Argentinian case, the publication of court decisions or to demand their enforcement. For the case attracted huge public attention during its initial stages given the example, they mobilized in 2008 to denounce the granting of the envi­ serious environmental impact and the implication of the Glacier Law. ronmental authorization and in 2017 to demand the enactment of the The federal judge moved quickly, attracting even larger public attention sentence that stopped the dumping of waste. However, as we examine when he indicted a well-known scientist and some environmental offi­ below, the monopolization of litigation as a mobilization strategy is also cials in the national government. However, since the court case was linked to the narrowing of demands and narratives of the movement. assigned and divided between different jurisdictions public attention diminished. Since then the legal proceedings have not moved forward. 5.2. Reducing narratives, impacts and victims We highlight two main consequences that slow justice can have for the conflict and the organizations involved. First, judicial strategies Legal proceedings reduce complexity by imposing a monoculture of become the central strategy used by local groups, displacing other legal language and reductionist definitions of what is harm, who is a strategies of mobilization. In the Spanish potash mining case, we observe victim of pollution, and who is responsible for it. Lawyers and judges can that the opposition group Montsalat circulated petitions, met with local build and reject certain narratives of suffering that sideline affected and regional governments, and carried out presentations, exhibitions, actors’ voices and demands. Engaging in litigation can also invisibilize and conferences. However, after taking the company to court in 1992, cultural and social concerns and different types of knowledge and lan­ and only after three years of its appearance, Montsalat reduced its ac­ guages (Merlinsky, 2013, Fainstein, 2018). Exacerbated by slow justice, tivities to monitoring salts in rivers and conducting legal actions. certain legal narratives permeate movements and society consolidating Montsalat not only submitted the initial complaint, they stayed involved these reduced narratives of impacts, victims and suffering. throughout the tortuous legal process. Today, they and their lawyer, The reductive means of judicial processes are exemplified in the Climent Fernandez, still respond to the numerous appeals from the Nicaraguan case. An intergenerational pesticide contamination case has company, provide information and write allegations. Although moni­ been juridically reduced to a single health effect in a single social group: toring is ongoing, the legal avenue has been, according to them, their male infertility. DBCP is a pesticide characterized by its persistence in most successful strategy (Spain interview#2). A second opposition the environment (around 100 years) and its lipophilic characteristics (it group, Prousal (“enough salt” in Catalan) experienced a similar evolu­ bio-accumulates in fatty tissues). Banana companies have known since tion. In the first two years after the group emerged in 2006, they orga­ 1977 about the link between male infertility and DBCP exposure due to a nized public talks, marches, mine blockades and other activities. They study of a DBCP-producer chemical plant in the US (Whorton et al., exchanged information and ideas with the lawyer of AFASAL (the 1977). Yet, despite this scientific evidence, banana companies continued Spanish association of salt producers), which caused internal divisions to expose workers without providing protective equipment or informa­ as not all members agreed with this alliance. Although Prousal did not tion about present and future risks for them and their families. Although engage in any legal proceeding, over time they dedicated increasing DBCP was banned in the early 1990s, it remains in the environment. efforts toward following the ongoing cases initiated by other groups, According to a study by Montenegro Guillén and Jiménez García (2009), drastically reducing other mobilization strategies (Spain Interview#2, 100% of water wells in Chinandega were still contaminated with DBCP. interview#6, interview#7). “Over the years, our main activity was just The effects of the pesticide are still present in the workers’ and their keeping up with understanding all the legal procedures (…) and childrens’ bodies, causing not only male infertility but also cancer, explaining them to the people in Sallent” (Spain Interview#9). The legal miscarriages, congenital malformations in children, visual problems, processes thus became both organizations’ main narrative, monopo­ and skin diseases. Yet only male infertility has been accepted as a court lizing other demands (see section 5.2). In Nicaragua, similarly, workers claim. This has generated two types of invisibilities: invisibility of health engaged in various forms of mobilization to gain visibility —protests, impacts other than male infertility and invisibility of the health impacts blockades, marches, hunger strikes, etc.— during the 1990s and early on women. Questioning the latter, women within ASOTRAEXDAN 2000s. These mobilizations devolved into a long legal battle that con­ identify themselves as victims of DBCP and have continuously asked for tinues to this day becoming their only strategy (see Bohme, 2015). Those medical check-ups to prove their ailments. Yet, these demands weren’t remaining in the struggle meet once per month to receive information considered in the movement’s legal strategy, so women felt excluded not about the company’s legal responses and possible extra-judicial nego­ only from the judicial procedures but also from the movement itself tiations (Nicaragua Interview # 1). (Navas et al., 2022). Slow justice can also influence the resilience of movements that lose Lawyers and movement leaders fostered this reductionism when they resources to sustain themselves, intensifying internal conflicts and chose to strategically focus on scientifically proven ailments, making demobilizing supporters until, in some cases, the movement is left in other impacts invisible (inside and outside the court). The requirement shambles (Tarrow, 2011). In Nicaragua we have identified a general by law of scientific proof of harm is particularly relevant for this case demobilization due to a decrease in economic resources, a loss of na­ where we find ‘undone science’; namely, that scientific knowledge was tional and international alliances, and internal conflicts among workers not produced to reduce uncertainty and better understand the scope of and their leaders that have divided ASOTRAEXDAN itself. More perva­ DBCP’s health impacts (Frickel et al., 2019, Bingham and Monforton, sively, slow justice can delay and deny much needed compensation and 2013), in particular its impacts on women (Navas et al., 2022). Unlike health treatments. In Nicaragua, in 2018 when fieldwork was carried the other two cases where scientists are part of, or become key allies of out, half the plaintiffs had passed away. The majority of those alive were the movements (Conde and Walter), in Nicaragua, scientists did not over 65 (the youngest being 55), many of whom were very sick or “don’t become key allies of local groups in the litigation process to do the have the same energy as before” (Nicaragua Interview # 2). A worker undone science. Instead, it is the scientific evidence produced in the past stated, “Every time that one of us dies, this is a success for the company” by scientists in California (Whorton et al., 1977) that structured litiga­ (Nicaragua Interview #1). In Spain, the farmers asking for compensation tion and broader juridification strategies. are over 60. They showed a general belief that compensation would Law 364 included additional health impacts linked to DBCP exposure never arrive in their lifetime (Spain Interviews #11,12,15). such as kidney, spleen, liver problems, cancer, or psychological disor­ Nevertheless, local groups and movements sometimes adapt to the ders based on the workers’ experience of harm. Companies rejected 6 M. Conde et al. Global Environmental Change 83 (2023) 102762 responsibility for these exposures and have even tried to reduce the officials’ role in the environmental disaster. In the Nicaraguan case the number of male infertility victims that claim compensation by gener­ “forum non conveniens” was applied in the US courts, which returned ating doubt about the workers’ testimonies about their life and working most legal processes to Nicaragua. Second, some courts are more stories (Boix and Bohme, 2012). This ‘juridical invisibilization’ was favorable to certain actors. In the case of Argentina, the provincial court challenged by Law 364 when the Benavente sentence in 2000 ordered of San Juan seemed to provide a favorable treatment to the company 446 plaintiffs to be paid US$489 million for physical and moral effects (see above), and it is well known the provincial government also backs (Bohme, 2015). But companies, again, refused to pay these the company’s presence (Gorenstein, 2020). Third, judges can bring new compensations. perspectives or legal actions that were not envisaged in the initial Scientists play a key role in documenting, addressing or neglecting complaint. As we have seen in Argentina, this can work against the in­ certain environmental impacts and harms when they provide expert terests of the plaintiffs (see also Merlinsky, 2013). The unexpected de­ advice to judges, governments, and companies as well as mobilized cision by the federal judge to include the head of the IANIGLA Institute groups (Conde, 2017, Conde and Walter, 2022). Before the Argentinian in the indictment led to disappointment and division between two key case was divided between courts, the federal court created a commission actors in the defense of the glaciers and the Glacier Law: the scientific of scientists including hydrogeologist Dr. Robert Moran to assess the community and the environmental movement (Martín and Healey, impact caused by the spill (Layna and Kreimer, 2018). Dr. Moran 2020, Rojas and Wagner, 2021). Although the initial objective was to exposed the results of his study at the National Senate, receiving large stop mining projects such as the Veladero mine, this focus was lost when national media attention. He exposed how the mining company had not legal proceedings turned into a technicality about how glaciers are made any measurements public and had altered the spill site in ways defined, and the legal responsibility of scientists. The distrust that that made it difficult to assess the impacts. In contrast, the provincial emerged between environmental groups and scientists weakened his­ court, in charge of judging the company, appointed technical assess­ torical alliances and has caused scientific communities to choose not to ments that concluded, in line with studies provided by the company, participate in environmental policies or ally themselves with social that the spills were caused by the negligence of the operators, who left a movements to avoid social and legal problems. broken valve and a gate open that should have been closed (Layna and The loss of control can also be a result of internal power dynamics in Kreimer, 2018). Despite these spills repeating in 2015 and 2017, the the movement that include the key role of lawyers and movement court case did not progress, and the company and the provincial gov­ leaders. In Nicaragua, lawyers have been instrumental in uncovering ernment postulated that these were isolated events, “a negligent act.” some forms of slow violence and legally supporting the workers’ When environmental pollution can be attributed to human error or a struggle. However ASOTRAEXDAN’s members have on numerous oc­ localized technical break, it removes blame from structural causes such casions challenged lawyers’ power and control over the legal strategies as lack of maintenance (Layna and Kreimer, 2018). and demands, which, coupled with the use of incomprehensible legal In the case of potash mining in Spain the judicialization process has language, did not match their own. A worker stated: “Lawyers have also made some social and environmental impacts invisible and taken economic advantage of our suffering,” for example by negotiating rendered it difficult to trace those responsible for them. Montsalat is with the companies to obstruct judicial procedures in exchange for driven by a biologist highly concerned with the impact on the nearby payments (Interview Nicaragua#2). Also in Nicaragua, local leaders are river ecosystem. The scientific evidence he provided sparked the first the link between the workers and the lawyers. While this seems to be an and only criminal complaint against company executives, which efficient organizational strategy, over time it has become another way of requested the rehabilitation of the land surrounding the waste pile and losing control. Many workers trusted, signed, and supported what their compensation for affected farmers. The rest of the legal complaints were leader and lawyers advised. In this sense, workers were not the owners mostly driven by lawyers (not scientists) and focused on administrative of their own process to claim justice: they had no direct contact with demands that ranged from the revocation of the environmental autho­ lawyers, they could not follow the legal procedures, and they had no rization to challenges to its urban license and urbanization plans. These decision-making power regarding legal strategies or demands. The in­ judicial demands became the movements’ main demands, ahead of ternal power dynamics can have a gendered effect too as women victims other possible demands that could address the root causes of environ­ of DBCP were often excluded from decision-making processes within the mental impacts, such as the use of alternative greener methods of waste movement (Navas et al., 2022). This lack of accountability led workers salt disposal. As with Shah and Mathur (2019), many impacts have been to accuse the main leader of ASOTRAEXDAN of treason and corruption. disregarded from the judicial process: the salinization of water and land He was forced to resign and was replaced in 2015 (Interview Nicaragua of residents and farmers downstream from the mine, as well as those #3). The new leader promised more transparency and to include women near the Suria mine (which was not included in the complaint); the in the legal procedures (Idem). In the Spanish case, all lawyers acted mine’s high water usage; and the damage caused by the leaks (20 per almost independently from the movement. One of the most active law­ year on average) of the collector that transports brine 128 km to the sea yers, Climent Fernandez, allied with local groups mainly to legitimate (Gorostiza et al., 2022). The focus on administrative complaints is a legal the legal cases. As he stated: “I could do it on my own, (…) but I would strategy that has thus invisibilized many socio-environmental impacts. have limitations on the environmental side, as I don’t have the legiti­ macy” (Spain Interview #10). He has thus become a key decision maker 5.3. Loss of control of the resistance process of the legal strategy, and arguably of the movement itself. Taking environmental conflicts to court, especially in a context of 6. Conclusions slow justice, can lead to a loss of control of the judicial process because of unequal power relations between local groups and judges, lawyers, When social movements resort to litigation strategies they are often companies, and even local leaders. Below, we explore the role of each looking for a fair and just solution or compensation for the companies’ actor and discuss how prolonged judicial proceedings can exacerbate and/or states’ wrongdoings (Bölter and Derani, 2018). They are reacting these inequalities. to the unfair allocation of benefits and impacts that generally result from Local movements can lose control of the litigation process at the unequal power relations (Peet and Watts, 2004). However, in the legal expense of judges (Smulovitz, 2008, Bölter and Derani, 2018) due to, at arena they encounter a highly hierarchical power structure that speaks a least, three tribunal dynamics. First, judges can decide on the jurisdic­ particular legal language and makes issues depoliticized and abstract tion of a case. This has important implications, as in the Argentinian case (Munger, 2012). Local groups thus not only have to face the unequal where the SCJN divided the case in two, allocating a provincial judge to relations posed by companies and the state but the power structures of rule on the company and a federal judge to rule on the national public the legal arena as well. 7 M. Conde et al. Global Environmental Change 83 (2023) 102762 We have identified three main consequences for movements that this vein, local groups should avoid a monoculture of legal language and engage in environmental litigation. First, companies can instrumentalize demands, and maintain a narrative that connects with local cultural and the temporality of legal proceedings to carry out what we have termed “slow social processes while creating broad alliances and solidarities with civil justice,” a deliberate strategy to extend and hinder the legal process society, governments, policy makers, and crucially scientists and allowing companies to carry on functioning and polluting, avoiding lawyers. compensation or remediation measures. Plaintiffs generally lack eco­ nomic resources and organizational capacity to sustain a long judicial battle. This can cause a monopolization of all other activist strategies Declaration of Competing Interest and a reduction of a movement’s demands and narrative to that of the legal complaint. This reduction of complexity also occurs during the legal The authors declare that they have no known competing financial process itself, where powerful lawyers, judges, and scientists, using legal interests or personal relationships that could have appeared to influence and scientific language, decide what is harm and what is not, who is a the work reported in this paper. victim and who is not, what is remediated or who is compensated, further marginalizing those affected. Social movements thus not only Data availability confront the power exercised by companies —promoting slow justice and uncertainty— and the judges —accepting or rejecting defendants The authors do not have permission to share data. and impacts, even initiating new demands— but also that of lawyers and local leaders, who can divert from the demands and needs of local Acknowledgements affected groups and promote the avenues they think are more promising in the courts. Local groups can thus suffer a loss of control over the legal The authors want to thank Dr. Gabriela Merlinsky, Dr. Christos and resistance process (e.g. its narratives, alliances, strategies). Zografos, Dr. Phil Steinberg, Dr, Giorgos Kallis and the EJAtlas team for Even when movements or local groups win one or several court their useful comments and reviews of earlier versions of the paper, as cases, they can still lose. Companies are often able to delay, minimize, or well as the anonymous reviews of the GEC. We also thank Dr. Sam Bliss not pay for compensation or remediation. Movements then must find for his engaged copy-editing. Marta Conde acknowledges funding from resources to carry on for even longer periods of time. Workers in Recercaixa 2017 ‘Activism Mobilising Science’ (Obra Social La Caixa Nicaragua took the case to French courts aiming to seize the company’s and ACUP) and Marie Skłodowska-Curie grant (897072). Grettel Navas assets in France. However in 2022, workers were let down again when and Mariana Walter thank support from Joan Martinez Alier’s Balzan French judges ruled that their courts had no jurisdiction over the com­ Prize 2020. This research also contributes to ICTA-UAB “María de panies (AFP, 13th May 2022). In the Spanish case, even though a local Maeztu” Programme for Units of Excellence of the Spanish Ministry of judge is generating pressure on the company to present a new and Science and Innovation (CEX2019-000940-M). Lucrecia Wagner ac­ complete remediation plan, the most recent agreements with the knowledges support from a CONICET external postdoctoral scholarship. regional government are to turn the waste pile into a solar plant, delaying, once more, its remediation. References We signal the relevance of juridification processes as a result of the limitations of legal frameworks to address slow violence and environ­ AFP, 2022. Nicaraguan plantation workers ‘poisoned’ by pesticides fight for justice, France24 (13th May). Available at: https://www.france24.com/en/live-news/ mental controversies. In two of our case studies social movements 20220513-nicaraguan-plantation-workers-poisoned-by-pesticides-fight-for-justice. embarked on the creation of new legislation to support their demands. (Accessed 3rd August 2022). This juridification strategy has been relatively successful: in Nicaragua, Albiston, C., 2010. The dark side of litigation as a social movement strategy. Iowa L. Rev. Bull. 96, 61. 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