The cumulative dimensions of impact in resource regions

The development of mineral and energy resources worldwide has placed pressure on regional environments, economies and communities. The cumulative impacts, or cumulative effects, arising from overlapping development have stretched political systems that have traditionally been geared toward the regulation and management of individual resource developments, presenting challenges for policy makers, resource developers and civil society actors. An equally challenging task has been realisation of the potential development dividends of mineral and energy resources in the areas of business development, infrastructure, human development or the management of resource revenues. This paper introduces a special issue on ‘Understanding and Managing Cumulative Impacts in Resource Regions’. The special issue interrogates the effectiveness of new and traditional policy responses, explores methods and strategies to better respond to cumulative impacts, and details practical examples of collaborative and coordinated approaches. Papers cover a range of environmental, economic and social issues, geographical regions, commodities, and conceptual approaches. This introductory paper introduces the cumulative impact issues that have manifest in resource regions, critically appraises current conceptions of cumulative impacts, and details management and policy responses to address the cumulative dimensions of impact.     

Fracking the Debate: Frame Shifts and Boundary Work in Dutch Decision Making on Shale Gas

The meaning of hydraulic fracturing for shale gas is contested worldwide: is it an energy game changer, a transition fuel, or a technology that poses severe environmental problems? In the Netherlands, a policy controversy developed in which fracturing was reframed from ‘business as usual’ to a potential environmental risk. This article theoretically and empirically describes this shift by arguing that the technology of hydraulic fracturing for shale gas is a boundary object that created a sphere of engagement for all sorts of actors. In this sphere, they negotiated a common but soft meaning of this technology. These negotiations consisted of frame contests. As part of those contests, the discursive strategies of framing and boundary work enabled opponents to create uncertainty about economic benefits and environmental impact. The shift in meaning transformed the issue from an economic one with standard governmental rules and regulations into a planning issue that needs more precaution.     

Questioning the local: environmental regulation,shale gas extraction,and the politics of scale

ABSTRACT

The exploration and potential extraction of shale gas – better known as fracking – has emerged as one of the most contentious dimensions to local environmental politics in the UK. Local residents and environmental activists have raised concerns about health, noise, ground water contamination, seismicity, environmental amenity, and other impacts of the industry on communities. Despite the complexities of shale gas extraction, an emphasis on the local has shaped key dimensions of the debate around the appropriate location for well pads to the relative exclusion of other issues. This paper draws on fieldwork in Lancashire, UK, to reflect on the political construction of scale in order to explore how an emphasis on “the local” can restrict political debate over shale gas to narrow concerns with land-use planning thereby obviating a fuller engagement with wider questions concerning risk, energy policy, and climate change. It is concluded that a more nuanced conception of scale is necessary for understanding how concerns with shale gas are diminished rather than strengthened through the current planning policy and regulatory regime operating in the UK.     

Implementation and Participation in China's Local Environmental Politics: Challenges and Innovations

With its recently published 12th Five-Year Plan (FYP, 2011–2015) China's leaders have set ambitious national environmental targets and goals for developing a more sustainable economy and society. Past records, however, show that ambitious goals and regulations too often fail due to shortcomings in local implementation and civil society participation. At the sub-national level, economic, political, and social interests continue to dictate the political agenda and the participation of non-state actors remains limited. This article analyses these implementation and participation gaps and reviews recent innovations and experiments to address these gaps in local environmental politics in China. Although many ongoing experiments and new institutional arrangements can be identified, these projects and initiatives remain limited in scope and geographical spread. Further advances in policy enforcement and in opening up policy design to citizens and other non-state actors at the local level are needed in order to turn the article ambitions of the 12th FYP into reality.     

Conflict and collective action in Tonle Sap fisheries: adapting governance to support community livelihoods

This paper presents the results of action research conducted from 2009 to 2015 on the dynamics of resource conflict concerning fisheries and livelihoods in the Tonle Sap Lake, as well as the institutional context and strategies for institutional adaptation to address such conflicts equitably. Over the past 15 years, Cambodia has made significant advances in building the policy framework, regulations and institutions to support community‐based fisheries management and increase the sector's contribution to the rural economy. However, fundamental challenges of increased resource conflict and loss of livelihoods by the most vulnerable remain. Key sources of conflict include destructive and illegal fishing practices, clearing of flooded forests, competing uses of land and water, and overlapping resource claims. Addressing these challenges requires collective action by all key actors: local fishers, the private sector, civil society, development partners, and government from the local to the national level. We identify and elaborate upon four governance priorities: (1) clarify roles and responsibilities in fisheries management; (2) link civil society and government efforts in law enforcement; (3) strengthen partnerships for livelihoods development; and (4) integrate fisheries management into decentralised development planning.     

Local governments in the driving seat? A comparative analysis of public and private responsibilities for adaptation to climate change in European and North-American cities

The division of responsibilities between public and private actors has become a key governance issue for adaptation to climate change in urban areas. This paper offers a systematic, comparative analysis of three empirical studies which analysed how and why responsibilities were divided between public and private actors for the governance of local urban climate adaptation. For 20 governance arrangements in European and North-American cities, the divisions of responsibilities and the underlying rationales of actors for those divisions were analysed and compared. Data were gathered through content analysis of over 100 policy documents, 97 in-depth interviews and 2 multi-stakeholder workshops. The comparative analysis reveals that local public authorities are the key actors, as they bear the majority of responsibilities for climate proofing their cities. In this stage of policy emergence, local authorities are clearly in the driving seat. It is envisaged that local public authorities need to more actively engage the different private actors such as citizens, civil society and businesses through governance networks along with the maturation of the policy field and the expected acceleration of climate impacts in the coming decades.     

Shale gas development and community response: perspectives from Treaty 8 territory,British Columbia

Northeast British Columbia (BC), Canada, is the site of a fast-growing shale gas industry that is a cornerstone of the current provincial government's economic policy. In this paper, we explore the perspectives of local First Nations (members of Treaty 8) regarding governance of this industry, focusing in particular on the experiences of the Fort Nelson First Nation (FNFN). Based on findings from 15 in-depth interviews with staff from four Treaty 8 First Nations, the Treaty 8 Tribal Association, oil and gas companies, and the Government of BC, we argue that current governance processes fail to adequately protect the environment and treaty rights. We also explore the diverse tactics that the FNFN is using to gain influence over shale gas development within its territories as the Nation seeks to achieve “balanced development” that protects the local ecology and treaty rights while maximising local economic benefits. Through an array of tactics and collaboration with diverse actors, the FNFN has been partially successful in challenging industry's social license to operate and has brought the provincial government back to the table to negotiate new decision-making arrangements on a “government to government” basis. Still, the regulation and management of a fast-paced global industry are a vast burden for a small community to bear. The FNFN's work has also shown the need for further research on how local efforts for equitable and environmentally sustainable approaches to shale gas regulation can be scaled up, institutionalised, and used to create political opportunities in other contexts.     

Hydraulic fracturing as an interpretive policy problem: lessons on energy controversies in Europe and the U.S.A.

This special issue addresses hydraulic fracturing for shale gas extraction as an interpretive policy problem. Bringing together empirical cases from the U.S.A., the Netherlands, the U.K., Poland, and Germany, we identify three approaches to the interpretation of hydraulic fracturing in the article: understanding its meaning, contextual explanation of the institutionalization of its meaning, and policy design as intervention to alter its meaning. By exploring differences and similarities across these cases, we identified two central tensions in the meaning of shale gas in all cases: (1) economic opportunity or environmental threat and (2) transition toward a more carbon-free energy future or perpetuation of a fossil fuel system. We found that when actors shift the meaning of hydraulic fracturing to consider it predominantly an issue of threat, this explains the dominance of risk governance as an approach to managing the controversy. Alternately, when the meaning of fracking shifts from consideration as an economic opportunity or a bridge fuel to consideration of it as a barrier to an energy transition, this explains the decision to ban fracking. Therefore, a comparative assessment of the papers demonstrates the ways interpretive dimensions of politics can influence the governance of public policy.     

Property rights and governance of Africa's rangelands: A policy overview

Recent efforts at securing property rights in dryland Africa have generally involved several interrelated processes such as legal and policy reforms that recognize and strengthen customary rights or the seasonal rights of pastoralists, and the decentralization of land allocation and administration to lower governance levels. These solutions are in turn beset by new problems, key among them are establishing norms for local participation in decision making, preventing manipulation and capture by elites, lack of accountability of local level institutions and authorities, and the onset of a new generation of resource user conflicts. Increasing avenues through which dialogue and communication can occur among policy actors (including local communities) in order to mobilize multiple experiences, information, and to manage power relationships — a collaborative approach to policy governance — is one way of approaching the complexity paradox. This is anticipated to provide opportunity for learning, innovation and adaptability.     

A dominant coalition and policy change: an analysis of shale oil and gas politics in India

This paper identifies the coalitions involved in the topic of shale oil and gas development in India and identifies the circumstances surrounding a change in policy in 2013 by the Ministry of Petroleum and Natural Gas to promote shale exploration. Using the Advocacy Coalition Framework as the theoretical lens, the data are collected primarily from newspaper articles from 2010 to 2015 to identify coalitions, including actors’ positions, priorities, and interactions. The findings show the presence of a dominant advocacy coalition in favor of shale oil and gas development with priorities about energy security and a regulatory framework. The findings indicate some internal coalition disagreement, but stronger internal coalition agreement. Policy change was preceded by a spike in disagreement internal to the dominant coalition. This paper shows how a change in a dominant coalition can precede a change in policy, offers a replicable method of identifying and measuring coalitions via newspaper content analysis, provides a rare application of the Advocacy Coalition Framework outside of North America and Western Europe, and provides evidence of support for shale oil and gas development in India.     

Shifting frames: mobilizing policy attention for landscape values in a Dutch urban–rural fringe

Despite framing being a powerful mechanism in policy agenda setting, the planning and policy science literature does not yet devote much attention to the analysis of interactional framing processes in policy change processes. We analyse the framing processes that preceded tipping points in the mobilization of policy attention in a Dutch peri-urban region that over time managed to position the development of landscape values on the agendas of local and regional governments, despite various institutional barriers and blockages. After identifying tipping points in the agenda-setting process, and shifts in frames and coalitions, the paper discusses why these shifts occurred. Two framing mechanisms are identified: (1) framing issues, relationships, and interaction processes in conjunction with one another and (2) resemiotizing original frames to establish a fit to the self-referential frames of targeted supporters within and outside government. The conclusion is that a research focus on human interactions at the grassroots level and on the processes of meaning construction over time reveals detailed insights about why and how structural change and transitions come about. The paper concludes with some lessons for policy-makers and planners with regard to developing a more adaptive attitude to emerging initiatives in civil society.     

Shale We Drill? Discourse Dynamics in UK Fracking Debates

This article examines competing political discourses surrounding shale extraction in the UK. It asks how these meanings are communicated and why certain understandings of the issue gain prominence. Drawing on discourse analysis and framing studies, the article first distinguishes two competing coalitions (pro- and anti-shale) and their shared narratives or ‘storylines’ (shale opportunity versus shale threat). Through a systematic examination of press reports, websites and public documents, it identifies opposing discursive frames used to shape understanding, meaning and debates, and assesses their resonance and power. The article builds on existing interpretive studies by providing a finer-grained analysis of discourse success, and a greater emphasis on the coalition members who shape and deliver the agreed storyline. It argues that the anti-shale coalition in the UK has thus far enjoyed greater discourse success for two reasons: firstly, because the pro-shale coalition lacks trustworthy messengers; secondly, because shale opponents have successfully expanded the debate beyond economic or environmental concerns to include potent issues of local power and democracy.     

Mobilisation and protest: environmental justice in Durban,South Africa

This paper examines the ability of civil society actors to champion environmental justice in an industrial risk society in South Africa by way of mobilisation and protest action. This paper presents viewpoints from key stakeholders at the Durban city level and three local case study sites to examine social capital relations to achieve environmental justice. It explores how civil society engages in social capital for mobilisation with itself and subsequent protest actions to engage with government and industry. The paper highlights that social actor response to engage in social capital for mobilisation and protests is best understood in relation to the socio-economic and political positioning of individuals or organisations.     

The role of citizen scientist in nature resource decision-making: Lessons from the spruce budworm problem in Canada

Summary An increased role for citizen participation in natural resource decision-making has been advocated by, amongst others, the United Nations (Brundtland Commission) as a means of initiating fundamental changes in the way we exploit natural resources. However, attempts at meaningful participation by the public are met with resistance, commonly by the dominant elites who control environmental and economic policies. Citizen groups press for involvement, only to be dismissed by local establishments as ill-informed amateurs. The resulting conflicts seldom lead to innovations in policy or to constructive cooperation in the face of new environmental problems. This leads the author to feelings of pessimism about prospects for genuine public participation in the absence of political change. In arguing in support of such change, a case study is offered which illustrates the unfortunate consequences that ensue when participation is sought and rejected. The paper closes with recommendations for the way in which citizen groups could contribute in a meaningful way to natural resource decision-making, were they to be given the opportunity.Dr Alan Miller is currently Professor of Psychology at the University of New Brunswick. He has published previously in this journal on the topic of Ideology and Environmental Risk Management (The Environmentalist,5(1), 21–30.)     

Perspectives on community representation within the Extractive Industries Transparency Initiative: Experiences from south-east Madagascar

This article critically examines the nature and quality of governance in community representation and civil society engagement in the context of trans-national large-scale mining, drawing on experiences in the Anosy Region of south-east Madagascar. An exploration of functional relationships between government, mining business and civil society stakeholders reveals an equivocal legitimacy of certain civil society representatives, created by state manipulation, which contributes to community disempowerment. The appointment of local government officials, rather than election, creates a hierarchy of upward dependencies and a culture where the majority of officials express similar views and political alliances. As a consequence, community resistance is suppressed.     

The influence of institutional design on local environmental interest representation in the national polity

This article investigates structural and informal institutional design variables to account for civil society actors’ views on the political representation of local environmental interests in the national polity. It does so by linking literature on institutional design and place-based environmental advocacy to a case of large scale infrastructure development in the national interest. The case study concerns the proposal for a national high speed rail network (“HS2”) in the United Kingdom, which is heavily opposed locally based on its expected adverse impacts. Through fieldwork research on protest against HS2 in an area of high landscape value, it has been found that local actors perceived specific institutions to structurally under-represent interests associated with environmental conservation, compounded further by an informal style of doing politics. The paper recommends that the environmental management and planning literature turns to institutional explanations to make insightful the dynamics of defending the local interest in the national sphere.     

The Establishment of Marine Protected Areas in Senegal: Untangling the Interactions Between International Institutions and National Actors

International institutions, understood as sets of rules contained in international agreements, are aimed at orienting national governments towards specific policy options. Nevertheless, they can determine a change in national policies and practices only if states are willing and capable of incorporating international obligations into their national legislations and ensuring their application and enforcement in areas that follow completely under national jurisdiction. The establishment of marine protected areas promoted by international agreements as a tool for the protection of marine resources represents an interesting case for revealing the complex interactions between international institutions and national actors. Particularly, the establishment of these areas in Senegal shows the salience of domestic constellations of actors who may support or undercut national commitments to international regimes: political elites, bureaucracies, the general public and target groups. By anchoring the empirical analysis to an actor-centred institutionalist perspective, the article explains how dynamic constellations of actors can distort the penetration of international objectives in the national policy framework. Different constellations of national actors can indeed bend international institutions at different moments: during the formulation of a new law in line with international obligations; in the definition of its implementation framework; and in the enforcement of national policies.     

Considering the locals: coastal construction and destruction in times of climate change on Anjouan,Comoros

The current discussion of anticipated climate change impacts and future sea level rise is particularly relevant to small island states. An increase in natural hazards, such as floods and storm waves, is likely to have a devastating impact on small islands' coastlines, severely affecting targeted sustainable development. Coastal erosion, notably human‐induced erosion, has been an ongoing threat to small island biodiversity, resources, infrastructure, and settlements, as well as society at large. In the context of climate change, the problem of coastal erosion and the debate surrounding it is gaining momentum. Before attributing associated impacts to climate change, current human activities need to be analysed, focusing not only on geomorphological and climatological aspects, but also on political and traditional cultural frameworks. The objective of this paper is to demonstrate the importance of the social‐political‐ecological systems analysis for adaptation strategies, and thus for future sustainable development. Coastal use is based on human constructs of the coast, as well as local perceptions and values ascribed to the coast. We use the case study of Anjouan, Comoros to differentiate between constructive and destructive practices on the coast, from both a mental and technical perspective. Beach erosion is described as more than a resource problem that manifests itself locally rather than nationally. Divergent political scales of interest impact future development as much as local action. Local action is not least framed by mental contribution and attribution of coasts as places for living, recreation and resource use. The present case study demonstrates that mental constructs of coasts as valuable areas can, in some cases, lead to the protection and preservation of beaches by initiatives of collective action. At the same time, local communities see the negative impacts of sand mining as causes of coastal erosion and, therefore, it is difficult to mobilize them to adapt to climate change and sea level rise.     

Fair fracking? Ethics and environmental justice in United Kingdom shale gas policy and planning

The exploitation of shale gas resources is a significant issue of environmental justice. Uneven distributions of risks and social impacts to local site communities must be balanced against the economic benefits to gas users and developers; and unequal decision-making powers must be negotiated between local and central governments, communities and fracking site developers. These distributive and procedural elements are addressed in relation to UK policy, planning, regulatory and industry development. I adopt an explicitly normative framework of policy evaluation, addressing a research gap on the ethics of shale gas by operationalising Shrader-Frechette’s Principle of Prima Facie Political Equality. I conclude that UK fracking policy reveals inherent contradictions of environmental justice in relation to the Conservative Government’s localist and planning reform agendas. Early fracking policy protected communities from harm in the wake of seismic risk events, but these were quickly replaced with pro-industry economic stimulation and planning legislation that curtailed community empowerment in fracking decision-making, increased environmental risks to communities, transferred powers from local to central government and created the conditions of distributive injustices in the management of community benefit provisions. I argue that only by “re-localising” the scale of fracking governance can political equality be ensured and the distributive and procedural environmental injustices be ameliorated.     

页岩气开发面临的环保挑战及建议

我国的页岩气勘探开发处于起步阶段,还未建立完善的环保政策,大规模开发将面临诸多环保挑战。我国页岩气主要分布在四川、重庆等南方地区,结合该区域地少人多、地质灾害多发等特点,文章从页岩气压裂作业所需水资源、大量压裂返排液和地层水无害化处理、勘探开发过程中噪声污染以及开发用地与耕地之间的矛盾等方面探讨了页岩气开发面临的主要环境风险,并提出了页岩气开发的环保对策建议。