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.     

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.     

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.     

Framing Dynamics and Political Gridlock: The Curious Case of Hydraulic Fracturing in New York

‘Fracking’ was on New York's agenda since 2008, yet no decision was made about it until late 2014. The gridlock is an intriguing puzzle given that the Marcellus shale is considered a ‘world class’ energy supply, and development has been aggressive in other US states. While policy scholars typically conceptualize gridlock as policy stability, this paper examines it as a dynamic process by which competing discourse coalitions engage in interactive framing processes that (re)structure the discussion. This suggests that the interaction between contending coalitions influences gridlock. Yet, we lack knowledge about interactive framing between competing coalitions during policy controversies. Our main finding is that a central mechanism of gridlock is the production of conflict through interactive framing dynamics that deny a shared discursive space capable of ushering in a consensus, or reasoned agreement. In New York, this contest evolved from a policy consensus about the economic benefits of fracking to policy negotiation that incorporated environmental threats, and to prolonged policy controversy in which competing discourse coalitions contested notions of fracking in relation to energy production, environmental protection, public health, economic development, and governance. While a ban has been instituted, the failure to bridge discourse coalitions suggests that controversy will persist unless meaning disputes are resolved.     

An Institutional and Opinion Analysis of Colorado’s Hydraulic Fracturing Disclosure Policy

Hydraulic fracturing and oil and natural gas development are possibly the most contentious energy and environmental issues to face the USA in the twenty-first century. One point of contention is the disclosure of fluids used in the hydraulic fracturing process. This paper analyses the Colorado 2011 policy requiring disclosure of hydraulic fracturing fluid information, considered one of the first comprehensive hydraulic fracturing disclosure policies in the country. We conduct an institutional analysis of the disclosure policy to understand how the policy establishes information flows and grants and restricts choices by targeted actors. We then analyse the opinions of people actively involved in hydraulic fracturing debates in Colorado to assess whether they view the disclosure policy as resolving problems. The institutional analysis illustrates how the policy allocates responsibilities in sending and receiving information and the opinion survey shows divergence in perceptions of its potential to resolve problems associated with chemical use or disclosure. Most respondents are in agreement that the new policy failed to build public trust of the hydraulic fracturing process.     

The use of best management practices to respond to externalities from developing shale gas resources

The public is concerned that activities accompanying hydraulic fracturing in the development of shale gas resources are unnecessarily adversely affecting them and the environment and is petitioning elected representatives to take actions to reduce risks. The health risks associated with fracturing chemicals and air pollutants are relatively unknown and constitute the impetus for public concern. An evaluation of state legal and regulatory provisions regarding best management practices discloses that states are not adopting timely regulations to protect people and the environment from activities accompanying hydraulic fracturing. Simultaneously, regulatory policy concerning negative externalities suggests that governments underinvest in the protection of human health and environmental quality. Governments have choices in protecting people from dangers that accompany shale gas development. Due to the risks of injuries and unpaid damages from shale gas development, governmental policies need to evolve to accord people greater health protection.     

Private Participation Going Public? Interpreting the Nexus Between Design,Frames, Roles,and Context of the Fracking ‘InfoDialog’ in Germany

At an early stage of the rising fracking controversy in Germany, ExxonMobil initiated a rather large and costly company dialogue to defuse public concerns over fracking. To shed light on the public implications of private participation, this study analyses how this so-called InfoDialog attempted to reach this goal, and what the consequences were. For this purpose, an interpretive analytical perspective that employs concepts of conflict and participation analysis is adopted. Following this perspective, several design features of the InfoDialog and their implications for the framing of the fracking issue are reconstructed. This provides the ground for analysing the roles that the InfoDialog could play in coping with the fracking controversy. Finally, the dialogue's embeddedness in the context of the emerging fracking debate in Germany is examined. The analysis suggests that the InfoDialog could not defuse the public controversy over fracking by scientization. However, as a forerunner in the emerging politics of expertise, it has supported a particular framing of the public controversy. These insights provoke further critical questions about the implications of privately organized participation arrangements regarding public controversies.     

Framing fracking: scale-shifting and greenwashing risk in the oil and gas industry

In this paper, I examine corporate environmental communication on hydraulic fracturing, or fracking, and industry efforts to shape public perception of resource extraction and its impacts on the environment. I look at how the oil and gas industry (OGI) frames fracking to ease public fear by downplaying risk and shifting its scale with rhetoric presenting the benefits of this emergent technology. Contrasting and building on ecological modernisation versus risk society ideas, I use OGI print advertising supplemented by corporate social responsibility statements and other online material to critically evaluate framing in light of the practice of corporate greenwashing. Findings reveal OGI efforts to positively portray fracking in the interest of unfettered resource extraction and profits from energy production. Several themes emerge in OGI framing rhetoric, starting with the establishment of trust through education and claims of transparency and continuing with ideas touting safety and responsibility, scientific progress, economic benefits and jobs, energy security, environmental protection, and sustainability. On the whole, such rhetoric reflects ecological modernisation ideas that shift the perception of risk and its consequences, framing fracking in a way that obscures the negative impacts of dependency on a fossil fuel-based economy.     

Framing Shale Gas for Policy-Making in Poland

Despite enthusiasm about new gas reserves, shale gas has not come to Poland without controversies. This study examines how shale gas has been framed as a public issue by political and business elites, experts, local communities and civil society organizations. Through a frame analysis, we found three main frames about shale gas: shale gas as a novel economic resource, as a strategic resource for energy security and as a threat. However, only the first two frames, proposed by political and business elites, have shaped the policy process. The third frame, constructed by local actors and civil society groups, has had minimal impact. We explain this exclusion drawing on the deficit model of risk communication. This approach reveals that Polish experts, and business and political actors, during their interactions with local groups, have framed proponents of the threat frame as ‘incompetent actors’ effectively excluding the threat frame from policy processes.     

Framing Climate Change for Public Deliberation: What Role for Interpretive Social Sciences and Humanities?

Public deliberation is increasingly marshalled as a viable avenue for climate governance. Although climate change can be framed in multiple ways, it is widely assumed that the only relevant public meaning of climate change is that given by the natural sciences. Framing climate change as an inherently science-based public issue not only shields institutional power from scrutiny, but it can also foster an instrumental approach to public deliberation that can constrain imaginative engagement with present and future socio-environmental change. By fostering the normative value of pluralism as well as the substantive value of epistemic diversity, the interpretive social sciences and humanities can assist in opening up public deliberation on climate change such that alternative questions, neglected issues, marginalized perspectives and different possibilities can gain traction for policy purposes. Stakeholders of public deliberation are encouraged to reflect on the orchestration of the processes by which climate change is defined, solutions identified and political collectives convened.     

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.     

Reflexive governance: exploring the concept and assessing its critical potential for sustainable development. Introduction to the special issue

ABSTRACT

Elaborated in publications on transition management, sustainability governance and deliberative environmental governance, ‘reflexive governance’ addresses concerns about social-ecological vulnerabilities, flawed conceptualisations of human-nature relations fragmented governance regimes and conditions for a sustainability transition. Key barriers to reflexive government include unavoidable politics; the influence of broader discursive systems that shape actors’ strategic interests; and structural and deliberate limitations to the range of admitted epistemological understandings, normative perspectives and material practices. Against this background, the contributions to the special issue provide novel conceptual linkages between reflexive governance and boundary objects, intercultural dialogue, conflict management heuristics, discourse linguistics, theories of the policy cycle and reflexive law, network and learning theories, and Lasswell’s ‘developmental constructs’. Based on the contributions, we identify five inherent conceptual tensions of reflexive governance: between the openness of horizontal learning processes and the desired direction towards sustainable development; between reflexive governance as a normative or procedural concept; between expected learning orientations and other, strategic orientations; between governance as a precondition for reflexivity and reflexive learning as a precondition for reorganized governance structures; and between reflexivity as an open-ended, evolutionary process and the need to strategically defend the space for reflexivity against powerful groups with an interest in the status quo.     

页岩气勘探开发过程中的环境影响

当前,我国正积极推进页岩气资源的勘探和开发工作,但其对环境的影响尚缺乏科学评价和规范管理。在系统分析页岩气勘探开发主要流程:井场选址与建设、水平井钻井、水力压裂和投产等的基础上,辨识了其造成生态破坏和环境污染的主要因素以及可借鉴的技术和经验。结合我国页岩气资源的分布和勘探开发现状,从法规政策、企业责任以及技术创新三个层面,提出我国页岩气开发过程中环境保护和管理应努力的方向。     

Distribution of uranium contamination in weathered fractured saprolite/shale and ground water

The objective of this study was to determine how structure, stratigraphy, and weathering influence fate and transport of contaminants (particularly U) in the ground water and geologic material at the Department of Energy (DOE) Environmental Remediation Sciences Department (ERSD) Field Research Center (FRC). Several cores were collected near four former unlined adjoining waste disposal ponds. The cores were collected, described, analyzed for U, and compared with ground water geochemistry from surrounding multilevel wells. At some locations, acidic U-contaminated ground water was found to preferentially flow in small remnant fractures weathering the surrounding shale (nitric acid extractable U [U(NA)] usually < 50 mg kg(-1)) into thin (<25 cm) Fe oxide-rich clayey seams that retain U (U(NA) 239 to 375 mg kg(-1)). However, greatest contaminant transport occurs in a 2 to 3 m thick more permeable stratigraphic transition zone located between two less permeable, and generally less contaminated zones consisting of (i) overlying unconsolidated saprolite (U(NA) < 0.01 to 200 mg kg(-1)) and (ii) underlying less-weathered bedrock (U(NA) generally < 0.01 to 7 mg kg(-1)). In this transition zone, acidic (pH < 4) U-enriched ground water (U of 38 mg L(-1)) has weathered away calcite veins resulting in greater porosity, higher hydraulic conductivity, and higher U contamination (U(NA) 106 to 745 mg kg(-1)) of the weathered interbedded shale and sandstone. These characteristics of the transition zone produce an interval with a high flux of contaminants that could be targeted for remediation.     

Beyond the conventional: Meeting the challenges of landscape governance within the European Landscape Convention?

Academics and policy makers seeking to deconstruct landscape face major challenges conceptually, methodologically and institutionally. The meaning(s), identity(ies) and management of landscape are controversial and contested. The European Landscape Convention provides an opportunity for action and change set within new governance agendas addressing interdisciplinarity and spatial planning. This paper critically reviews the complex web of conceptual and methodological frameworks that characterise landscape planning and management and then focuses on emerging landscape governance in Scotland within a mixed method approach involving policy analyses, semi-structured interviews and best practice case studies. Using Dower's (2008) criteria from the Articles of the European Landscape Convention, the results show that whilst some progress has been made in landscape policy and practice, largely through the actions of key individuals and champions, there are significant institutional hurdles and resource limitations to overcome. The need to mainstream positive landscape outcomes requires a significant culture change where a one-size-fits-all approach does not work.     

Protected area governance in Sweden: new modes of governance or business as usual?

This paper explores whether ambitions to open up the traditional Swedish model of top-down conservation methods to local influences are indicative of an actual transition in governance of Swedish national park policy (NPP), and examines whether such a shift entails an increase in local influence over local interests and needs. Methodologically, we analyse a combination of governance types and incorporate theoretical definitions of power and accountability. The establishment of new governance arrangements – where power is shared, interactions promoted and accountability is directed downwards – indicates that Sweden's NPP is undergoing a change in its mode of governance. This change also seems to include ceding some influence to local interests, and the possibility of combining conservation with the utilisation of certain natural resources. The results of our research also provide valuable insights into when the establishment of shared-governance arrangements are likely to succeed; in short, this seems more likely when there are established sectors sited in a robust legal framework and where strong international commitments potentially play a role. In conclusion, we contend that when seeking diversified governance arrangements it is not enough simply to take local practices and customs into consideration – they have to be strengthened.     

改性PVDF中空纤维膜处理压裂返排液研究

针对中空纤维膜应用于水力压裂返排液处理时存在的膜污染严重、通量衰减快、影响处理效率等问题,研究了PVDF固含量、凝固浴温度等因素对PVDF膜性能的影响,通过非溶剂致相分离法制备了PVDF中空纤维膜,并采用表面接枝技术,对PVDF中空纤维膜进行了表面亲水化改性。压裂返排液吸附实验结果表明,表面接枝降低了PVDF的接触角,提高了膜的亲水性。与未接枝改性的PVDF膜相比,亲水改性后的PVDF膜表面吸附的压裂返排液更少。将亲水性中空纤维膜用于页岩气水力压裂返排液的过滤处理,应用结果表明其对压裂返排液中的总铁、SS、浊度、细菌去除率达到90%以上,长时间运行后的通量保持率高,有较好的抗膜污染性。     

Potential use of oil shale for direct production of power in Jordan

Up until the present, Jordan has relied almost exclusively on imported petroleum for its primary energy requirements. Encouraged by emerging technologies and recent fossil fuel discoveries, Jordanians are seriously examining exploitation of their own indigenous energy resources to meet projected mid- and long-term power requirements. The most prominent of the known resources is oil shale. This report addresses the oil shale-for-power-production option in Jordan. Under consideration are 20 MW and 50 MW demonstration units and a 400 MW commercial-scale plant. The report focuses on three areas: (i) the engineering feasibility of using Jordan's oil shale in a circulating fluidized bed combustion (CFBC) boiler; (ii) environmental aspects of the proposed oil shale-for-power plants(s); and (iii) the economic feasibility of the proposed plant(s). The results could be useful for other low- to middle-income countries considering oil shale as an option for power production.     

页岩气开发中应关注的环境问题

我国页岩气开发处于探索阶段,具有资源赋存情况不清楚、水平井及分段压裂等关键技术有待突破、页岩气富集区地形条件复杂、地面建设条件较差、资源管理机制不完善等特点。对于页岩气开发这一新兴产业,在开发过程中需要关注生态影响、水资源消耗及环境风险等环境问题,并应尽快开展相关工作的研究,制定评价标准、导则、污染防治技术政策等相关文件,以规范页岩气开发的环保工作。     

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。