Joint Working within Local Government: air quality as a case-study

Air quality management (AQM) is a process of environmental control that must be embedded within a wide range of policy areas, from local-scale initiatives to international treaties, if it is to be successful. Because of the integrative aspects of AQM, it is imperative that joint working is undertaken within local authorities and other involved parties. Environmental health departments have taken the lead role in AQM as they have traditionally had responsibilities for some other aspects of pollution control. However, AQM requires input from a variety of professionals such as transport planners, land-use planners, economic development officers and Local Agenda 21 (LA21) officers, as well as environmental health professionals. This paper examines the involvement of these professions within the AQM process. Results are presented from a widespread questionnaire survey of urban local authorities in England. In the case of air quality, it is concluded that co-operation between the necessary professions is still at an early stage. Transport planners are more fully engaged with the process than are land-use planners or economic development officers. In order that the joint working process develops appropriately, it is suggested that LA21 officers have an important role in facilitating inter-professional working to support the AQM process.     

Joint Working within Local Government: Air quality as a case-study

Air quality management (AQM) is a process of environmental control that must be embedded within a wide range of policy areas, from local-scale initiatives to international treaties, if it is to be successful. Because of the integrative aspects of AQM, it is imperative that joint working is undertaken within local authorities and other involved parties. Environmental health departments have taken the lead role in AQM as they have traditionally had responsibilities for some other aspects of pollution control. However, AQM requires input from a variety of professionals such as transport planners, land-use planners, economic development officers and Local Agenda 21 (LA21) officers, as well as environmental health professionals. This paper examines the involvement of these professions within the AQM process. Results are presented from a widespread questionnaire survey of urban local authorities in England. In the case of air quality, it is concluded that co-operation between the necessary professions is still at an early stage. Transport planners are more fully engaged with the process than are land-use planners or economic development officers. In order that the joint working process develops appropriately, it is suggested that LA21 officers have an important role in facilitating inter-professional working to support the AQM process.     

A conceptual model of the role of complex science in local authority consultations about air quality management

There exists a clear imperative across the EU and within the UK towards the enhanced integration of community knowledge in environmental and health decision-making processes. The underlying social force that underpins this dynamic is the drive for a more accountable, transparent and publicly acceptable decision-making arena. However, relatively little research has been undertaken on the evaluation of local air quality management consultation in particular. In this context, the paper presents an evaluation of evidence resulting from questionnaire survey and case study research undertaken in the first round of the statutory process of local air quality management (LAQM), in which local authorities are required to consult on their air quality findings and intentions. We suggest that local authority perceptions of the relative abilities of differing stakeholders' grasp of air quality science, the process that translates that science into policy, and the institutional and organizational status of stakeholders (i.e. whether they are statutory or non-statutory stakeholders) may tend to transitively determine the choice of consultation methods used, the communication strategies chosen and the relative integration of stakeholder feedback into the LAQM decision-making process. In order to interrogate this potentially problematic chain of risk communication events, a preliminary conceptual model has been developed to enable the interrogation of the pathways through, and the obstacles to, the translation of air quality knowledge. The task is to unveil the sequential chains of association that comprise the LAQM risk communication process.     

A conceptual model of the role of complex science in local authority consultations about air quality management

Abstract

There exists a clear imperative across the EU and within the UK towards the enhanced integration of community knowledge in environmental and health decision-making processes. The underlying social force that underpins this dynamic is the drive for a more accountable, transparent and publicly acceptable decision-making arena. However, relatively little research has been undertaken on the evaluation of local air quality management consultation in particular. In this context, the paper presents an evaluation of evidence resulting from questionnaire survey and case study research undertaken in the first round of the statutory process of local air quality management (LAQM), in which local authorities are required to consult on their air quality findings and intentions. We suggest that local authority perceptions of the relative abilities of differing stakeholders' grasp of air quality science, the process that translates that science into policy, and the institutional and organizational status of stakeholders (i.e. whether they are statutory or non-statutory stakeholders) may tend to transitively determine the choice of consultation methods used, the communication strategies chosen and the relative integration of stakeholder feedback into the LAQM decision-making process. In order to interrogate this potentially problematic chain of risk communication events, a preliminary conceptual model has been developed to enable the interrogation of the pathways through, and the obstacles to, the translation of air quality knowledge. The task is to unveil the sequential chains of association that comprise the LAQM risk communication process.     

Evidence of integration of air quality management in the decision-making processes and procedures of English local government

The air quality management (AQM) framework in the UK is a risk management approach using effects-based objectives for air pollutants to determine the need for action. The Environment Act 1995 required a National Air Quality Strategy to be published, setting out health-based standards and objectives for eight pollutants, of which seven are to managed at a local scale. Because of the variety of sources of air pollution, if the AQM process is to succeed in the long term, solutions to identified problems will be required from transport, land use and economic planning sectors of local government in liaison with various other agencies, regulators and outside bodies. As such the task is inherently multi-disciplinary and an integrated, collaborative approach will be necessary. Although this observation is now fairly well documented, there is still little guidance relating to how, in relation to air quality management, integration can actually be accomplished. This paper presents some observations from case studies undertaken as part of a longer-term research study and in particular focuses on the identified problems of involving non-air-quality professionals in a highly technical scientific process. Various approaches to the collaborative aspects of air quality management will be presented. These case studies represent local authorities of different sizes in different political and organisational situations facing a range of air quality challenges. The creation of project teams or task forces is judged particularly useful for local air quality management. Methods that could be applied more widely include appointing individuals as integrators, and rotation of key personnel.     

Regional Variations in the Implementation of the Local Air Quality Management Process within Great Britain

The UK National Air Quality Strategy has required local authorities to review and assess air quality in their area of jurisdiction and determine locations in their areas where concentrations of specific air quality pollutants are predicted to exceed national air quality objectives in the future. Statutory air quality management areas (AQMAs) are designated where air quality is predicted to be above specified objective concentrations by specific target dates, and statutory air quality action plans will be necessary to improve the local air quality within these areas. Over 124 local authorities in England (including London), Wales and Scotland anticipate declaring AQMAs following the conclusion of the statutory air quality review and assessment process. However, other influences are being exerted on the local air quality management process and AQMA decision-making processes. Such influences include regional and sub- regional collaborative working between local authorities and government agencies and wider political decision-making processes. Some regions of Great Britain (encompassing England (including London), Scotland and Wales) anticipate many AQMA designations, whilst other regions are not anticipating any such designations despite apparently similar air quality circumstances. Evidence for regional or sub-regional variations in the locations of anticipated AQMAs are examined through an evaluation of the outcomes of the scientific review and assessment process undertaken by local authorities declaring AQMAs, and through a local authority survey to identify influences on decision-making processes at a level above that of the local authority. Regional variation is reported in the type of pollutant causing AQMAs to be declared, in the numbers of AQMAs in regions and in the spatial distribution of AQMAs across Great Britain.     

Communication Strategy of Transboundary Air Pollution Findings in a US–Mexico Border XXI Program Project

From 1996 to 1997, the US Environmental Protection Agency (EPA) and the Texas Natural Resource Conservation Commission (TNRCC) conducted an air quality study known as the Lower Rio Grande Valley Transboundary Air Pollution Project (TAPP). The study was a US–Mexico Border XXI program project and was developed in response to local community requests on a need for more air quality measurements and concerns about the health impact of local air pollutants; this included concerns about emissions from border-dependent industries in Mexico, known as maquiladoras. The TAPP was a follow-up study to environmental monitoring done by EPA in this area in 1993 and incorporated scientific and community participation in development, review of results, and public presentation of findings. In spite of this, critical remarks were leveled by community activists against the study's preliminary “good news” findings regarding local air quality and the influence of transboundary air pollution. To resolve these criticisms and to refine the findings to address these concerns, analyses included comparisons of daily and near real-time measurements to TNRCC effects screening levels and data from other studies along with wind sector analyses. Reassessment of the data suggested that although regional source emissions occurred and outliers of elevated pollutant levels were found, movement of air pollution across the border did not appear to cause noticeable deterioration of air quality. In spite of limitations stated to the community, the TAPP was presented as establishing a benchmark to assess current and future transboundary air quality in the Valley. The study has application in Border XXI Program or other air quality studies where transboundary transport is a concern since it involved interagency coordination, public involvement, and communication of scientifically sound results for local environmental protection efforts.     

Environmental Impact Assessment Regulation in Hong Kong and Shanghai: A Cross-city Analysis

Cross-city analysis in environmental regulation within non-democratic political systems is a neglected area. Taking policy convergence and styles of regulation as the focus, this paper has taken an initial step to compare the environmental impact assessment (EIA) regulation in Hong Kong and Shanghai. In this comparative exercise, it is identified that policy convergence occurs more explicitly in policy ideology and policy consequences, whereas divergence takes place in policy content, regulatory process and public consultation. Convergence, however, is only superficial whereas divergence is substantial. Indeed EIA systems of these two jurisdictions have displayed contrasting styles of regulation. The formal EIA system in Shanghai is dominated by the environmental agency, which regulates informal politics in the EIA process within a legal format. The informal EIA system in Hong Kong is co-ordinated by the environmental agency, which seeks active co-operation with the clients in a consultative EIA process in an informal and discretionary manner. What makes the Hong Kong system superior to the Shanghai system is the existence of institutional channels for public consultation. Within a non-democratic political setting, the EIA process in Hong Kong is more transparent and the EIA system is more accountable to the public, whereas the EIA process in Shanghai is lacking in transparency and the EIA system is under tight bureaucratic control.     

Development and Implementation of Strategic Frameworks for Air Quality Management in the UK and the European Community

The UK and the EC have recognized that the application of national and EC policies alone may not be cost effective in improving air quality in some areas, especially in traffic-congested urban centres and along major road transport corridors. Consequently both have introduced new strategic frameworksfor air quality management.This paper outlines and compares the UK National Air Quality Strategy (NAQS) and the EC approach, set out in the Air Quality Framework and Daughter Directives. Both frameworks shift responsibility for reviewing, assessing and managing air quality on to local authorities. The UK considers the NAQS will provide the principal means of carrying out its commitments under the new EC framework.Local authorities in the UK have begun the review and assessment phase of the NAQS. This paper examines the support that central government has had to provide to local authorities to ensure the NAQS will be effective. It offers insights into what other Member States are likely to face when implementing their interpretation of the EC air quality management framework. The paper highlights that many UK local authorities lacked even basic air quality management capabilities when the NAQS was being formulated. Consequently the UK Government has had to expand the national pollution monitoring networks (this was achieved primarily by affiliating the growing number of local authority funded sites), commission new detailed urban emissions inventories, and develop and validate a suite of air quality dispersion models. Training events in air quality assessment techniques have had to be offered and many detailed guidance notes issued to ensure an appropriate and consistent interpretation of the NAQS. Some government initiatives to support the implementation of the NAQS suffered delays which initially caused some unnecessary uncertainties and inconsistencies amongst local authorities conducting their review and assessment of air quality. This points to the importance of the Governmentensuring that the support for the management phase of the NAQS will be in place in time. This includes providing additional pollution-control powers and reformulating transport and planning policies in order to integrate air quality management more fully.     

Judging the Risk of Exceedance: Local authority decision-making for air quality management area designation

Management of air quality by local government in the United Kingdom (England, Scotland, Wales and Northern Ireland) requires a process of local decision-making, involving collaboration between local politicians, authority officers and interest-groups. Since the establishment of the first National Air Quality Strategy for the UK in 1997, local authority environmental health professionals have undertaken a scientific review and assessment process to identify locations where predicted future pollutant concentrations may exceed national air quality objectives. Air quality management areas (AQMAs) are declared where such exceedences are predicted. Over recent years, significant changes in local authority decision-making structures in England, Scotland and Wales have occurred, resulting in changes to the structure and governance in many local authorities. Results are presented from local authority surveys undertaken to examine the occurrence of any conflicts between the science involved in predicting exceedences and the local political decision-making processes in declaring AQMAs. Data are presented for a sample set of local authorities in Great Britain from which it is concluded that decision-making structures in local government are having a demonstrable impact on the designation of AQMAs.     

Judging the Risk of Exceedance: local authority decision-making for air quality management area designation

Management of air quality by local government in the United Kingdom (England, Scotland, Wales and Northern Ireland) requires a process of local decision-making, involving collaboration between local politicians, authority officers and interest-groups. Since the establishment of the first National Air Quality Strategy for the UK in 1997, local authority environmental health professionals have undertaken a scientific review and assessment process to identify locations where predicted future pollutant concentrations may exceed national air quality objectives. Air quality management areas (AQMAs) are declared where such exceedences are predicted. Over recent years, significant changes in local authority decision-making structures in England, Scotland and Wales have occurred, resulting in changes to the structure and governance in many local authorities. Results are presented from local authority surveys undertaken to examine the occurrence of any conflicts between the science involved in predicting exceedences and the local political decision-making processes in declaring AQMAs. Data are presented for a sample set of local authorities in Great Britain from which it is concluded that decision-making structures in local government are having a demonstrable impact on the designation of AQMAs.     

Progress with implementing local air-quality management in rural areas of England

Air quality in the UK, although vastly improved from the smogs of the 1950s, now faces a new set of challenges from a variety of sources and pollutants. Poor air quality has long been associated with urban areas, but it is becoming clear that many rural locations also have locations likely to exceed the UK Air Quality Strategy-objectives: This paper will examine the extent to which rural authorities have been engaged in the local air-quality management (LAQM) process, a new regime by which air quality control is being accomplished in the UK. Results are presented from a questionnaire survey of environmental health officers of 100 rural authorities undertaken in January 1999. The paper investigates both the technical aspects of the LAQM process as well as the management approaches. The current progress of rural authorities, and some of the problems they face, are discussed particularly in comparison with urban areas. It is concluded that some rural authorities with air pollution problems stemming either from within or outwith their borough, may face significant challenges from the LAQM review and assessment process, particularly where air pollution responsibilities have only relatively recently been addressed. Rural authorities seem to be embracing these new responsibilities enthusiastically, but it is almost inevitable that they will be trailing behind urban authorities who have several decades of experience and joint working to draw upon.     

Design of fuzzy synthetic evaluation model for air quality assessment

Little attention was paid to growing air quality concerns until about a decade earlier in India. Indian Government started continuous monitoring of the urban air quality in Taj corridor area to protect the heritage monuments like Agra Fort, Fatehpur Sikri, the bird sanctuary at Bharatpur National Park and also the human health associated with air pollution. The aim of this study was to address air quality assessment using fuzzy synthetic evaluation model. The model was designed for four air pollutants (sulphur dioxide, nitrogen dioxide, suspended particulate matters and respirable suspended particulate matter). In the present paper, an approach is demonstrated for the determination of fuzzy air quality index by aggregating the four pollutants. The model also considers the weights of individual pollutants during aggregation. The weights of individual pollutants were determined using analytical hierarchical process. The model was applied for air quality assessment in four monitoring stations situated in Taj Trapezium Zone.     

An assessment of public engagement for access management planning in southwestern Alberta,Canada

This paper describes efforts to bridge the gap between the existing research and proposed recreation access management for public lands in southwestern Alberta, Canada. Recreation access management has been identified as a complex problem and public consultation is one element in addressing the complexity. An Internet-based survey (n = 945) examined the acceptability and desirability of public consultation processes to assist with access management planning. Non-parametric tests indicate significant differences in desirability of public consultation types existed for all variables except gender. Respondents expressed the desire for a diversity of public consultation approaches with a strong preference for face-to-face field visits. Mechanisms for engagement in access management planning should be based on public consultation preferences to ensure broad, on going engagement and subsequent user acceptance and compliance.     

Advisory Committee: A Powerful Tool for Helping Decision Makers in Environmental Issues

/ It has been suggested that the general public should be moreinvolved in environmental policy and decision making. It is important forthem to realize that they will have to live with the consequences ofenvironmental policies and decisions. Consequently, policy makers shouldconsider the concerns and opinions of the general public before makingdecisions on environmental issues. This raises questions such as: How can weintegrate the perceptions and reactions of the general population inenvironmental decisions? What kind of public participation should weconsider? In the present study, using a new regional ecosystem model, weattempted to integrate these aspects in its decision making model byincluding the formation of an advisory committee to resolve problems relatedto waste management. The advisory committee requested the activeparticipation of representatives from all levels of the community: economic,municipal, and governmental intervenors; environmental groups; and citizens.Their mandates were to examine different management strategies available inthe region, considering all the interdisciplinary aspects of each strategy,elaborate recommendations concerning the management strategies that are mostsuitable for all, and collaborate in communication of the information to thegeneral population. The results showed that at least in small municipalitiessuch an advisory committee can be a powerful tool in environmental decisionmaking. Conditions required for a successful consultation process, such aseveryday lay language and the presence of a facilitator other than ascientific expert, are discussed.KEY WORDS: Public consultation; Environmental policies;Interdisciplinary aspects; Municipal sewage sludge management; Generalpopulation; Decision-making process     

A qualitative tool combining an interaction matrix and a GIS to map vulnerability to traffic induced air pollution

Local authorities and transport planners need fast and straightforward tools to perform their preliminary air quality assessments. Such tools are required to provide an initial impression of the local air quality and to highlight areas requiring a more rigorous investigation. This paper presents a technique to develop such a tool, for performing an initial assessment of air quality due to traffic in an urban area. The technique combines an interaction matrix methodology as developed for rock engineering systems, with Geographical Information System (GIS) map overlaying. This interaction matrix methodology incorporates a total system approach, which identifies the main parameters and quantifies the interactions between them. Weighting values for these parameters are obtained either through parametric studies, using numerical modelling, or from engineering judgement. These weightings are applied to spatial datasets for a study area using a GIS. The GIS results are presented in the form of a vulnerability map, which highlights the areas susceptible to poor air quality. This visual interpretation of the results is ideal for local authorities, who have to report to a wide range of non-specialists in the field, for example, planners, councillors and the public. The vulnerability map compares favourably with pollutant concentration patterns, obtained from an advanced dispersion model.     

Carcass disposal and siting controversy: Risk, dialogue and confrontation in the 2001 foot-and-mouth Outbreak

This paper examines controversy during the 2001 foot-and-mouth outbreak after mass carcass burial sites were selected at two sites in northeast England, and focuses on shortcomings in public consultation surrounding the carcass disposal policy. The slaughter of six million animals necessitated a national disposal strategy on a hitherto unknown scale. The belated decision to concentrate carcass disposal in a small number of mass burial sites provoked more opposition in the two ex-mining localities selected in the northeast than anywhere else. In both cases local liaison committees were established to manage dialogue between residents and public authorities. We argue that, although seen by the authorities primarily as a vehicle for risk communication and public reassurance, for residents these functioned chiefly as a vehicle for holding public authorities to account. These divergent purposes were overshadowed by the chaotic circumstances in which the early stages of the mass burial policy were implemented, and the way in which the carcass disposal policy was dictated by the operation of the slaughter policy, whose draconian form precluded any but the most cursory public consultation.     

The role of agency goals and local context in Great Lakes water resources public involvement programs

As complex social phenomena, public involvement processes are influenced by contextual factors. This study examined agency goals for public involvement and assessed the importance of local context in remedial action planning, a community-based water resources program aimed at the cleanup of the 42 most polluted locations in the Great Lakes Basin. Agency goals for public involvement in remedial action plans (RAPs) were agency-oriented and focused on public acceptance of the plan, support for implementation, and positive agency-public relations. Corresponding to these goals, citizen advisory committees were created in 75% of the RAP sites as a primary means for public input into the planning process. Factors that influenced the implementation of public involvement programs in remedial action planning included public orientation toward the remediation issue, local economic conditions, the interaction of diverse interests in the process, agency and process credibility, experience of local leadership, and jurisdictional complexity. A formative assessment of “community readiness” appeared critical to appropriate public involvement program design. Careful program design may also include citizen education and training components, thoughtful management of ongoing agency-public relations and conflict among disparate interests in the process, overcoming logistical difficulties that threaten program continuity, using local expertise and communication channels, and circumventing interjurisdictional complexities.     

Procedure for assessing visual quality for landscape planning and management

Incorporation of aesthetic considerations in the process of landscape planning and development has frequently met with poor results due to its lack of theoretical basis, public involvement, and failure to deal with spatial implications. This problem has been especially evident when dealing with large areas, for example, the Adirondacks, Scenic Highways, and National Forests and Parks. This study made use of public participation to evaluate scenic quality in a portion of the Niagara Escarpment in Southern Ontario, Canada. The results of this study were analyzed using thevisual management model proposed by Brown and Itami (1982) as a means of assessing and evaluating scenic quality. Themap analysis package formulated by Tomlin (1980) was then applied to this assessment for the purpose of spatial mapping of visual impact. The results of this study illustrate that it is possible to assess visual quality for landscape/management, preservation, and protection using a theoretical basis, public participation, and a systematic spatial mapping process.     

Road Developments in the UK: An Analysis of Ecological Assessment in Environmental Impact Statements Produced between 1993 and 1997

Environmental impact assessment (EIA) has been required for certain proposed road developmentsin the UK since EC Directive (85/337) was implemented in 1988. The extent to which the requirements of the EIA Directive are met with respect to ecological issues has been explored in earlier reviews of road statements (Treweek et al., 1993) and of UK environmental impact statements (EISs) in general (Thompson et al., 1997). This paper describes the results of a further review of 40 EISs produced between 1993 and 1997 and also examines recent changes in the political context for EIA of proposed road developments,including developments in UK transport policy and the UK biodiversity process. The results of the review suggest that the ecological assessment of proposed road developments has improved in some respects, but also highlights the persistence of many shortcomings identified in earlier reviews. The reasons for ongoing failure to address these issues are explored. Key findings include a marked improvement in the extent of reference to consultation with statutory consultees and an increase in the proportion of EISs reporting the results of new ecological surveys. However, while potential ecological impacts were discussed in all the EISs reviewed, many still failed to predict the full range of potential ecological impacts.