GRAPHICALLY MODELING STAKEHOLDER VALUES1

ABSTRACT: This study was designed to give insight into the values considered in environmental policy and illustrate the respondents' personal constructions related to creating policy through the development of a graphic tool. Using both qualitative and quantitative methods, this study anonymously captured the intensity of values currently held by decision makers and tracked changes in values over time. Data were acquired through observations of and interviews with stakeholders in a five‐year wetland mitigation bank permitting process at the Galveston District of the U.S. Army Corps of Engineers. The study included public and private sector respondents in both governmental and nongovernmental roles. The resulting representations of professional and personal stakeholders' values can be used as a tool for improving information exchange in policy negotiation and provides insight into the complexity of individual and corporate perceptions of a policy issue.     

The use of indicators in environmental policy appraisal: lessons from the design and evolution of water security policy measures

Drawing up environmental policy options is a complex activity which involves defining and weighing the merits and risks of various alternative courses of action governments could pursue. In its modern version, this task typically involves formal policy analysis or ‘policy appraisal’, that is, policy work specifically undertaken to generate and evaluate policy options in order to address problems or issues on a policy agenda. Indicators play a powerful but under-investigated role in this process. To shed light on this issue, the paper conducts a case study of the design and evolution of policy indicators in water security policy formulation, examining both their utilization and impact. The paper documents the origins of water security policy indicators; assesses their relevance and influence in policy formulation and identifies the reasons for the emergence of certain preferred indices, despite their having several well-known limitations. In particular, the discussion flags the significance of the political advantages surrounding their ease of use and interpretation, rather than their technical merits, as a key factor affecting the continued utilization and influence of specific indicators in environmental policy and planning.     

Integrating spatially referenced social and biophysical data to explore landholder responses to dryland salinity in Australia

Researchers attempting to integrate socio-economic data in watershed planning often draw on nationally collected census data. However, there are critical limitations to the usefulness of this type of data for decision makers operating at the watershed scale. In this paper we demonstrate the relevance of spatially referenced socio-economic data collected using mail surveys to random selections of rural landholders. The issue explored was dryland salinity management in two large watersheds in the Murray-Darling Basin of south-eastern Australia. Contrary to the assumptions underlying public policy in Australia, but consistent with the literature on farmer knowledge, comparisons of expert maps and landholder identified salinity sites suggested that landholders in these watersheds had excellent knowledge of the current extent of salinity on their property. Our research also suggested that salinity education was a sound investment by governments. At the same time, the expert maps failed to predict half of the saline affected sites identified by landholders. Accurately mapping the extent of salinity would seem a first step in addressing this nationally significant land degradation issue.     

Whose lawn is it anyway? Redefining problems and the implementation of municipal stormwater policies

Research of problem definitions typically centres on agenda setting and formulation with less attention given to implementation. In recognition of this gap, this analysis examines the relationship between issue definition, issue redefinition and policy implementation by reviewing two municipal stormwater plans. The results suggest that in larger issue contexts replete with ambiguity and uncertainty, problem definitions are often “tweaked” and adapted during the implementation process. In short, street-level bureaucrats craft “genetically related” but idiosyncratic problem definitions – that fit their own policy-making context. In the case of stormwater, “solutions”; are best described as dynamic policies built upon the values associated with technical expertise, public participation and environmental sustainability.     

‘A system that works for the sea’? Exploring Stakeholder Engagement in Marine Spatial Planning

This paper aims to contribute to the current debate on Marine Spatial Planning (MSP) by exploring the issue of stakeholder engagement. MSP is an emergent policy field that is subject to an increasing body of research, yet the role, scope and nature of participatory engagement within the process remains a neglected topic. This paper briefly reviews the nature of the ‘marine problem’, to which MSP is seen to be the response and describes the emergence of MSP policy in the UK with specific emphasis on participatory aspects. Drawing on the experience of terrestrial planning it discusses the potential benefits of stakeholder engagement in MSP and highlights some of the key issues that need to be taken into account when shaping stakeholder input into the process. It then goes on to describe the findings from a series of interviews with key stakeholders in the Irish Sea Region, which suggest that we need to develop a more critical and deeper understanding of how various interests frame the ‘marine problem’, and how they see their role in shaping the form of the MSP process. This highlights the importance of encouraging stakeholder involvement in MSP, the need to develop a shared vision of a ‘sea interest’. Priorities are then set for research to support this important policy agenda.     

Recapturing fugitive power: epistemology,complexity and democracy

While policy network theory employs complexity concepts (self-regulation, emergence) mainly as explanatory tools, potential theoretical contributions arising from the underpinning analytical principles have been less explored. It is argued that by directly considering multi-level environmental governance as a far-from-equilibrium complex system, it is possible to explore how governance structures might better support and construe the dynamic and delicate conditions necessary for the presence of life. Problem formulation or 'agenda setting' powers exerted by civil servants and scientists are examined as emergent properties, systemic in and necessary for the stability of multi-level governance structures. Finally, it is proposed that multi-level environmental governance design may be improved through a reconceptualisation of representation, informed by principles from complexity theory, which embraces and 'recaptures' power exerted through extra-electoral governance relationships.     

Moral Intensity and Willingness to Pay Concerning Farm Animal Welfare Issues and the Implications for Agricultural Policy

An experimental survey was undertakento explore the links between thecharacteristics of a moral issue, the degree ofmoral intensity/moral imperative associatedwith the issue (Jones, 1991), and people'sstated willingness to pay (wtp) for policy toaddress the issue. Two farm animal welfareissues were chosen for comparison and thecontingent valuation method was used to elicitpeople's wtp. The findings of the surveysuggest that increases in moral characteristicsdo appear to result in an increase in moralintensity and the degree of moral imperativeassociated with an issue. Moreover, there was apositive link between moral intensity/moralimperative associated with an issue andpeople's stated wtp for policy to address theissue. The paper discusses the relevance of thefindings of the survey in the context of thedebate concerning the relationship betweenmoral and economic values and the use of thecontingent valuation method to estimatepeople's wtp of policy options with moraldimensions.     

Mission assurance policy and risk management in cybersecurity

Mission assurance policy and risk management are essential in enabling decision makers to ensure successful completion of missions by addressing the security status of cyber assets. This paper presents a novel mission assurance policy that adapts to the dynamic security status of all mission assets to quickly and automatically determine mission assurance level and to decide what changes are needed accordingly. The novelty of this mission assurance policy stems from using a time Petri net model for determining the security status of cyber assets, and then employing binary or multi-valued logic decision diagrams to assess the mission assurance level. The ability of a mission assurance policy to successfully complete its objectives depends mainly on whether a risk management scheme is provided to reduce risk to an acceptable level. To that end, this paper also describes a risk management scheme to systematically deal with the main factors of risk management such as the temporal interdependencies of cyber assets, impact of attacks, and risk mitigation. Given that the status of cyber assets changes due to the dynamic cybersecurity environment of asset vulnerabilities, threats, and recovery, the proposed mission assurance policy and risk management scheme enable decision makers to cope with the real-time assessment of mission assurance level.     

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.     

Status,stigma and energy practices in the home

Domestic energy practices are a topical policy issue, with implications for climate change, energy security and fuel poverty. Accordingly, a growing body of literature examines ways of promoting energy conservation and generation by individuals. However, there has been relatively little discussion of how status and stigma are implicated in these practices, and may act as facilitators or barriers to “behaviour change”. To help address this gap, this article draws both on existing literature and a new UK-based study of people who are attempting to live sustainable lives, to provide insights into how domestic energy practices may be status-enhancing or stigmatising, and how these risks and opportunities can be managed. While energy practices are often understood as “inconspicuous”, it is argued here that in some circumstances individuals may actively manage the visibility of their energy practices. The discussion considers these findings with regard to social power relations, and identifies issues warranting further exploration within the emerging research agenda on energy and equity.     

Global risk, local values?: 'Risk society' and the greenhouse issue in Newcastle, Australia

Global environmental issues have permeated many disciplines over the last decade. Within the social sciences they have sparked a debate about the extent to which any 'ecological crisis' can be seen as symptomatic of deeper changes within modernity. The strength of such an explanation is examined in this paper with reference to the 'risk society' thesis advanced by Ulrich Beck and its applicability to the case of the greenhouse issue in Australia. Australia has received much international criticism for its 'differentiated' approach to the United Nations Framework Convention on Climate Change process. This paper examines how this approach has gained widespread currency within 'official' policy spheres through defining greenhouse risks in terms of the spatial and temporal referents of modernity: the individual; the nation-state; political and investment timetables. The possibility of alternative public understandings of greenhouse risks and responsibilities is examined through recent work undertaken in Newcastle, New South Wales, Australia. It is argued that these may represent very different interpretations of the greenhouse issue from those encountered within the 'official' policy sphere. However, without a greater recognition on the part of policy elites of the need to address an issue like greenhouse at a local scale and through public involvement, and institutions through which to do so, these interpretations will have little impact on the 'global' process of negotiating greenhouse outcomes.     

Understanding urban vulnerability,adaptation and resilience in the context of climate change

This paper introduces a special issue of Local Environment that has arisen through collaboration between academic researchers and the Urban Planning and Design Branch of UN-Habitat, focused on how we can understand and respond to the challenges of urban vulnerability, adaptation and resilience in the context of climate change. The paper establishes the existing state of the art in the field, and considers critical challenges that are emerging in the research-based literature. In this context, it introduces UN-Habitat's Cities and Climate Change Initiative and reflects on the lessons learnt and challenges ahead, drawing on insights from across the papers in the special issue. In conclusion, it identifies the role of international/transnational co-operation, the relation between adaptation and mitigation, issues of multi-level governance and the ways in which change in urban socio-technical systems might be achieved as critical issues across the science/policy interface where increased dialogue and the co-production of knowledge needs to focus in order to advance this agenda.     

The use of the ecological footprint in local politics and administration: results and implications from Norway

Our experiences calculating a local ecological footprint of Oslo form the basis for a discussion of key methodological aspects supporting the use of local sustainability indicators. The footprint's strength is its ability to communicate simply the complexity of global environmental challenges. Initially developed for measuring per capita consumption at the national level, the footprint has been adopted at local and regional levels. We argue for adjustments in the footprint methodology when shifting from a national to a local policy context, to ensure the indicator's applicability in local politics and administration. First, the analysis should be limited to consumption aspects relevant to the local environmental policy agenda. Second, the analysis should integrate as much genuine local data as possible. We argue also that a standardised methodology based on the national footprint approach, with the main purpose of international benchmarking of cities, cannot but reduce the indicator's usefulness for administrative/political guidance, due to the methodology's lack of transparency and inability to identify local variations.     

The potential role of stated preference methods in the Water Framework Directive to assess disproportionate costs

This paper examines the issue of disproportionate costs of Water Framework Directive (WFD) implementation using public surveys as a means to inform policy and decision making. Public taxpayers are asked their opinion regarding the implementation of the WFD and its costs. Taxpayers are expected to bear a large share of the cost of WFD implementation, be it through national taxation, local water pollution charges or higher market prices for water related goods and services. The paper's main objective is to illustrate the role of stated preference research to elicit public opinions and perceptions towards socially acceptable levels of water quality and public willingness to pay (WTP) for the expected environmental benefits of the WFD. Stated preference research can be used as a way to assess the concept of disproportionate costs to those who are expected to bear a large share of the costs of WFD implementation, and at the same time address the issue of public participation in the WFD. The survey results are used as a public consultation tool to inform policy and decision makers about public willingness and ability to pay for the implementation of the WFD. This measure can be used as one of the benchmarks to define disproportionate costs in a cost-benefit context.     

Strategic Environmental Assessment of Greenhouse Gas Mitigation Options in the Canadian Agricultural Sector

This article presents a methodological framework for strategic environmental assessment (SEA) application. The overall objective is to demonstrate SEA as a systematic and structured policy, plan, and program (PPP) decision support tool. In order to accomplish this objective, a stakeholder-based SEA application to greenhouse gas (GHG) mitigation policy options in Canadian agriculture is presented. Using a mail-out impact assessment exercise, agricultural producers and nonproducers from across the Canadian prairie region were asked to evaluate five competing GHG mitigation options against 13 valued environmental components (VECs). Data were analyzed using multi-criteria and exploratory analytical techniques. The results suggest considerable variation in perceived impacts and GHG mitigation policy preferences, suggesting that a blanket policy approach to GHG mitigation will create gainers and losers based on soil type and associate cropping and on-farm management practices. It is possible to identify a series of regional greenhouse gas mitigation programs that are robust, socially meaningful, and operationally relevant to both agricultural producers and policy decision makers. The assessment demonstrates the ability of SEA to address, in an operational sense, environmental problems that are characterized by conflicting interests and competing objectives and alternatives. A structured and systematic SEA methodology provides the necessary decision support framework for the consideration of impacts, and allows for PPPs to be assessed based on a much broader set of properties, objectives, criteria, and constraints whereas maintaining rigor and accountability in the assessment process.     

Choosing policy instruments for controlling ozone depleting substances in a developing context: the case of Chile

Chile ratified the Montreal Protocol in 1990 which sets out an agenda for the reduction and then elimination of ozone depleting substances (ODS); however, by 1998 the country had not yet defined a strategy to encourage greater compliance, so that in the same year the National Environmental Commission decided to examine the policy options available. This paper examines the process followed to develop this strategy. As a first step it was necessary to look at how far the implicit policy of "business as usual" could be stretched without jeopardizing Chile's compliance obligations. A second step included quantifying compliance costs and their impact on different policy instruments and so policy choice. Finally, the attitudes of decision-makers or participants were identified, by interviews with officials of the different public agents involved, in order to weigh their views about policy. A strategy was proposed, based on this information, which the Chilean regulator has used, although not in its entirety. The methodology developed could well be useful for developing-country Protocol signatories building their own appropriate compliance strategy.     

Blowing policy bubbles: rethinking emissions targets and low-carbon energy policies in the U.K.

The issue of proportionality is central to climate policy debates about setting targets for the reduction of greenhouse gas emissions and the development of low-carbon energy. In effect, these debates centre on whether the perceived social costs outweigh the benefits of policies and, if not, whether this may lead to over-investment or ‘policy bubbles’. Political attention, agenda setting and policy image are all crucial drivers of ambitious policy formation, as seen in the case of the United Kingdom's (U.K.) Climate Change Act (2008). However, as political salience waned and economic depression dragged on, the cost of long-term climate targets has been reconsidered. Based on documentary analysis and 33 interviews with central political actors, this article presents a detailed account of how economic arguments have been used to reinterpret and challenge policies, using the heuristics of ‘over-investment’ and ‘policy bubbles’. Ultimately, arguments about proportionality hinge on which costs and benefits are considered. In the U.K., economic and technical framings are typically prioritised, but they do not explain contradictory and politically motivated policy decisions. We discuss these dynamics within the context of maturing renewable energy technologies, high energy prices and the U.K.’s cross-party consensus approach to climate politics.     

Finding Common Ground: How Advocacy Coalitions Succeed in Protecting Environmental Flows1

Abstract: This paper reviews several recent case studies in which states or countries have strengthened their protection of environmental flows to explore the key policy, stakeholder, and scientific elements that contributed to these advances in water management. A conceptual framework is developed to describe the actions of interest groups and individuals, how environmental flow issues get onto the formal agenda of decision makers, the events and conditions which precipitate this attention, the role of science and scientific uncertainty, and how interactions and dialog among individuals and groups with different interests lead to changes in state and national statutes. In general, the review found that changing policies is a result of actions of informed groups of interested parties using science and information to inform both the public and decision makers about the need for action and about the specific action needed. In almost all cases, environmental flow issues make it onto the formal agenda of institutions through one or more precipitating events, often legal challenges that call into question the existing legal framework for water management. Significantly, in almost all cases the engagement between advocacy coalitions with different and often opposing views results in reframing the issues to provide a common approach or solution upon which the competing coalitions can agree.     

Bovine Tuberculosis and Badger Control in Britain: Science,Policy and Politics

Bovine tuberculosis (bovine TB) is the most economically important animal health policy issue in Britain. The problem of what to do about badgers has plagued successive governments since a dead badger was discovered with bovine TB in 1971. Successive Labour governments (1997–2010) oversaw the Randomised Badger Culling Trial (RBCT) from 1998 to 2006. Despite the RBCT recommendation against culling, the 2010–2015 Coalition government implemented pilot badger culls. This paper provides an account of the evolution of bovine TB and badger control policy, focusing on the 1997–2010 Labour, the 2010–2015 Coalition and the 2015-present Conservative governments. Interviews with bovine TB policy stakeholders supplement discussion of the development of bovine TB policy. The paper discusses the science and politics of bovine TB policy, in which there are different badger control policies in Westminster, Welsh and Scottish governments. Badger control is a highly polarised issue, and the Coalition and Conservative governments have been heavily criticised for a culling policy opposed by the independent scientific community. Recent governments have defended badger culling on the basis of veterinary advice and experience in countries such as New Zealand. The paper concludes with two key recommendations to inform controversial animal health and welfare policy issues such as bovine TB. First, mandatory Animal Welfare Impact Assessment provides objective data on the impacts of policy options on cows and badgers. Second, robust ethical analysis, conducted by independent experts using established moral frameworks, should be applied to animal health and welfare issues for the benefit of decision makers.     

Towards sustainable airport development

Summary This paper considers the application of the principles of sustainable development to an airport situation. If sustainable development is to be enshrined as the global development pathway which reconciles economic and environmental issues then it must be applicable to a range of spatial scales. Airports will interact at a variety of levels with this multi-level decision making and enactment structure. The requirements imposed upon an airport may differ according to whether decisions are being taken by local, regional or national decision makers. Conflicts and uncertainties will inevitably result. Definitions of sustainable development are considered and policy guidance from the United Nations (UN), the European Union (EU) and the nation State level evaluated for its relevance to airport decision making. An attempt is made to reconcile definitions and interpretations before an idealized representation of a sustainable airport is presented. Mechanisms by which this may be actualized are then suggested. A need for improved theoretical knowledge is identified but research is also necessary on application and localization procedures for sustainable development.Professor James Longhurst is Head of Department of Environmental Health and Science at UWE, Bristol. Until recently he was the Director of the Atmospheric Research and Information Centre. David Gibbs is Professor of Human Geography at the University of Hull, UK. David Raper is Deputy Director and D.E. Conlan Environmental Projects Manager in the Atmospheric Research and Information Centre, Manchester Metropolitan University, UK.