Bovine Tuberculosis and Badger Culling in England: A Utilitarian Analysis of Policy Options

Bovine tuberculosis (bovine TB) is an important animal health policy issue in Britain, which impacts farmers, the public, domestic farmed cattle and the wild badger population. The Westminster government’s badger culling policy in England, which began in 2013, has caused considerable controversy. This is in part because the Independent Scientific Group advised against culling, based on the Randomised Badger Culling Trial. Those opposed to badger culling support more stringent cattle-based measures and the vaccination of badgers. This paper argues for ethical analysis of public policy options which impact sentient species. It provides a summary Animal Welfare Impact Assessment of (1) a do-nothing approach, (2) badger culling, and (3) badger vaccination. A utilitarian analysis is then applied to these policy options considering human wellbeing and animal welfare. The analysis compares a badger culling policy that achieves a 19% reduction in bovine TB incidence, a badger vaccination model achieving a 12.5% reduction, and a do-nothing approach. Policy options are assessed over 9 years and a longer timeframe, and uncertainty is considered. The analysis finds that non-culling approaches, particularly badger vaccination, result in greater total utility, compared to badger culling. Badger culling causes 30% reduction in the badger population in England as well as substantial harms due to the culling process. Culling is opposed by public opinion and is associated with considerable risks and uncertainty. In contrast, non-culling approaches, such as cattle-based measures and badger vaccination, are supported by public opinion and are not associated with such risks.     

Bovine Tuberculosis and Badger Culling in England: An Animal Rights-Based Analysis of Policy Options

Bovine tuberculosis (bovine TB) is an important and controversial animal health policy issue in England, which impacts humans, cattle and badgers. The government policy of badger culling has led to widespread opposition, in part due to the conclusions of a large field trial recommending against culling, and in part because badgers are a cherished wildlife species. Animal rights (AR) theorists argue that sentient nonhumans should be accorded fundamental rights against killing and suffering. In bovine TB policy, however, pro-culling actors claim that badgers must be culled to avoid the slaughter of cattle. The first part of the paper compares AR theories of Regan, Francione, Cochrane, Garner and Donaldson and Kymlicka in the context of wildlife species. The second part of the paper applies these AR theories to bovine TB and badger control. AR theories are applied to badger control policy options of (1) do nothing, (2) badger culling, and (3) badger vaccination. We conclude that AR theories are strongly opposed to badger culling. In general, culling is prohibited due to a badger’s right to life and its rights against suffering. The AR theories support a do-nothing, i.e. non-culling, non-vaccination approach to badger control. In the case of the AR theories of Regan and Francione, this is based on abolitionist positions with respect to farming. For Cochrane, Garner, and Donaldson and Kymlicka, the do-nothing policy option is preferred because badger vaccination causes a degree of suffering which generally is not for the individual’s benefit.     

Bovine TB,Badger Culling and Applied Ethics: Utilitarianism,Animal Welfare and Rights

Applying competing ethical theories to the issue of bovine TB and badger culling can throw light on the validity of the policy options. Utilitarianism is, superficially at least, an attractive option. However, the aggregative principle is problematic and this is well illustrated in the case of bovine TB and badger culling. Such is the variety and strength of interests to be considered that it is not at all clear which course of action will maximise utility. In addition, it may be that the full range of consequences can never be known with any degree of accuracy. An alternative option is to revert to an animal welfare ethic. This has the effect of cutting down the moral complexities involved in a discussion of bovine TB and badger culling, since, providing it is done humanely, killing badgers is not an ethical issue, and even the infliction of suffering on them is permissible providing it serves a significant human benefit. The animal welfare ethic, however, is normatively inadequate because it exaggerates the ethical importance of personhood. Because of this, it allows us to justify killing badgers, and might even justify the infliction of considerable suffering if by so doing there is a good chance that economic benefits will accrue. As a result, a deontological position, where animals are accorded the protection of rights, seems a much more promising alternative to utilitarianism. The adoption of any variety of animal rights would render badger culling morally illegitimate.     

Urban and Ecological Planning in Chicago: Science,Policy and Dissent

Home to some of the tallest buildings in the world, the urban landscape of Chicago announces itself long before visitors can reach it. This first impression is presently being contradicted by the implementation of an 80 937 ha ecological restoration in the city's greater metropolitan area. Using these projects as a case-study, the objective of this analysis is to understand the integration of environmental conservation efforts into urban life, exploring the viability of a model for combining urban renewal and environmental restoration. Controversies surrounding the Cook County Forest Preserve project familiarize us with some of the difficulties encountered in the science, policy and politics of urban ecological restoration projects. Though the city's urban and environmental history provides clues to precedents and structural opportunities for restorationists, it has not eliminated the doubts of those favouring conservation. However, the case shows that, while controversy may be a burden, it need not end initiatives for urban and environmental planning. Moreover, these controversies can be opportunities for an institutional learning and policy adaption process.     

The Science of Politics/The Politics of Science: Examining the Snowmobile Controversy in Yellowstone National Park

The snowmobile controversy in Yellowstone National Park not only pits snowmobilers against environmentalists, but it also pits the Bush Administration against the Clinton Administration. Caught in the middle are the National Park Service, scores of natural and social scientists, and Yellowstones permanent residents—the flora and fauna. The controversys political aspects are the focus of this paper; specifically, the tenuous relationship among research scientists, whose job it is to inform management and policy decisions; politicians, whose job it is to formulate those same decisions in the public arena; and public land management agencies, whose job it is to implement the decisions. The crux of the paper concerns the politicization of natural resource policy and ways in which research scientists tend to get caught up in it. Lessons learned from this Yellowstone episode regarding the role of science in policy-making processes are also considered. Two recent federal court rulings shed additional light on the politics surrounding Yellowstones snowmobile controversy, as does the importance of governmental checks and balances in resolving natural resource management disputes.     

Science, Policy, and Stakeholders: Developing a Consensus Science Plan for Amchitka Island, Aleutians, Alaska

With the ending of the Cold War, the US Department of Energy is responsible for the remediation of radioactive waste and disposal of land no longer needed for nuclear material production or related national security missions. The task of characterizing the hazards and risks from radionuclides is necessary for assuring the protection of health of humans and the environment. This is a particularly daunting task for those sites that had underground testing of nuclear weapons, where the radioactive contamination is currently inaccessible. Herein we report on the development of a Science Plan to characterize the physical and biological marine environment around Amchitka Island in the Aleutian chain of Alaska, where three underground nuclear tests were conducted (1965–1971). Information on the ecology, geology, and current radionuclide levels in biota, water, and sediment is necessary for evaluating possible current contamination and to serve as a baseline for developing a plan to ensure human and ecosystem health in perpetuity. Other information required includes identifying the location of the salt water/fresh water interface where migration to the ocean might occur in the future and determining groundwater recharge balances, as well as assessing other physical/geological features of Amchitka near the test sites. The Science Plan is needed to address the confusing and conflicting information available to the public about radionuclide risks from underground nuclear blasts in the late 1960s and early 1970s, as well as the potential for volcanic or seismic activity to disrupt shot cavities or accelerate migration of radionuclides into the sea. Developing a Science Plan involved agreement among regulators and other stakeholders, assignment of the task to the Consortium for Risk Evaluation with Stakeholder Participation, and development of a consensus Science Plan that dealt with contentious scientific issues. Involvement of the regulators (State of Alaska), resource trustees (U S Fish and Wildlife Service), representatives of the Aleut and Pribilof Island communities, and other stakeholders was essential for plan development and approval, although this created tensions because of the different objectives of each group. The complicated process of developing a Science Plan involved iterations and interactions with multiple agencies and organizations, scientists in several disciplines, regulators, and the participation of Aleut people in their home communities, as well as the general public. The importance of including all parties in all phases of the development of the Science Plan was critical to its acceptance by a broad range of regulators, agencies, resource trustees, Aleutian/Pribilof communities, and other stakeholders.     

Environmental Utilization Space Between Science and Politics

This paper addresses the issue of operationalizing, or quantifying, sustainable development as a practical guideline for day-to-day environmental policy-making. It criticizes attempts at quantifying some environmental utilization space and argues that the uncertainty of scientific knowledge about the unintended environmental repercussions of consumptive choices casts serious doubt about attempts to justify government intervention in non-sustainable lifestyles.     

Science, Pigs, and Politics: A New Zealand Perspective on the Phase-Out of Sow Stalls

Sows housed in stalls are kept insuch extreme confinement that they are unableto turn around. In some sectors of the porkindustry, sows are subjected to this degree ofconfinement for almost their entire lives(apart from the brief periods associated withmating). While individual confinement isrecognized by farmers and animal welfarecommunity organizations alike, as a valuabletool in sow husbandry (to mitigate againstaggression), what remains questionable from ananimal welfare point of view is the necessityto confine sows in such small spaces.In 2001, the Australian Journal ofAgricultural Research published a reviewarticle on the science associated with the useof the sow stall, and claimed that ``noscientific evidence to support therecommendation in the Code of Practice advisingagainst housing of sows in stalls followed byhousing in crates' (Barnett et al., 2001, p. 21).If all the available scientific publications onthe animal welfare implications of sow stallsare consulted (many of which did not feature inthe above review), then one will indeed findscientific evidence to support recommendationsagainst the housing of sows in stalls. Becausethere is science on both sides of this policydivide, the argument to defend the use of sowstalls, therefore, is not one of science vspublic opinion, but one of ethics.An analysis of the scientific argumentsagainst the use of the sow stall should be usedto encourage ethical debate on this issue. Asan ethical debate, the issue of the use of thesow stall can then focus on the degree ofsuffering we as a society are willing totolerate in agricultural practices, and theanimal welfare costs associated with extremeeconomies of scale in sow stocking rates,rather than get bogged down in red herringdebates over whether there is any suffering atall.     

Policy, Principle, and Practice in Industrial Pollution Control: Views from the Regulatory Interface

There has been much criticism of the system for the control of industrial pollution, but not much is known about the views of the regulators and the industry. The objective of this study was to explore the attitudes at this regulatory interface towards the current and proposed regulatory system and make recommendations for improvements. The methodology involved a questionnaire survey sent to over 700 key personnel. Statistical analysis revealed similarities and significant differences between the views of industry and the regulator on the effectiveness of the current regime. Weaknesses related to the derivation and enforcement of standards were identified. The Environmental Quality Standards system was acknowledged to be flawed by both operators and regulators who agreed it should be improved by the expansion of listed chemicals, the introduction of sediment environmental quality standards and direct toxicity assessment of effluents. This paper concludes that these measures should be incorporated into the regulatory system, together with more rigorous enforcement of environmental performance standards including serious sanctions for non-compliance. In the longer term, a reappraisal of the regulatory system is required in order to establish an appropriate framework to ensure that environmental policy commitments are implemented.     

The Role of Science in Public Policy: Higher Reason,or Reason for Hire?

The traditional vision of the role science should play in policy making is of a two stage process of scientists first finding out the facts, and then policy makers making a decision about what to do about them. We argue that this two stage process is a fiction and that a distinction must be drawn between pure science and science in the service of public policy. When science is transferred into the policy realm, its claims to truth get undermined because we must abandon the open-ended nature of scientific inquiry. When we move from the sphere of science to the sphere of policy, we pick an arbitrary point in the open-ended scientific process, and ask our experts to give us the answer. The choice of the endpoint, however, must always be arbitrary and determined by non-scientific factors. Thus, the two stages in the model of first finding the facts, and then making a decision about what to do, cannot be clearly separated. The second stage clearly affects the first. This conclusion will have implications about existing scientific policy institutions. For example, we advocate that the environmental assessment process be radically overhauled, or perhaps even let go. It will be our position that ultimately a better model for the involvement of scientists in public policy debates is that of being participants in particular interest groups (“hired guns”), rather than as supposedly unbiased consultants to decision-makers.     

Science, Policy, Stakeholders, and Fish Consumption Advisories: Developing a Fish Fact Sheet for the Savannah River

In recent years there has been a startling rise in the issuance of fish consumption advisories. Unfortunately, compliance by the public is often low. Low compliance can be due to a number of factors, including confusion over the meaning of advisories, conflicting advisories issued by different agencies, controversies involving health benefits versus the risks from consuming fish, and an unwillingness to act on the advisories because of personal beliefs. In some places, such as along the Savannah River, one state (South Carolina) had issued a consumption advisory while the other (Georgia) had not, although at present, both states now issue consumption advisories for the Savannah River. Herein we report on the development of a fish fact sheet to address the confusing and conflicting information available to the public about consuming fish from the Savannah River. The process involved interviewing fishers to ascertain fishing and consumption patterns, evaluating contaminant levels and exposure pathways, discussing common grounds for the provision of information, and consensus-building among different regulatory agencies (US Environmental Protection Agency, South Carolina Department of Health and Environmental Control, Georgia Department of Natural Resources) and the Department of Energy. Consensus, a key ingredient in solving many different types of “commons” problems, was aided by an outside organization, the Consortium for Risk Evaluation with Stakeholder Participation (CRESP). The initial role for CRESP was to offer scientific data as a basis for groups with different assumptions about risks to reach agreement on a regulatory response action. The process was an example of how credible science can be used to implement management and policies and provide a basis for consensus-building on difficult risk communication issues. The paper provides several lessons for improving the risk process from stakeholder conflicts, through risk assessment, to risk management. It also suggests that consensus-building and risk communication are continuing processes that involve assimilation of new information on contaminants and food-chain processes, state and federal law, public policy, and public response.     

Indicators of Sustainability: Challenges and Opportunities at the Interface of Science and Policy

Rising global interest in sustainability has triggered attention in indicators as a means of achieving a more sustainable world. Although the search for indicators has led to the development of criteria for good indicators, it has also been dominated by scientific elites. The consequences of such dominance leads to significant social and policy implications, particularly with regard to how the search for sustainability has become defined primarily as a technical/scientific exploration when it is actually a moral and ethical issue. Our discussion about sustainability and appropriate indicators centers on what constitutes the public interest, a question that requires inclusiveness and centers on the interface of science and policy. The paper reviews the rationale for selecting indicators, the functions they serve, and the implications and consequences involved when one sector—science—dominates the debate. The paper concludes with suggestions about appropriate roles of science, policy and the public in the indicator selection process.     

火电厂氮氧化物控制标准、政策分析及研究

制订污染物的排放标准及控制政策是治理环境污染的主要措施之一,世界各国针对火电厂氮氧化物（NOx）排放量分别制订了适合各国国情的控制政策及排放标准。通过对美国、欧盟及日本等世界主要发达国家及地区火电厂氮氧化物排放控制对策的分析,提出了对我国火电厂氮氧化物排放控制政策的建议。     

A Precautionary Approach to Genetically Modified Organisms: Challenges and Implications for Policy and Science

The commercial introduction of genetically modified organisms (GMOs) has revealed a broad range of views among scientists and other stakeholders on perspectives of genetic engineering (GE) and if and how GMOs should be regulated. Within this controversy, the precautionary principle has become a contentious issue with high support from skeptical groups but resisted by GMO advocates. How to handle lack of scientific understanding and scientific disagreement are core issues within these debates. This article examines some of the key issues affecting precaution as a legal standard and as an approach to the use of science in decision-making processes. It is pointed out that there is a need for reflection over the level of scientific evidence required for applying the precautionary principle as well as who should have the burden of proof when there are uncertainties. Further, an awareness of the broader scientific uncertainties found in GMO risk assessment implies that a precautionary approach must be elaborated: both for acknowledging uncertainties and for identification of scientific responses. Since precaution is an important issue within the sustainable development framework, it is suggested that sustainability can provide a normative standard that can help to reveal the influence and negotiate the importance of the various forms of uncertainty. Wise management of uncertainties and inclusion of normative aspects in risk assessment and management may help to ensure sustainable and socially robust GMO innovations at present and in the future.     

Policy Windows, Policy Change, and Organizational Learning: Watersheds in the Evolution of Watershed Management

Employing in-depth, elite interviews, this empirical research contributes to understanding the dynamics among policy windows, policy change, and organizational learning. First, although much of the research on agenda setting—how issues attract enough attention that action is taken to address them—has been conducted at the national scale, this work explores the subnational, regional scale. With decentralization, regional-scale environmental decision-making has become increasingly important. Second, this research highlights the role of policy windows and instances of related organizational learning identified by natural resources managers. Having practitioners identify focusing events contrasts with the more typical approach of the researcher identifying a particular focusing event or events to investigate. A focusing event is a sudden, exceptional experience that, because of how it leads to harm or exposes the prospect for great devastation, is perceived as the impetus for policy change.     

Hydrological Connectivity Between Headwater Streams and Downstream Waters: How Science Can Inform Policy1

Abstract: In January 2001, the U.S. Supreme Court ruled that the U.S. Army Corps of Engineers exceeded its statutory authority by asserting Clean Water Act (CWA) jurisdiction over non‐navigable, isolated, intrastate waters based solely on their use by migratory birds. The Supreme Court’s majority opinion addressed broader issues of CWA jurisdiction by implying that the CWA intended some “connection” to navigability and that isolated waters need a “significant nexus” to navigable waters to be jurisdictional. Subsequent to this decision (SWANCC), there have been many lawsuits challenging CWA jurisdiction, many of which are focused on headwater, intermittent, and ephemeral streams. To inform the legal and policy debate surrounding this issue, we present information on the geographic distribution of headwater streams and intermittent and ephemeral streams throughout the U.S., summarize major findings from the scientific literature in considering hydrological connectivity between headwater streams and downstream waters, and relate the scientific information presented to policy issues surrounding the scope of waters protected under the CWA. Headwater streams comprise approximately 53% (2,900,000 km) of the total stream length in the U.S., excluding Alaska, and intermittent and ephemeral streams comprise approximately 59% (3,200,000 km) of the total stream length and approximately 50% (1,460,000 km) of the headwater stream length in the U.S., excluding Alaska. Hillslopes, headwater streams, and downstream waters are best described as individual elements of integrated hydrological systems. Hydrological connectivity allows for the exchange of mass, momentum, energy, and organisms longitudinally, laterally, vertically, and temporally between headwater streams and downstream waters. Via hydrological connectivity, headwater, intermittent and ephemeral streams cumulatively contribute to the functional integrity of downstream waters; hydrologically and ecologically, they are a part of the tributary system. As this debate continues, scientific input from multiple fields will be important for policymaking at the federal, state, and local levels and to inform water resource management regardless of the level at which those decisions are being made. Strengthening the interface between science, policy, and public participation is critical if we are going to achieve effective water resource management.