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 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 Policy in England: Would a Virtuous Government Cull Mr Badger?

Bovine tuberculosis (bovine TB) is the most important animal health and welfare policy issue in Britain. Badgers are a wildlife reservoir of disease, although the eight-year Independent Scientific Group (ISG) Randomised Badger Culling Trial concluded with a recommendation against culling. The report advised government that bovine TB could be controlled, and ultimately eradicated, by cattle-based measures alone. Despite the ISG recommendation against culling, the farming and veterinary industries continued to lobby government for a badger cull. The 2005–2010 Labour government followed the ISG advice and decided against a cull. The 2010–2015 Coalition and the 2015-present Conservative governments have followed a badger culling policy. This paper investigates whether a virtuous government would cull badgers. It provides an overview of virtue theory in the context of government animal health and welfare policy. Bovine TB and badger control policy options are then analysed in the context of the virtues of justice, wisdom, integrity, loyalty, curiosity, trust, empathy, compassion and aesthetics. Justice is the first virtue of government, and badger culling is seriously problematic from a virtue perspective given that five badgers are culled per cow that avoids slaughter as a result. Analysis based on other virtues strongly suggests that government should not cull badgers. The paper concludes that a virtuous government would not cull badgers as part of policy to control bovine TB in cattle.     

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.     

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.     

The Value of Countryside Access: A Contingent Valuation Survey of Visitors to the Ridgeway National Trail in the United Kingdom

A contingent valuation survey of users of the 140 km Ridgeway National Trail was undertaken to estimate the value that users place on access to the Trail. The survey found that users had a mean willingness to pay for access to the Ridgeway of £1.24 per visit (£1.13– £1.36 95% Confidence Limits). With around 150 000 visits to the Ridgeway each year, this gives an estimated annual aggregate benefit of £186 000 (£169 500– £204 000 95% Confidence Limits) plus the economic benefits to local economies of visitor spending of some £0.8 million. This compares with the costs of Trail maintenance of around £154 000 per year. The development of National Trails in England for recreation and tourism is also discussed.     

Systematic studies of shop and leisure voucher incentives for household recycling

This work reports on a series of medium scale trials of various voucher based incentives schemes for household recycling carried out in England. They show that increases of 10–20% in participation rates can be achieved with 3-month schemes. The results are drawn from 15 sub-projects carried out in 6 districts where parameters such as voucher value, types of shops used, demographics and community types were varied overall, allowing their effects to be explored. Surprisingly, the results show that the success does not depend on the affluence of the areas. Statistically strong data shows little difference across deprivation indices. Successful schemes were those where the vouchers were awarded on an individual household basis (very important), the value of each voucher was over £1 (€0.60), and the shops or facilities they are valid for were within half a mile (with suggestions from the public that if usable at supermarkets they would travel further). Although some improvements were seen in areas where participation rates were already over 65%, the schemes are more successful in areas which are not already achieving so highly, right down to those below 20%. Although schemes can be designed for maximum effect in small targeted areas, they could also be used on a large scale if e.g. supermarket vouchers were used. The study also reports on the costs of the schemes, which range from £5.15 per household to £12.10 per household over 3 months (including monitoring work). Possible savings of up to 50% are indicated.     

Animal Ethics and the Culling of Badgers: A Reply to McCulloch and Reiss

One of the major values of animal ethical theory can be found in the light it sheds on practical ethical problems involving animals. McCulloch and Reiss’ paper does precisely this regarding the culling of badgers in England to limit the spread of tuberculosis. Perspicaciously realizing that societal ethics represents a combination of utilitarian and rights-based theorizing, the authors apply both of these perspectives to the issue, noting that both theoretical approaches generate a rejection of culling in the presence of other viable alternatives. In addition, the authors suggest and defend the use of an Animal Welfare Impact Assessment (AWIA) tool to assess the impact of various management approaches on the animals, and demonstrate its congruence with both the ethical theories considered, and with societal moral attitudes. In this way, they show that their conclusion is directly compatible with the societal ethic, in my view a major prerequisite for effecting social change.     

Sustainable Development and Structure Plans in England and Wales: A Review of Current Practice

In response to a lack of evaluative research into the application of the concept of sustainable development to development plans in England and Wales, an investigation is undertaken using the media of county council structure plans. A framework is devised for measuring the performance of structure plans against key themes and principles of sustainable development,relevant policy areas and procedures. The extent to which structure plans manage to make the concept operational is shown to be variable, with better performing plans illustrating a geographical and temporal bias. It is concluded that, whilst there is an awareness about sustainable development amongst county councils, the translation of this awareness into practice is, in many cases, proving difficult.     

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.     

A better future for the uplands — a planning critique

The Countryside Commission's report A Better Future for the Uplands puts forward a new strategy for public intervention in the uplands of England and Wales. The aim of the report is to integrate rural policies and to promote higher environmental priorities in rural areas. This paper considers the degree to which the report is successful in planning to achieve these ends. The paper is specifically concerned with the planning methodology on which the report is based. The paper argues for an approach to rural planning which permits the consideration of more radical solutions to rural problems, along with the application of a more systematic planning methodology, in order to assist in the choice of an appropriate direction for planned change.     

Initial participation in UK set‐aside and ESA schemes

Under UK set‐aside introduced in 1988, farmers who agree voluntarily to divert at least 20% of their annual cereal area into fallow or other approved use for a 5‐year period may receive annual payments of up to £200 per hectare; whilst in the Environmentally Sensitive Areas (ESAs) designated in 1986 and 1987 in parts of the UK, annual area payments are made to farmers who agree voluntarily to manage eligible land in environmentally acceptable ways. It is argued that participation in a voluntary land diversion scheme may depend upon the favourability of farmer attitudes and upon the financial attractiveness of the particular scheme. The determinants of farmer attitudes and the relative importance of attitudes and economics in affecting the entry decision may however vary from farmer to farmer. Consideration of this leads to the definition of four types of farmer. Participation is then predicted under various assumptions: that all farmers are profit‐motivated; that all are profit‐influenced; that all are scheme‐influenced; and that all are peer‐influenced. This sets limits between which, it is argued, participation will in practice fall; and it enables a general discussion of the factors affecting participation. The initial participation rates in UK set‐aside and ESA schemes in England and Wales are reviewed and analysed using the method developed.     

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.     

Access rights for outdoor recreation in New Zealand: some lessons for open country in England and Wales

Access opportunities for outdoor recreation in New Zealand and England and Wales are classified according to their conformity with collective, citizenship or exclusion rights and their degrees of permanence. Alternative criteria for the apportionment of access rights are considered in the context of this classification. Different criteria for rights apportionment are found to be appropriate according to different circumstances in the context of pluralist provision. Policy developments in New Zealand are compared with those in England. After 150 years of a dominance of collective rights in New Zealand current policy is shifting provision towards exclusionary rights. In England, there is a policy shift in the other direction, towards collective rights. Lessons for the development of collective rights in England are drawn from the New Zealand experience in relation to styles of governance, public preferences, public cost, insurance liability and the potential of markets.     

Moving up the waste hierarchy: Car boot sales,reuse exchange and the challenges of consumer culture to waste prevention

Moving up the waste hierarchy is a key priority for UK waste policy. Waste prevention requires policy interventions to promote reuse. The term ‘reuse exchange’ has been adopted by UK policy makers to describe a variety of second-hand trading outlets including car boot sales, charity shops and online exchange sites. As waste policy is based on tonnage diverted from disposal (or landfill), policy interventions to promote reuse exchange will be based on the weight of goods estimated to be flowing through these sites. This paper uses a combination of field survey data and scale-up estimation to quantify and characterise the weight of goods exchanged at car boot sales in England in 2012. This is estimated at 50–60 000 tonnes per annum. The paper emphasises that movement up the waste hierarchy brings waste policy into closer contact with household consumption practices. It draws on qualitative research to show that, for participants, car boot sales are not associated with waste prevention. Instead, car boot sales rely on stocks of surplus household goods and exemplify the culture of thrift, which enables more, not less, consumption. The paper shows the collision between the social values that inform thrift and the environmental values that underpin reuse; and it argues that the policy goal of enhanced recovery for reuse might best be achieved by working with consumer culture. Two ways of achieving this are suggested: interventions that make it easier for consumers to do the right thing, through promoting opportunities for the circulation of stocks of surplus goods, for example, through increasing the frequency of car boot sales; and interventions which recognise that car boot sales also generate waste, which could be recovered for reuse.     

Using Land-use Planning to Manage Transport Demand: A survey of Scottish experience

Recent concerns surrounding the growth of mobility and associated increases in journey length and number of motorised journeys for an increasingly diverse pattern of trips have placed demands on the planning system in terms of the need to consider the land use-transport interaction. This paper first provides a review of relevant national planning policy in Scotland in particular. It then goes on to report findings from a recent survey which highlights the attitudes held by Scottish planning professionals to managing transport demand through land-use planning. The paper outlines the trade-offs encountered in practice between competing policy objectives. In Scotland there is no planning guidance equivalent to Planning Policy Guidance Note 13, which applies to England and Wales, around which there has been much debate on its impact on development control decisions and planning strategy. Draft guidance for Scotland was produced in 1996 for consultation and again in 1998, but at the time of writing has yet to be finalised. The findings from this study are timely in that they enable an assessment of the extent to which the planning system is being used to manage transport demand. Recent local government reorganisation in Scotland has resulted in significant changes to ways in which strategic planning and development control policy are likely to proceed. The paper focuses on the extent to which local authority policy emphasises the need to reduce travel through planning.     

A choice experiment analysis for solid waste disposal option: a case study in Malaysia

In Malaysia, most municipal wastes currently are disposed into poorly managed 'controlled tipping' systems with little or no pollution protection measures. This study was undertaken to assist the relevant governmental bodies and service providers to identify an improved waste disposal management strategy. The study applied the choice experiment technique to estimate the nonmarket values for a number of waste disposal technologies. Implicit prices for environmental attributes such as psychological fear, land use, air pollution, and river water quality were estimated. Compensating surplus estimates incorporating distance from the residences of the respondents to the proposed disposal facility were calculated for a number of generic and technology-specific choice sets. The resulting estimates were higher for technology-specific options, and the distance factor was a significant determinant in setting an equitable solid waste management fee.     

Using Land-use Planning to Manage Transport Demand: a survey of Scottish experience

Recent concerns surrounding the growth of mobility and associated increases in journey length and number of motorised journeys for an increasingly diverse pattern of trips have placed demands on the planning system in terms of the need to consider the land use-transport interaction. This paper first provides a review of relevant national planning policy in Scotland in particular. It then goes on to report findings from a recent survey which highlights the attitudes held by Scottish planning professionals to managing transport demand through land-use planning. The paper outlines the trade-offs encountered in practice between competing policy objectives. In Scotland there is no planning guidance equivalent to Planning Policy Guidance Note 13, which applies to England and Wales, around which there has been much debate on its impact on development control decisions and planning strategy. Draft guidance for Scotland was produced in 1996 for consultation and again in 1998, but at the time of writing has yet to be finalised. The findings from this study are timely in that they enable an assessment of the extent to which the planning system is being used to manage transport demand. Recent local government reorganisation in Scotland has resulted in significant changes to ways in which strategic planning and development control policy are likely to proceed. The paper focuses on the extent to which local authority policy emphasises the need to reduce travel through planning.     

Moving Towards Sustainable Development? Integrating Economic Development and the Environment in Local Authorities

The recent growth of interest in sustainable development has led to the incorporation of the concept into policy making at a variety of scales. In all cases particular emphasis is placed upon the local scale as the focus for the implementation of policy and initiatives and especially upon local authorities as the major contributor to this process. There has been little assessment, however, of the extent to which local authorities either can, or are, undertaking such initiatives. This paper examines: the potential role that local authorities can play in integrating economic development and the environment; the forms of response and initiatives that are currently in place, drawing upon survey evidence from urban local authorities in England and Wales; and some of the limits to local authority action.