The risk assessment-policy gap: an example from the UK contaminated land regime

Risk-based regulation assumes that risk assessment can evaluate risks against policy objectives. However, policy goals are often ambiguous and require risk assessors to interpret them for use in risk assessment. This risk assessment-policy gap stems partly from normative and imprecise policy language but is rooted more fundamentally in society's uncertain expectations for the environment. Until this uncertainty is resolved, the democratic and regulatory effectiveness of risk regulation will be undermined by ad hoc policy decisions abdicated to risk assessors.     

The risks of risk-based regulation: insights from the environmental policy domain

Risk-based regulation has become increasingly popular in recent years. Proponents argue that it facilitates robust governance, contributing to efficient and effective use of regulatory resources and delivering interventions in proportion to risk. Critics contend that the challenges of operationalising risk-based governance mitigate its potential benefits. In this paper we start by considering what we mean by risk-based governance and discuss some of the factors shaping the adoption of such strategies. We then consider the development and operation of risk-based approaches in the environmental policy domain, focusing specifically on the regulation of contaminated land and radioactive waste. We argue that whilst risk-based approaches can offer important benefits, they face a range of epistemic, institutional and normative challenges that can play an important role in shaping the way that organisations manage both risks to society and their own institutional risks. This has profound implications for achieving regulatory objectives and, for this paper, the environmental outcomes that the regulations are designed to deliver.     

From comparative risk assessment to multi-criteria decision analysis and adaptive management: recent developments and applications

Environmental risk assessment and decision-making strategies over the last several decades have become increasingly more sophisticated, information-intensive, and complex, including such approaches as expert judgment, cost-benefit analysis, and toxicological risk assessment. One tool that has been used to support environmental decision-making is comparative risk assessment (CRA), but CRA lacks a structured method for arriving at an optimal project alternative. Multi-criteria decision analysis (MCDA) provides better-supported techniques for the comparison of project alternatives based on decision matrices, and it also provides structured methods for the incorporation of project stakeholders' opinions in the ranking of alternatives. We argue that the inherent uncertainty in our ability to predict ecosystem evolution and response to different management policies requires shifting from optimization-based management to an adaptive management paradigm. This paper brings together a multidisciplinary review of existing decision-making approaches at regulatory agencies in the United States and Europe and synthesizes state-of-the-art research in CRA, MCDA, and adaptive management methods applicable to environmental remediation and restoration projects. We propose a basic decision analytic framework that couples MCDA with adaptive management and its public participation and stakeholder value elicitation methods, and we demonstrate application of the framework to a realistic case study based on contaminated sediment management issues in the New York/New Jersey Harbor.     

The radium legacy: Contaminated land and the committed effective dose from the ingestion of radium contaminated materials

The manufacture and use of radium in the early to mid-20th century within industrial, medicinal and recreational products have resulted in a large number of contaminated sites across a number of countries with notable examples in the USA and Europe. These sites, represent a significant number of unregulated sources of potential radiological exposure that have collectively and hitherto not been well characterised. In 2007, the Radioactive Contaminated Land (RCL) Regulations came into force in the UK, providing the statutory guidance for regulators to classify and deal with RCL. Here we report on results derived from digestion experiments to estimate committed effective dose, a key aspect of the RCL Regulations, from the ingestion of radium contaminated sources that can be found in the environment. This case study includes particles, clinker and artefacts that arise from past military activities on a site that was once an airfield at Dalgety Bay on the Firth of Forth, UK. Since 2011 the number of radium contaminated finds has increased by one order of magnitude on the foreshore areas of Dalgety Bay. The increase in finds may in large part be attributed to a change in monitoring practice. A subsample of sixty sources was selected, on the basis of their activity and dimensions, and subjected to digestion in simulated stomach and lower intestine solutions. The study demonstrated that more radium-226 (²²⁶Ra) and lead-210 (²¹⁰Pb; driven by Polonium solubility) are dissolved from sources in artificial ‘stomach’ solutions compared with ‘lower intestine’ solutions. The combined ‘gut’ solubility for ²²⁶Ra and apparent ²¹⁰Pb varied from less than 1% to up to 35% ICRP 72 conversion factors were used to convert the activities measured in solution to committed effective dose. A little over 10% of the sources tested dissolved sufficient radioactivity to result in 100 mSv committed effective dose to an infant. Using the solubility of 35% as a worst case, minimum source activities necessary to deliver 100 mSv to the full age range of users of the foreshore were estimated. All the estimated activities have been detected and recovered through routine monitoring.     

Recent trends and developments in dialogue on radioactive waste management: experience from the UK

This paper highlights some recent trends and developments in dialogue on radioactive waste management in the UK. In particular, it focuses on the use of dialogue around options for the management of risk, and describes techniques for stakeholder dialogue in the field of radioactive waste management. The paper summarises past and on-going experience in the UK, and provides an overview of some practical examples from decommissioning of the former reprocessing facility at Dounreay in Scotland. In common with developments and trend in other countries, the UK has moved to a position where there is now widespread recognition that radioactive waste management requires not only sound technical assessment of risk, but also public participation, consultation and stakeholder dialogue on proposed solutions and the associated risks. In fact, the shift of position has arguably been quite pronounced, with formal procedures to identify, clarify and integrate stakeholders' issues and concerns within the decision-making processes. Experience suggests that citizens are capable of engaging with complex technical issues such as radioactive waste. Indeed, the earlier in the decision-making process that public and stakeholder engagement (PSE) occurs--for example, on the consideration of options and alternatives--the greater the chance of reaching a successful outcome that properly reflects the values and opinions of stakeholders. In the UK, the assessment of alternative waste management options is increasingly being addressed through Best Practical Environmental Option (BPEO) studies. Responses to stakeholder engagement processes and experience of conducting BPEO studies emphasise that consultation must be open, transparent, deliberative and inclusive. However, while early consideration of generic approaches and option choices is necessary to generate a climate of openness and understanding, it remains essential to fully engage with local stakeholder and community groups to consider issues associated with proposed developments at a site-specific level. An interesting area where further attention may be warranted is the use in final decision-making of the results from participatory processes such as BPEO studies. Demonstrating clearly that participants' views have influenced decisions appears to be essential for retaining legitimacy and trust, confidence and goodwill.     

The value of Seasonal Correction Factors in assessing the health risk from domestic radon: a case study in Northamptonshire, UK

Following an intensive survey of domestic radon levels in the United Kingdom (UK), the former National Radiological Protection Board (NRPB), now the Radiation Protection Division of the Health Protection Agency (HPA-RPD), established a measurement protocol and promulgated Seasonal Correction Factors applicable to the country as a whole. Radon levels in the domestic built environment are assumed to vary systematically and repeatably during the year, being generally higher in winter. The Seasonal Correction Factors therefore comprise a series of numerical multipliers, which convert a 1-month or 3-month radon concentration measurement, commencing in any month of the year, to an effective annual mean radon concentration. In a recent project undertaken to assess the utility of short-term exposures in quantifying domestic radon levels, a comparative assessment of a number of integrating detector types was undertaken, with radon levels in 34 houses on common geology monitored over a 12-month period using dose-integrating track-etch detectors exposed in pairs (one upstairs, one downstairs) at 1-month and 3-month resolution. Seasonal variability of radon concentrations departed significantly from that expected on the basis of the HPA-RPD Seasonal Correction Factor set, with year-end discontinuities at both 1-month and 3-month measurement resolutions. Following this study, monitoring with electrets was continued in four properties, with weekly radon concentration data now available for a total duration in excess of three and a half years. Analysis of this data has permitted the derivation of reliable local Seasonal Correction Factors. Overall, these are significantly lower than those recommended by HPA-RPD, but are comparable with other results from the UK and from abroad, particularly those that recognise geological diversity and are consequently prepared on a regional rather than a national basis. This finding calls into question the validity of using nationally aggregated Seasonal Correction Factors, especially for shorter exposures, and the universal applicability of these corrections is discussed in detail.     

Social contrasts and land use conflicts in the context of sustainable development and management needs: a case study from an estuarine area at northeastern Brazil

This paper discusses the misuses of estuaries in Northeast of Brazil and the social contrasts there found. The several kinds of impacts promoted by capitalist enterprises in one side and by traditional population, who uses estuary areas at another side, are in complete disagreement with the ethic of sustainable development. Our intention is to demonstrate how these aspects occur in the River Paraíba do Norte estuary, in the State of Paraíba. Observing the conditions of infrastructure besides the multiple ways to handle along with the extension of the estuary, we could recognize 59 focus of conflict between the incorrect use and sustainable mode. Most of the uses concern to traditional artisan fishing, slums and recreational marinas, reflecting the great social contrast between rich and poor people settled in area studied. Ecological and social implications of these conflicting uses are discussed and measures to improve the situation are suggested.     

Organochlorine and heavy metals in newborns: Results from the Flemish Environment and Health Survey (FLEHS 2002–2006)

To collect regional information on internal levels of pollutants in humans in Flanders, 1196 mother–child pairs were systematically recruited in 2002–2003 via 25 maternities across Flanders. Cd, Pb, PCB congeners 118, 170, 138, 153 and 180, p,p′-DDE — a key metabolite of DDT- and hexachlorobenzene (HCB) were measured in cord blood or plasma. Cd was detected in 64% of the samples (geometric mean 0.21 µg/L cord blood). p,p′-DDE (110 ng/g plasma lipids) and Pb (14.7 µg/L blood), were measurable in nearly all samples. The individual PCB congeners could be detected in 40 to 81% of the newborns (138 + 153 + 180 = 64.4 ng/g plasma lipids). HCB (18.9 ng/g plasma lipids) and dioxin-like compounds measured by DR-CALUX® (23 pg CALUX-TEQ/g lipids) were above detection limit in more than 75% of the samples. Age and smoking habits of the mothers, did not influence the cord blood Pb and Cd levels. The organochlorines increased 4 to 9% per year of the mother's age (partial R² = 0.05 to 0.22). Mothers had 2.6% less PCBs in cord blood (partial R² = 0.02) for each unit increase in pre-pregnancy BMI. Season of delivery, breastfeeding previous children or consumption of local dairy products, were minor determinants. Up to 20% of the variability in organochlorine concentrations was explained by residence area. It was concluded that the place of birth in Flanders is an important determinant of the load of pollutants measured at the start of life. This underlines the validity of human biomonitoring on (relatively) small geographical scale.