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.     

Addressing uncertainties in the ERICA Integrated Approach

Like any complex environmental problem, ecological risk assessment of the impacts of ionising radiation is confounded by uncertainty. At all stages, from problem formulation through to risk characterisation, the assessment is dependent on models, scenarios, assumptions and extrapolations. These include technical uncertainties related to the data used, conceptual uncertainties associated with models and scenarios, as well as social uncertainties such as economic impacts, the interpretation of legislation, and the acceptability of the assessment results to stakeholders. The ERICA Integrated Approach has been developed to allow an assessment of the risks of ionising radiation, and includes a number of methods that are intended to make the uncertainties and assumptions inherent in the assessment more transparent to users and stakeholders. Throughout its development, ERICA has recommended that assessors deal openly with the deeper dimensions of uncertainty and acknowledge that uncertainty is intrinsic to complex systems. Since the tool is based on a tiered approach, the approaches to dealing with uncertainty vary between the tiers, ranging from a simple, but highly conservative screening to a full probabilistic risk assessment including sensitivity analysis. This paper gives on overview of types of uncertainty that are manifest in ecological risk assessment and the ERICA Integrated Approach to dealing with some of these uncertainties.     

Scenario-model-parameter: a new method of cumulative risk uncertainty analysis

The recently developed concepts of aggregate risk and cumulative risk rectify two limitations associated with the classical risk assessment paradigm established in the early 1980s. Aggregate exposure denotes the amount of one pollutant available at the biological exchange boundaries from multiple routes of exposure. Cumulative risk assessment is defined as an assessment of risk from the accumulation of a common toxic effect from all routes of exposure to multiple chemicals sharing a common mechanism of toxicity. Thus, cumulative risk constitutes an improvement over the classical risk paradigm, which treats exposures from multiple routes as independent events associated with each specific route. Risk assessors formulate complex models and identify many realistic scenarios of exposure that enable them to estimate risks from exposures to multiple pollutants and multiple routes. The increase in complexity of the risk assessment process is likely to increase risk uncertainty. Despite evidence that scenario and model uncertainty contribute to the overall uncertainty of cumulative risk estimates, present uncertainty analysis of risk estimates accounts only for parameter uncertainty and excludes model and scenario uncertainties. This paper provides a synopsis of the risk assessment evolution and associated uncertainty analysis methods. This evolution leads to the concept of the scenario-model-parameter (SW) cumulative risk uncertainty analysis method. The SMP uncertainty analysis is a multiple step procedure that assesses uncertainty associated with the use of judiciously selected scenarios and models of exposure and risk. Ultimately, the SMP uncertainty analysis method compares risk uncertainty estimates determined using all three sources of uncertainty with conventional risk uncertainty estimates obtained using only the parameter source. An example of applying the SMP uncertainty analysis to cumulative risk estimates from exposures to two pesticides indicates that inclusion of scenario and model sources.     

Converging impact assessment discourses for sustainable development: the case of Flanders,Belgium

The scientific field of impact assessment encompasses various ‘traditions’, each reflecting a set of particular policy objectives. This paper analyses two types of impact assessment. Regulatory impact analysis focuses on better regulation and competitiveness, while sustainability assessment fosters a holistic approach centred on the values of sustainable development. Through an analysis of the political discourses at the level of the European Union and at the sub-national level of the Flemish Region of Belgium, elements of convergence between the better regulation and sustainable development discourse are identified. The paper analyses how integrated impact assessment can be an integrative tool that allows to merge both discourses and to implement them in day-to-day decision-making. The potential of the existing Flemish regulatory impact analysis framework to be the starting point of an integrated assessment scheme for sustainable development is advocated and motivated.     

Approaches for describing and communicating overall uncertainty in toxicity characterizations: U.S. Environmental Protection Agency's Integrated Risk Information System (IRIS) as a case study

Single point estimates of human health hazard/toxicity values such as a reference dose (RfD) are generally used in chemical hazard and risk assessment programs for assessing potential risks associated with site- or use-specific exposures. The resulting point estimates are often used by risk managers for regulatory decision-making, including standard setting, determination of emission controls, and mitigation of exposures to chemical substances. Risk managers, as well as stakeholders (interested and affected parties), often have limited information regarding assumptions and uncertainty factors in numerical estimates of both hazards and risks. Further, the use of different approaches for addressing uncertainty, which vary in transparency, can lead to a lack of confidence in the scientific underpinning of regulatory decision-making. The overarching goal of this paper, which was developed from an invited participant workshop, is to offer five approaches for presenting toxicity values in a transparent manner in order to improve the understanding, consideration, and informed use of uncertainty by risk assessors, risk managers, and stakeholders. The five approaches for improving the presentation and communication of uncertainty are described using U.S. Environmental Protection Agency's (EPA's) Integrated Risk Information System (IRIS) as a case study. These approaches will ensure transparency in the documentation, development, and use of toxicity values at EPA, the Agency for Toxic Substances and Disease Registry (ATSDR), and other similar assessment programs in the public and private sector. Further empirical testing will help to inform the approaches that will work best for specific audiences and situations.     

Risks, risk taking, and societal decisions

Risk assessment is an important tool to help evaluate the appropriate course for social decisions. But this methodology does not appear to have played a significant role in such decisions. Moreover, public decisions often appear to be at wide variance with what course risk assessment would counsel. In this paper risk is defined, the nature of risk taking is examined, and risk assessment issues in terms of societal decisions are identified. Eight such issues are listed as technical challenges for risk assessors to take into consideration if their analyses are to be more successful in influencing public policy. Finally, the paper suggests two operative guidelines to improve the effectiveness of risk assessment influence on social decisions. One is to recognize that risk assessment is only one input, albeit an important one, to such decisions. The other is to strive for simplicity without loss of completeness or exactness.     

Nature,Crisis, Risk,Science, and Society: What is Our Ethical Responsibility?

In his keynote address, Robert Cox raised key questions, many of which force us to consider the larger question of the role of academics in society. The authors respond by suggesting that environmental communication, like other communication studies, is inherently normative and that environmental communication scholarship is closely aligned to risk as a centerpiece to crisis analysis. The authors discuss the productive connections among science, communication and sound public policy that make society more fully functional, including the formation of effective public policy through science that is normative while seeking objectivity, evaluating and symbolizing motives in discourse, acknowledging uncertainty and acceptable uncertainty, and that material and symbolic dimensions of the environment are interdependent. Thus, such studies focus on the ethics of environment and must balance sound science and cultural considerations.     

Methods for integrated assessment

Integrated assessment is an approach that seeks to involve all disciplines in policy-relevant assessment. The process aims to encompass environmental science, technology and policy problems. The aim is to establish an overview of the environmental issue in question that attempts to avoid the mistakes of the past associated with narrow, one-sided or unidimensional approaches. A number of methods are available for such assessments. However, they are also subject to a number of limitations, difficulties and dilemmas. Integrated methods are inherently complicated and the tradition is that only experts are involved. New more inclusionary procedures have to be devised in order to involve all stakeholders. They have to be involved in the framing of the issue and in the value judgements associated with the approach. The dilemmas cannot be solved by integrated approaches, but they can be mitigated via proper identification, analysis and evaluation of the gains and losses involved. In structuring the analysis the existence of ignorance has to be accounted for and communicated to the managers and the political decision makers. The ignorance/uncertainty aspects can be partially accommodated for via an intensification of feasible monitoring and research so as to minimise the risks of unpleasant surprises. Electronic Publication     

Dealing with uncertainty in the assessment of human exposure to radioactivity in food and the environment

This paper presents an overview of the approach used to assess radiation dose and risk to members of the public from radioactivity in food and the environment. It describes uncertainties in the process and suggests ways of dealing with them to improve the risk assessment process. It also explains how uncertainty in the assessed dose/risk can be communicated to non-expert audiences such as members of the public. The issues covered in this paper apply to risk assessment of any contaminant and not only radioactivity.     

Risk assessment studies in Rijnmond

In heavily industrialized regions, such as the Rijnmond area, with about one million inhabitants, it is desirable that an active safety policy is conducted by the local government. This policy will be worded in a note on industrial safety, to be issued in 1986. In order to establish the risks the people in Rijnmond are exposed to, a number of studies were started. The results of these studies will form the basis of the policy note. All potential hazards were inventoried and investigated for risk computation, both for stationary objects and the transport of hazardous materials. Attention is paid not only to the methodologies involved but also to the question of the cost-effectiveness of risk assessment.     

基于外部性内化的农地城市流转调控政策工具研究进展评述

本研究采用文献回顾法、归纳法,从农地城市流转外部性的分析与测度及政策工具在农地城市流转调控中的运用两个方面,对国内外相关研究进行了归纳与总结。结果表明,现有研究从内容和方法上都有待进一步的丰富和深入:在农地城市流转外部性的理论分析和定量测算方面,其外部性的内涵、分类与边界等尚未得到严格的界定与划分,评估技术的选择和应用尚存亟待回答的问题;在基于外部性内化的农地政策流转调控政策工具的运用方面,尚需在分析思路、政策工具的系统化和细节设计方面有所深入;在实证研究方面,亟需结合我国国情结合具体事例探讨政策工具运用的预期效果及不同政策工具可能的交互作用;此外,应考虑不确定与信息不对称对调控政策工具运行效率的影响。因此,我国学者应借鉴国内外已有的研究成果和经验,从外部性内化的角度设计适于我国国情的政策工具,从而为农地城市流转调控提供可靠的理论依据,以达到合理规制农地转用秩序的目的。     

Risks posed by climate change to the delivery of Water Framework Directive objectives in the UK

The EU Water Framework Directive (WFD) is novel because it integrates water quality, water resources, physical habitat and, to some extent, flooding for all surface and groundwaters and takes forward river basin management. However, the WFD does not explicitly mention risks posed by climate change to the achievement of its environmental objectives. This is despite the fact that the time scale for the implementation process and achieving particular objectives extends into the 2020s, when climate models project changes in average temperature and precipitation. This paper begins by reviewing the latest UK climate change scenarios and the wider policy and science context of the WFD. We then examine the potential risks of climate change to key phases of the River Basin Management Process that underpin the WFD (such as characterisation of river basins and their water bodies, risk assessments to identify pressures and impacts, programmes of measures (POMs) options appraisal, monitoring and modelling, policy and management activities). Despite these risks the WFD could link new policy and participative mechanisms (being established for the River Basin Management Plans) to the emerging framework of national and regional climate change adaptation policy. The risks are identified with a view to informing policy opportunities, objective setting, adaptation strategies and the research agenda. Key knowledge gaps have already been identified during the implementation of the WFD, such as the links between hydromorphology and ecosystem status, but the overarching importance of linking climate change to these considerations needs to be highlighted. The next generation of (probabilistic) climate change scenarios will present new opportunities and challenges for risk analysis and policy-making.     

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.     

Uncertainties in human health risk assessment of environmental contaminants: A review and perspective

Addressing uncertainties in human health risk assessment is a critical issue when evaluating the effects of contaminants on public health. A range of uncertainties exist through the source-to-outcome continuum, including exposure assessment, hazard and risk characterisation. While various strategies have been applied to characterising uncertainty, classical approaches largely rely on how to maximise the available resources. Expert judgement, defaults and tools for characterising quantitative uncertainty attempt to fill the gap between data and regulation requirements. The experiences of researching 2,3,7,8-tetrachlorodibenzo-p-dioxin (TCDD) illustrated uncertainty sources and how to maximise available information to determine uncertainties, and thereby provide an ‘adequate’ protection to contaminant exposure. As regulatory requirements and recurring issues increase, the assessment of complex scenarios involving a large number of chemicals requires more sophisticated tools. Recent advances in exposure and toxicology science provide a large data set for environmental contaminants and public health. In particular, biomonitoring information, in vitro data streams and computational toxicology are the crucial factors in the NexGen risk assessment, as well as uncertainties minimisation. Although in this review we cannot yet predict how the exposure science and modern toxicology will develop in the long-term, current techniques from emerging science can be integrated to improve decision-making.     

城乡建设用地增减挂钩政策观察与思考

中国城乡建设用地利用目前存在着城市建设用地指标紧缺、农村建设用地低效利用和城乡建设用地"双增"严重占用耕地等问题。城乡建设用地增减挂钩政策推动下的城乡建设用地置换有望成为破解该问题的综合路径。但是,政策在执行过程中出现了错位现象,产生了较为严重的社会问题,影响了中国城乡土地资源的可持续利用。在总结了政策的提出与实施历程之后,运用文献分析与规划经验相结合的方法,提出了政策执行错位的症结与根源:①"挂钩"政策缺少科学理论支撑导致实践存在盲目性;②土地财政阻碍城乡土地市场一体化损伤农民利益;③保障体系不完善使政府行为公平性、"挂钩"质量与农村权益保障难以落实;④综合评估滞后使"挂钩"实施面临重大风险。在此基础上,"挂钩"研究的重点在于:①构建支撑城乡建设用地置换的理论与评价体系;②构建支撑城乡建设用地置换的城乡统一土地市场体系;③构建支撑城乡建设用地置换的实施保障体系;④构建支撑城乡建设用地置换的项目实施风险评估体系。     

Areas of uncertainty in comparing risks of energy systems

In the past, the safety of technology has mainly been ensured by deterministic criteria that were based on engineering principles and on experience. Recently, however, it has become necessary to include risk assessment into safety policy. This need arises due to the order of magnitude of possible health and environmental impact from normal operation or accidents, as well as the complexity of modern systems that no longer allow for intuitive understanding of possible accident sequences. Assessment of risks of technical installations is subject to large uncertainties that are caused by lack of data and inadequate quantification and evaluation methods. This paper reviews the main areas of uncertainties with regard to their importance for decisionmaking. Uncertainties are an inherent part of any risk assessment result and can never be avoided. It is thus important to pay particular attention to them including limitations of methods, sensitivity to assumptions about parameters, and site-specific considerations. All this information must be described in great detail so that it can be integrated into the decisionmaking process. If applied in this context, risk assessment is a useful tool for identifying major contributors to risk and effective actions of risk management.     

Bridging the legitimacy gap—translating theory into practical signposts for legitimate flood risk governance

Legitimacy is widely regarded as a founding principle of ‘good’ and effective governance, yet despite intense academic debate and policy discourse, the concept remains conceptually confusing and poorly articulated in practice. To bridge this gap, this research performed an interpretive thematic analysis of academic scholarship across public administration, public policy, law, political science, and geography. Four core themes were identified in relation to representative deliberation, procedural and distributive equity and justice, and socio-political acceptability, with numerous sub-themes therein. In an attempt to clarify conceptual confusion, this paper grounds these theoretical debates in the context of flood risk governance where numerous legitimacy dilemmas exist. A number of questions are presented as conceptual ‘signposts’ to encourage reflexive governance in the future. Thus, more broadly, we assert the importance of bringing legitimacy to the forefront of contemporary flood risk governance discourse and practice, moving beyond the realm of academic reflection.

     

Environments,Risks, and the Limits of Representation: Examples from Nuclear Energy and Some Implications of Fukushima

This essay examines examples from the field of nuclear energy, including the 2011 disaster at Fukushima-Daiichi, through perspectives drawn from phenomenology, social systems theory, and constitutive communication theory. The essay argues that although prevailing approaches to nuclear risk analysis and risk communication seek to represent a world of preexisting phenomena, they also fundamentally constitute the world on which decision-makers, organizations, and communities act. Representations of nuclear risk are inevitably and problematically limited, with important implications for policy, practice, and communicative action.     

Renewable energy in Australia: a wider policy discourse

ABSTRACT

This paper assesses the evolution of generation technology-mix in Australia, with specific emphasis on understanding how such evolution has been shaped by wider political and socio-economic influences. This assessment is predicated on the argument that the contemporary, quintessentially techno-economic, policy discourse on renewable energy is deficient, as it ignores climacteric political and socio-economic influences on generation technology-mix. The methodological framework employed in this paper is informed by the core tenets of technological change theory. The assessment suggests that generation technology-mix in Australia has historically been overwhelmingly influenced by the underlying technological paradigm of the electricity industry; and that this technological paradigm essentially draws its imprimatur from the wider political and socio-economic contexts. By implication, it suggests that a rapid uptake of renewables will have widespread ramifications, extending into political, socio-economic and cultural realms of a society. Clearly, existing policy discourse – that tends to focus on technical potentials, cost competitiveness, externalities and risks of various renewable technologies – is deficient. A much broader discourse is needed. This paper also made an attempt to develop a basis for such a discourse by reviewing broader aspects of the Australian society that would be affected by a rapid uptake of renewables.