Looking up,down, and sideways: Reconceiving cumulative effects assessment as a mindset

Despite all the effort that has gone into defining, researching and establishing best practices for cumulative effects assessment (CEA), understanding remains weak and practice wanting. At one extreme of implementation, CEA can be described as merely an irritant to the completion of a project-specific environmental assessment (EA). At the other extreme, the conceptual view is that all effects in EA should be deemed cumulative unless demonstrated otherwise. Our purpose here is to consider how we might reconceive CEA as a mindset that is at the heart of absolutely every assessment of valued ecosystem component (VEC) to ensure that we understand the relative contributions of various stressors and can decide when cumulative effects may foreclose future activities due to impacts on VECs. Conceptually, we ground the CEA mindset in the context of three lenses that must all be functioning and working together for the mindset to be operative: a technical lens; a law and policy lens; and a participatory lens. Our arguments are based on a review of the CEA, strategic effects assessment (SEA) and regional effects assessment literatures, an examination and consideration of Canadian EA and SEA case practice, and our combined professional experiences. Through using the Bay of Fundy in Canada as a case example, we establish the concept of the CEA mindset and an approach for moving forward with implementation.     

Cumulative effect assessment in Canada: a regional framework for aquatic ecosystems

Sustainable development of the aquatic environment depends upon routine and defensible cumulative effects assessment (CEA). CEA is the process of predicting the consequences of development relative to an assessment of existing environmental quality. Theoretically, it provides an on-going mechanism to evaluate if levels of development exceed the environment's assimilative capacity; i.e., its ability to sustain itself. In practice, the link between CEA and sustainable development has not been realized because CEA concepts and methods have developed along two dichotomous tracks. One track views CEA as an extension of the environmental assessment (EA) process for project developments. Under this track, stressor-based (S-B) methods have been developed where the emphasis is on local, project-related stressors, their link with aquatic indicators, and the potential for environmental effects through stressor-indicator interactions. S-B methods focus on the proposed development and prediction of project-related effects. They lack a mechanism to quantify existing aquatic quality especially at scales broader than an isolated development. This limitation results in the prediction of potential effects relative to a poorly defined baseline state. The other track views CEA as a broader, regional assessment tool where effects-based (E-B) methods specialize in quantification of existing aquatic effects over broad spatial scales. However, the predictive capabilities of E-B methods are limited because they are retrospective, i.e., the stressor causing the effect is identified after the effect has been measured. When used in isolation, S-B and E-B methods do not address CEA in the context necessary for sustainable development. However, if the strengths of these approaches were integrated into a holistic framework for CEA, an operational mechanism would exist to better monitor and assess sustainable development of our aquatic resources. This paper reviews the existing conceptual basis of CEA in Canada including existing methodologies, limitations and strengths. A conceptual framework for integrating project-based and regional-based CEA is presented.     

Use of significance thresholds to integrate cumulative effects into project-level socio-economic impact assessment in Canada

A longstanding critique of project-level environmental assessment is that it is weak at addressing cumulative effects, and because of this many argue that cumulative effects are best managed at a regional scale. However, in the absence of regional management it is important that project-level assessment supports cumulative effects management as best as possible. In this paper we present case study socio-economic impact assessments of liquefied natural gas development on Aboriginal groups on Canada's west coast. The case studies use an analytical structure modified from typical Canadian practice including unambiguous and non-arbitrary significance thresholds grounded in stakeholder values to focus baselines, impact assessment, and significance determination on cumulative effects. This approach is found to be more capable of informing decision-makers on cumulative effects as well as more rigorous and transparent than typical assessments. Much of this approach is not conceptually new, but at least in western Canada such an approach is not typically used or meaningfully implemented by practitioners. As such, the case studies serve to illustrate how practice can bolster project-level assessment.     

CEA in policies and plans: UK case studies

This paper examines how cumulative effects assessment (CEA) has been considered in Strategic Environmental Assessments (SEA) of regional and local plans in a number of case studies in the UK. Initially, the paper presents the legislative and regulatory requirements for assessing cumulative effects in plans and programmes in the UK. The two approaches for assessing plans in the UK, Sustainability Appraisal (SA) and SEA are discussed and in most cases, a combined SA and SEA process is undertaken by Regional and Local Planning Authorities. The strengths and weaknesses of this approach are explored, as well as their usefulness in decision making. There are problems relating to baseline, establishing trends and predicting cumulative effects at the strategic level. The issues in assessing cumulative effects within this SA/SEA framework are discussed and recommendations for improvements are made.     

Linking Water Science to Policy: Results from a Series of National Workshops on Water

To ensure science better informs the decision-making process, researchers and policy/program managers need to understand and respect each other's way of working, culture and operational timelines. However, there is little practical guidance on how this should be done and even less documented experience with specific mechanisms that better link these two groups. The published literature on information transfer has largely emphasized the dissemination of standard packages of information to ill-defined constituencies whose needs for scientific information are not well understood. Environment Canada's National Water Research Institute, on behalf of the Canadian Council of Ministers of the Environment, led a series of “Linking Water Science to Policy Workshops” as one such mechanism by which recent science could be delivered to practitioners, and practitioners could identify their research needs to scientists and research managers. There is a pressing need to explore and share experiences using creative mechanisms for sustained dialogue and networking between scientists and policy and program managers. The lessons learned from the workshop series and the need for science to continually inform the decision-making process has particular relevance for Canada's Ecosystem Initiatives given their integrated, place-based focus on long-term restoration and protection, and the challenge of continually changing ecosystems.The Canadian Crown reserves the right to retain a non-exclusive, royalty free licence in and to any copyright.     

Condition of the Mid-Atlantic Estuaries: Production of a State of the Environment Report

The U.S. Environmental Protection Agency has released a report entitled Condition of the Mid-Atlantic Estuaries. That report summarizes the findings of several studies conducted by federal and state agencies and academic institutions in Chesapeake Bay, Delaware Estuary, and the coastal bays of Delaware, Maryland, and Virginia, and simultaneously addresses two distinct audiences: environmental managers and the general public. This paper documents the process of preparing the Estuaries Report, emphasizing the lessons learned in merging information from a wide-variety of sources and in reporting the results to multiple audiences. The major difficulties in preparing the report included: 1) choosing a format and topics that adequately addressed both environmental managers and the public, 2) resolving spatial and temporal disparities in the assembled data sets, and 3) establishing threshold values that distinguished between acceptable and unacceptable conditions in indicators. Our solutions to these challenges and alternatives are discussed. We conclude that a small team of knowledgeable scientists can effectively merge the information of diverse sources into a document that is useful to both environmental managers and the interested public. However, considerable interaction between the team and other scientists was necessary to resolve ambiguities and assure relevancy and accuracy. These findings support the proposition that the vast sources of existing environmental information can be easily and effectively used to assess the ecological condition across large regions.     

The coastal component of the U.S. integrated ocean observing system

The combined effects of human activities and natural variability present significant challenges to the goals of protecting, restoring, and sustaining coastal ecosystems. Meeting these challenges and resolving conflicts in an informed fashion will require: (1) more timely detection and prediction of environmental changes and their consequences; and (2) more timely access to relevant environmental information. The achievement of these goals depends on the development of a sustained and integrated coastal ocean observing system (ICOOS) that insures timely access to the data and information required to improve: (1) climate predictions and the effects of changes in the weather on coastal populations; (2) efforts to sustain and restore healthy coastal marine ecosystems and living marine resources; and (3) compliance monitoring and evaluations of the efficacy of environmental policies. Although the responsible federal and state agencies all require similar environmental information, many separate programs have evolved for collecting, managing, and analyzing data for various purposes. Consequently, there is too much redundancy; access to diverse data from disparate sources is limited and time consuming; and individual programs are inevitably underfunded and too limited in scope. A system is needed that coordinates and integrates many of the elements of these programs to minimize redundancy, be more comprehensive, provide more timely access to data and information, and satisfy the information needs of a greater number of user groups in a more cost-effective fashion. This is the purpose of the ICOOS.     

Development of a New Approach to Cumulative Effects Assessment: A Northern River Ecosystem Example

If sustainable development of Canadian waters is to be achieved, a realistic and manageable framework is required for assessing cumulative effects. The objective of this paper is to describe an approach for aquatic cumulative effects assessment that was developed under the Northern Rivers Ecosystem Initiative. The approach is based on a review of existing monitoring practices in Canada and the presence of existing thresholds for aquatic ecosystem health assessments. It suggests that a sustainable framework is possible for cumulative effects assessment of Canadian waters that would result in integration of national indicators of aquatic health, integration of national initiatives (e.g., water quality index, environmental effects monitoring), and provide an avenue where long-term monitoring programs could be integrated with baseline and follow-up monitoring conducted under the environmental assessment process.     

Rethinking human health impact assessment

Most EIA programs around the world require the consideration of human health impacts. Yet relatively few EIA documents adequately address those impacts. This article examines how, why, and to what extent health impacts are analyzed in environmental impact assessments in the U.S. An empirical study of 42 environmental impact statements found that more than half contained no mention of health impacts. In the others, health impacts were analyzed narrowly, if at all, using risk assessment to quantify the carcinogenic potential of a single substance over a single generation. This analytic focus overlooks other significant morbidity and mortality risks, cumulative and intergenerational effects, and broader determinants of health. This article investigates these problems and provides recommendations to improve human health impact assessment, using strategic environmental assessment, qualitative health data, health outcomes in addition to cancer, and a precautionary approach to risk.     

The ecological condition of Gulf of Mexico resources from Perdido Key to Port St. Joe, Florida: Part II near-shelf coastal resources

In 1999, the United States Environmental Protection Agency Gulf Ecology Division initiated a pilot study to assess the condition of nearshore coastal resources. Near-shelf areas associated with coastal beaches are susceptible to land based activities, but are not consistently monitored. Additionally, few or no marine water quality criteria exist for evaluating these waters. The goal of this pilot study was to assess the ecological condition of Gulf of Mexico near-shelf resources using a probability-based survey design. Data are used to generate a baseline assessment of condition in coastal nearshore areas and provide a comparative tool for evaluating future trends in condition. Water quality, sediment quality and benthic diversity data can provide a baseline assessment for managers to evaluate the potential for future problems such as nutrient over-enrichment, sediment contamination and degraded biological condition. We present results from a probability-based survey demonstration assessing near-shelf resources along the Florida panhandle.     

Cumulative effects in strategic environmental assessment: The influence of plan boundaries

Cumulative effects (CE) assessment is lacking quality in impact assessment (IA) worldwide. It has been argued that the strategic environmental assessment (SEA) provides a suitable IA framework for addressing CE because it is applied to developments with broad boundaries, but few have tested this claim. Through a case study on the Danish mining sector, this article explores how plan boundaries influence the analytical boundaries applied for assessing CE in SEA. The case was studied through document analysis in combination with semi-structured group interviews of the responsible planners, who also serve as SEA practitioners. It was found that CE are to some extent assessed and managed implicitly throughout the planning process. However, this is through a focus on lowering the cumulative stress of mining rather than the cumulative stress on and capacity of the receiving environment. Plan boundaries do influence CE assessment, though all boundaries are not equally influential. The geographical and time boundaries of the Danish mining plans are broad or flexible enough to accommodate a meaningful assessment of CE, but the topical boundary is restrictive. The study indicates that collaboration among planning authorities and legally appointed CE leadership may facilitate better practice on CE assessment in sector-specific SEA contexts. However, most pressing is the need for relating assessment to the receiving environment as opposed to solely the stress of a proposed plan.     

Cumulative impact assessment in environmental planning: A coastal wetland watershed example

Several theoretical, analytical, and institutional difficulties have impeded the development and application of the assessment of cumulative environmental impacts. Watershed development on coastal wetlands offers an ideal context for evaluating the land disturbance target approach to cumulative impact assessment. A model land use planning system involving a time series approach was developed for Elkhorn Slough in California. The approach included four major components: evaluation of erosion susceptibility, measurement of land disturbance, establishment of a land disturbance target, and a comparison of existing and target land disturbance values. Further research is needed to test the transferability of the approach in a wide range of coastal watersheds and to verify the applicability of the methods to other cumulative impact problems.     

Reflecting on,and revising,international best practice principles for EIA follow-up

Follow-up is a vital component of Environmental Impact Assessment (EIA), being essential for understanding assessment outcomes. Long-standing international best practice principles for EIA follow-up are reviewed, and revisions proposed, based on workshops with academics and practitioners, literature review and self-reflection. The proposed revision of EIA follow-up principles will feature an introduction with a simple definition and explanation of objectives for follow-up, and 15 principles. The revised principles address: objective; context; early establishment; project life-cycle; transparency; accessibility; accountability; performance criteria provision; enforcement; learning; adaptive environmental management; flexible or adaptive approach; tiering; cumulative effects and overall performance evaluation. Through publishing this proposal, it is hoped to simultaneously inform or inspire EIA practitioners to enhance their own follow-up knowledge and practices, and to seek input for further refinements that might lead to a revised set of international best practice principles for EIA follow-up.     

Occupational and environmental aerosol exposure assessment: a scientific journey from the past, through the present and into the future

This paper reviews how aerosol exposure assessment, for people in both working and living environments, has evolved over the years. It charts the main scientific developments that led to progressively improved ways of thinking and methods to assess exposure to airborne particulate matter in a manner more relevant to human health. It has been a long scientific journey as one generation of pioneering contributors has handed off to the next. In the process a consistent rationale has emerged, producing aerosol sampling criteria--and in turn exposure standards--which have been increasingly relevant to actual human exposures. The journey continues as a new generation of scientists steps up to deal with the new challenges that are emerging. An appreciation of the history of what went before is essential to charting the most effective path looking forward.     

Network and system diagrams revisited: Satisfying CEA requirements for causality analysis

Published guidelines for Cumulative Effects Assessment (CEA) have called for the identification of cause-and-effect relationships, or causality, challenging researchers to identify methods that can possibly meet CEA's specific requirements. Together with an outline of these requirements from CEA key literature, the various definitions of cumulative effects point to the direction of a method for causality analysis that is visually-oriented and qualitative. This article consequently revisits network and system diagrams, resolves their reported shortcomings, and extends their capabilities with causal loop diagramming methodology. The application of the resulting composite causality analysis method to three Environmental Impact Assessment (EIA) case studies appears to satisfy the specific requirements of CEA regarding causality. Three “moments” are envisaged for the use of the proposed method: during the scoping stage, during the assessment process, and during the stakeholder participation process.     

Sami-state collaboration in the governance of cumulative effects assessment: A critical action research approach

Indigenous-state collaboration in the governance of cumulative effects assessment (CEA) is often hampered not only by legacies of colonialism and inequality but also disagreement on what the ‘CEA governance problem’ is in the first place. In this paper, we draw on critical theories on dialogue and collaboration to present a novel approach to joint problem analysis between Sami reindeer herders and civil servants in Swedish permitting authorities on mining, wind energy and forestry. We discuss process design choices, insights on CEA governance and ways to tackle these barriers in practice. We argue that indigenous-state collaboration may play a constructive role in improving CEA governance, including the recognition of indigenous peoples' rights. However, this requires a process that carves out new spaces for exploring divergent problem definitions and supports the participants in challenging institutionalized inequalities within their positioned realities.     

Toward a Practical Method for Setting Screening-Level, Ecological Risk-Based Water Temperature Criteria and Monitoring Compliance

We integrated basic concepts from fisheries science and toxicological risk assessment to form a potential method for setting screening-level, risk-based, site-specific water quality objectives for temperature. In summary, the proposed approach: (a) uses temperature impacts upon specific growth as a measure of chronic (cumulative) temperature effects; (b) explicitly incorporates the consequences of both magnitude and cumulative duration of exposures; (c) adjusts the result for local watershed conditions, reducing the likelihood that naturally warm systems are identified as thermally polluted while helping to ensure that naturally cool systems are closely monitored for ecologically harmful changes in thermal regime; and (d) expresses the net result both graphically and as a risk quotient, RQ, closely analogous to that used in toxicological risk assessments. The latter yields a site-specific, risk-based water quality objective and may serve as a straightforward decision rule for environmental managers. The method was applied to historical data from a small British Columbia stream subject to increasing urban development pressures. We also illustrate how the technique might be used to explore potential climatic change impacts, using coupled general circulation model predictions in conjunction with empirical downscaling. Overall, the method and results are presented as an introduction and illustration of concept, intended as a step toward the development of a logistically feasible risk-based approach to establishing screening-level, site-specific water temperature objectives, and monitoring compliance, in the context of large-scale, many-site, environmental monitoring networks. With further work, the technique offers potential to fill the gap between the temperature threshold-based targets typically specified in regulatory guidelines, which may be hydroecologically unrealistic, and detailed biophysical modelling, which typically is logistically infeasible in a day-to-day environmental monitoring and management context.     

Assessing cumulative impacts within state environmental review frameworks in the United States

Cumulative impact assessment (CIA) is the process of systematically assessing a proposed action's cumulative environmental effects in the context of past, present, and future actions, regardless of who undertakes such actions. Previous studies have examined CIA efforts at the federal level but little is known about how states assess the cumulative impacts of nonfederal projects. By examining state environmental review statutes, administrative rules, agency-prepared materials, and a national survey of the administrators of state environmental review programs, this study identifies the legal and administrative frameworks for CIA. It examines current CIA practice, discusses the relationship between CIA policy and its implementation, and explores the opportunities for improvement. The results of the study show that twenty-nine state environmental review programs across twenty-six states required the assessment of cumulative environmental impacts. More than half of these programs have adopted specific procedures for implementing their policies. Some programs assessed cumulative impacts using a standard review document, and others have created their own documentations incorporated into applications for state permits or funding. The majority of programs have adopted various scales, baselines, significance criteria, and coordination practices in their CIA processes. Mixed methods were generally used for data collection and analysis; qualitative methods were more prevalent than quantitative methods. The results also suggest that a program with comprehensive and consistent environmental review policies and procedures does not always imply extensive CIA requirements and practices. Finally, this study discusses the potential for improving existing CIA processes and promoting CIA efforts in states without established environmental review programs.     

Regulating human interventions in Colombian coastal areas: Implications for the environmental licensing procedure in middle-income countries

Although anthropogenic impacts could be assessed in any environment, coastal areas pose a particular challenge because of their special nature as the interface between land and sea. Therefore, this study evaluates the environmental regulatory framework for coastal interventions in Colombia, as an archetype of medium income countries (MICs), to derive implications for the environmental licensing procedure (ELP). The methods comprised two simultaneous pathways: a. An inventory of human interventions at the large scale area of the Colombian Caribbean Coast, with an estimation of the overall environmental impact; b. An analysis of the ELP in Colombia during the last 25 years. The study evidences several weaknesses, such as a consistent reduction in the number of works and activities covered in each new legislative. Moreover, the Colombian ELP currently regulates only four of the ten types of interventions with greater effect in its coastal zones. The discussions highlight some policy implications for the ELP in MICs, mainly based on how the impact of a type of intervention can be magnified in proportion to its frequency of occurrence, and the need to articulate instruments of environmental management and territorial planning. At last, the need to evolve the impact assessment of human interventions from environmental factors toward socio-natural processes is evidenced and further addressed, by the introduction of a susceptibility approach inspired on geomorphological processes. Overall, this study highlights important gaps of the Colombian ELP for coastal environments, which entails valuable lessons for MICs.     

Selecting Socio-Economic Metrics for Watershed Management

The selection of social and economic metrics to document baseline conditions and analyze the dynamic relationships between ecosystems and human communities are important decisions for scientists, managers, and watershed citizens. A large variety of social and economic data is available but these have limited use without theoretical frameworks. In this paper, several frameworks for reviewing social-ecosystem relations are offered, namely social sanctions, sense of place, civic structure, and cultural differences. Underlying all of these frameworks are attitudes, beliefs, values, and norms that affect which questions are asked and which indicators are chosen. Much work and significant challenges remain in developing a standard set of spatially based socio-economic metrics for watershed management.