Evaluating public participation in environmental decision-making: EPA's superfund community involvement program

This article discusses an 8-year, ongoing project that evaluates the Environmental Protection Agency's Superfund community involvement program. The project originated as a response to the Government Performance and Results Act, which requires federal agencies to articulate program goals, and evaluate and report their progress in meeting those goals. The evaluation project assesses how effective the Superfund community involvement program is in promoting public participation in decisions about how to clean up hazardous wastes at Superfund sites. We do three things in the article: (1) share our experience with evaluating an Agency public participation program, including lessons learned about methods of evaluation; (2) report evaluation results; and (3) address a number of issues pertaining to the evaluation of public participation in environmental decision-making. Our goal is to encourage more environmental managers to incorporate evaluation into their public participation programs as a tool for improving them. We found that written mail surveys were an effective and economical tool for obtaining feedback on EPA's community involvement program at Superfund sites. The evaluation focused on four criteria: citizen satisfaction with EPA information about the Superfund site, citizen understanding of environmental and human health risks associated with the site, citizen satisfaction with opportunities provided by EPA for community input, and citizen satisfaction with EPA's response to community input. While the evaluation results were mixed, in general, community members who were most informed about and involved in the cleanup process at Superfund sites generally were also the most satisfied with the community involvement process, and the job that EPA was doing cleaning up the site. We conclude that systematic evaluation provides meaningful and useful information that agencies can use to improve their public participation programs. However, there need to be institutionalized processes that ensure evaluation results are used to develop and implement strategies for improvement.     

ENHANCING THE EFFECTIVENESS OF PUBLIC PARTICIPATION IN DEFINING WATER RESOURCE POLICY1

ABSTRACT: Federal regulations require agencies administering water resource projects to inform and educate citizens so that they will understand and participate effectively in local programs. Government officials and public involvement specialists have proposed positive outcomes which should derive from agency educational efforts. Eleven interdependent educational goals are identified in this study such that achievement of each goal improves the likelihood of achieving others. Evaluations indicate that educational programs are inadequate and goals are not attained fully. The incorporation of mechanisms employed by professional educators is a potential remedy. Educational and social psychology contain an abundance of effective educational devices and methodologies appropriate for use in informal adult educational programs. An individualized educational program is recommended to meet the needs of a heterogeneous adult audience.     

ACHIEVING PUBLIC INVOLVEMENT IN THE CORPS OF ENGINEERS,WATER RESOURCES PLANNING1

ABSTRACT Public interest in all governmental agency planning has increased greatly in recent years. The program of the Corps of Engineers for obtaining direct public input to its water resources planning is described. Implementing policies, guidelines, and activities are summarized. Experiences with public involvement are discussed. Some basic problems that have surfaced in carrying out the program are cited.     

FIELD EVALUATION OF SOME PUBLIC INVOLVEMENT TECHNIQUES1

ABSTRACT: Public involvement in water resources planning is receiving much current attention, and there is a need to examine systematically how different public involvement techniques work in practice. The following techniques were among those used to involve the public in a recent Corps of Engineers’study of flooding on San Pedro Creek in Pacifica, California: a public workshop, citizen information bulletins (CIBs) and questionnaries. Interviews were held with 75 study participants to evaluate the effectiveness of these techniques. The interviews indicated that various study participants felt positively about the particular workshop format employed and about the use of a communications specialist to train workshop leaders. There were mixed reactions to the effectiveness of the CIBs and questionnaires. Although many individual citizens felt that the CIBs and questionnaires were useful, some of the Corps planners felt that CIBs and questionnaires would only be “cost-effective” on large studies and/or where the questionnaire response rate was high. The interviews led to a number of specific suggestions regarding how the extent of public involvement could be increased in future water resources planning studies.     

Improving planning through interactive methodological research

The Hawaii Environmental Simulation Laboratory (HESL) was a three year experiment in improving governmental decision making by developing better research methodologies for use by public decision making bodies and community organizations. Funded through the University of Hawaii by the Ford Foundation (FF) and the National Science Foundation (NSF), HESL conducted its researchinteractively with the intended users of its products. This paper sets the HESL experiment in the context of recent trends in applying better methodology to environmental decision making and involving citizens in these decisions. It describes the HESL effort, and then draws conclusions about both the effectiveness of the experiment and the way it was conducted, providing information that may be useful in guiding university groups, public agencies, and community organizations pursuing similar objectives.     

The role of agency goals and local context in Great Lakes water resources public involvement programs

As complex social phenomena, public involvement processes are influenced by contextual factors. This study examined agency goals for public involvement and assessed the importance of local context in remedial action planning, a community-based water resources program aimed at the cleanup of the 42 most polluted locations in the Great Lakes Basin. Agency goals for public involvement in remedial action plans (RAPs) were agency-oriented and focused on public acceptance of the plan, support for implementation, and positive agency-public relations. Corresponding to these goals, citizen advisory committees were created in 75% of the RAP sites as a primary means for public input into the planning process. Factors that influenced the implementation of public involvement programs in remedial action planning included public orientation toward the remediation issue, local economic conditions, the interaction of diverse interests in the process, agency and process credibility, experience of local leadership, and jurisdictional complexity. A formative assessment of “community readiness” appeared critical to appropriate public involvement program design. Careful program design may also include citizen education and training components, thoughtful management of ongoing agency-public relations and conflict among disparate interests in the process, overcoming logistical difficulties that threaten program continuity, using local expertise and communication channels, and circumventing interjurisdictional complexities.     

The Politics of Participation in Watershed Modeling

While researchers and decision-makers increasingly recognize the importance of public participation in environmental decision-making, there is less agreement about how to involve the public. One of the most controversial issues is how to involve citizens in producing scientific information. Although this question is relevant to many areas of environmental policy, it has come to the fore in watershed management. Increasingly, the public is becoming involved in the sophisticated computer modeling efforts that have been developed to inform watershed management decisions. These models typically have been treated as technical inputs to the policy process. However, model-building itself involves numerous assumptions, judgments, and decisions that are relevant to the public. This paper examines the politics of public involvement in watershed modeling efforts and proposes five guidelines for good practice for such efforts. Using these guidelines, I analyze four cases in which different approaches to public involvement in the modeling process have been attempted and make recommendations for future efforts to involve communities in watershed modeling.     

Regional planning acceptance by residents of Northern New York,USA

This study compares the effectiveness of two regional planning agencies in terms of public support for various planning activities. The Adirondack Park Agency and the Temporary State Commission on Tug Hill have fundamentally different approaches to planning. The Adirondack Park Agency has implemented a restrictive regulatory program with little citizen participation by Adirondack residents. The Tug Hill Commission has implemented an advisory and coordinating program with an emphasis on public input. Residents of two towns in each region were surveyed to determine environmental concern and support for regional planning activities. Respondents from both regions favored a planning agency that incorporates citizen input; controls air, water, and toxic waste pollution; and develops recreation areas. They strongly opposed an agency that regulates private land-use. Basic demographic characteristics and levels of environmental concern were similar in all four towns, but receptivity to various planning activities was consistently greater among residents of the Tug Hill Region. Paired comparisons of the four towns demonstrated no differences between towns of the same region and significant differences between towns of different regions. Public support for regional planning is greater in the Tug Hill Region than in the Adirondack Park.     

RIVER BASIN WATER PLANNING ORGANIZATIONS IN THE 60's1

ABSTRACT: The 15 federal-state interagency river basin studies (designated as Type 2 or Level B in the planning program of the Water Resources Council) of the 1960's brought together in each of the study regions, in many cases for the fist time, state and federal water resources agencies, and afforded an opportunity for coordination. Examination of the studies, however, reveals that many organizational problems remain to be solved in preparing truly comprehensive plans that effectively integrate and balance the diverse values held by study participants and concerned citizens. Burgeoning changes in state and federal laws, in planning concepts, and in public attitudes influenced the studies. Increased interest in the environment and greater emphasis on a multiple objective approach to planning for example, had significant effect. The type of organization used for carrying out these studies was a coordinating committee with one of the agencies - in most cases, the Corps of Engineers, - serving as lead agency. Some of the observed weaknesses of this arrangement were the lack of an effective mechanism for screening individual agency project proposals; unbalanced participation of agencies - for example, construction vs. non-construction, state vs. federal; agency representatives without sufficient delegated authority; insufficient control of the planning organization over individual agency participation and punctuality; and lack of emphasis on plan formulation and public participation. Suggested improvements, some of which are already being implemented in more recent studies include centralized planning staff and funding, formalized work agreements, a dynamic and continuous planning process with mechanisms for monitoring technological and social changes and evaluating planning effectiveness, planning guidelines and evaluative criteria, and a formalized training program for planners.     

Beyond water data: benefits to volunteers and to local water from a citizen science program

Survey results of citizen science water data collection volunteers are presented, indicating personal benefits (e.g., being in nature, helping local water quality), and suggesting potential long-term benefits of improved watershed health (e.g., behavior change). These results can inform citizen science program development and contribute to watershed planners’ understanding of the broad benefits of such programs. We suggest that respondents’ positive feelings toward the watershed's major river and desire to learn about science and nature are place-specific elements that watershed and citizen science program managers could utilize in program development. Moreover, we explore the potential of social diffusion and behavior change and suggest the need for further research in these areas. We conclude that citizen science has potential not just as a means to collect large amounts of data (cheaply), but as a means to engage citizens to make environmentally friendly decisions.     

SOCIAL FEASIBILITY AS AN ALTERNATIVE APPROACH TO WATER RESOURCE PLANNING1

ABSTRACT: Research suggests that conflict over public participation in water resource planning is due, in part, to confusion over the nature of the policies involved. This article examines the roadblocks to citizen involvement in water resource planning in terms of two policy models: (1) the Social Feasibility Model and (2) the Political Feasibility Model. Each model posits a different role for public participation. Although the Political Feasibility Model has been widely accepted in water resource planning, changes in the nature of the policies involved in water resource management have weakened its appropriateness. Currently, social and redistributive policies involving value conflicts often dominate water planning and these policies are best chosen through the Social Feasibility Model. The article discusses the nature of the social feasibility model, the new types of policy decisions facing water resource managers, and how the social feasibility model can help overcome the roadblocks to increased public participation in water resource policy making.     

Environmental democracy in action: The Toxics Release Inventory

The Toxics Release Inventory (TRI) created by the 1986 Emergency Planning and Community Right-to-Know Act initially received limited attention. During the early years of its implementation, the TRI has become the basis for a national experiment in voluntaristic problem solving among citizens and industry, but that process of environmental democracy hinges on citizens' ability to actually acquire, understand, and apply the new data on industrial toxic emissions. A national study of TRI-using organizations in the public and private sectors reveals that effective citizen access depends in part on the efforts of intermediary public interest groups to bridge individual needs and right-to-know data. Although the TRI has had early success as a supplement to conventional command and control regulation, questions exist about the extent to which state and federal government should or must provide special efforts to make environmental information access work for citizens.     

Groundwater management by watershed agencies: an evaluation of the capacity of Ontario's conservation authorities

Watershed-based resource management organizations around the world are becoming more involved in groundwater management. This reflects, among other considerations, growing awareness of the critical role that these local agencies can and should play in the management of groundwater resources. Ontario's conservation authorities (CAs) are an important example. CAs are taking on new responsibilities for groundwater data collection, monitoring and planning. Unfortunately, not all local organizations are equally capable of participating effectively in groundwater management. This certainly is the case among Ontario's 38 CAs, which have highly variable levels of financial and staff resources. Local capacity for water management can be explored from the perspective of the institutional environment, the watershed community, and the financial, technical and staff resources of the organizations. This paper presents an evaluation of the groundwater management capacity of Ontario's conservation authorities, drawing on two detailed case studies (the Upper Thames River CA and the Ganaraska Region CA), and additional data gathered from all 38 CAs. Institutional issues, such as the clarity of management roles and senior government commitment to local management, as well as resourcing concerns, local working relationships, and public support, largely determine the capacity of CAs to expand their involvement in groundwater management. Strengthening the capacity of watershed-based agencies to participate in groundwater management is an important challenge in all jurisdictions, as these agencies are well placed to reinforce municipal groundwater management by identifying local needs and trends, facilitating communication and cooperation, and promoting best management practices.     

Applied landscape economics: a personal journey of discovery

Putting cash values on the environment facilitates commoditization and political capture of evaluation. However, individual citizens may also wish to know the appropriate trade‐off of values, in order to use political power properly. Willingness‐to‐pay offers insight into consumers’ valuation of landscape, but routine application of economic methods to land use decisions meets major problems, especially the data needs of cost — benefit analysis in face of the urgency of decisions, and the insensitivity of conventional methods to subtle landscape changes. These problems require the citizen‐as‐consumer to make personal judgements of value, but to link those values to a cash scale for the purpose of making trade‐offs. Such judgements can be entered into an orderly framework, in which the judgements can be exposed for comment, which itself exposes the assumptions of commentators. The decision about routing electricity transmission lines in Scotland provides an example. Recent interest in environmental economics gives the opportunity to broaden the scope of the method.     

Citizen or consumer? Reconsidering energy citizenship

ABSTRACT

The transition to more sustainable energy systems has set about redefining the social roles and responsibilities of citizens. Implicit in this are expectations around participation, though the precise contours of what this might mean remain open. Debates around the energy transition have been skewed towards a normative construct of what it means to be a ‘good citizen’, the parameters for which are shaped by predetermined visions of statist and/or market-driven determinations of the energy systems of the future. This article argues that concepts such as ‘energy citizen’ are co-opted to reflect popular neoliberal discourses, and ignore crucial questions of unequal agency and access to resources. Paradoxically, official discourses that push responsibility for the energy transition onto the ‘citizen-as-consumer’ effectively remove agency from citizens, leaving them largely disconnected and disempowered. Consequently, energy citizenship needs to be reconceptualised to incorporate more collective and inclusive contexts for action. Considering how much energy consumption occurs in (traditionally female) domestic spheres, do conventional notions of citizenship (especially with regards to its associated rights and duties) need to be recalibrated in order for the concept to be usefully applied to the energy transition?     

How to encourage conflict in the environmental decision-making process: imparting lessons from civic environmentalism to local policy-makers

The literature on civic environmentalism suggests that the environmental decision-making process must be perceived by citizens to be inclusive, transparent, and legitimate in order to avoid conflict and encourage stakeholder collaboration. We suggest that studies of environmental decision-making must apply this framework to three key variables: agenda setting, conflicts of interest, and politicised institutions, which impact the potential for citizen collaboration at the local level. Using content analysis of newspaper articles, participant observations, and informal field interviews, we evaluate a case study of citizen opposition to a power plant air permit. We demonstrate how citizen perceptions of agenda setting by local officials, conflicts of interest, and the inability of citizens to affect final decisions after winning in multiple legal and administrative venues, creates conflict by not embodying these civic environmentalist principles. We conclude with policy suggestions for creating a less conflict-riddled process.     

Reinventing Environmental Regulation from the Grassroots Up: Explaining and Expanding the Success of the Toxics Release Inventory

/ The success of the Toxics Release Inventory (TRI) stands in stark contrast to most other environmental regulations in the United States. Between its inception in 1988 and 1995, releases of chemicals listed on the TRI have declined by 45%. We argue the TRI has achieved this regulatory success by creating a mechanism of "populist maxi-min regulation." This style of regulation differs from traditional command-and-control in several ways. First, the majorrole of public agencies is not to set and enforce standards, but to establish an information-rich context for private citizens, interest groups, and firms to solve environmental problems. Second, environmental "standards" are not determined by expert analysis of acceptable risk, but are effectively set at the levels informed citizens will accept. Third, firms adopt pollution prevention and abatement measures in response to a dynamic range of public pressures rather than to formalized agency standards or governmental sanction. Finally, public pressure ruthlessly focuses on the worst polluters-maximum attention to minimum performers-to induce them to adopt more effective environmental practices. TRI has inadvertently set in motion this alternative style of regulation that has, in turn, dramatically reduced toxics emissions in the United States. By properly understanding the mechanisms that drive TRI's accomplishments, more intentional public policy designs can expand the system of populist maxi-min regulation and achieve even more rapid toxics reduction.     

A PARTICIPATORY APPROACH TO WATERSHED MANAGEMENT: THE BRAZILIAN SYSTEM1

ABSTRACT: Brazil is currently facing the challenge of implementing a new water resources management system to promote the rational and sustainable use of the country's waters. This system is based on the following principles of water management: (2) stakeholders' participation; (2) the watershed as the planning and management unit; and (3) the economic value of water. Stakeholders' participation and the involvement of civil society in the decision making process is guaranteed by permanent seats in the watersheds' management committees. These committees are the highest decision level for the establishment of water policy and for planning its use. The executive branch of the committees is the watershed agency or the water agency. This paper presents the recently approved Brazilian water resources management system and discusses the participatory approach followed to validate and to ensure prompt response to decisions regarding water use by all stakeholders. The formulation of the National Water Law (January/1998) was also supported by extensive consultation with civil society, professional associations, state and municipal governments as well as with federal governmental agencies and private sector organizations. It also presents an overview of the formulation of the National Water Law. Finally, as watershed committees have been created and are already operating in a limited number of watersheds, some of the major obstacles to the success of the new system are discussed along with alternatives for overcoming such obstacles.     

A RATIONALE FOR THE REGIONALIZATION OF PUBLIC WATER SYSTEMS1

ABSTRACT. A rationale is set forth for requiring and/or encouraging the consolidation or regionalization of all systems beneath certain population size levels based on the small water systems’ capability to produce an adequate supply of safe drinking water at a reasonable cost to customers. Estimates for basic costs of water service including personnel, other operation and maintenance and capital are made and a range of water rates is suggested based on reasonableness and acceptability to customers. Guidelines are then drawn for a moderate rate of $10.00 per month and an upper limit rate of $15.00 per month to show the sizes at which public water systems might be expected to achieve fiscal viability. Finally, recommendations are made to State and Federal governmental agencies concerning possible legislation, plans and programs to achieve better public water service through the regionalization or consolidation of small public water systems.     

Public Meetings About Local Waste Management Problems: Comparing Participants to Nonparticipants

One of the more traditional ways to involve citizens in environmental management in the United States is to hold a public meeting. Yet public meetings are also frequently criticized for stereotypical weaknesses, including a concern that citizens who attend public meetings do not accurately represent citizens who do not attend. To examine this concern in the context of local waste management problems, this study investigates whether citizens who attend public meetings differ from citizens who do not attend meetings. In the spring of 1998, residents in two New York communities facing local waste management problems received mailed questionnaires. Those surveyed included citizens who had previously attended state-sponsored public meetings about the waste sites and citizens who lived within one mile of the respective waste sites but had not attended any meetings. A comparison of demographic characteristics showed that, in both communities, citizens who attended meetings tended to report higher incomes and have children living at home. In one community, previous meeting participants tended to perceive greater risks from the waste site. In both communities, participants were less likely to consider certain sources of information about the waste sites, including the state environmental agency, state health agency, and the industries, as credible. Regardless of whether they had previously attended public meetings, respondents who perceived the risks as greater also perceived the sources as less credible. The conclusions suggest some potential challenges to effective communication at public meetings, including overcoming widespread skepticism and heightened concern among audience members.