Questioning the local: environmental regulation,shale gas extraction,and the politics of scale

ABSTRACT

The exploration and potential extraction of shale gas – better known as fracking – has emerged as one of the most contentious dimensions to local environmental politics in the UK. Local residents and environmental activists have raised concerns about health, noise, ground water contamination, seismicity, environmental amenity, and other impacts of the industry on communities. Despite the complexities of shale gas extraction, an emphasis on the local has shaped key dimensions of the debate around the appropriate location for well pads to the relative exclusion of other issues. This paper draws on fieldwork in Lancashire, UK, to reflect on the political construction of scale in order to explore how an emphasis on “the local” can restrict political debate over shale gas to narrow concerns with land-use planning thereby obviating a fuller engagement with wider questions concerning risk, energy policy, and climate change. It is concluded that a more nuanced conception of scale is necessary for understanding how concerns with shale gas are diminished rather than strengthened through the current planning policy and regulatory regime operating in the UK.     

Policy And Practice The Focus of Local Agenda 21 in the United Kingdom

The paper examines whether environmental issues are taking precedence over socio-economic issues in the UK LA 21 process. A categorization to separate issues which can be considered socio-economic from those which are environmental has been developed and a questionnaire sent to all UK local planning authorities. Results demonstrate that local authorities are indeed giving more emphasis to environmental issues, which is at odds with previous studies and with the concept of sustainability.The research has indicated that the cause may be a tendency to place LA 21 within the remit of environment departments and, whether this is the explanation or not, it implies that a re-emphasis of effort may be required on behalf of the local authorities.     

From Environmental Auditing to Integrated Environmental Management: Local Government Experience in the United Kingdom and Japan

Local authority experien ce with state of the environment reporting in the UK is discussed and com pared with the Japanese approach to integrated environmental management. Two case studies are presented, Lancashire County Council and Osaka Prefectural Government, and the progress made by each authority is examined. The paper argues that two very different approaches to local environm ental m anagement have evolved in the UK and Japan. The Japanese approach is essentially technocratic and pre-occupied with pollution control issues. In contrast, the UK approach has evolved out of the town planning tradition with its emphasis on conservation and am enity issues. Local authorities in Japan have greater jurisdictional powers, financial and technical resources to devote to environmental management. This allows them more direct control over the policy-making process. Constraints on local authority financial resources in the UK, and fragmentation of environmental responsibilities between various organizations, have resulted in a form of environm ental management which is based on interorganizational co-operation.     

Greener local economic development: Reflections from the UK on current European approaches

This paper considers moves to integrate environmental and economic development policies at local level. It provides a brief review of the EU policy frameworks and funding programmes which give a lead to, and support, local authorities in these efforts. Ecologically based approaches to local economic management are particularly highlighted. Municipalities typically employ a mix of regulatory, financial and voluntary measures to improve the environmental performance of businesses, create jobs and work towards greater local self-reliance. With the help of recent examples, the paper explores the variable scope for action—very much dependent on the national context—and identifies some mechanisms which are being used to good effect elsewhere in Europe but which are currently not easily transferable to the UK. Through programmes encouraging networking and the exchange of experience, UK practitioners can gain access to a range of European practice which demonstrates that greener local economic development is a real possibility.     

Environmental Performance Evaluation in the Water Industry of England and Wales

The appropriate means of benchmarking environmental performance within and between companies is a matter of considerable debate and raises issues such as what information to compare and the reliability and consistency of data. Comparing environmental performance through company environment reports is an approach which has been widely used but, as this paper shows, is difficult and has severe limitations. This paper presents a unique analysis, based on the UK water industry, which compares data reported in company environmental reports and data on the same companies reported through the industry regulators. In turn, this is compared with the environmental performance indicators proposed by two other systems, one advanced by the UK water industry itself. The results demonstrate the difficulty of specifying environmental indicators that enable meaningful comparison. The difficulty of comparing environmental performance in a sector with a comprehensive approach to, and long history of, environmental performance reporting presents some hard lessons for other sectors.     

“It's optional,not mandatory”: Environmental justice in local environmental agencies in Germany

Environmental justice is increasingly becoming a subject of academic debate in Germany. However, the realisation that environmental goods and hazards as well as the impacts of environmental policies are unequally distributed among social groups has not had many practical consequences yet. There are scattered initiatives and pilot projects aiming to address issues of environmental justice. Nevertheless, in the design and implementation of environmental policies there is no systematic consideration of their social dimension. In this paper, we outline the perspective of employees in German local environmental agencies on environmental justice. For this purpose, we conducted six qualitative interviews, which focused on the example of low emission zones. We identified three crucial aspects in these interviews: problem perception, motivation to act and perceived scope of action. Our main finding is that environmental justice is hardly an issue for environmental agencies and that this is the case because there is no necessity for them to consider social aspects in their work as this is neither legally required nor demanded in the public debate.     

The Employment and Productivity Effects of Environmental Taxation: Additional Dividends or Added Distractions?

Claims of employment and productivity gains from environmental taxation are examined in the context of recent policy developments which have extended the traditional role of economic instruments in environmental regulation. Although the general existence of such spin-offs cannot be established, the debate has clarified guidelines for designing and implementing specific environmentally based taxes to help deliver sustainable development. Recent UK tax proposals have started to draw on the flexibility of fiscal instruments to tackle environmental problems. Innovations include earmarking taxes to fund allied spatial and sectoral programmes, recycling revenues to provide fiscally neutral improvements in tax efficiency and using taxation to help promote eco-efficiency.     

Local environmental monitoring in Sweden: The need for a new strategy?

This paper discusses the present character of environmental monitoring in Swedish municipalities. We have found that local environmental monitoring in Sweden is insufficient. There is very little connection between monitoring activities and local environmental goals, and environmental goals have been established without considering information from the environmental monitoring. In practice, this means that local environmental monitoring has only a limited influence on political decisions and priorities in the municipalities. Our study also showed that local environmental monitoring was almost entirely focused on monitoring the state of the environment and showed a lack of flow-oriented information. There is a strong need to develop a unified strategy for local environmental monitoring to avoid sub-optimisations in local environmental management. A new strategy would, to a much higher degree, have to focus on monitoring diffuse sources of pollution and personal lifestyles. In this case, monitoring only the state of the environment would not be sufficient. It would have to include also the flows of materials through society, i.e. the whole metabolism of society, including biogeochemical as well as anthropogenic material flows.     

Strategic Routeing and Environmental Impact Assessment for Overhead Electrical Transmission Lines

High-voltage, high-capacity overhead lines are the economic and reliable choice for the bulk transmission of electricity throughout the world. The routeing of transmission lines is a complex process, and in the UK requires a balance to be struck between statutory obligations, engineering requirements, economic viability, land use and the environment. Transmission line routeing projects can rightly generate considerable public interest and debate, but issues often focus on local effects such as visual amenity rather than the wider benefits of the project to society as a whole. Given the extent of their public and regulatory scrutiny, the environmental statements of such schemes must be objective and transparent in the approach adopted to the routeing strategy. The approach outlined is based on the premise that the major effect of an overhead transmission line is visual and the degree of visual intrusion can be reduced through careful routeing.     

Shale We Drill? Discourse Dynamics in UK Fracking Debates

This article examines competing political discourses surrounding shale extraction in the UK. It asks how these meanings are communicated and why certain understandings of the issue gain prominence. Drawing on discourse analysis and framing studies, the article first distinguishes two competing coalitions (pro- and anti-shale) and their shared narratives or ‘storylines’ (shale opportunity versus shale threat). Through a systematic examination of press reports, websites and public documents, it identifies opposing discursive frames used to shape understanding, meaning and debates, and assesses their resonance and power. The article builds on existing interpretive studies by providing a finer-grained analysis of discourse success, and a greater emphasis on the coalition members who shape and deliver the agreed storyline. It argues that the anti-shale coalition in the UK has thus far enjoyed greater discourse success for two reasons: firstly, because the pro-shale coalition lacks trustworthy messengers; secondly, because shale opponents have successfully expanded the debate beyond economic or environmental concerns to include potent issues of local power and democracy.     

From Spatial to Local: The Impact of the European Union on Local Authority Planning in the UK

In 1998 the Minister for the Regions, Regeneration and Planning issued a statement which argued that the European context for planning had been largely missing from the planning system in England. This paper explores the impact of European Union (EU) membership on the practice of local authority planning in the UK. The research was based on nine local planning authorities in England, Scotland and Wales. The results indicate that EU membership has exerted a direct and indirect influence on planning at the local level. A classification of EU influences on local planning activities is developed. The research also indicates that the scope and structure of the UK planning system are being influenced by EU membership. There is considerable emphasis on the role of planning as a tool for sustainable development, and the development of environmental quality standards, coupled with existing policies in the sphere of nature conservation, present a challenge to the traditional approach of the UK planning system of balancing all material considerations.     

The emergence of local planning authority policy on high-voltage electricity issues

The high-voltage distribution and transmission of electricity are associated with a range of environmental effects that are increasingly contentious and are leading to difficult land-use planning issues. In the UK, local planning authorities have been taking an anticipatory approach to such efforts by the formation of policy in statutory land-use plans; this seeks to set constraints on the location and form of high-voltage installations and nearby development. This emerging body of policy reveals a number of consistently occurring themes that focus explicitly on the protection of local environmental conditions. This is indicative of broader trends apparent throughout plan-making in the last decade, in which environmental emphases have become more central, but the policy area also indicates that local authorities are responding to structural changes in the electricity industry and to changing patterns of energy generation. Copyright © 2002 John Wiley & Sons, Ltd.     

Overcoming the 'value-action gap' in environmental policy: Tensions between national policy and local experience

This paper is concerned with debates over the implementation of sustainability objectives. In particular, it focuses on policies that address the 'value-action gap' in environmental policy. Using evidence from the author's research connected with the UK Going for Green Sustainable Communities Project in Huntingdonshire, the paper highlights the tensions between national policies that are based on an 'information deficit' model of participation, and local research and experience that posits a more complex relationship between individuals and institutions. While this suggests the need to develop more differentiated policies based on the restructuring of socioeconomic and political institutions, the paper warns against knee-jerk calls for more local, community or public participation which simply replace one set of generalised appeals with another. The paper concludes that greater emphasis must be placed on the negotiation of partnerships that are more sensitive to local diversity, and which involve a more equitable distribution of responsibility between different environmental stakeholders.     

Putting the 'E' into LSPs: Representing the Environment within Local Strategic Partnerships (LSPs) in the UK

This article reports the findings of a qualitative study with residents living in six deprived neighbourhoods in the UK and the front-line workers and local policymakers responsible for the renewal of these areas. The study was an attempt to raise awareness of local environmental concerns in the context of a national and local policy agenda, which has, until recently, largely overlooked the impacts of degraded environments on the lives and activities of the people who live in them. A key aim for the study was to raise people's concerns with local decision-makers and examine how far these might be addressed through the existing financial, administrative and legislative arrangements for neighbourhood renewal in the UK, namely Local Strategic Partnerships. The research was designed to provide practical lessons and policy recommendations for others wishing to raise the profile of environmental justice in the context of neighbourhood level regeneration projects, in both the UK and elsewhere in the 'developed' world.     

The Europeanisation of local environmental politics: Bathing water pollution in south-west England

The influence of European environmental policy is transforming more than just the way that environmental protection is organised and implemented in the UK. The nature of environmental politics is also changing dramatically. The paper examines the implementation of the Bathing Waters Directive in the South West of England to illustrate how Europeanisation opens up new scope and spaces for political action. The legal standards laid down in directives such as the Bathing Waters Directive provide an authoritative yardstick which environmental pressure groups can use to exert pressure at the local as well as the national level. In turn, Europe becomes increasingly viewed in the UK as the moral arbiter of what counts as 'pollution'.     

Sustainability appraisal in local land‐use planning: patterns of current performance

The UK government has identified the land‐use planning system, and development plans in particular, as potentially powerful instruments for integrating national sustainability objectives into strategic decision making at local levels. One method for achieving this is through the use of so‐called ‘sustainability appraisals’, which are an extension of the established system of environmental appraisal used by planners since the early 1990s. A national framework is outlined in Planning Policy Guidance Note 12. Local authorities are now expected to conduct an environmental appraisal of their development plans which covers sustainable development issues. However, little research has been conducted on the effectiveness of current guidance in meeting this aim. By evaluating the implementation of sustainability appraisals nationally, this paper suggests that while government advice to appraise is generally being applied, the actual use of key sustainability principles in practice is rather variable. It then discusses these findings in relation to the changing context of appraisals in the UK and other national planning systems.     

Putting the ‘E’ into LSPs: Representing the Environment within Local Strategic Partnerships (LSPs) in the UK

Abstract

This article reports the findings of a qualitative study with residents living in six deprived neighbourhoods in the UK and the front-line workers and local policymakers responsible for the renewal of these areas. The study was an attempt to raise awareness of local environmental concerns in the context of a national and local policy agenda, which has, until recently, largely overlooked the impacts of degraded environments on the lives and activities of the people who live in them. A key aim for the study was to raise people's concerns with local decision-makers and examine how far these might be addressed through the existing financial, administrative and legislative arrangements for neighbourhood renewal in the UK, namely Local Strategic Partnerships. The research was designed to provide practical lessons and policy recommendations for others wishing to raise the profile of environmental justice in the context of neighbourhood level regeneration projects, in both the UK and elsewhere in the ‘developed’ world.     

Linking the environmental and social agendas

Summary In the United Kingdom there is no obvious connection between the Department of the Environment and the Home Office, nor indeed with the Department of Social Security. Yet crime rates are rising and social surveys reveal a drop in support for the institutions of governance-moral, legal and political. Other evidence clearly shows that the income and security of the very poor are declining in relation to the better off. There may well be a link between environmental deprivation, poverty and social alienation. This is not an area where heretofore any British Government has noticeably directed its energies. The UK response to the Rio Agenda 21 contains a proposal to create a Citizens' Environmental Initiative, designed ostensibly to bring sustainability to the grass roots. It now appears that this is to be a largely cosmetic exercise of grant aid to worthy local causes. It does not appear to have addressed significantly the opportunity of linking environmental and social agendas via the medium of locally promoted sustainable development. Yet the divergence efficiency and equality of treatment lies at the heart of the contemporary environmental debate. Proposals to price resource depletion and polluting emissions penalize the poor in the name of environmental efficiency. Unless there is an explicit intertwining of efficiency and equity doctrines, the cause of sustainability is doomed to self-inflicted defeat. Ecological taxation offers a solution, so long as the proceeds promote the cause of social as well as environmental justice.The address was delivered at the Global Forum '94 Academic Conference Towards a Sustainable Future: Promoting Sustainable Development Manchester UK (Fig. 1).     

Fair fracking? Ethics and environmental justice in United Kingdom shale gas policy and planning

The exploitation of shale gas resources is a significant issue of environmental justice. Uneven distributions of risks and social impacts to local site communities must be balanced against the economic benefits to gas users and developers; and unequal decision-making powers must be negotiated between local and central governments, communities and fracking site developers. These distributive and procedural elements are addressed in relation to UK policy, planning, regulatory and industry development. I adopt an explicitly normative framework of policy evaluation, addressing a research gap on the ethics of shale gas by operationalising Shrader-Frechette’s Principle of Prima Facie Political Equality. I conclude that UK fracking policy reveals inherent contradictions of environmental justice in relation to the Conservative Government’s localist and planning reform agendas. Early fracking policy protected communities from harm in the wake of seismic risk events, but these were quickly replaced with pro-industry economic stimulation and planning legislation that curtailed community empowerment in fracking decision-making, increased environmental risks to communities, transferred powers from local to central government and created the conditions of distributive injustices in the management of community benefit provisions. I argue that only by “re-localising” the scale of fracking governance can political equality be ensured and the distributive and procedural environmental injustices be ameliorated.     

Partnerships for Local Environmental Action: Observations on the First Two Years of Rural Action for the Environment

Rural Action for the Environment is a key element of the UK Government's 'Action for the Countryside' initiative. It has two main elements: the provision of advice, training, information and grants to local communities; and the formation of county based networks of environmental organizations to provide the necessary support infrastructure to local projects. This paper suggests that Rural Action is a laudable attempt to move towards a more 'enabling' style of operation which may ultimately result in a significant increase in the level of interest and involvement in environmental action. However, it has also highlighted a number of important problems which are likely to afflict all future attempts to encourage local communities to formulate and carry out sustainable environmental improvements in their areas. Particular difficulties result from the need to reconcile the multiple and possibly contradictory objectives of different agencies, the problems of engaging the interest of local people, the time and other resource constraints faced by those who seek to implement such initiatives and the political imperative to achieve action on the ground as rapidly as possible. Each of these issues will need to be addressed by future schemes if widespread involvement in locally determined environmental action is to be secured.