How the sizewell B inquiry is grappling with the concept of acceptable risk

There is no agreed level of safety that is ‘acceptable’. Those responsible for managing and regulating safety believe that they can establish adequate parameters, but they recognize that those standards must meet with ‘public approval’. This paper examines one way in which that approval is sought, namely the quasijudicial examination of the merits of a proposal to construct Britain's first pressurized water reactor at the Sizewell B site on the Suffolk coast. The authors argue that the Sizewell B Inquiry appears to operate on the assumption that acceptable risk levels can be determined through argument and cross-examination. In its approach to the determination of acceptable risk the Inquiry seems dependent on professional judgement and expertise as assessed by legal minds trained to sift evidence. To ensure that all the necessary evidence comes before it, the Inquiry has established procedures to initiate the preparation and examination of expert viewpoints. The authors examine how far this approach is likely to command public confidence, and the extent to which the Inquiry pinned down the elusive concept of acceptable risk.     

Fusing strategic risk and futures methods to inform long-term strategic planning: case of water utilities

Risks and futures methods have complementary strengths as tools for managing strategic decisions under uncertainty. When combined, these tools increase organisational competency to evaluate and manage long-term risks, improving the flexibility and agility of the organisation to deal with gross uncertainties. Here, we set out a framework to guide the assessment of strategic risks for long-term business planning, based on its application at Portugal’s largest water utility, Empresa Portuguesa das Águas Livres. Our approach extends strategic risk assessment by incorporating scenario planning—a futures approach used to help the utility move beyond single point forecast of risks to focus on critical dimensions of uncertainty that are fundamental to the resilience of corporate objectives and their vulnerability to external pressures. We demonstrate how we combine two complementary approaches—risk and futures—and use them to assess (i) how a set of baseline strategic risks for a water utility evolves under alternative futures, (ii) the aggregate corporate-level risk exposure, and (iii) the process and responses needed to manage multiple, interdependent strategic risks. The framework offers a corporate approach to evolving strategic risks and improves a utility’s (i) knowledge of uncertainties, (ii) ability to assess the impacts of external developments over long time horizons and the consequences of actions and (iii) degree of flexibility to adapt to possible future challenges. The framework supports risk managers in their long-term strategic planning, through the appraisal and management of multiple, interdependent long-term strategic risks and can be replicated in other organisational contexts to bridge operational and corporate perspectives of enterprise risk.

     

Imagined citizens and participation: Local Agenda 21 in two communities in Sweden and Austria

Abstract

Local Agenda 21 (LA21), which has its roots in the UN Conference on Environment and Development held in 1992 in Rio de Janeiro, aims at fostering processes of sustainable development on a local level. In this article, we compare the LA21 processes of two cities, Helsingborg in Sweden and Vienna in Austria, to seek insight into the varying implementation approaches of common international political commitments. Our focus of analysis is on the social organisation of the two processes, the way local residents are integrated into LA21 work, and especially the political images of citizens—which we call ‘imagined citizens’—that different actor groups hold. The results of the study illustrate two almost diametrically opposed organisational forms of local sustainability governance, the Swedish process relying on a more expert-led, technocratic model of implementation and the Austrian process strongly building on deliberative forms of citizen participation.     

When unequals are treated equally: the 2002 commission of inquiry into Orica's Geomelt proposal

This paper deals with the Commission of Inquiry (COI) established by the NSW Department of Planning to examine Orica's proposal to build a Geomelt plant at its Botany site to destroy its stockpile of Hexachlorobenzene. The Inquiry is analysed in light of the literature on democracy/democratisation. The paper argues that the standard operating procedures of the Inquiry ensured that all stakeholders were treated equally. However, this equality was found to be purely formal, and drawing on the critique of formal equality dating back to Aristotle, it is argued that treating unequals equally results in the circumvention of deliberative democratic ideals by perpetuating entrenched structural inequalities while nonetheless giving the superficial appearance of fair play.     

What Can Funders Do to Better Link Science with Decisions? Case Studies of Coastal Communities and Climate Change

Many reports and studies have noted that a significant portion of problem-oriented coastal science does not actually link to decisions. Here, three competitively funded project case studies are studied to determine what funders can and should do to better link science with decisions. The qualitative analysis used for this study indicates that the studied program was seen as being unusually attentive to the issue of linking science to decisions, as opposed to simply generating new knowledge. Nevertheless, much of the data indicate that funders can and should do more. Three ideas figured most prominently in the qualitative data: (1) funders should do more to ensure that the problem itself is defined more thoroughly with people who are envisioned as potential users of the science; (2) funders need to allocate more resources and attention to communicating effectively (with users) throughout the project; and (3) funders need to demand more engagement of users throughout the project. These findings have important implications for how funders review and support science, especially when competitive processes are used. Most importantly, funders should adjust what kind of science they ask for. Secondly, funders need to change who is involved in the review process. Currently, review processes focus on knowledge generation, which means that the reviewers themselves have expertise in that area. Instead, review panels should be balanced between those who focus on knowledge generation and those who focus on linking knowledge to decisions; this is a separate but critical discipline currently left out of the review process.     

Ecological mismanagement in natural disasters

The increasing intensity and frequency of human disasters is often related to ecological mismanagement and especially to that of vegetation through unwise clearing, burning and overgrazing. Corrective measures are generally feasible by instituting sound management but this must be based on good planning and be supported by adequate finance and a willingness to meet the social cost. This Commission on Ecology Paper originated in discussions between IUCN and the League of Red Cross Societies, to determine areas in which they could together work on environmental issues. Disaster Preparedness is a major programme area for Red Cross, although in the public's eye it is more often associated with post disaster relief. For IUCN, ecological mismanagement is a matter of prime concern. It is the hope of both organisations that this Paper will serve as an initial contribution towards those efforts which urgently need to be taken to prevent those disasters which are of man's and not nature's doing. That this task has been started is due to the contribution and efforts of Prof. Lindsay Pryor to whom we owe our gratitude for having made this Paper a reality. IUCN Commission on Ecology in cooperation with the Ligue of Red Cross Societies     

Innovation in the Knowledge Age: implications for collaborative science

Current trends validate the notion that multifaceted, multimodal interdisciplinary collaborations lead to increased research productivity in publications and citations, compared to those achieved by individual researchers. Moreover, it may be that scientific breakthroughs are increasingly achieved by interdisciplinary research teams. Nonetheless, despite the perceived importance of collaboration and its bibliometric benefits, today’s scientists are still trained to be autonomous, work individually, and encourage their graduate students to do the same—perpetuating values which impede the creation of collaborative space between disciplines. As a consequence, scientists working in teams typically report serious obstacles to collaboration. This paper builds off of recent recommendations from a 2015 National Academies report on the state of team science which emphasizes greater definition of roles, responsibility, accountability, goals, and milestones. However, these recommendations do not address the subjective, relational components of collaboration which can drive innovation and creativity. The relational side of collaboration is key to understanding the capacity and capabilities of the knowledge workers, such as scientists and engineers, who comprise interdisciplinary research teams. The authors’ recommendations, grounded in organizational communication and knowledge worker literature, include a renewed focus on the process of organizing through communication rather than focusing on organization as an outcome or consequence of teamwork, leading and cultivating team members rather than managing them, and the need to address self-driven, rather than external, motivations to engage in knowledge work.     

Reaching environmental decisions: Making subjective and objective judgments

Objective judgments, external to the judge, are compared with subjective, internal judgments. This analysis is made in the context of reaching regulatory decisions affecting the human environment. Examples given include evaluating the potential risk of industrial chemicals and comparing the potential effects of short- and long-term changes in land use. The analysis deals not with the decisions themselves, but rather with the kinds of questions that must be posed in orderto reach such decisions. Decision makers may spuriously distinguish objective from subjective types of judgment, though these are rarely wholly separate. Judges can hardly dispute about objective statements, if truly identical definitions are used. But subjective statements can reasonably be voted upon. Scientists, engineers, and economists represent logical or objective decision makers, tending to work in groups. Subjective thinkers include artists and performers, and others who often work alone. Moral and aesthetic aspects of questions, usually seen as intangible, are treated as if subjective. Financial decisions, usually viewed as tangible, are handled as objective problems. This mechanism for making decisions is well-established in environmental assessment. Though objective questions can be treated well in the monetary terms of cost-benefit analysis, subjective ones cannot. Mathematical and other variants are discussed in relation to the comparison of alternative types of tests.     

The Relative Importance of Landscape Amenity and Health Impacts in the Wind Farm Debate in Australia

In recent years, Australia has experienced public debate around the growth in wind farms as part of government and community strategies to move from fossil fuels to renewable energy. Many of the arguments put forward by opponents and supporters are similar to those that have been evident in North America and Western Europe, including possible environmental impacts on wildlife, noise levels and, perhaps most prominently adverse changes in ‘landscape amenity’. A concern of increasing prominence is that of adverse human health impacts from proximity to operating turbines. Using analysis of submissions to public inquiries and a small number of detailed interviews, we consider the increased focus in Australia on the health impacts of wind farms. We note that health impacts, as elsewhere in the world, are often part of a suite of objections to wind farm developments but conclude that for some people near such developments, these are the main concern and not a cover or proxy for other concerns, such as changes in landscape amenity and aesthetics.     

Combining Analytical Hierarchy Process and Agglomerative Hierarchical Clustering in Search of Expert Consensus in Green Corridors Development Management

Environmental management and planning are instrumental in resolving conflicts arising between societal needs for economic development on the one hand and for open green landscapes on the other hand. Allocating green corridors between fragmented core green areas may provide a partial solution to these conflicts. Decisions regarding green corridor development require the assessment of alternative allocations based on multiple criteria evaluations. Analytical Hierarchy Process provides a methodology for both a structured and consistent extraction of such evaluations and for the search for consensus among experts regarding weights assigned to the different criteria. Implementing this methodology using 15 Israeli experts—landscape architects, regional planners, and geographers—revealed inherent differences in expert opinions in this field beyond professional divisions. The use of Agglomerative Hierarchical Clustering allowed to identify clusters representing common decisions regarding criterion weights. Aggregating the evaluations of these clusters revealed an important dichotomy between a pragmatist approach that emphasizes the weight of statutory criteria and an ecological approach that emphasizes the role of the natural conditions in allocating green landscape corridors.     

Our battle with hexachlorobenzene: citizen perspectives on toxic waste in Botany

The perspectives of residents are brought together in this assembly of statements concerning the management of hexachlorobenzene waste in Botany, a southeastern suburb of Sydney. The paper indicates how residents have responded as participants in public participation exercises, and the contribution made by lay experts in the search for a negotiated solution to the problems of legacy wastes. Resident comments on the role of independent scientific experts, on legal liability, and on the State Government sponsored Commission of Inquiry, indicate the deficit of resources faced by the local community. The paper provides insights into the status of citizen knowledge in environmental controversies and the pitfalls of participatory processes.     

The Impact of BSE and FMD on Ethics and Democratic Process

The recent crises of BSE and FMD in the United Kingdom have revealed widespread concerns on the part of farmers and consumers about government regulations and handling of animal movements, animal welfare, and food safety. Both crises raised issues of government accountability and the lack of openness in public debate. The issues of democratic process and decision-making were especially strong in relation to the mass slaughter policy of the government to control FMD. This article explores public disquiet about these matters, as expressed through the reports of two public inquiries, and the perceived links between government decision-making and the needs of global agribusiness, to the detriment of family farms and animal welfare. In light of the growing evidence about the environmental and economic costs of agribusiness, the argument is made that strong programs of citizen action, such as the Devon Foot and Mouth Inquiry, that are grounded in an ethical stance on animal welfare can challenge the perspectives of central governments about concepts of cost, efficiency, and safety in agriculture.     

The Paradox of E-Numbers: Ethical,Aesthetic, and Cultural Concerns in the Dutch Discourse on Food Additives

Persistent public distrust of food additives is often explained in terms of safety and health issues. The broad variety of ethical, aesthetic, and cultural concerns tends to be structurally ignored by food engineers and occasionally even by consumers themselves. The public controversy of food additives—commonly known as “E-numbers”—in the Netherlands is a case in point. Two discursive mechanisms prevent these concerns from becoming legitimate public issues: irrationalization and privatization. But these consumer concerns may not be as unreasonable as they seem, and they may even turn out to be not that private. As long as ethical, aesthetic and cultural concerns are not recognized by food engineers as legitimate issues, the controversy of food additives is not likely to find closure. Moreover, this lack of recognition blocks the opportunity for meaningful dialogue and trust building between food technology developers, policy makers, citizens and consumers.     

Decision process in large-scale crisis management

This paper deals with the decision-aiding process in large-scale crisis such as natural disasters. It consists in four phases: decision context characterisation, system modelling, aggregation and integration. The elements of the context, such as crisis level, risk situation, decision-makers, problem issue are defined through the characterisation phase. At the feared event occurrence, these elements will interact on a target system. Through the model on this system, the consequences to stakes could be assessed or estimated. The presented aggregation approaches will allow taking the right decisions. The architecture of a Decision Support System is presented in the integration phase.     

The Use of Local Sustainability Indicators: case studies in two Swedish municipalities1

This article contributes to the debate on the role of local sustainability indicators in ongoing democratisation efforts. We examine the extent to which five different systems of local sustainability indicators within two Swedish municipalities—Stockholm and Sundsvall—are either expert or citizen oriented, and relate these findings to the indicator systems' profile, function and political/ administrative context. Even though three of the indicator systems can be classified as citizen oriented, there are few signs of true engagement and dialogue with the citizens over a longer period of time. The remaining two indicator systems are expert oriented with an environmental focus. Hence, we conclude that the systems in use are largely symbolic responses to the demands for democracy within the agenda for sustainable development albeit attempts to include environmental, economic, social and democratic perspectives of sustainability. Despite the fact that Stockholm and Sundsvall show differences in governing styles in their approaches to sustainability indicators it seems difficult for both municipalities to put sustainable development into practice in terms of citizen participation.     

“Down in the forest something stirred”: issues raised by the Lyndhurst planning inquiry

The Planning Inquiry is used in Britain as a vehicle for resolving conflicts between energy developments and land use in areas of high ecological or amenity value. This is a report of one such inquiry; the Lyndhurst Inquiry which has been regarded as a test case of establishing oil and gas reserves against the importance of environmentally sensitive areas. The ultimate decision is seen as indicative of the complexity of issues involved.     

Imagined citizens and participation: Local Agenda 21 in two communities in Sweden and Austria

Local Agenda 21 (LA21), which has its roots in the UN Conference on Environment and Development held in 1992 in Rio de Janeiro, aims at fostering processes of sustainable development on a local level. In this article, we compare the LA21 processes of two cities, Helsingborg in Sweden and Vienna in Austria, to seek insight into the varying implementation approaches of common international political commitments. Our focus of analysis is on the social organisation of the two processes, the way local residents are integrated into LA21 work, and especially the political images of citizens—which we call 'imagined citizens'—that different actor groups hold. The results of the study illustrate two almost diametrically opposed organisational forms of local sustainability governance, the Swedish process relying on a more expert-led, technocratic model of implementation and the Austrian process strongly building on deliberative forms of citizen participation.     

Ecological Settings and State Economies as Factor Inputs in the Provision of Outdoor Recreation

State parks play a substantial role in the provision of outdoor recreation opportunities within the United States. Park operators must make crucial decisions in how they allocate capital expenditures, labor, and parkland to maintain recreation opportunities. Their decisions are influenced, in part, by the ecological characteristics of their state’s park system as well as the vitality of their state’s economy. In this research, we incorporate the characteristics of states’ ecosystems and their local economies into a formal production analysis of the states’ park systems from the years 1986 to 2011. Our analysis revealed all three factors of production were positive and inelastic. Expenditures on labor had the largest effect on both park utilization and operational expenditures. Our analysis also found a large degree of variability in the effects of ecological characteristics on both utilization and operating expenditures. Parkland utilization and operational expenditures were more elastic in areas such as Oceania and Mediterranean California relative to other ecological regions. These findings lead us to conclude that state park operators will experience variable levels of difficulty in both accommodating increasing demands for recreation from state parks and maintaining the existing quality of outdoor recreation provided within their system.     

The mining industry and the natural environment

Environmental considerations have become central to future developments in the Australian mineral industry and have affected the level of federal involvement in the industry. The Environmental Impact Statement (EIS) is now an important stage in the assessment of proposed mining projects. This paper examines two major federally sponsored inquiries into Australian mining projects — Fraser Island sand-mining and the Ranger uranium project — and then discusses subsequent events and future prospects.     

Contextualisation of policy and law in sustainable urban development

The old tension between planning and law is revived in current practices of sustainable development. Urban professionals often blame central regulation for frustrating an inventive integration of local initiatives and policies. Against this background, the authors focus on the potential of ‘legal contextualisation’: the challenge of how to improve on regulation in such a way that it guides local practices in a normative sense but simultaneously enables optimal use of local – context bounded – option space. In order to make legal contextualisation researchable, the next four operational avenues of analysis are constructed in this paper: the normative dimension (requiring quality of legal norms); the relational dimension (studying the alignment of norms in different positions, such as the legislation, the court, and social compliance); the temporal dimension (searching the alignment of different moments of legal validation); and the functional dimension (making transparent the different roles that government agencies may take).