Irish Sea Coastal Stakeholder Engagement in NW England consultation, participation, strategic purpose and rhetoric. 

Do you reap just what you sow?

Developing the Marine and Coastal Economy.

 

 

R B Johnson rbjohnson@uclan.ac.uk

M Clark mclark@uclan.ac.uk

School of Built & Natural Environment

University of Central Lancashire

Preston  

Littoral 2010 RGS London 23rd September

AbstractThe creation of a holistic more inclusive approach to marine management could be positively influenced by the development of well structured and sincere Stakeholder Engagement and Public Participation (SEPP) processes. However poorly designed frameworks and processes lacking sincerity may engender skepticism, mistrust and create barriers in the attainment of a thriving and diverse coastal economy

During 2009 a public participation and stakeholder engagement policy has been During 2009 a public participation and stakeholder engagement policy has been used by government agencies, Defra and the Department of Energy and Climate used by government agencies, Defra and the Department of Energy and Climate Change to gauge public opinion within the marine and coastal environment of Change to gauge public opinion within the marine and coastal environment of the Irish Sea. This concerns the development of Irish Sea Conservation Zones the Irish Sea. This concerns the development of Irish Sea Conservation Zones (ISCZ) and the UK’s Nuclear Newbuild (NNN) programme. Both issues have (ISCZ) and the UK’s Nuclear Newbuild (NNN) programme. Both issues have complex dynamics regarding their environmental, economic, societal and complex dynamics regarding their environmental, economic, societal and sustainability aspects. sustainability aspects. This paper studies two contrasting styles of SEPP deployed during this critical This paper studies two contrasting styles of SEPP deployed during this critical ‘first contact’ stage ‘first contact’ stage by a participatory observation approach and assesses how by a participatory observation approach and assesses how this phase may affect the development of the engagement process and how this this phase may affect the development of the engagement process and how this may affect a project’s outcome.may affect a project’s outcome.

The Government’s believes ‘...that climate change is one of the gravest threats we face, and that urgent action at home and abroad is required. We need to use a wide range of levers to cut carbon emissions, decarbonise the economy and support the creation of new green jobs and technologies, and implement a full programme of measures to fulfill our joint ambitions for a low carbon and eco-friendly economy’

The UK’s new coalition seeks to Empower local people, free local government from central and regional control, give local communities a real share in local growth and to achieving ‘A more efficient and more local planning system.’

Regional Spatial Strategies (RSS) and the Infrastructure Planning Commission (IPC) are to be replaced by ‘an efficient and democratically accountable system that provides a fast-track process for major infrastructure projects’ and which gives ‘residents the power to instigate local referendums on any local issue...’

Is it likely that given the state of the public purse that SEPP will fall more Is it likely that given the state of the public purse that SEPP will fall more into the private sector to reconcile what are the possible effects.into the private sector to reconcile what are the possible effects.If we are, are current engagement techniques/control robust enoughIf we are, are current engagement techniques/control robust enough

  Fiscal deficit, so Stakeholder Engagement and Fiscal deficit, so Stakeholder Engagement and Public Participation (SEPP) duties fall on the Public Participation (SEPP) duties fall on the commercial sector: commercial sector: ‘enforcement is passed on to ‘enforcement is passed on to user groups, mainly to make up the lack of funds user groups, mainly to make up the lack of funds and manpower of the responsible authority’ and manpower of the responsible authority’ (Hartmann & Campelo,1998) .‘..(Hartmann & Campelo,1998) .‘..government government consultation with civil society and the use of local consultation with civil society and the use of local knowledge in resource management depend knowledge in resource management depend largely on the government staff’s own beliefs largely on the government staff’s own beliefs about the value of local knowledge and the about the value of local knowledge and the potentials of community-based management and potentials of community-based management and not so much on his/her organization agenda’. not so much on his/her organization agenda’. (Seixas, 2004)(Seixas, 2004)

If officials are not obliged to take local expertise If officials are not obliged to take local expertise or interests into account they may not value local or interests into account they may not value local knowledge or permit co-management.knowledge or permit co-management.

An Obligation to ConsultAn Obligation to ConsultSince the Aarhus agreement (UNECE 1998) onus is those submitting proposals to enable Since the Aarhus agreement (UNECE 1998) onus is those submitting proposals to enable effective public participation. Must grant ‘the public rights regarding access to information, effective public participation. Must grant ‘the public rights regarding access to information, public participation and access to justice, in governmental decision-making processes on public participation and access to justice, in governmental decision-making processes on matters concerning the local, national and transboundary environment’ matters concerning the local, national and transboundary environment’   Article 5: Collection and Dissemination of Environmental InformationArticle 5: Collection and Dissemination of Environmental Information1. Each Party shall ensure that: Public authorities possess and update environmental 1. Each Party shall ensure that: Public authorities possess and update environmental information which is relevant to their functions; Mandatory systems are established so that information which is relevant to their functions; Mandatory systems are established so that there is an adequate flow of information to public authorities about proposed and existing there is an adequate flow of information to public authorities about proposed and existing activities which may significantly affect the environment (UNECE 1998)activities which may significantly affect the environment (UNECE 1998)   

As this agreement has been in place for more that a decade it might be asked if the powers As this agreement has been in place for more that a decade it might be asked if the powers really exist to expose and punish sham forms of public participation, or to require authorities really exist to expose and punish sham forms of public participation, or to require authorities and operators to make available all the information necessary to provide proper safeguards, and operators to make available all the information necessary to provide proper safeguards, including denial of planning or operating permission, or closure, where plant fails to achieve or including denial of planning or operating permission, or closure, where plant fails to achieve or keep within set limits.keep within set limits.

Video Clip on Aarhus Convention http://www.unece.org/env/pp/vid-presentation.htm 21 11 9

Aarhus• The UNECE Convention on Access to

Information, Public Participation in Decision-making and Access to Justice in Environmental Matters was adopted on 25th June 1998 in the Danish city of Aarhus at the Fourth Ministerial Conference in the 'Environment for Europe' process.

• The Aarhus Convention is a new kind of environmental agreement. The Convention:– Links environmental rights and

human rights – Acknowledges that we owe an

obligation to future generations – Establishes that sustainable

development can be achieved only through the involvement of all stakeholders

– Links government accountability and environmental protection

– Focuses on interactions between the public and public authorities in a democratic context.

• Extract, my emphasis http://www.unece.org/env/pp/

• The subject of the Convention goes to the heart of the relationship between people and governments. The Convention is not only an environmental agreement, it is also a Convention about government accountability, transparency and responsiveness.

• The Aarhus Convention grants the public rights and imposes on Parties and public authorities obligations regarding access to information and public participation and access to justice.

During 2009 a Stakeholder Engagement and Public Participation During 2009 a Stakeholder Engagement and Public Participation (SEPP) policy was used by government agencies, Defra and the (SEPP) policy was used by government agencies, Defra and the Department of Energy to gauge public opinion within the marine and Department of Energy to gauge public opinion within the marine and coastal environment of the Irish Sea. coastal environment of the Irish Sea.

These concern the development of Irish Sea Conservation Zones and These concern the development of Irish Sea Conservation Zones and proposals for siting new nuclear power facilities at (amongst others) proposals for siting new nuclear power facilities at (amongst others) Heysham in Lancashire and Millom in Cumbria.Heysham in Lancashire and Millom in Cumbria.

The research on which this paper is based includes studies of two The research on which this paper is based includes studies of two contrasting styles of SEPP deployed in the early phases of the Irish contrasting styles of SEPP deployed in the early phases of the Irish Sea participation processes: the Sea participation processes: the ISCZ (Irish Sea marine conservation ISCZ (Irish Sea marine conservation zone) project and two at the New Nuclear (NNN) consultation in the zone) project and two at the New Nuclear (NNN) consultation in the North West of England. North West of England.

ISCZ management process is designed to collate information and set up a stakeholder group.

Seven out of the ten proposed new nuclear electricity generating sites are within the area of the Irish Sea, NNN designed to inform the public and collect information.

The four events studied were chosen at random from a total of 16 SEPP workshops held in the region during late 2009 and early 2010.

Preliminary research findingsSmall and sometimes seemingly insignificant details undertaken early on the day of each workshop set the tone for the day ahead. ISCZ workshops were less formal than those for NN and appeared at the outset to be less constructed. In fact there was a well thought out process being used, and as the day progressed a distinct pattern emerged that was consistent in both of the ICZM meetings attended. The NN debate was from the outset more controlled in its approach, time limits were strict and short and the format of the meetings changed between events.

To take part, participants were required to apply for tickets for both ISCZ and NN To take part, participants were required to apply for tickets for both ISCZ and NN workshops. But the NN process gave the appearance that attendees may have been workshops. But the NN process gave the appearance that attendees may have been vetted and a number of participants commented on this. One suggested that it was ‘a vetted and a number of participants commented on this. One suggested that it was ‘a vetting process designed to control the response’. In informal private conversation with vetting process designed to control the response’. In informal private conversation with some of the participants, a number agreed with this assessment of the event. This may some of the participants, a number agreed with this assessment of the event. This may not have been intended, but the level of control seeded doubt .not have been intended, but the level of control seeded doubt .

Attendance at the public discussions is by pre-booking only. Please note this may be a popular event and therefore it is extremely important that you register. We will be operating a waiting list once the event is full, and therefore it is also important that if you register and then find that you cannot attend you let us know so that we can give your place to someone else

You do not need to register to attend the exhibition. Please just come in at a time that suits you. There will be staff from the Office of Nuclear Development available to answer any queries you may have about the draft Nuclear National Policy Statement.

http://www.nuclear-nps-events.info/home.aspx

http://www.nuclear-nps-events.info/registration.aspx 21 11 9

Why do stakeholders and public take part in engagement? Twenty semi structuredstructured interviews after ICZM workshops show that:

• 25% attended as part of their work in local or national government • 30% were members of the public concerned for the marine environment • 15% were working for NGOs • 20% were local fishermen or from fishing bodies • 10% were involved in leisure activities • Of this group 45% were concerned about some loss of amenity,

business opportunity or restrictions on current use.

The facilitators were sharply contrasted in their presentational style. The one at the NNN workshops was dominant from the outset of the meeting. She was a power dresser, matching the style of her employers. This raised one comment from a participant who suggested ‘she is one of them, see how she dresses’. The facilitator whilst trying to reassure the audience that this was their chance to comment freely on the NN process controlled the morning debate so that it really became a question and answer session with very little opportunity to develop the discussion. This was particularly prevalent at the Lancaster meeting.

The facilitator at the ICZM meetings had a far more open approach and was dressed in a manner which was more in line with the majority of the audience - this was also the case for members of the ICZM team.   

If we are going to continue to use engagement we must ensure it is of the best possible standard. A number of subjects approached after the ISCZ workshops felt as though they had contributed to the day. This feeling was not in evidence at the NN meetings.

There will always be challenges when dealing with There will always be challenges when dealing with diverse groups. diverse groups.

Well thought out structured, skilled facilitation can Well thought out structured, skilled facilitation can overcome or at least reduce problems on the dayovercome or at least reduce problems on the day

Stakeholder Engagement and Public Participation (SEPP)Stakeholder Engagement and Public Participation (SEPP)

What turns good SEPP into great SEPP?Engagement and Participation:

exactly what is says on the tin

You achieve neither if from the very outset you You achieve neither if from the very outset you   

Fail to make people feel welcomeFail to make people feel welcomeReduce participants to statistics Reduce participants to statistics (or in the case of NN) cattle branded by a rubber stamp(or in the case of NN) cattle branded by a rubber stamp

There There

‘As a farmer and part time coastal fisherman I was the greatest sceptic of engagement and of the way I have seen it undertaken over a period of 35 years.  Two ICZM workshops changed that view, it changed the focus of my studies and made me aware that there was a better way forward. I now want more people to take part in good engagement, share knowledge, resolve issues and create long term solutions.’

Bruce Johnson

What turns good SEPP into great SEPP?

Engagement and Participation: exactly what is says on the tin

You achieve neither if from the very outset you You achieve neither if from the very outset you   

Fail to make people feel welcomeFail to make people feel welcomeReduce participants to statistics Reduce participants to statistics (or in the case of NN) cattle branded by a rubber stamp(or in the case of NN) cattle branded by a rubber stamp

There There