Deliberative Speak at the Turbine Face Community Engagement, Wind Farms, and Renewable Energy Transitions, in Australia

1. This presentation represents a paper published recently in the Journal of Environmental Policy and Planning by myself and Catherine Matthews (my SRA) at the time, which sets the scene for current work about to start. So � perhaps a good place to start this talk is with penguins enjoying a day out! This presentation represents a paper published recently in the Journal of Environmental Policy and Planning by myself and Catherine Matthews (my SRA) at the time, which sets the scene for current work about to start. So � perhaps a good place to start this talk is with penguins enjoying a day out!

2. in embracing climate & energy change Perhaps it�s penguins going out in style! But more seriously, Kevin Rudd, in embracing climate change and energy change, and upon coming to government in Australia, made international headlines. He did this in: �.Perhaps it�s penguins going out in style! But more seriously, Kevin Rudd, in embracing climate change and energy change, and upon coming to government in Australia, made international headlines. He did this in: �.

3. late November 2007 (1) in ratifying Kyoto and reversing earlier policy trends secondly, but less noted Rudd made minor Australian headlines in �secondly, but less noted Rudd made minor Australian headlines in �

4. The technical problem is that insufficient development of geothermal and solar power, and limited opportunities for more hydropower, requires a significant reliance on wind energy. This could imply increasing Australia�s existing 563 wind turbines to some 4500, which poses some difficulties construction-wise; But a greater problem, and the one we are addressing, seems socio-political� The technical problem is that insufficient development of geothermal and solar power, and limited opportunities for more hydropower, requires a significant reliance on wind energy. This could imply increasing Australia�s existing 563 wind turbines to some 4500, which poses some difficulties construction-wise; But a greater problem, and the one we are addressing, seems socio-political�

5. The latter is interesting because wind proponents pass off this resistance as NIMYism: which implies that �not-in-my-backyard� groups lack legitimacy and act contrary to broader public interest, and can be ignored to an extent. But the European literature about wind farms refer to more complexity, to several factors for local opposition, including: the planning and decision-making context; the costs and benefits of wind turbines in terms of public interest; and top-down policy styles with limited opportunities for local views to be heard. Our research indicates the same legitimate tensions especially in a supposedly democratic society �The latter is interesting because wind proponents pass off this resistance as NIMYism: which implies that �not-in-my-backyard� groups lack legitimacy and act contrary to broader public interest, and can be ignored to an extent. But the European literature about wind farms refer to more complexity, to several factors for local opposition, including: the planning and decision-making context; the costs and benefits of wind turbines in terms of public interest; and top-down policy styles with limited opportunities for local views to be heard. Our research indicates the same legitimate tensions especially in a supposedly democratic society �

6. Overall, underpinning the desire for inclusive community engagement are diverse rationalities related to place, development and environment, that while poorly understood, highlight the call for enhanced participation because of distrust of government, weak regulatory processes, and wind farm developers with very limited consultative capacity Three key rationalities include: colonisation (externally imposed wind farms, paying for other people� electricity, etc), commercialisation and industrialisation of the countryside etc. Lack of consultation in one�s place (not �space� as it is treated) This signals that with wind farm expansion, social conflict will likely escalate, as has occurred in Europe with �wind surges� unless more inclusive community engagement strategies are developed. the key problematic is thus:Overall, underpinning the desire for inclusive community engagement are diverse rationalities related to place, development and environment, that while poorly understood, highlight the call for enhanced participation because of distrust of government, weak regulatory processes, and wind farm developers with very limited consultative capacity Three key rationalities include: colonisation (externally imposed wind farms, paying for other people� electricity, etc), commercialisation and industrialisation of the countryside etc. Lack of consultation in one�s place (not �space� as it is treated) This signals that with wind farm expansion, social conflict will likely escalate, as has occurred in Europe with �wind surges� unless more inclusive community engagement strategies are developed. the key problematic is thus:

7. concerning, for example, tourism and socio-economic impacts related to reduced visual amenity; other environmental impacts; property value impacts; community divisiveness; rural-urban equity issues, So that informs the research problem of � concerning, for example, tourism and socio-economic impacts related to reduced visual amenity; other environmental impacts; property value impacts; community divisiveness; rural-urban equity issues, So that informs the research problem of �

8. research problem In exploring this problem, our analysis investigated the following topics �. In exploring this problem, our analysis investigated the following topics �.

9. topics 1: the Australian political and policy landscape a. issue emergence and relevant policy events b. the federal government�s participatory policy response of a proposed National Code for Wind Farms The issue again is marginalisation of community voices in decision-making about location and siting of wind farms, or non-inclusion, and the enduring social conflict around wind farms as a policy and planning problem in the face of change towards new energy systems We look to Europe, as the European experience offers important policy lessons in adopting wind energy much earlier than AustraliaThe issue again is marginalisation of community voices in decision-making about location and siting of wind farms, or non-inclusion, and the enduring social conflict around wind farms as a policy and planning problem in the face of change towards new energy systems We look to Europe, as the European experience offers important policy lessons in adopting wind energy much earlier than Australia

10. 1a: emergence of issue & policy events Mandatory Renewable Energy Target (MRET) (2001-10) starts a �wind rush� 2003 Review findings no participatory community engagement mechanisms; state planning approval processes limited involvement �qualified� supporters turn into objectors Key emergent issues (review and analysts) negative impacts on tourism, land values, visual amenity, community cohesion, wildlife, and environment (noise & development impacts) inadequate community engagement processes employed by developers and planning approval processes Notably, �non-inclusion processes regarding wind farms for local communities began with the Australian Government�s first initiative to create a �wind rush Established in 2001, the MRET required purchasers of wholesale electricity to purchase 2% of electricity from renewable energy sources to meet a target of 9500 GWh (gigawatt hours) by 2010 secured access to the grid and demand for renewable energy = �wind rush�! 110% growth by 2003 (from 1999) Review findings job growth, regional development+ but downside = intense opposition from local communities and social conflict The next policy response was a Senate Inquiry�. Notably, �non-inclusion processes regarding wind farms for local communities began with the Australian Government�s first initiative to create a �wind rush Established in 2001, the MRET required purchasers of wholesale electricity to purchase 2% of electricity from renewable energy sources to meet a target of 9500 GWh (gigawatt hours) by 2010 secured access to the grid and demand for renewable energy = �wind rush�! 110% growth by 2003 (from 1999) Review findings job growth, regional development+ but downside = intense opposition from local communities and social conflict The next policy response was a Senate Inquiry�.

11. emergence of issue & relevant policy events � Senate Inquiry 2004 (Energy White Paper) mainly pro-wind submissions (industry and env. NGOs) �critical� ones from affected communities issues already identified continue to build + A new one: of informed consent and options for energy mixes (after slide text) however, little governmental responses. By 2006, it was clear from increasing media coverage that inadequate community engagement was emerging as a major issue alongside visual amenity. developments prompted a proposed major Federal govt intervention of a �.. (after slide text) however, little governmental responses. By 2006, it was clear from increasing media coverage that inadequate community engagement was emerging as a major issue alongside visual amenity. developments prompted a proposed major Federal govt intervention of a �..

12. 1b. National Code for Wind Farms! 2006: Senator Campbell proposed a National Code: fierce social conflict in Denmark (WA) & Sellicks Hill (SA) �local communities ignored� lack of community engagement = �constraint� for wind farm development strong �inclusive participatory approach� needed about wind-farm proposals �active early community participation and throughout project� proposed (after slide text) Despite support for the code by the wind industry, local councils and key community representatives, all state environment ministers rejected the idea, saying it poses too much red tape for wind development, and that adequate public engagement already exists although the state government approval processes follow the limited public involvement model, which had been found wanting both internally and externally to government highly criticised by landscape guardian groups highly critical because of a lack of transparency and accountability in decision-making, and inclusiveness of course. So social conflict continues to mount. So, What are the lessons from Europe? � (after slide text) Despite support for the code by the wind industry, local councils and key community representatives, all state environment ministers rejected the idea, saying it poses too much red tape for wind development, and that adequate public engagement already exists although the state government approval processes follow the limited public involvement model, which had been found wanting both internally and externally to government highly criticised by landscape guardian groups highly critical because of a lack of transparency and accountability in decision-making, and inclusiveness of course. So social conflict continues to mount. So, What are the lessons from Europe? �

13. Topic 2a: comparative policy analysis European wind farm studies addressing the same problem endorse: collaboration, local embedment and strong inclusive participatory frameworks as the policy style with most potential to develop socially viable and constructive renewable energy transitions factors of ownership, information and active participation are important to gain public trust for regional wind farm development. These lessons seem pretty clear, but there has been a dearth of policy analysis on this topic in Australian in recent years� In this context, we assess the potential of the National Code in its claim of offering deliberative or inclusive participatory processes and techniques to meet its aims or intent. We found the following:�.These lessons seem pretty clear, but there has been a dearth of policy analysis on this topic in Australian in recent years� In this context, we assess the potential of the National Code in its claim of offering deliberative or inclusive participatory processes and techniques to meet its aims or intent. We found the following:�.

14. 2b. assessment of proposed National Code a strong participatory thrust and language in its attack on limited public involvement state government approval processes and techniques but lacks information on how to redesign institutional processes, and the place and design of community engagement techniques no reference is made to any informed choice mechanisms regarding community preferences for renewable energy options, or mixes thereof, for any one locale With regard to 3, community voices have consistently raised this point, for example, to the Senate inquiry, to the Victorian planning review panels, and in the media. So what appears here seems to be a strategic language or promotional talk of �speak�. we conceptualised this as �deliberative speak� NEXT SLIDEWith regard to 3, community voices have consistently raised this point, for example, to the Senate inquiry, to the Victorian planning review panels, and in the media. So what appears here seems to be a strategic language or promotional talk of �speak�. we conceptualised this as �deliberative speak� NEXT SLIDE

15. A strong case of �deliberative speak� �a strategic language comprising a rhetorical array of terms reflecting deliberative principles and ideals of active public engagement�such as �inclusive�, �informed�, �transparent� or �participatory decision-making��accompanied by a lack of appropriate processes and practices of active public engagement to adequately address those principles and ideals�. In either case, if it were developed in this way it would likely further undermine public trust and do little to address social conflict constructively�. But another problem is no mention about any informed choice mechanisms regarding community preferences for renewable energy options, or mixes thereof, for any one locale, so in a largely technocratic system of governance, this is then suggestive of: NEXT SLIDE In either case, if it were developed in this way it would likely further undermine public trust and do little to address social conflict constructively�. But another problem is no mention about any informed choice mechanisms regarding community preferences for renewable energy options, or mixes thereof, for any one locale, so in a largely technocratic system of governance, this is then suggestive of: NEXT SLIDE

16. PLACATION!? Citizens have some degree of influence athough tokenism is still quite apparent (Arnstein 1969) Alternatively, social engineering: cooptation, absorption of protest, with incremental citizen gains, etc So this suggests a sub-optimal or counter-productive �deliberative-placation� approach Where the Code suggests a �deliberative-partnership� model of consensus building. Our finding then is is that the National Code needs some real substance added to but in another policy turn, last month it was downgraded to voluntary �national �guidelines to be developed, in negotiations between new federal environment minister Peter Garret and his state env. counterparts. Three points were emphasised in communiqu�s and press releases in late Oct to early Nov.. Our finding then is is that the National Code needs some real substance added to but in another policy turn, last month it was downgraded to voluntary �national �guidelines to be developed, in negotiations between new federal environment minister Peter Garret and his state env. counterparts. Three points were emphasised in communiqu�s and press releases in late Oct to early Nov..

17. National guidelines 1. Earlier consultation with publics through �best practice of community engagement� (???) but signalled are traditional consultative practices by developers: 2. Aim: �better community support of wind farms� esp.through the deficit model of educating the public that wind farms are needed in line with govt policies and commitments (to eg climate change). 3. �consistency and transparency� across Australia working in with existing state govt planning processes to help address some barriers to wind farm development. barriers = a NIMYism �kind of mentality� �We�ve got to learn to love wind and the look of wind farms� (after slide text) This suggest a regression from �deliberative placation� to �consultative placation�, or the continuation of a weak public involvement approach with a small shift to a uniform social approach of open management. Regardless of where the real intent lies, the likely effect will be an add-on approach that has largely failed before because of embedment in a largely technocratic system that doesn�t know how to change or is afraid of changing too much, or resists change for a variety of reasons, or follows the incremental approach as per usual. In addressing the problem of a better approach, this suggests a transition approach for transitional times�which images legitimacy to so so�This takes me to the last topic of my task: research about to begin�. (after slide text) This suggest a regression from �deliberative placation� to �consultative placation�, or the continuation of a weak public involvement approach with a small shift to a uniform social approach of open management. Regardless of where the real intent lies, the likely effect will be an add-on approach that has largely failed before because of embedment in a largely technocratic system that doesn�t know how to change or is afraid of changing too much, or resists change for a variety of reasons, or follows the incremental approach as per usual. In addressing the problem of a better approach, this suggests a transition approach for transitional times�which images legitimacy to so so�This takes me to the last topic of my task: research about to begin�.

18. C: a strong participatory transition management approach overarching systems redesign converges the key top-down role of government for environmental policy and planning, and the key bottom-up role of communities to achieve successful transitions: through gaining in-depth understanding of: community rationalities (values, beliefs and attitudes), so that better collaborative positions can inform enhanced community engagement and wider institutional practices institutional contexts and policy and planning procedures, and identifying and evaluating combinations of top-down and bottom-up participatory approaches to bring about about coinciding and coherent system innovation and improvement (after slide text) This research won a 3 year grant from the ARC starting next year � it is based on the Netherlands transition management approaches (eg environment plan 2002 re energy, biodiversity and natural resources, and agriculture) addressing big persistent environmental problems: complex, unstructured, many stakeholders, surrounded by fundamental uncertainty and deeply rooted in societal structures and institutions government is the primary actor in the formation and continuation of a participatory �transition arena�, of business, NGOs, citizens, & knowledge institutions, but a problem in this model has been the extent of participation so I explicitly address that problem�. So in conclusion, the findings of the study so far indicate that (after slide text) This research won a 3 year grant from the ARC starting next year � it is based on the Netherlands transition management approaches (eg environment plan 2002 re energy, biodiversity and natural resources, and agriculture) addressing big persistent environmental problems: complex, unstructured, many stakeholders, surrounded by fundamental uncertainty and deeply rooted in societal structures and institutions government is the primary actor in the formation and continuation of a participatory �transition arena�, of business, NGOs, citizens, & knowledge institutions, but a problem in this model has been the extent of participation so I explicitly address that problem�. So in conclusion, the findings of the study so far indicate that

19. Conclusions Australian citizens in affected communities seek active participation in decision-making about proposals and options for renewable energy uptake, and continuity of involvement for policy responsiveness and accountability Current policy responses are lacking, from existing technocratic state approaches to proposed new add-on participatory approaches, that reflect �deliberative-speak� or intent only, and seemed doomed to failure as a mismatch between the desires of policy makers and publics (and the European experience) A more relevant approach seems offered by overarching systems redesign like a strong participatory management transition approach. (We shall explore)