Guidelines for Public Participation in Livestock Development

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ContentsLivestock Development in Saskatchewan: Improving the Process ......................................................................... 3The Framework for Decision-Making in Saskatchewan ............................................................................................. 3What is Public Consultation? ....................................................................................................................................... 4Why Consult the Public? .............................................................................................................................................. 4Communication: The Essential Element in Public Participation .............................................................................. 4

Preparing for discussion ...........................................................................................................................................4Planning for Events ....................................................................................................................................................... 5Effective Tools for Public Participation ....................................................................................................................... 6

Publications ...............................................................................................................................................................6The Project Summary ......................................................................................................................................... 6

Sample Project Summary ............................................................................................................................ 7Newsletters ......................................................................................................................................................... 7Information Bulletins ........................................................................................................................................... 7

Sample Information Sheet ........................................................................................................................... 8Media Releases ........................................................................................................................................................ 9

Sample Media Release ...................................................................................................................................... 9Hints for Making the Most of the Media .................................................................................................................. 10Feedback ................................................................................................................................................................ 11

Focus Groups ................................................................................................................................................... 11Talk-back Lines ................................................................................................................................................. 11Store Front Offices ........................................................................................................................................... 12Questionnaires ................................................................................................................................................ 12

Meetings ................................................................................................................................................................. 12Open Houses ................................................................................................................................................... 12Informal Events ................................................................................................................................................ 13Workshops ....................................................................................................................................................... 13Public Meetings ................................................................................................................................................ 14

Keeping the Discussion Focused ............................................................................................................. 14Sample Agenda ......................................................................................................................................... 14

Conclusion ................................................................................................................................................................... 15

Saskatchewan Agriculture would like to acknowledge the significant contributions made to this publication by Saskatchewan’s Dispute Resolution Office.

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When a local municipality has a zoning bylaw regulating intensive livestock operations, the proponent must also apply to the municipality for a land-use development permit. Essentially, the province is responsible for environmental approval; the municipality is responsible for land use planning.

Ideally, municipalities should discuss development options (including livestock) in the context of their community development objectives. Objectives might include job creation, transportation, development of municipal infrastructure, processing and different types of intensive agriculture. This general discussion should come before any consideration of specific development, as it allows the community to gather information and to establish criteria. Communities would then be in a position to develop an Official Community Plan (OCP),(the policy document) and the zoning bylaw. Municipalities should understand that, in the absence of a bylaw that addresses intensive livestock, they have no authority to make a decision regarding land use.

When the discussion turns to consideration of a specific livestock development project, Saskatchewan Agriculture recommends that the project proponents lead the public participation process. This might begin with proponents simply talking to all the neighbours within a five kilometre radius of the proposed facility. On a broader scale, the group can provide general information about their production model, including barn types, animal inventory, employment opportunities, feed demand, land requirements, manure management practices and other relevant information to the community. The community then has an opportunity to discuss, clarify, question or respond to the information.

Costly environmental studies should not be undertaken until the municipality has agreed to allow the development of an ILO on a particular parcel(s) of land based on conditions identified in the bylaw. It is not uncommon for a multi-site environmental review to cost upwards of $100,000, so it is prudent to get support from council on the development permit prior to these investigations. Once the local municipality has been satisfied, the environmental studies required by the province can begin.

Livestock Development in Saskatchewan: Improving the ProcessRural communities are looking for opportunities to increase employment and economic development. Livestock development may be an option. However, there are some issues around livestock development, as with any development, that may be contentious.

When discussing development, it is essential to provide information to the community – and keep them involved in the process. Public participation will not eliminate conflict, but a good process will provide an opportunity to openly discuss the issues.

People want to know that you care, before they care what you know.

- Will Rogers

These public participation guidelines outline a process to engage community stakeholders in a discussion about livestock development.

The Framework for Decision-Making in SaskatchewanIt is important to understand the roles that the province, municipality and the public play in the development of Intensive Livestock Operations (ILOs) in Saskatchewan.

In Saskatchewan, proponents of ILOs must obtain approval from Saskatchewan Ministry of Agriculture Agricultural Operations Unit. The Agricultural Operations Act (AOA) requires ILO proponents to submit their manure storage, manure management and mortality management plans for approval. All plans are reviewed to ensure that adequate provisions have been made to protect surface and ground water from contamination.

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What is public consultation?• Building a relationship with individuals in a

community.• Providing an opportunity for people to be heard,

and be informed about new developments or changes within their community.

Why consult the public?The public should be given the opportunity to talk about development that affects their neighbourhood and community. A good process will:

• Discover public interest in, concern with andideas about particular issues;

• Educate the stakeholders and/or the generalpublic about issues;

• Raise the level of awareness among a particularaudience about an issue;

• Demonstrate to those involved that, even on themost divisive issues, there are issues that can bediscussed and people on the other side(s) worthtalking to;

• Reduce the risk of adversarial confrontation; and• Build public support for important decisions.

Communication: The Essential Element in Public ParticipationPublic participation is about building relationships among divergent groups of people. This involves ongoing and open communication. These guidelines present a variety of communication tools that can be used to inform and engage stakeholders. Individuals or groups will likely use a combination of these tools as they move through the process. The tool selected will depend on the objectives of the communication.

In other words, what do you or the participants need from the communication? Are you looking for input or discussion; are there decisions to be made; do you want to provide technical or general information; etc.?

One of the key principles of effective communication is “keep it simple.” Information should be presented in clear, simple language, using basic terminology. The point behind community participation is to encourage face-to-face communication with the people who want to learn what your group or organization is proposing.

It is a good idea to develop a plan or strategy for providing information and opportunities for discussion. Timelines associated with decision-making processes, such as the period for consultation designated in a bylaw, may affect the plan. As the process unfolds, it will be useful to review your plan to see that it is meeting the needs that were identified.

Preparing for discussionWhether formal or informal, discussions can sometimes be challenging. Preparing for discussions will help to keep things focused and productive. Listed are some considerations:

• Gather information. Summarize communitystrengths, weaknesses, opportunities and threats.

• Get to know the community and individuals inthe community. Remember that there are usuallythree factions – for, against and undecided. It isimportant to understand each.

• Be prepared to listen. Think about how you willdemonstrate this.

• Think about how you will respond – not react – tonegative comments or comments that differ fromhow you view the project. Remember that yourgoal at this point is to gather information, notto debate with the participants, nor is it to defendyour position. If you find yourself responding toparticipants’ concerns with “Yes, but”, “You don’tunderstand”, “We have studies that show…” youmay be debating or defending, at which point youare no longer listening to what people are saying.

• Be clear on the parameters for discussion. Whatdecisions have been made and what is actuallyup for discussion?

• Consider what compromises you are prepared tomake.

• Determine how you will collect ideas/options ifthere is a large group present.

• Decide how you will communicate with theparticipants after the meeting.

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This checklist will help you plan and prepare for your events:

• Who will be responsible for implementing the plan?

• What tools will be used to provide information or an opportunity for discussion (newsletters, media, open houses, BBQ)?

• Will you formalize responsibilities at the various events (who does what, when and where)?

• Have you anticipated potential difficulties and decided how you might respond?

• Do you need a budget for printing and distributing information, renting halls and/or providing refreshments?

• Who will be the contact for local media and what steps should be taken to ensure a working relationship with them?

• What is the best time to hold an event?

• What is the purpose of the event – to inform or consult? Will the event provide a formal opportunity for comment and discussion?

• Will you need a chair or master of ceremonies for the event?

• Will the event include a formal discussion? If so, designate a recording secretary.

• How will you promote the event and its purpose – posters, local media?

• Will you have information packages available at the meeting? If not, provide a sign-up sheet for people who want to receive the packages following the meeting.

• Who are the formal and informal leaders in the community who need to be involved in the consultations? Talk to them to ensure that they are informed – and encourage them to attend.

• Are there groups within the community that should be consulted that may need assistance to attend (i.e. seniors)?

• How do people get in touch with you after the meeting should they have comments or questions? Not everyone is comfortable speaking in public, so it is helpful to have a comment/question sheet, complete with a contact name (phone, address and e-mail), return instructions and timeframes for people to take home.

• When you wrap up the formal process, what further information needs to be communicated to the community, who will be responsible for co-ordinating this, and who will be responsible for any ongoing communications regarding the project?

Planning for Events

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Effective Tools for Public ParticipationThere are many tools from which to choose when involving the community in the decision to set up an intensive livestock operation. The following outlines a few of the possible tools, lists the pros and cons and provides some examples.

PublicationsWritten information about your project can take a variety of forms: media releases; editorials/opinion pieces; bulletins; position papers; newsletters and discussion notes from stakeholder meetings; or annual reports from other similar projects.

The PRojecT SummaRyThe Project Summary is often the first piece of written material that should be prepared. It outlines who you are, what you are planning and when and how you will accomplish things. Not only does it provide potential investors and supporters with necessary information about your project, it can help you organize and focus your efforts as well. It should include information on:

• timelines;• the type of production;• the number of animals and employees;• business partners;• business structure;• anticipated benefits to the community;• preliminary site plans (if available);• pictures of existing facilities; and • other information to help people understand your

project.

Project summaries can be stuffed in papers and mailboxes to provide information to the entire community.

cons

• Preparation of the material is time-consuming and may require specialized assistance.

• May “entrench” your group’s position. • Does not allow feedback from or interaction

with the community.

Pros

• Ensures that a consistent message is being sent effectively.

• Acts as a starting point for all future discussion.

• Can set the stage for interaction among participants when combined with workshops or advisory boards.

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Vision of acme Livestock Producers In one sentence, describe what your goal is for your operation. (i.e. Acme’s vision is to become a top livestock producer and a partner in Acmeville.)

Who We are Provide a history for you or your organization. Becoming known in the community is the first step towards building trust.

What We are Doing Provide an appropriate description of the type of livestock production unit you are planning (i.e. farrow-to-finish hog barn, cow-calf operation, beef feedlot), your reasons for choosing it, information on other operations that you may be involved with.

how We are Doing It Provide a description of the anticipated financial and business models, the proposed facilities, number of employees and animals, the feed strategy (whether feed will be purchased locally) and the environmental management plan (plans to minimize and contain any potential environmental harm).

When We are Doing It Provide information on the timelines for consultation and anticipated development activities.

Why We are Doing It Outline the benefits of this project to the company, the community, local farmers and others.

Be honest and direct. There is no need to gloss over the fact that you are a business which intends to make money but, while doing so, you can help others in the community profit as well.

NeWSLeTTeRSNewsletters can include background information on your company, such as photographs and short articles on your staff, other projects that your group has done, communities where you already have operations, new technology that will be incorporated into this project, and stakeholders’ hopes and goals for the project. Publishing a newsletter is a good way to get a wide variety of accurate and timely information to the community. A monthly or bi-monthly newsletter can be a useful means for distributing progress reports to the community. Photographs (aerial photos are often helpful) of an existing facility similar to the one under consideration can be useful. It can be reassuring to see how the facility will look on the landscape.

INfoRmaTIoN BuLLeTINSInformation bulletins can be used to provide the public with concise, clearly written information on a specific aspect of the project or of the industry in general – for example, to give details of the odour-management plan or discuss the importance of bio-security protocols. These sheets can be made available at open houses or public meetings, handed out during one-on-one meetings, or mailed out in response to written questions/comments. An information sheet should not usually be longer than a page or two, and should be factual rather than promotional.

SamPLe PRojecT SummaRy

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Bio-Security and high health Status: What Do They mean?

Why are bio-secure facilities necessary? They protect our animals from disease.

Most of the pigs produced today are classified as “High Health,” which means that they are free from many of the diseases that affected pigs in the past. To ensure that pigs remain healthy, the pork industry has implemented stringent bio-security protocols to keep the barns and animals secure from harmful organisms that can travel on people, in their clothes or dirt attached to their footwear. We are building a “High Health” facility, which means that we and all our visitors must follow a protocol before entering the barns. For example, you cannot have been to a farm that has pigs in the past 60 hours; and you must shower prior to entering the facility and wear the clothes provided to you while in the barn. If people would like a tour of our facility, call us and we can discuss a visit. The animals we raise are our livelihood – as a result, we want to do everything we can to protect their health and welfare. It can take as little as a single lapse in our bio-security protocol to result in sick pigs.

contact name and number:

Mr. John Smith, President

Acme Livestock Producers

Tel: (306) 555-1234

Fax: (306) 555-2345

SAMPLE INFORMATION SHEET

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Media ReleasesMedia releases can be written by the proponents and provide an opportunity to create positive coverage of your project, refute potential negative coverage and respond to emerging issues. Media releases can announce an open house or public meeting, highlight a project milestone (i.e. environmental approvals, development approvals, sod turning, grand opening) or address an emerging controversy.

A media release should be written and organized as if it were a regular news story. It needs a headline, an opening sentence that states the essence of the story, several paragraphs that discuss specific details (including one or two direct quotes from a spokesperson) and the name and telephone number of a contact person (usually, but not necessarily, the spokesperson). A media release, like a newspaper article, should be organized with the information appearing in diminishing order of importance (i.e. put the least crucial facts/statements at the end). Editors frequently shorten articles to fit the space available, and this arrangement allows them to easily cut the last paragraph(s) without affecting the integrity of the story. Consideration could be given to producing a detailed media backgrounder on your project to attach to any media release.

January 16, 2007

ACME LIVESTOCK PRODUCERS TO BUILD HOG BARN IN THE COMMUNITY OF ACMEVILLE

Acme Livestock Producers (ALP) is planning to build a 2,400-head farrow-to-finish hog operation in the community of Acmeville, ALP’s President John Smith announced today.

“After extensive consultation with the community, our group has chosen Acmeville as the best possible site for our hog operation,” Mr. Smith said. “The citizens have been very welcoming, and I would like to thank Reeve Jane Brown and council for their interest and assistance on this project.”

The ALP facility will immediately create XX temporary construction jobs and XX full-time jobs, once construction is completed in the spring of 2008. ALP’s animals will consume approximately XXX tonnes of feed grain per year, the vast majority of which will be sourced from local producers. The economic spin-offs of the facility are anticipated to be $XX million to $XX million per year.

”We’re delighted that ALP has chosen our community for its operation,” said Reeve Brown. “We’re a big grain and livestock community here, and ALP fits perfectly with our plans for rejuvenating our economy.”

The ALP facility will use the latest in manure application systems, providing surrounding farmers with manure fertilizer for both crop and forage production.

“At ALP, we believe that pigs and communities can live in harmony,” said Mr. Smith. “We are committed to being at the forefront of an environmentally sustainable livestock industry and being a strong community partner.”

- 30 -

For more information, contact:

Mr. John Smith, President Acme Livestock Producers Tel: (306) 555-1234 Fax: (306) 555-2345

SamPLe meDIa ReLeaSe

Note: - 30 - means “the end.” It indicates that any subsequent text is not part of the news release.

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hINTS foR makINg The moST of The meDIaWhile the public tends to think of the media as a single entity, there are actually several types of media, each of which requires something slightly different from a media release. You do not necessarily have to produce a separate release for each media group, but understanding their different needs will increase your chances of the story being used.

• Weekly newspapers The local weekly newspaper will be your best means of getting information about your project out to the local population. Of all media, weekly newspapers are the most likely to attend your open house/meetings – and many weeklies will often run your release in its entirety as an article of news. Since local newspapers influence the local “coffee row” debate, it is important to develop a positive working relationship with the editor. Setting up a meeting with the newspaper to explain your project’s objectives will provide the editor with some background, a frame of reference and a contact.

Even after the project is up and running, the weekly newspaper can be used to continue to build or maintain public support. The first year anniversary can be an opportunity to place an advertisement, complete with a staff photo, thanking the community for its support. Company-sponsored community events, such as a barbeque or bonspiel, can be promoted through the newspaper.

• The agricultural media There are a variety of media that deal exclusively with agriculture,

ranging from The Western Producer to the TV show FarmGate to industry publications. These media are targeted specifically toward producers, and are usually more receptive to agriculture-related stories than the general interest media.

• Radio stations There are a number of radio stations that serve rural Saskatchewan and take a particular interest in agriculture. Arrange a meeting with the station manager/agriculture reporter, and provide him/her with background information on your project. While the media release sent to the newspapers is sufficient to get your information across, you may want to consider writing a broadcast version of the release, which can be read by the on-air agriculture reporter.

• Daily newspapers There are four daily newspapers in Saskatchewan: the Regina Leader-Post and the Moose Jaw Times-Herald in the south, and the Saskatoon Star-Phoenix and the Prince Albert Daily Herald in the north. The dailies are unlikely to run your media release unabridged. The most you can usually expect is an interview with a supportive business or agriculture reporter – and your project may get a reference in a business column, which will give your project considerable legitimacy in the eyes of potential investors. The daily papers are much less likely than the local weekly to send a reporter to cover your event unless it is somehow relevant to their urban readership, or controversial.

• Television Television is the most labour-intensive and complicated method of news gathering, and the most expensive. Television clips are short and, as such, are more suited to conveying ideas in broad strokes, and from a single perspective (i.e. opposition to your project), than to exploring several sides of a particular issue (i.e. why your project is good for the area). In Saskatchewan, there are a number of television features that highlight agriculture. You may wish to approach your local television station to determine whether your development (during construction or once operational) might be of interest to them. A longer time slot would provide an opportunity to talk about the project, its benefits and involvement of the community and local farmers. You should always include the TV newsrooms in any media release distribution, but should not expect them to dispatch a reporter to your event. In fact, the presence of a TV reporter at your event may be evidence that your project just became a bit more complicated.

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FeedbackfocuS gRouPSFocus groups are an informal, yet structured, process for collecting information. In a focus group setting, selected participants provide their reactions to specific issues. Sessions are typically two hours and have a moderator, whose role is to maintain the focus of the group on a particular issue or topic.

TaLk-Back LINeSA talk-back line is a designated phone line, staffed by a person who understands the project and can respond to questions as well as collect opinions and ideas. The line could be staffed during business hours and connected to a voice message service in the evenings.

Pros • Access - people are able to call as ideas and

questions come up. • Doesn’t necessarily require office space. • Can be operated over an extended period of time

and change its role in response to changing issues.

cons• Staff must be knowledgeable to ensure

responses are accurate. • May become costly (staff time and extended

hours) .• Crank calls may become a problem. • Feedback can be unfocussed, irrelevant.

Pros• Provides an opportunity to determine the range of

views on a specific issue. • Can explore specific questions, issues and plans. • Participants are able to hear other ideas and

test their thinking against the reactions of other participants.

• Can produce more thoughtful results. • Useful for conducting background research prior

to consultation. • Can be used at the end of the consultations to

test how comfortable people are with the process and the outcomes.

cons• Quick response and reaction. • Group discussion may wander. • Moderators need to do research and keep the

discussion focused. • Care must be taken not to over-generalize the

results. (The views of the focus group may not be representative of the general population. )

• No opportunity for a detailed response unless the number of questions is limited.

• Various costs can be incurred when using focus groups.

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QueSTIoNNaIReS Questionnaires that require responses in either a long-answer, multiple-choice or sliding-scale format can be a useful means of soliciting input from the public.

MeetingsoPeN houSeSAn open house is a planned event that allows stakeholders to meet with project proponents, staff and third parties (industry associations, municipal organizations, university researchers, consultants and/or government officials), in an informal setting, to obtain information and to discuss specific issues relating to the project.

The space allocated for the open house should be large enough to permit small groups of people to talk in relative privacy while allowing good visibility throughout the entire area.

Pros • Ensures a local presence. • Provides a good opportunity for stakeholder

relationship-building and interaction. • Provides a good understanding of stakeholder

values and interests.

cons• Can become costly (rent, staff, overhead),

especially over a long period of time.

SToRe fRoNT offIceSA store front office can be set up in the community to encourage the public to drop by to obtain information, ask questions and voice concerns regarding the potential project.

Pros • Can be extended to a wider segment of the

public. • Can gather information from citizens who might

not attend meetings. • Can be tailored to reflect the local nature of the

issue. • Can be conducted via mail, computer or

telephone.

cons• Some members of the public will not take part. • Difficult to develop effective questions. • Low rate of return.• Difficult to statistically analyze.

Pros • Opportunity for the public to meet the proponents

and their staff. • Opportunity for the public to ask specific

questions of a number of individuals and agencies with various areas of expertise.

• Allows for informal discussions that are usually more positive.

cons• Requires planning (location, date, lining up

participants, refreshments, etc.). • Time consuming – often these events are long

(four to five hours) in order to allow people to drop in throughout the day or evening.

• Some people may want to turn it into a public meeting.

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INfoRmaL SocIaL eVeNTSInformal social events include things like coffee parties, wine and cheese nights and barbeques. They provide an opportunity for casual discussions and conversation between project proponents and the public.

WoRkShoPSWorkshops are formal meetings that involve the proponents and other invited individuals. The purpose of a workshop is to interactively discuss and address specific questions. Workshops can be used at any point in the consultation process, and may be especially useful if there is a need to address specific issues or develop options. Workshops should use trained facilitators who keep the discussions focused, get everyone participating and move the group toward its objectives.

Pros • Informality makes it non-threatening, and it is

often a good way to gauge opinions and get a sense of the issues.

• Allows pooling of information and experiences, exchanging viewpoints.

• Can enhance understanding, trust and confidence. • Important in initial stages of a project/proposal.

cons• Everyone must be made to feel welcome and

positive discussion should be encouraged. • Sometimes individuals may take advantage of

the informality to become argumentative. • Proponent groups will need to spend some time

preparing – messages must be clear, and all members of a proponent group must carry the same message.

• Lack of documentation.

Pros • Can be effective and satisfying for participants,

as they become part of a process that is working through and/or analyzing a particular issue or question.

• People in the community can contribute both local knowledge and/or specific expertise.

• The outcomes are defined – they may be answers, options or next steps.

cons• Requires careful planning and organization.

Problems need to be carefully defined and participants carefully selected.

• Proponents must spend time with facilitators to brief them on project, issues.

• There is no guarantee that consensus will be achieved.

• Outcomes may reflect a lack of support for the project, or may identify unrealistic options.

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• Introductions• Purpose – A review of what has happened so far. This brings people up to date and helps them

focus on the issues at hand.• Rules of conduct – Clarification on how people are expected to bring forward their comments/

questions. • Brief overview of proposal (10 – 15 minutes) – A verbal presentation accompanied by a written

summary. • Presentations relating to the project – Presentations from project consultants, invited guests or

other knowledgeable sources. • Question and answer session.• Closing summary and identification of next steps.

keePINg The DIScuSSIoN focuSeD Ideally, a good public participation process will eliminate the need to hold a public meeting and can be a useful tool with good management and planning. The format for the meeting will depend on who has called or planned the meeting. In some cases, the rural municipality will call the meeting and provide the proponent with an opportunity to present his/her information and participate in a question and answer period. In other cases, the meeting may be called at the request of the ratepayers. Alternatively, the proponent might choose to host a public meeting where local residents can hear about the project, ask questions and/or comment. Regardless of who calls the meeting, it is a good idea for all involved to come prepared. Consult earlier section on “Preparing for Discussion” and “Planning for Events.” In addition, have a firm agenda and a strong chairperson.

PuBLIc meeTINgSPublic meetings are formal public forums. Depending on how the meeting is structured, there is generally an opportunity for a question and answer period.

Pros • The proponents show that they have confidence

in their project and are not afraid to address concerns – even in a potentially adversarial forum.

cons• Requires extensive planning and preparation of

the committee and potentially other participants .• Requires an experienced chairperson to make

sure discussion stays focused and respectful. • Meetings are often adversarial and/or emotional. • Agenda can be hijacked. Can easily deteriorate.

SamPLe ageNDa

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The discussion will be somewhat dependent on what decisions have been made thus far (i.e. has a decision been made on a particular operation or is livestock just one development option under consideration?). Nevertheless, when emotions are high, discussions can get sidetracked. The chairperson must attempt to stimulate productive discussion. This can be achieved by prompting discussion with specific questions, such as:

• What are your thoughts about this project/potential project?

• What might the challenges be?• What might the benefits be?• Are there other options that could be considered?• Are there compromises or solutions that you feel

should be explored?A successful meeting will provide participants with appropriate information and with an opportunity to be heard. Another possibility is to explore other options for livestock development or compromises and/or solutions to particular issues. In this case, someone needs to be appointed to move those solutions forward. Workshops, focus groups and open houses can be used to provide information or create discussion on different options.

ConclusionUntil recently, public participation focused on little more than keeping the public informed. However, society’s growing interest in environmental issues has led to an increased demand for true public participation.

The public participation process may present challenges, but it also allows communities to express issues and concerns, participate in discussions, and possibly be part of the solution. This is the basis for positive long-term relationships between the proponents and communities.

It is not the facts which guide the conduct of men, but their opinions about facts; which may be entirely wrong. We can only make them right by discussion.

- Norman Angell

 

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