Politics, Knowledge and Politics, Knowledge and , g, gPublic Engagement: The Public Engagement: The

C f CCSC f CCSCase of CCS Case of CCS Simon Shackley and Ben EvarSimon Shackley and Ben EvarSimon Shackley and Ben Evar Simon Shackley and Ben Evar

School of Geosciences, University of Edinburgh School of Geosciences, University of Edinburgh

IssueIssue--Attention CycleAttention Cycleyy(after Downs, (after Downs, modified by O’Riordan)modified by O’Riordan) Quiescence with minor variations

f i i l t tof original status quo

Reining in by ?

Alarmed discovery power brokers

Euphoric reaction Counting the costs

Institutional design

IssueIssue--Attention Cycle applied to CCSAttention Cycle applied to CCSy ppy ppaa

Plans delayed, cancelled,thwarted, scaled-down?

Climate change impacts? Political activism and

deal-making on climate change ,

Ambitions changed?

Reaction against CCS NGOs p blics

?

on climate change and CCS?

Climate changeReaction against CCS: NGOs, publics,

some industry, some parts of government

CCS as solution: mid-1990s to present

Specific proposals on the table: costs, practicalities, roadmaps, barriers, etc.

Policy for CCS: Incentives & regulation (early- to mid-2000s onwards

Knowledge Production Cycle applied to CCSKnowledge Production Cycle applied to CCS

aa

Over-critical model (lack of political consensus): Knowledge contestation and

Controversy: accusation, blame, facts/values intermingled: high and

low politics Under-/over-critical

Under-critical model (presence political consensus): reliance on‘objective science’, simulation

models, trust in experts and lead organisations p

M d 1 di i li i lAs more contestation emerges, increased

Under /over critical models after Collingridge & Reeve (1986) ? ?Mode 1: disciplinary, universal,

cumulative, academic

g ,urgency for Mode 2 studies but also stakes

are higher: error-costs rise, ‘hard values, soft facts’

Establishes scientific and technical validity of CCS (geology,

engineering,

Includes costs, regulation, practicalities, acceptability, Infrastructure, etc.

Demand from Policy for Mode 2 knowledge: context-specific applied

techno-economics)

Mode 1 & 2 after Gibbons et al. (1994)Mode 2 knowledge: context specific, applied,

multi/trans-disciplinary (1994)

Does this imply a retreat to the discipline?Does this imply a retreat to the discipline?Does this imply a retreat to the discipline?Does this imply a retreat to the discipline?

“A discipline is defined by possession of a collective capital of “A discipline is defined by possession of a collective capital of specialised methods and concepts, mastery of which is the tacitspecialised methods and concepts, mastery of which is the tacitspecialised methods and concepts, mastery of which is the tacit specialised methods and concepts, mastery of which is the tacit or implicit price of entry to the field. It produces a ‘historical or implicit price of entry to the field. It produces a ‘historical transcendental’, the disciplinary habitus, a system of schemes of transcendental’, the disciplinary habitus, a system of schemes of perception and appreciation (where the incorporated disciplineperception and appreciation (where the incorporated disciplineperception and appreciation (where the incorporated discipline perception and appreciation (where the incorporated discipline acts as a censorship)”. acts as a censorship)”.

Pi B diPi B di S i f S i d R fl i iS i f S i d R fl i i (2004)(2004)Pierre Bourdieu, Pierre Bourdieu, Science of Science and ReflexivityScience of Science and Reflexivity (2004)(2004)

Can Mode 1 or Mode 2 science actually provide the consensualCan Mode 1 or Mode 2 science actually provide the consensualCan Mode 1 or Mode 2 science actually provide the consensual Can Mode 1 or Mode 2 science actually provide the consensual knowledge constructs needed? knowledge constructs needed?

Knowledge Implications of Non/ContestationKnowledge Implications of Non/Contestationdg p N /dg p N /

•• UnderUnder--critical model: technocratic tools, knowledgecritical model: technocratic tools, knowledge--constructs constructs adopted in Mode 2 but not sufficiently tested / scrutinised, soadopted in Mode 2 but not sufficiently tested / scrutinised, soadopted in Mode 2 but not sufficiently tested / scrutinised, so adopted in Mode 2 but not sufficiently tested / scrutinised, so policies / projects are less robust and vulnerable to ‘sidepolicies / projects are less robust and vulnerable to ‘side--swipes’ swipes’ or shocks or shocks

•• OverOver critical model: technocratic backlash / retrenchmentcritical model: technocratic backlash / retrenchment i ei e•• OverOver--critical model: technocratic backlash / retrenchment critical model: technocratic backlash / retrenchment –– i.e. i.e. increasedincreased use of instrumental technouse of instrumental techno--science in belief that ‘we science in belief that ‘we need to convince them we’re right …’. Whilst also need to convince them we’re right …’. Whilst also diversification diversification of knowledgeof knowledge constructs: from technical and scientific critiquesconstructs: from technical and scientific critiquesof knowledgeof knowledge--constructs: from technical and scientific critiques, constructs: from technical and scientific critiques, to social science critique, and range of participants in Mode 1 to social science critique, and range of participants in Mode 1 and Mode 2. More robust as discrete components, as more and Mode 2. More robust as discrete components, as more scrutinised; but less synthesis & integrationscrutinised; but less synthesis & integration so messy slowso messy slowscrutinised; but less synthesis & integration scrutinised; but less synthesis & integration –– so messy, slow, so messy, slow, confusing ……consensus elusive confusing ……consensus elusive

Andrew Jamison: the need for a Mode 3 or Andrew Jamison: the need for a Mode 3 or h b id i i i ?h b id i i i ?hybrid imagination?hybrid imagination?

•• At discursive / macroAt discursive / macro--levellevel: connecting science and : connecting science and // ggtechnology explicitly to social and environmental problems technology explicitly to social and environmental problems

•• At institutional or mesoAt institutional or meso--levellevel: organising spaces or sites for : organising spaces or sites for collective learning across faculties and societal domains collective learning across faculties and societal domains (experimentation in socio(experimentation in socio--technical transitions approach) technical transitions approach) ( p( p pp )pp )

•• At the personal or microAt the personal or micro--levellevel: combining scientific: combining scientific--technical technical competence with sociocompetence with socio--cultural understanding cultural understanding

The TechnoThe Techno--Science of Clumsiness?Science of Clumsiness?The TechnoThe Techno Science of Clumsiness? Science of Clumsiness?

•• ‘Gainly solutions & institutions’: elegant, analytical, optimsing, ‘Gainly solutions & institutions’: elegant, analytical, optimsing, objective, but ultimately brittle. (Mode 1 and Mode 2?). objective, but ultimately brittle. (Mode 1 and Mode 2?). j y ( )j y ( )

•• ‘Clumsy solutions & institutions’: messy, plural, frustrating, ‘Clumsy solutions & institutions’: messy, plural, frustrating, iterative, incremental and satisficing, but ultimately robust. iterative, incremental and satisficing, but ultimately robust. , g, y, g, y(Mode 3?) (Mode 3?)

•• If we need ‘clumsy solutions & institutions’ what kind ofIf we need ‘clumsy solutions & institutions’ what kind ofIf we need clumsy solutions & institutions , what kind of If we need clumsy solutions & institutions , what kind of knowledgeknowledge--constructs support clumsiness?constructs support clumsiness?

This is the complex and fraught context into which publicThis is the complex and fraught context into which publicThis is the complex and fraught context into which public This is the complex and fraught context into which public understanding, engagement and communication studies and understanding, engagement and communication studies and projects are being undertaken …… projects are being undertaken ……

Rationale for Studies of Public PerceptionsRationale for Studies of Public PerceptionsRationale for Studies of Public PerceptionsRationale for Studies of Public Perceptions

•• SubstantiveSubstantive: understanding : understanding howhow and and why why different groups of different groups of gg yy g pg ppeople think, perceive and feel the way that they do. people think, perceive and feel the way that they do.

•• InstrumentalInstrumental: undertaking a research and engagement activity: undertaking a research and engagement activity•• InstrumentalInstrumental: undertaking a research and engagement activity : undertaking a research and engagement activity to promote the successful design and / or implementation of a to promote the successful design and / or implementation of a CCS project (where it is assumed CCS project (where it is assumed a prioria priori that this is desirable). that this is desirable).

•• DeliberativeDeliberative: meeting the moral imperative and legislative : meeting the moral imperative and legislative requirements of participative democratic decisionrequirements of participative democratic decision--making.making.q p pq p p gg

11stst Generation StudiesGeneration Studies11 Generation StudiesGeneration Studies

•• Mostly focused upon gathering information on perceptions, Mostly focused upon gathering information on perceptions, y p g g p p ,y p g g p p ,knowledge, effect of information, role of trust, communications, knowledge, effect of information, role of trust, communications, etc. etc.

•• AcademicAcademic--focused: advancing disciplinary knowledge and testing focused: advancing disciplinary knowledge and testing hypotheses, etc. (substantive + deliberative): hypotheses, etc. (substantive + deliberative): yp , ( )yp , ( )

•• Hypothetical project focused Hypothetical project focused

22ndnd Generation StudiesGeneration Studies22 Generation StudiesGeneration Studies

•• More focused upon ‘actual’, nearerMore focused upon ‘actual’, nearer--toto--reality, projects reality, projects p ,p , y, p jy, p j

•• More focused upon More focused upon engagement engagement andand communication communication

•• More instrumental More instrumental

•• Wider range of stakeholders involvedWider range of stakeholders involved

Main Findings Presented to IEA of Research Main Findings Presented to IEA of Research d D P j Dd D P j Dand Demo Projects to Dateand Demo Projects to Date

•• CCS project development is vulnerable to poor public communications andCCS project development is vulnerable to poor public communications andCCS project development is vulnerable to poor public communications and CCS project development is vulnerable to poor public communications and engagement and could be thwarted by effective advocacy.engagement and could be thwarted by effective advocacy.

•• The local populace can (potentially dramatically) affect project developmentThe local populace can (potentially dramatically) affect project development•• The local populace can (potentially dramatically) affect project development The local populace can (potentially dramatically) affect project development and should therefore be considered a stakeholder on a par with traditional and should therefore be considered a stakeholder on a par with traditional expert and pressure groups such as government agencies, local development expert and pressure groups such as government agencies, local development agencies, and NGOs.agencies, and NGOs.agencies, and NGOs.agencies, and NGOs.

•• It is vital to explain CCS within the rationale of global warming, since the It is vital to explain CCS within the rationale of global warming, since the technology only makes sense to the public as a way of achieving deep cuts intechnology only makes sense to the public as a way of achieving deep cuts intechnology only makes sense to the public as a way of achieving deep cuts in technology only makes sense to the public as a way of achieving deep cuts in carbon emissions to avoid the adverse impacts of climate change.carbon emissions to avoid the adverse impacts of climate change.

Main Findings continued ….Main Findings continued ….d g dd g d

•• The public is not a single entity, but encompasses multiple subgroups divided The public is not a single entity, but encompasses multiple subgroups divided across lines of geography, income, education, historical interactions with across lines of geography, income, education, historical interactions with industry and public institutions, and culture.industry and public institutions, and culture.

•• Communities frequently struggle to engage with the technical and scientific Communities frequently struggle to engage with the technical and scientific detail and uncertainty surrounding a new technological innovation. Instead, detail and uncertainty surrounding a new technological innovation. Instead, the perceived trustworthiness of the institutions which are involved in the the perceived trustworthiness of the institutions which are involved in the p j t d i th pl i p ill h l i fl p p blip j t d i th pl i p ill h l i fl p p bliproject and in the planning process will have a large influence upon public project and in the planning process will have a large influence upon public perceptions.perceptions.

Main FindingsMain Findings –– continuedcontinuedMain Findings Main Findings continuedcontinued

•• The transparency and quality of the engagement process can determine The transparency and quality of the engagement process can determine whether the public finds the developer legitimate and trustworthy, and willwhether the public finds the developer legitimate and trustworthy, and willwhether the public finds the developer legitimate and trustworthy, and will whether the public finds the developer legitimate and trustworthy, and will play an important part in the public's decisionplay an important part in the public's decision--making process. making process.

•• People generally respond more positively to issues when they deem that theyPeople generally respond more positively to issues when they deem that they•• People generally respond more positively to issues when they deem that they People generally respond more positively to issues when they deem that they have been treated fairly, and responsive project planning and risk have been treated fairly, and responsive project planning and risk communication activities may therefore yield increased public support for communication activities may therefore yield increased public support for CCS.CCS.

Main Findings continued ……Main Findings continued ……Main Findings continued …… Main Findings continued ……

•• While it is difficult to estimate the costs associated with adequate public While it is difficult to estimate the costs associated with adequate public ff q pff q pengagement, the incremental costs are likely to be very small relative to the engagement, the incremental costs are likely to be very small relative to the overall project costs, and must be weighed against the considerable costs of overall project costs, and must be weighed against the considerable costs of project delays or cancellationproject delays or cancellationproject delays or cancellation.project delays or cancellation.

Project name Team Applications ReferencesProject name Team Applications References

ESTEEM Einhoven, ECN (Netherlands) Energy projects Raven et al. (2009)

Carbon Capture and Storage Communication Workshops

University of Calgary, IISD, Climate Change Central (Canada)

CCS projects Climate Change Central (2007) p g ( )

An Integrated Roadmap of Communication Activities Around CCS in Austarlia and Beyond

Centre for Low Emission Technology, CSIRO (Australia)

CCS projects Ashworth et al. (2007)

Breaking Ground: Engaging Communities in Extractive and Infrastructure Projects

World Resources Institute (USA) Extractive and infrastructural projects

WRI (2009)

Communicating the Future: Best Practices for Communication of Science and Technology to the Public

National Institute for Standards and Technology (USA)

All science and technology projects

NIST (2002)

ZeroGen New Generation Power – A Framework for Engaging Stakeholders

ZeroGen Pty Ltd., CSIRO (Australia)

CCS projects Simpson & Ashworth (2009)

Examples of Best Practice Public Engagement in CCS, Environmental and Energy Decision-Making and Planning (Mode 2 to 3?)

Project EngagementManagement Flow

Scoping the Context

Cl i !!P&S4

Publics and Stakeholders

P&S5

P&S3

P&S2

P&S1

Clumsiness!!

V1

V2

V3

ReflectionVisionion

g Proposed Collaborative1 2 3

Collaborative Visioning

Collaborative Visioning Process for CCS Project D l A

Possible Common Vision

Development: A Radical Departure from Existing Project

MonitoringToolkitEngagement Management

g jDecision-Making?

Engagement: From Manipulation to Partnership

Number Name Description

1 Manipulation Public involvement is focused upon trying to cajole the public into supporting a projectproject

2 Therapy Reassuring the public about a project

3 Informing Provision of information on request

4 Consultation Pro-active provision of information and response to questions

5 Placation / compensation Engaging in face-to-face public consultation, but only in response to conflict, controversy, etc.

6 Partnership I Open to suggestions from members of communities / stakeholders who are met individually or in a groupindividually or in a group

7 Partnership II Designs shaped / influenced by members of communities / stakeholders (broadly representative) who are met individually or in a group (discrete process)

8 P t hi III O i f i fl b b f iti / t k h ld (b dl8 Partnership III On-going process of influence by members of communities / stakeholders (broadly representative) who are met individually or in a group

9 Veto powers Local community is given veto powers over plant design, operation, etc.

The Engagement Ladder (modified after Arnstein, 1969)

Project EngagementProcess Overview

Exploratory

Hypothetical

Pilot

Large-Scale DemonstrationProject Type

Post-Completion Monitoring

Hypothetical

Engagement Pathway

3-6 months 6-36 months 2-5 years

Consultation

>30 yearsMin. 5 years

Citizen Jury

Town Meeting

SurveyNotes•Range of possible methods for public engagement activities. List is not exhaustive•Arrows indicate likely time horizons of activities•Fading colors indicate likely

Focus Group

Workshop

Community Liaison Committeeresource requirements at a given stage

Citizen Panel

Legend

Resources

Relevance

Criteria for Evaluation of Engagement Processes: Vital for Criteria for Evaluation of Engagement Processes: Vital for

Criteria Description

Public Acceptance

Rapid Learning (adapted from Rowe & Frewer (2000))Rapid Learning (adapted from Rowe & Frewer (2000))

Public Acceptance

1. Representativeness Representative sample of the affected population

2. Independence Process conducted in an independent, unbiased way

3 E l i l Th li h f i l h h f3. Early involvement The earlier the stage of involvement the greater the sense of ownership of the process, especially at the stage where value judgements are important

4. Influence Any participatory process should have a visible impact on policy

5 Transparency The public should be able to see progress and how decisions are5. Transparency The public should be able to see progress and how decisions are being made

Effectiveness of process

6. Resource accessibility Access to appropriate resources (information, experts, time, y pp p ( pmaterials) to enable them to fulfil their brief successfully

7. Task definition The scope of the exercise, the expected output and the mechanism of the procedure should be defined at the outset

8. Structured decision making To enable debate over the underlying assumptions of a decision, how h d i i d h hi h i dthe decision was made, the extent to which it was supported

Conclusions ….. Implications?Conclusions ….. Implications?

•• The practice of effective & successful engagement on CCS is in The practice of effective & successful engagement on CCS is in its early days, but we have to learn rapidly. its early days, but we have to learn rapidly.

•• A Mode 3 clumsy knowledgeA Mode 3 clumsy knowledge--production, involving a ‘hybrid production, involving a ‘hybrid imagination’, is needed. This encompasses traditional academic imagination’, is needed. This encompasses traditional academic g , pg , pknowledge, but also processknowledge, but also process--based facilitation skills and insights based facilitation skills and insights and other practical and socioand other practical and socio--cultural knowledge (bureaucratic, cultural knowledge (bureaucratic, regulatory experiential etc )regulatory experiential etc )regulatory, experiential, etc.) regulatory, experiential, etc.)

•• ‘Silo’ mentality of planning is convenient for government and ‘Silo’ mentality of planning is convenient for government and y p g gy p g gindustry, but not upindustry, but not up--toto--thethe--task of radical sociotask of radical socio--technical technical transitions that are now required.transitions that are now required.

The Future ……The Future ……The Future ……The Future ……•• Radical changes in project planning decisionRadical changes in project planning decision--making is desirable making is desirable

–– e.g. how to relate CCS projects to peoples daily life e.g. how to relate CCS projects to peoples daily life g p j p p yg p j p p yexperiences? How can CCS contribute to a local community’s experiences? How can CCS contribute to a local community’s sense of wellsense of well--being and sustainability (as defined by them, not being and sustainability (as defined by them, not government or a company or academics)?government or a company or academics)?g p y )g p y )

•• This is more complex than instrumental ‘planning gain’ or This is more complex than instrumental ‘planning gain’ or compensation packages Its more about meeting peoples’compensation packages Its more about meeting peoples’compensation packages. Its more about meeting peoples compensation packages. Its more about meeting peoples aspirations for a better life whilst also addressing climate change. aspirations for a better life whilst also addressing climate change.

•• E.g. how can sustainable transport, domestic energy efficiency, E.g. how can sustainable transport, domestic energy efficiency, cultivation of new energy technologies and jobs, or more cultivation of new energy technologies and jobs, or more sustainable communities be dealt with sustainable communities be dealt with as part ofas part of a CCS project? a CCS project? p fp f p jp j

Making Clumsiness Work?Making Clumsiness Work?Making Clumsiness Work?Making Clumsiness Work?

•• Clumsiness can help in joiningClumsiness can help in joining--up (finding commonality up (finding commonality between) divergent perceptions values issues and agendas but itbetween) divergent perceptions values issues and agendas but itbetween) divergent perceptions, values, issues and agendas, but it between) divergent perceptions, values, issues and agendas, but it needs a theory and practice. needs a theory and practice.

•• Work needs to be done to find a way of structuring clumsiness Work needs to be done to find a way of structuring clumsiness --rather than (or perhaps in addition to) a toprather than (or perhaps in addition to) a top--down theory, this down theory, this might require bottommight require bottom--up experimentation driven by local context up experimentation driven by local context and conditions ….. grounded theory + topand conditions ….. grounded theory + top--down heuristics?down heuristics?and conditions ….. grounded theory + topand conditions ….. grounded theory + top down heuristics? down heuristics?

•• Learning processes likely to be vital ….. But institutions have a Learning processes likely to be vital ….. But institutions have a poor trackpoor track--record here, so understanding record here, so understanding whywhy learning is hard is learning is hard is also important. also important.