Public EngagementRecommendations on good practice for Local Authorities delivering renewable energy projects

FINDINGS FROM AN MSC PROJECT SPONSORED BY BRADFORD MDC AND JBA CONSULTING

This good practice guide was derived from research, conferences and workshops, as a part of an Leeds University MSc student project sponsored by Bradford MDC and JBA Consulting. Six Local Authority-promoted schemes were identified during the research providing case studies for the main study, which have been used to inform this Guide. The case studies are:

A hydroelectric power scheme has been proposed in Saltaire, on the Mill weir on the River Aire. It would have a maximum power capacity of 83kW, require an investment of £1.15 million and generate between £569,000–£1,290,000 over a 20 year period (JBA Consulting, 2012; Horsman, 2013).

Cornwall Council owns an operational 5MW solar park located in Trebarber. It cost £6.5 million to install and generates £700,000 a year. The council has also announced a potential wind farm; ten sites have been identified (Anonymous, 2013b; Cornwall council, 2012a; Cornwall council, 2012b).

This Local Authority owns an operational 230kW hydroelectric scheme, located on the Longbridge weir on the River Derwent. It required an investment of £2.9 million and is estimated to generate £250,000 per annum (Davies, 2013).

Peterborough City Council has submitted planning applications for three solar parks on grade 1, 2 and 3 council-owned agricultural land. There is potential for two of the sites to include wind turbines. The development is estimated to cost £51 million and to generate a net income of £115 million over a 25 year period (Anonymous, 2013).

Council owned wind turbines were proposed in the north-east of Sheffield. The scheme became an election issue and was subsequently dropped (Nolan, 2013).

A demonstrator anaerobic digester was operational between 2006-2012 on Ludlow Business Park. It was owned by South Shropshire Council and operated by Biocycle South Shropshire Limited. It has produced 1,300 MW of electricity and 1,700 MW of heat and cost £3.5 million to install and approximately £160,000 per annum to operate (DEFRA, 2009).

Why public engagement is crucialA wind turbine scheme was proposed by Sheffield City Council and quickly became an election issue and the project was subsequently dropped. Public engagement began prior to feasibility studies, which meant there was little information available, and uncertainty was the main reason for opposition (Nolan, 2013). This experience illustrates the importance of carefully considering public engagement and the influence it can have on gaining acceptance of a scheme.

Public engagement and council-owned green energy schemes

Public engagement is an opportunity to gain support for green energy projects but can lead to resistance and the ultimate failure of a scheme (Nolan, 2013; Anonymous, 2013a; Horsman, 2013). This good practice guide provides advice on public engagement processes, with the aim of gaining support for council-owned green energy projects. Six areas are covered in this guide:

1. Identifying stakeholders

2. Public engagement methods

3. Public engagement timeframe

4. Engagement objectives

5. Project context

6. Summary

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POTENTIAL STAKEHOLDER EXAMPLES POSSIBLE REASONS IDENTIFIED FROM CASE STUDIES

Directly affected

Affected Local Authority tenants Residents in close proximity to the scheme

Tenants who depend on the land for their livelihoods

Construction of the scheme may cause noise and air pollution, impact views, as well as restrict access and cause traffic jams. When operational the development may impact views, cause noise pollution and shadow flicker (wind turbines).

Residents may lose their livelihoods, for example, through loss of land.

Local residents Residents living within the town, village or city region

The construction and operation may restrict access, cause traffic jams, impact on green spaces and local views.

Wider community Residents living in surrounding area Access may be restricted and traffic jams may occur during the construction phase. The scheme may impact green spaces.

Community organisations/groups Schools, playgroups and crèches

Village society

The scheme may provide funding for community projects which may secure or enhance these services.

A village society would be interested in the impacts of the scheme on the village and local area.

Recreational groups that utilise the site’s amenities

Fishing and walking groups The proposed scheme may cause legislative restrictions to be enforced – such as fishing restrictions associated with a fish pass. The scheme may impact the landscape and therefore the recreational use of the landscape.

Non-Governmental Organisations (NGOs)

Renewable energy interest groups

Specialist environmental groups

A local group could be interested in renewable energy technologies and as a consequence the proposed scheme.

Could have wildlife/environmental concerns about a development.

Individuals travelling to the area Commuters, school children and parents

Access may be restricted and traffic jams may be present during the construction phase.

Staff and users of council owned buildings

Schools, libraries and leisure centres The scheme may provide cheaper electricity to these organisations, which may have positive impacts on this stakeholder group.

Indirectly affected

Businesses Local restaurants and shops During construction, workers will be present, which may increase sales. Conversely, construction may limit accessibility to the business and decrease trade. The scheme may attract tourism when operational and conversely it may detract.

Internal stakeholders

Council members

Local Authority officers

Different departments in the LA The department may be involved in the scheme at a later date or be questioned about it by members of the public.

It can help develop internal support for the scheme.

Identifying stakeholdersThere are individuals, groups and organisations that need to be engaged when developing a council-owned green energy project. A proposed scheme can impact stakeholders — both directly and indirectly.

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POTENTIAL STAKEHOLDER EXAMPLES POSSIBLE REASONS IDENTIFIED FROM CASE STUDIES

Directly affected

Affected Local Authority tenants Residents in close proximity to the scheme

Tenants who depend on the land for their livelihoods

Construction of the scheme may cause noise and air pollution, impact views, as well as restrict access and cause traffic jams. When operational the development may impact views, cause noise pollution and shadow flicker (wind turbines).

Residents may lose their livelihoods, for example, through loss of land.

Local residents Residents living within the town, village or city region

The construction and operation may restrict access, cause traffic jams, impact on green spaces and local views.

Wider community Residents living in surrounding area Access may be restricted and traffic jams may occur during the construction phase. The scheme may impact green spaces.

Community organisations/groups Schools, playgroups and crèches

Village society

The scheme may provide funding for community projects which may secure or enhance these services.

A village society would be interested in the impacts of the scheme on the village and local area.

Recreational groups that utilise the site’s amenities

Fishing and walking groups The proposed scheme may cause legislative restrictions to be enforced – such as fishing restrictions associated with a fish pass. The scheme may impact the landscape and therefore the recreational use of the landscape.

Non-Governmental Organisations (NGOs)

Renewable energy interest groups

Specialist environmental groups

A local group could be interested in renewable energy technologies and as a consequence the proposed scheme.

Could have wildlife/environmental concerns about a development.

Individuals travelling to the area Commuters, school children and parents

Access may be restricted and traffic jams may be present during the construction phase.

Staff and users of council owned buildings

Schools, libraries and leisure centres The scheme may provide cheaper electricity to these organisations, which may have positive impacts on this stakeholder group.

Indirectly affected

Businesses Local restaurants and shops During construction, workers will be present, which may increase sales. Conversely, construction may limit accessibility to the business and decrease trade. The scheme may attract tourism when operational and conversely it may detract.

Internal stakeholders

Council members

Local Authority officers

Different departments in the LA The department may be involved in the scheme at a later date or be questioned about it by members of the public.

It can help develop internal support for the scheme.

Potential stakeholders and the reason for their interest are shown below. Identifying and understanding stakeholder interests at the outset is crucial for engagement planning.

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Public engagement methodsDifferent public engagement methods and locations will attract different audiences (Cornwall Council, 2012c; Cornwall Council, 2013). The audience should be considered and appropriate engagement methods should be used to encourage discussion. From the research findings, a list of methods and channels, and the stakeholders they will potentially attract, is presented below to aid the engagement process.

METHOD CHANNEL ADVANTAGES AND LIMITATIONS

Personal communication

N/A Has the potential to build positive relationships and dispel misinformation but can be expensive and time-consuming (Davies, 2013).

Public meeting Parish council

Allows direct interaction with stakeholders but can attract more actively interested members of the public (Horsman, 2013).

Press release Local newspapers

Can communicate information with a variety of groups but is a passive form of communication (Anonymous, 2013b; Davies, 2013).

Cabinet report Internet Allows the public to comment on proposals but a technical document is likely to attract members of the public with an understanding of council processes and technical factors (Anonymous, 2013b).

Dedicated website

Internet Can communicate up-to-date information, but is unlikely to reach older members of the public who may not be as familiar with the internet.

Social media Internet May reach younger members of the public who are familiar with this medium. Social media can be very interactive but does require staff time to maintain with current information.

Open days On site Can gain support and allay fears about new technologies (Davies, 2013; Simpson, 2013). However, it can be time consuming to organise and host.

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Communicating the positive impactsCornwall Council engaged with local schools regarding the financial contributions the school would receive from their solar park scheme. This helped the community understand the direct benefits of the scheme (Anonymous, 2013b).

Internal supportA scheme for three solar parks in Peterborough has been very controversial. There has been much opposition within the council itself which has made the process more difficult (Anonymous, 2013a).

Public engagement audience A community network derived from attendees at past public meetings was used to communicate the discussion of the proposed hydroelectric scheme at a public meeting. This attracted an audience of above forty. If a similar project was pursued, Bradford Metropolitan District Council would target a wider audience (Horsman, 2013).

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Public engagement timeframeIt is recommended that public engagement be on-going over the entire development process (Cornwall Council, 2009). Engaging with the public throughout the operation of the green energy scheme can foster positive relationships with local residents which are useful if/when issues arise (DEFRA, 2009).

There is no clear stage to begin public engagement and there will always be a compromise between the transparency of the project and distress caused by providing information about potential schemes which may not be implemented (Nolan, 2013). However, it is clear that information provided across the stages of the public engagement process should be tailored accordingly. Otherwise, schemes may seem more advanced than they are, councils may be perceived as withholding information and queries may be difficult to answer (Horsman, 2013; Anonymous, 2013b; Nolan, 2013). Two stages at which public engagement can begin are given below along with management suggestions.

• Prior to and during feasibility studies. Expectations of the proposal need to be managed, with the amount of available information being made clear. It is inevitable that some questions will be unanswerable (Anonymous, 2013b).

• Post feasibility studies. How the information is portrayed is crucial for giving a first impression of the project. It is important that the project is not perceived as more advanced than it is in reality, and that it is made clear that the views of the public are still sought.

Concept Feasibility studies Planning application

Initial engagementA wind turbine scheme was proposed by Sheffield City Council last year. The public engagement process began prior to feasibility studies, which meant information about the scheme was limited, and public uncertainty was the main reason for the project being dropped (Nolan, 2013).

Good relationshipsSouth Shropshire Council developed good relations with local residents by engaging with them before and during the operation of an Anaerobic Digester (AD). These positive relationships later proved useful when dealing with odour issues that the AD developed (DEFRA, 2009).

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Engagement

Engagement objectivesThe objectives and motives of the public engagement process as well as an evaluation method should be considered before engagement begins (Cornwall Council, 2012c). This will aid in structuring the public engagement process and will influence the quantity, methods and timeframe. It is important that the direct and indirect benefits of the project are communicated as well as the short, medium and long term impacts of the scheme. A framework can be developed to ensure information is communicated clearly (Kitcher, 2013; Needham, 2013). The information given should be relevant and tailored to stakeholders, and there should be a clear take-home message (Davies, 2013).

Approval Construction Operation

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Engagement

Project contextThere are other factors that can influence how the public respond to a LA-owned green energy scheme, and these aspects need to be considered when designing public engagement. Four key aspects regarding project context were identified during the research project:

• location of the proposal

• public’s perception of the council

• type of technology

• culture of the area

The public engagement process can influence how aspects of a project are received. A good track record with regard to green energy projects could be developed, which can increase trust in a council as well as alter the public’s perception on green energy technologies. This could be done by developing less controversially perceived technologies, such as solar panels, and then moving on to more controversial projects. This worked well for Cornwall Council, which currently has an operational 5MW solar park and is planning a wind farm (Anonymous, 2013b). Some aspects of a project cannot be dealt with by public engagement (Horsman, 2013; Anonymous, 2013a). It is important to be upfront with the public about these issues and use the engagement process as an opportunity to explain the project context.

Site locationThe scheme proposed by Bradford Metropolitan District Council received opposition because of its location in Saltaire, a UNESCO world heritage site (Horsman, 2013; UNESCO, 2013).

Local authority reputation It was suggested that residents of Peterborough were using the scheme as an opportunity to protest against the council (Anonymous, 2013a).

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ReferencesAnonymous. 2013a. Interview with Lowri McCann, 18 June.

Anonymous. 2013b. Telephone interview with Lowri McCann, 18 June.

Cornwall Council. 2012a. Renewables Update – September 2012 [online]. [Accessed on 12 June 2013]. Available from: https://democracy.cornwall.gov.uk/documents/s51566/Renewables%20Update%20-%20September%202012.pdf.

Cornwall Council. 2012b. Council approves ambitious £16m programme to reduce Cornwall’s carbon emissions and invest in renewable energy [online]. [Accessed on 12 June 2013]. Available from: http://www.cornwall.gov.uk/default.aspx?page=32411.

Cornwall Council. 2012c. Cornwall Council Neighbourhood Planning Consultation and Engagement Toolkit [online]. [Accessed on 17 June 2013]. Available from: http://www.cornwall.gov.uk/default.aspx?page=32700.

Cornwall Council. 2009. Community Engagement Strategy [online]. [Accessed on 17 June 2013]. Available from: http://www.cornwall.gov.uk/default.aspx?page=20174.

Davies, G. 2013. Interview with Lowri McCann, 9 July.

Department for Environment Food and Rural Affairs (DEFRA). 2009. Demonstration Project: Biocycle

South Shropshire Limited Biowaste Digester [online]. [Accessed on 21 June 2013]. Available from: http://archive.defra.gov.uk/environment/waste/residual/newtech/demo/documents/Biocycle-final.pdf.

JBA Consulting. 2012. Saltaire Hydropower Feasibility Study [online]. [Accessed on 3 July 2013]. Available from: http://www.bradford.gov.uk/NR/rdonlyres/6B4DD4ED-EB89-400E-BAEE-80F0D89062AC/0/SaltaireWeirHydroFeasibilityStudy.pdf

Kitcher, M. 2013. Yorkshire Powering Prosperity [Insider conference]. Yorkshire Powering Prosperity, 26 June, Leeds.

Nolan, A. 2013. Interview with Lowri McCann, 20 June.

Horsman, D. 2013. Interview with Lowri McCann, 14 June.

Needham, M. 2013. Yorkshire Powering Prosperity [Insider conference]. Yorkshire Powering Prosperity, 26 June, Leeds.

Simpson, P. 2013. Yorkshire Powering Prosperity [Insider conference]. Yorkshire Powering Prosperity, 26 June, Leeds.

United Nations Educational, Scientific and Cultural Organisation (UNESCO). 2013. Saltaire [online]. [Accessed on 15 July 2013]. Available from: http://whc.unesco.org/en/list/1028.

SummaryA council’s approach to public engagement for green energy projects depends on the council’s values and the project context. It is recommended that a council considers the implications of public engagement objectives, content, methods, timeframe and first impressions. The context of the project can impact the acceptance of a council-owned green energy project. It is suggested that where possible the scheme should be developed to reduce opposition; otherwise public engagement activities should anticipate negative response and implement mechanisms to minimise and deal with this response.

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Salts MillVictoria RoadSaltaire, ShipleyWest YorkshireBD18 3LFUNITED KINGDOMwww.jbaconsulting.com

For more information, please contact

Steve Maslen, Head of Environmentsteve.maslen@jbaconsulting.com

or

Janet Spence, Stakeholder Engagement Leadjanet.spence@jbaconsulting.com