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The project, undertaken by the Department of Health forthe Environment Agency, looks at how the publicperceives health risk using municipal waste incinerationas a case study. The report makes recommendations onways in which the Environment Agency and otherorganisations involved in regulation could help allay publicconcerns about health risk.

The project report is the result of two meetings at whichexperts were invited to discuss public perception of the

scientific issues behind the incineration of municipalwaste. The task was approached by reviewing theprocesses involved in permitting municipal wasteincinerators in England and Wales and the environmentaland health impact assessments that form an importantinput to these processes. Members then turned to ananalysis of those factors that tended to concern thepublic, especially those living close to a proposedincinerator. The role of pressure groups, the importanceof the increasing availability of scientific evidence (oftenvia the internet) and the role of non-mainstream scientificthinking were then considered.

Three major problems were identified as being significantfactors for public discontent with the processes used indetermining planning applications and operating permits.Recommendations for dealing with these issues weresuggested.

Firstly, local people may feel that they are not sufficientlyinvolved in the process. It is critically important to involvelocal people at an early stage in the discussion leading toa decision. The responsibility for this lies with theapplicant, the local authority and the EnvironmentAgency.

Secondly, local people may express distrust for expertopinion. This may be due to an intuitive feeling that theexperts are wrong or a perception that there is more thanone expert opinion on the point in question, that theexperts are biased, or that not all the relevant evidencehas been presented or considered.

Again, involving local people in understanding anddiscussing the evidence presented in support of theapplication is essential. This recommendation places aresponsibility on the Environment Agency and otherconsultees in the process, who should be seen asguardians of public welfare and should inform the publicof their concerns. Meetings with the public may beneeded and officials from the Environment Agency shouldregard these as more than opportunities to register localconcerns. Accepting that contrary opinions may be

expressed is very necessary.

Thirdly, linked to doubts about expert opinion areconcerns about uncertainty. Expert opinion often includesa discussion of uncertainty, which may be expressed in avariety of ways but which is usually well understoodamong scientists. However, local people may viewuncertainty in a very different way. Explaining that manyscientific conclusions based on experimental orobservational evidence are subject to uncertainty isdifficult and cuts across the perception that scienceshould provide sure answers. Again, engaging with localpeople is essential. It is important that local knowledge

and information has a real and important part to play inthe deliberative process. An adversarial approach shouldbe avoided as far as possible.

A final recommendation is that the Environment Agencyshould learn from examples of decisions that have gonewell in the sense that participants have been satisfiedby the process and from those that have gone badly.

Three recommendations for specific areas of scientificresearch that will help the Environment Agency tackleproblems of public distrust and concern were also made:

1. Work is needed to explore why people have a distrustof conventional science when it is applied to decision-making processes, something that applies much morewidely than just with the question of incineration. Thismight be approached by means of focus groups.

Perceptions, attitudes and communication: their role in deliveringeffective environmental regulation for municipal waste incineration

Science Summary SC030184

SCHO0708BOHL-E-E

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2. Problems are sometimes encountered whereapplications include much complex science, particularly inthe field of modelling dispersion of pollutants andpredicting their effects on health. Ways of simplifying suchpresentations so that they can be more widely understoodare needed.3. Further work on how local people acquire andunderstand scientific evidence is needed. Again, workwith focus groups may be a useful way forward.

This report should provide useful background informationfor Environment Agency staff involved in any aspect ofregulatory processes about which the public may havehealth concerns, as well as staff in other organisationsinvolved in such work.

This summary relates to information from ScienceProject SC030184, reported in detail in the followingoutput:

Science Report: SC030184Title: Perceptions, attitudes and communication: their rolein delivering effective environmental regulation formunicipal waste incinerationISBN:978-1-84432-926-7 April 2009Record Product Code: SCHO0708BOHK-E-E

Internal Status: Released to all regionsExternal Status: Publicly available

Project manager: Chris Smith, Industry RegulationPolicy Department

This project was funded by the Environment AgencysScience Department, which provides scientific knowledge,tools and techniques to enable us to protect and managethe environment as effectively as possible.

Further copies of this summary and related report(s) areavailable from our publications catalogue or our NationalCustomer Contact Centre T: 08708 506506 or E:enquiries@environment-agency.gov.uk .

Environment Agency.

mailto:enquiries@environment-agency.gov.ukmailto:enquiries@environment-agency.gov.ukmailto:enquiries@environment-agency.gov.uk