Public engagement protocols for wind power projects

The Centre for Sustainable Energy (CSE) is currently leading a team to establish protocol and best practice guidelines on how to engage with the local community openly and effectively at all stages in the development of a wind power project. The protocol is designed for use by developers, local planners and community groups, and the work is funded by the Renewables Advisory Board and Department of Trade and Industry.
 
The project has emerged from recommendations made in the report 'Community Benefits from Wind Power' written by CSE and Garrad Hassan, published in 2005.

Currently, the approach taken by developers and local authorities to engage the public and stakeholders varies widely across the UK. This adds to costs, creates confusion (particularly in the case of wind energy) and reduces the ability of stakeholders to influence proposals.

Why do we need effective public engagement?

Effective engagement between a developer, the local authority, statutory consultees (e.g. English Nature, Environment Agency etc) and the local community can help to ensure that proposals for developments in a locality are of a high standard, in the sense that they are likely to:

• reflect more accurately an understanding and appreciation of local interests and concerns;

• provide a better quality, more active and more timely consideration of evidence of the potential benefits and impacts of the proposal (enabling better and prompt decision-making in the planning process, focused on the material issues), and;

• ensure that, if the proposal does go ahead, local communities, the local authority and other consultees have had opportunity to shape the development and their continuing relationship with it.

Supporting effective engagement is not therefore about being in favour or against a particular proposed development. It is about trying to make sure that decisions made in the planning system are as well-informed, evidence-based and timely as possible, and that any development that is permitted reflects an understanding of local interests and opportunities for positive local gain.

The principles of effective public engagement

First of all it is important to outline what is meant by public engagement. In the context of onshore wind developments, it refers to the dialogue undertaken by stakeholders during the development of a project. Wind energy developers, local planning authorities, local communities, statutory consultees and special interest groups are all key stakeholders. Dialogue may involve discussions about the site, the turbines, mitigation of impacts and the provision of benefits to the local area.

As in other areas of planning, a sound approach to public engagement can be summarised by five key principles:

1) Community involvement that is appropriate to the level of planning. Arrangements need to be built on a clear understanding of the needs of the community and to be fit for purpose;

2) Early involvement of stakeholders. There should be opportunities for early community involvement and a sense of ownership of local policy decisions;

3) Using methods of involvement which are relevant to the communities concerned;

4) Clearly articulated opportunities for continuing involvement as part of a continuous programme, not a one-off event;

5) Transparency and accessibility.

Within the English planning system, local planning authorities are now required to embed these principles within a ‘Statement of Community Involvement’ (SCI). These describe how local planning authorities will engage with local communities within their districts in relation to planning policy and any significant development proposals. They should also provide general guidance to developers on the public engagement – or ‘community involvement’ – which they are expected (but cannot be required) to undertake.

Effective engagement models for wind energy projects

Developing a more consistent engagement process is important. At the moment, many local authorities with little or no experience of wind energy are receiving planning applications from developers who all adopt different engagement practices.

Agreement on the process of engagement would allow all parties to learn from each proposal, whether it receives planning permission or not. To do this successfully, stakeholders need to agree on where an exchange of views can be meaningful and productive. Local authorities and wind energy developers need to agree their responsibilities for making this engagement happen.

There is widespread agreement that the best model for establishing a set of rules for public engagement is through the use of a protocol, which can be defined as ‘the rules of correct or appropriate behaviour for a particular group of people or in a particular situation’.

Protocol

A protocol pre-defines what should happen and – in a planning context - it reassures those within and outside the planning process that an agreed upon procedure will be used. Protocols also ensure consistency of practice in a multitude of settings, establishing who does what, when, how and with whom.

A protocol is currently in development and due for release in Summer 2006 which advances these principles in relation to wind farm developments.

The Protocol - or to give it its full title ‘The Protocol for Public Engagement with Proposed Wind Power Developments in England’ - sets out the expectations of key stakeholders and a range of commitments they may each make to enable effective public engagement around a proposed onshore wind power development. It provides a framework around which a more detailed approach to any proposed development can be built.

Making a protocol work

In adopting such a protocol local authorities are not endorsing wind energy per se. Rather, they are committing to the use of a process of engagement that is inclusive, transparent, accessible and accountable. The Protocol also seeks commitment from local authorities, alongside developers, statutory consultees and community organisations, to early and constructive engagement and to making evidence available for verification by other parties.

In order for these now-declared responsibilities and commitments to be met, all parties - local authorities, statutory consultees and wind power developers – will need to embed relevant guidance into their own organisational practice. This is likely to involve:

• identifying an individual within the organisation responsible for the effective implementation of the Protocol

• reviewing the organisation’s operations with respect to the responsibilities outlined within the Protocol

• changing or adapting practice where necessary

• monitoring any changes to ensure they are embedded within organisational practice.

An example can be found in the existing South West Public Engagement Protocol, in the section ‘Making the protocol work’. (Guidance will also be provided with the new national Protocol when it is released in Summer 2006).

The Protocol is based on a series of reciprocal commitments. Some of the commitments can be adopted, regardless of the position taken by other stakeholders. However, others can only be adopted if both developer and local planning authority sign up to the Protocol.

Further, the necessary trust implicit within the shared responsibilities outlined within the Protocol will undoubtedly take time to develop through the successful operation of the process.

Challenges to the development of an effective protocol

The policy framework contained within ‘The Planning and Compulsory Purchase Act 2004’ (specifically planning policy statements 1, 12 and 22) demonstrates the importance attached by the Government to the process of public engagement in the planning process. It also shows how this priority has been embedded within policy and guidance for local planning authorities.

Importantly, the Government’s policy and guidance to LPAs has not been designed to give significant detail on: (a) what it might mean for a developer to participate actively in public engagement or; (b) the approach which community representatives can take to maximise the effectiveness of the engagement process.

The Protocol is designed to fill this gap. It aims to translate the implications of the national policy and guidance framework and local Statements of Community Involvement into a practical description of how public engagement should work for proposed wind power developments.

By defining what is expected of each group of stakeholders, the Protocol explicitly acknowledges the role and responsibility of all these parties in achieving effective public engagement. It also creates the possibility of ‘pre-agreeing’ the approach that will be taken by all parties, reducing the risk of opaque ‘ad hoc’ approaches and of inefficiency associated with starting from scratch with each individual application.

More information on the Protocol, following its publication, will appear on www.planningrenewables.org.uk in the summer.

Source: www.planningrenewables.org.uk