STAKEHOLDER ENGAGEMENT & COMMUNITY BENEFITS A PRACTICAL GUIDE - DR. GARRY M. KEEGAN
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
STAKEHOLDER ENGAGEMENT & COMMUNITY BENEFITS A PRACTICAL GUIDE 2021 AUTHOR DR. GARRY M. KEEGAN EDITED BY DR. ANN M. TORRES
Table of Contents
Introduction 4 Community Benefit Schemes 28
Common Features of Offshore
Benefits of Offshore Wind 9
Community Benefit Funds 31
Perceived Drawbacks 11
Governance and Administration 32
Offshore Vs. On-shore Community Acceptance
Designing a Community Benefits Package 32
and Stakeholder Engagement Differences 12
Summary Points 35
Stakeholders and Consultation 14
Stakeholder Engagement Overview / References 36
Stakeholder Mapping 14
Additional Sources and Useful Links 37
Ireland: Stakeholder Identification 16
Stakeholder Strategies 18 About the Author, Editor and Contributors 39
Capacity Building 19
Offshore Wind Farm Neighbours 20
This project has been supported with financial contribution
Visual Impact 20
from Sustainable Energy Authority of Ireland under the
Tourism Impact 21
SEAI Research, Development and Demonstration funding
Political and Community Assessments 22 programme 2019, Grant number 19/RDD/554.
Stakeholders Involved in Offshore Zoning
Disclaimer: The author assumes no responsibility or liability for any
and Site Selection Considerations 26
errors or omissions in the content of this guide. The information
contained in this guide is provided on an “as is” basis with no
guarantees of completeness, accuracy, usefulness, or timeliness.
All views expressed represent the author’s opinion based on
their experience and expertise.
www.sareiglobal.com
gmk@sareiglobal.com
2 3
Introduction
This guide provides practical involvement, Maritime Area Consent, Marine Regardless of the project location, the as to whether such promoters have the
recommendations for Offshore Wind Farm Protected Areas, Maritime Area Planning following five criteria should be considered. inclination and resources to implement
Projects, Stakeholder Engagement, and Bill (MAP), and An Bord Planeala, debate the stakeholder engagement competently.
1 Social Acceptance Strategy:
Community Benefits. merits of decentralised (i.e., developer led) Further, when promoters sell a project
There needs to be an overarching social
versus centralised grid integration, which is to a large industry entity, the question
Many countries have a strong track record acceptance strategy developed for
cumbersome and hard to navigate. becomes what stakeholder engagement
in the deployment of onshore wind farms. A offshore wind projects developed by
continuity prevails – industry should
small number of countries (e.g., UK, Germany, These offshore wind projects represent the relevant national authorities (state
ensure this in order to help protect the
Denmark, Netherlands) account for most of all substantial financial investments and the agencies) in concert with industry
sectors reputation and ensure its growth
operational offshore wind capacity connected benefits of offshore are attractive. Yet, representatives. The absence of an
amicably with the public. Ownership
globally, most of which comprises fixed, rather there is a lack of industry coherence in the agreed industry strategy has led to a
change in the onshore sector is much
than floating turbine technology. Many other appreciation of, and approach to, social lack of consistency as different projects
more common. When a consortium
countries (e.g., Ireland, Portugal, Norway, acceptance of offshore wind projects, pursue different approaches. This
of owners is involved in an offshore
Finland, France, Canada, USA, Australia, Japan, especially with respect to community inconsistency adds to the confusion
project, it is important the owners agree
South Korea, China, Vietnam, and Taiwan) acceptance in terms of procedural and local and national stakeholders may
on a strategy regarding stakeholder
are in their infancy of offshore wind farm distributive justice. Individual projects are experience. Project promoters must be
engagement, communications, and
development and have plans underway to progressing through the various regulatory cognisant that host communities are
community benefits.
grow this sector significantly. stages, however, there is little evidence of non-homogenous and social acceptance
coordinated communication campaigns strategies need to be responsive to the 5 Stakeholder Engagement Plans:
Community acceptance has been a key
to educate and inform the public. Also unique values and needs of individual Considering the importance of and
constraint to the development of onshore
lacking are industry agreements regarding host communities. the financial investment required to
wind projects. Offshore wind projects also
the implementation of best practices for deliver an offshore project, stakeholder
experience resistance among coastal and port 2 Consenting Regime:
community acceptance and local stakeholder planning and engagement is a small
communities. There is an opportunity to learn At each stage of the project lifecycle
engagement among host communities. cost that delivers high value. Also
from international best practice in community providing clarity on the consenting
consider the risk of not doing adequate
acceptance and stakeholder engagement. Consenting and marine spatial planning regime should form part of the local
stakeholder engagement – higher
Community engagement practitioners and arrangements differ depending on the stakeholder engagement plan.
likelihood for project failure and/or
communications departments of established jurisdiction. For example, if the support
3 Stakeholder Interface: perceptions of injustice.
offshore wind farm developers were generous scheme for offshore wind is based on
The intensity of stakeholder interface
in sharing their expertise to create this competitive bidding (i.e., auctions and Opposition groups may campaign on issues
varies with the project lifecycle.
document. tendering) where the lowest bid wins, it such as democratic deficit, negative impacts
will affect the capabilities to undertake 4 Project Ownership: on visual amenities, tourism, heritage,
The potential for Irish offshore wind projects
stakeholder engagement and deliver A key consideration is the project birds, fish and marine life, and commercial
is well documented in terms of economic and
community benefits. These initiatives add ownership, as this changes from the fishing. Cable landing points and onshore
social benefits, investment, jobs, and supply
to the project costs, even though they are beginning to end of a project’s lifecycle. cable routes may prove to be significant
chain integrity. In Ireland, companies such as
a relatively small financial investment in Many projects are initiated and owned issues with host communities, in addition
SSE, DP Energy, Parkwind, ESB, Equinor, Ocean
comparison to the overall project budget. by project promoters who do not have to electric magnetic field (EMF) concerns,
Winds, Saorgus, Statkraft, Simply Blue Energy,
Policy makers need to consider whether the intention, capability or capacity to and inadequacies of Foreshore/Marine
Energia, and RWE Renewables are progressing
certain standards and social metrics should be deliver the project to its completion. This legislation may also be highlighted in such
projects off the East and South-east coasts.
part of the bidding criteria. changing ownership raises the question submissions. In one German study, shipping
The current system of transition protocol,
different government department
4 5
security was important to residents, as In pursuing a coordinated approach, the
shipping accidents pollute local beaches. offshore industry, can look to the best
Coastal communities and stakeholders, practices employed in other jurisdictions.
such as fishermen, may claim they have no Many companies developing offshore projects
information and there has been a lack of in new territories, also operate in countries
consultation. Although the developer may where there are established best practice
be at the early stage of consent, conducting approaches for local stakeholder engagement.
marine and environmental surveys should be
part of the planning process requirements.
The developer’s message can become lost
Other Constructive Considerations
in a poorly informed media narrative, or Stakeholder Identification:
public discourse. As a result, the developer Stakeholders need to be identified and
will quickly find they are under pressure to consulted, early and throughout the project.
take a reactive stance, rather than proactively Developers, through industry representative most affected due to onshore construction Government Offshore Wind
engaging with stakeholders. Further, not structures, should be obliged and/or guided works elsewhere. That is, the grid connection Development Committee:
being proactive damages the prospects to undertake wide-ranging and flexible and substation is placed in an area which As a statement of intent and to provide
for future offshore projects. To safeguard community engagement methods to facilitate is not visually impacted. For example, the leadership, focus, and proactivity, it is
community interests, developers should ongoing dialogue. Clear guidelines or a Code Beatrice Offshore Wind Farm in Scotland, advisable to create a governmental committee
appoint a Community Liaison Representative of Conduct for community engagement, where Caithness is the closest area, but the for offshore wind development. This
(preferably someone who is familiar with the tailored to the local context, would facilitate grid connection and substation is placed in committee would act as a dedicated forum for
area and receives the appropriate training), this dialogue. the area of Moray. local stakeholder and community voices.
and if resources allow, a Fishing Liaison Officer,
Consultative Forums: Consenting and Planning Process: Investor Confidence:
who may be a retired member of the local
Key stakeholders, such as the fishing These processes need to be communicated As offshore wind farms are long-term, capital-
fishing community.
community, port, and coastal communities, in a way that is easy to understand, intensive investments, a key challenge for
Rather than pursuing a silo approach, it need a forum in which dialogue can occur transparent, and collaborative in terms of investors is confidence in the government’s
would be beneficial to pursue a coordinated with those supporting the offshore project. citizen engagement. An offshore wind public strategic commitment to the sector. This
approach, in which all developers agree The coalition of the willing, often comprised of participation guide would be beneficial. confidence needs to percolate through to
on the procedural stages, strategies, and the government and politicians, the national local stakeholders and local seaside/coastal/
Other Non-host Community Stakeholders:
techniques for deploying a: and regional authorities, developers and local port communities.
Other relevant stakeholders are the military
stakeholders, need to embrace and promote
• Stakeholder Relations Advisor (titles and and aviation interests, where radar may be National Wind Energy Association:
offshore projects in a unified manner.
roles can differ depending on jurisdiction relevant. The navy where harbour protection, Most offshore developers are members of the
and project scale – Community Liaison and Community Obligations and Contributions: coastal security, customs, war ships, and the National Wind Energy Association’s Offshore
Fishing Liaison for example) Even though coastal communities may not use of drones are issues for consideration. Committee. This committee could assist in the
• Stakeholder Relations Programme be affected by the offshore construction Small and large commercial fishing fleets, coordination of guidelines and standards to
works, they are neighbours who should which operate co-operatives and shipping achieve community acceptance.
• Community Engagement Programme
be considered. For example, visual impact lanes, need to be part of broader industry
• Community Benefits Programme (i.e., Social Acceptance:
may be more of a concern for some coastal groups so they are on-message in terms of
including Local Supply Chain initiatives) Offshore wind projects should increase when
communities. There are examples where the industry objectives and communication.
people are aware of the positive impacts
closest coastal community may not be the one
associated with offshore wind energy.
6 7
Benefits to Offshore Wind
and Perceived Drawbacks
Alternative energy sources, such as oil and that seeing offshore wind turbines made them
gas, have limited reserves. Further, oil and feel they were helping to forestall the climate The benefits associated with offshore wind are outlined in Table 1.
gas can be perceived as more expensive and crisis.
more polluting. The geo-political security of Benefit Comment
MaREI’s lead researcher noted that “Moving
supply considerations should also be stressed
turbines offshore can help to overcome issues
in the public dialogue. The general public may Security of Energy Supply • Wind enhances energy supply, diminishing the need for oil and gas
of space for wind turbines on land. It can also
be more accepting of offshore wind projects,
help to meet targets for clean, renewable Power Grid Stability • Offshore wind farms are important for energy transition success
than the local host community (i.e., perceived
energy and create jobs as Ireland seeks to and grid stability
local pain, in exchange for national gain).
rebuild the economy.” The survey findings Sustainable Grid Power • Wind energy is a clean, free, and abundant resource that can
Again, representations concerning visual
suggest those with experience of offshore be extracted and converted into electricity without emissions
impact and shipping collisions should be
windfarms are more positive towards their
expected.
development in Irish waters than those with Environmental • The industry complies with international regulations and strict
Public Acceptance Research: no experience of offshore windfarms. In Protection Standards environmental standards
Offshore wind public acceptance research terms of the effect on wildlife, tourism and Reduced Pollution • Wind farming is a renewable energy source
should be commissioned in countries where aesthetics, respondents said offshore turbines
offshore planning and deployment is relatively are relatively unobtrusive. Affords Benefits • Bans on fishing in offshore wind farms improves fish stocks
new. One example is to establish a monitoring to the Marine and wind turbine foundations act as artificial reefs
Subsequent to MaREI’s survey, the Irish
programme, which focuses on public Green Hydrogen • Green hydrogen enables energy-intensive industries such as cement,
Government announced its intention to fast-
acceptance before and after the installation Production steel, or chemical plants to improve significantly their carbon footprint
track seven offshore wind projects in the Irish
of an offshore wind farm, as a means to
Sea under a new planning regime. Under the High Acceptance Level • Far-shore farms are preferred, as they are less visible but can
monitor the degree of public involvement
Climate Action Plan, the Irish Government be more expensive and less feasible
and active conflict management. Consultation
is aiming to have 70% of Ireland’s electricity
with the research sector (e.g., state agencies, Job Creation • Offshore investment creates opportunities in manufacturing,
generated from renewable sources by 2030.
University post-doctoral programmes) would engineering, construction, marine services, local coastal transport,
be desirable. According to the World Wind Energy turbine operations, and professional services. Enables education
Association (WWEA), developers should and training opportunities
Marine and Renewable
demonstrate how their proposed
Energy Ireland (MaREI): Export Potential • The market for offshore wind energy is growing rapidly
development, as a recommended renewable
MaREI, a Science Foundation Ireland centre
energy initiative, is sustainable and of a net Table 1: Key Benefits to Offshore Wind
based at University College Cork, surveyed
benefit to the community. To facilitate this
1,154 people and found there is significant
argument, early engagement with relevant Offshore wind energy can serve as the increase lifetime expectancy, and mitigate
support from the Irish public for the
stakeholders on the comparative benefits foundation for security of supply in a future health related costs. Offshore wind farms
development of offshore windfarms in Irish renewable energy system. Oil and gas are in-dispensable for energy transition and
of feasible options is recommended. WWEA
waters. Of those surveyed, 93% said they reserves are limited, more polluting, and when are an important factor for the stability of
recommends a comprehensive stakeholder
would not object to an offshore windfarm externalities are considered, more expensive. the power grid. Being located offshore, they
consultation and participation process so as to
anywhere in Irish waters and 87% said they Wind energy is a clean, free, and abundant will experience a much greater percentage
mitigate the risk of community opposition, or resource that can be extracted and converted of consistent winds compared to onshore
would not object to the development of
loss of support for the project. into electricity without emissions. Phasing wind turbines. The wind does not encounter
an offshore windfarm off the coast of their
locality. Additionally, 60% of respondents said out fossil fuelled power plants and replacing obstacles such as buildings, hills, valleys, and
them with wind power would help to address trees that can impede wind speeds. Offshore
climate change. As a cleaner energy source, it wind turbines are able to generate more
would reduce unnecessary health problems, power compared to other onshore turbines.
8 9
Wind farming is a renewable energy source to near-shore farms, as they are less visible., The perceived drawbacks raised by concerned stakeholders are outlined in Table 2.
that reduces air pollution by replacing however these can be expensive, also floating
the more polluting energy sources with wind turbine technology requires further Perceived Drawback Comment
wind-generated power, helping to reduce development which will further enable the
Natural Environment • Potential decrease in fish-stock and marine life
emissions of sulphur dioxide, nitrogen oxides, feasibility of far-shore.
• Concerns for the bird population and their flightpaths
and carbon dioxide. Significant efforts are
The Global Wind Energy Council (GWEC) and • Changes to the natural beauty and quality of coastline
being undertaken in all areas of the offshore
the Global Wind Organisation reported in • Eroding the value of unspoilt nature
wind industry to protect the environment.
April 2020 that offshore markets will require • Visual intrusion due to turbines
The industry complies with international
77,000 trained employees by 2024 to support Livelihood • Local fishermen are concerned about the loss of their livelihood,
regulations and strict environmental
growth targets. They calculate 2.5 jobs per skills, and way of life
standards, and it designs its production
megawatt per project.1 It is important to note, • Interference with shipping routes and increased risk of collisions
processes as ecologically as possible. The
job creation may not necessarily be locally
marine environment can benefit from offshore
focused, so projects need to be careful not to Culture • Interrupt or damage local culture and values
wind. The ban on fishing in offshore wind
over-promise and under-deliver in this regard • Poor fit with the ascribed characteristics and values of
farms can have a positive effect on fish stocks.
when communicating with local host and a coastal landscape
The foundations of offshore wind turbines
coastal communities. The value chain of the • Damaging the attachment people have to an area
can also act as artificial reefs. The use of green
offshore wind industry has been characterised • Potential for a democratic deficit
hydrogen produced with renewable energy
by small and medium-sized enterprises from Living Environment • Erode the local residents’ living environment in terms of their
may enable energy-intensive industries
the beginning, which can bolster local host- view and real estate value
such as cement, steel, or chemical plants to
community, port, and coastal economies. The • Negative effects on recreational activities including boating,
significantly reduce their carbon footprint. The
industry is strongly committed to a growing fishing and yachting
production of green hydrogen from offshore
international training sector and has a high
wind energy using electrolysis is already Business Interests • Negative impact on tourism, heritage, fishing, leisure crafting,
level of qualification. Offshore investment
possible on an industrial scale. Hydrogen air traffic, and telecommunications
will create opportunities in manufacturing,
production from wind power is set to play
engineering, construction, marine services, Health and Safety • The presence of EMF
a fundamental role, especially in sector
local coastal transport, turbine operations, • Potential and safety impacts of cable landing points/onshore grid
coupling. One example is the production
and professional services. Peripheral coastal connections, cable routes, and substations
of synthetic fuels from green hydrogen for
communities could be transformed by
aviation.
these new employment opportunities. The Table 2: Stakeholders’ Perceived Drawbacks of Offshore Wind
Social acceptance of offshore wind is expected know-how and added value of offshore wind
to increase substantially, as people become industry offer substantial potential for export.
aware of the positive impacts of offshore wind The market for offshore wind is growing
energy. Wind turbines have been known to rapidly, not only in Europe, but also in Asia
produce a lot of noise. As offshore turbines are and North America. The International Energy
typically located far from the coast, and away Agency estimates the capacity for offshore
from residential areas, noise is not a significant wind farms will increase by a factor of fifteen
issue. Consequently, offshore wind farms over the next twenty years.
enjoy a high level of acceptance among the
population. Far-shore farms may be preferred
1
Powering the Future: Global Offshore
Wind Workforce Outlook 2020-2024
10
2 11
3
Offshore Vs. On-shore Community Acceptance
and Stakeholder Engagement Differences
The differences between offshore and onshore There are additional technical challenges in • Archaeological heritage • Residential and holiday homeowners,
wind industry community benefit provision constructing and maintaining sites offshore. who are a significant stakeholder group
• Visual impact and its potential
have been viewed positively and there is The timescales and phased development consequences on tourism and in coastal communities
scope to transfer certain lessons. The rationale process of offshore projects differs greatly property values • Noise, vibration, lighting, and turbine
for community benefit provision is similar for from the onshore industry where the installation.
both industries, which is driven by a desire construction is less complex.
to share equitably the benefits gained by
Offshore projects involve a more diverse and
harnessing a natural resource.
complex range of stakeholders with whom
Considering the differences in identifying to negotiate agreements. For example, air
nearby communities, maturity of the interest for commercial, military and coastal
industry, technology and project economics, rescue operations requires assurances for
community benefit schemes are unlikely to be radar and lighting. Commercial and leisure
realised in precisely the same manner. While fishing, shipping, and boating, and coastal
significant development is planned to occur resort tourism seek reassurance their
across the globe, commercial scale projects in operations will not be adversely impacted.
deeper, more challenging water, means the
In terms of offshore wind farm environmental
resulting costs and risks associated with these
impacts, developers should be cognisant of
projects can be much higher than for onshore
the following considerations:
projects.
• Marine habitats and benthic (i.e., seabed)
Cost reduction is a key driver for the offshore
communities
wind industry, particularly in the context
of increasingly competitive contracts for • Bathymetry, sediment transport paths,
difference allocation. Therefore, the scale of bed forms, scouring, mixing, turbidity
community benefits may be highly dependent • Water quality and pollution incidents
on the developer’s financial means. during installation and maintenance
Developers may legitimately ask the national,
state, regional, or local government whether • Designated areas and proximity
they prefer cheaper electricity or generous of protected areas
community benefit schemes. • Fish resource, migration patterns,
and nursery areas
In Germany, for example, offshore projects
are planned at the state level and far-shore • Birds’ distribution, disturbance,
projects are planned at the national level. displacement, mortality, breeding
Hence, communities are not part of the official and feeding impacts
planning process, unless shipping facilities • Marine mammals’ distribution, disturbance,
have to be constructed, or the cable comes displacement, and the impacts of noise
to shore, and/or the substation is constructed and vibration
adjacent to local population.
12 13
3
Stakeholders and Consultation
Local Stakeholder Groups Examples
Stakeholder Engagement and Regardless of whether a certain stakeholder
Stakeholder Mapping group is on an official regulatory list, it Residential • Coastal and port communities
is advisable to engage with all identified • Resident cooperatives and associations
Depending on national legislation, some stakeholders, even beyond legal obligations. • Community societies
countries have official stakeholder lists, • Neighbourhood security, community watch
Examples of stakeholder categories are
which distinguish between statutory and
outlined in Tables 3 and 4. Community Influencers • Local opinion leaders
non-statutory stakeholders.
• Large employers
• Elected public representatives
• Local, municipal, regional, state, and national broadcast and print media
• Social media interests
• Celebrities
Economic Groups • Local retail
• Chambers of commerce
• Service and manufacturing businesses
• Commercial fisherman
• Shipping companies
• Employment unions
• Telecommunications companies
• Tourism industry providers
• Hospitality and accommodation providers
Authorities • Military and defence ministry
• Airport authorities
• Aviation companies
• Air rescue
• Marine management services
• Catchment management authorities
• Local government
• Local networks e.g., public participation networks, community fora
• Tourism agencies
• Indigenous People and their representatives
Other Groups • Religious groups
• Sport clubs
• Leisure boating clubs, boating and yachting associations
• Sea scouts
• Environmental, nature and conservation groups
• Bird watching groups
• Walking and hiking clubs
• Special interest groups (e.g., Bathymetry)
Table 3: Categories of Local Stakeholder Groups
14
2 15
3
Ireland: Stakeholder Identification
Ireland Stakeholder Types Examples Ireland Stakeholder Types Examples
General • County councils, area committees, strategic policy committees Environmental Organisations • Bird Watch Ireland
• Elected public representatives • National Parks and Wildlife Service (NPWS)
• Special interest groups • An Taisce
• Residents’ associations • Irish Whale and Dolphin Group
• Charities and voluntary groups • Geological Survey Ireland
• Business groups, Chamber of Commerce, Chambers Ireland • Seal Rescue Ireland
• Tourism groups
Local Stakeholder • Municipal District Councils
• Commercial fishing
Engagement • Town Teams
• Leisure craft owners and clubs
• Local Chamber of Commerce
• Sports clubs
• Local RNLI
Government and National • Government Departments • Local Sailing Clubs
Organisations • Transport Infrastructure Ireland (TII) • Local Sea Swimmers
• Irish Aviation Authority (IVA) • Local Port User Groups
• Fáilte Ireland • Sea Angling Clubs
• Inland Fisheries Ireland • Sub Aqua Clubs
• Health Services Executive (HSE) • Local Rowing Club
• Environmental Protection Agency (EPA) • Local Sea Scouts
• Commissioners Irish Lights • Local Triathlon
• Health and Safety Authority (HSA) • Local Education Training Boards
• Marine Survey Office • Regional Assemblies
• Sustainable Energy Association of Ireland (SEAI)
Execution Stage Stakeholder • Department of Business, Enterprise, and Innovation
• Gardai Siochana (Irish Police Force)
Engagement • Department of Rural and Community Development
Marine Organisations • Irish Sailing Association (ISA) • Department of Education and Skills
• Marine Institute of Ireland • Industrial Development Authority (IDA) Ireland
• Irish Maritime Development Office (IMDO) • Enterprise Ireland
• Met Eireann (Irish Meteorological Office) • Air Corp
• Irish Water Safety • Navy
• Royal National Lifeboat Institution (RNLI)
• Irish Coast Guard (Department of Transport, Tourism, and Sport)
Marine Interests • Bord Iascaigh Mhara (BIM)
• Local Fishing Community
• Commercial Fishing
• Harbours and Ports
Table 4: Stakeholder Types in Ireland (Non-Exhaustive Listing)
16
2 17
3
Stakeholder Strategies
Most stakeholders, individuals, and special interest groups and organisations (statutory and
non-statutory) will have concerns legitimate to them, some will be articulated by professional Capacity Building
consultants, which will form submissions as part of the consenting process. A comprehensive
stakeholder engagement and communication plan, deployed by a qualified and experienced Capacity building for communities should be a Agency support may be available for
project management team, is a prerequisite to developing a new offshore wind farm successfully. consideration, so as to ensure individuals and providing:
Sound community consultation and participation, with appropriate representations (i.e., groups are equipped to contribute effectively
to discussions. Developers should work and • networking services and community
visualisations) of the wind farm are often effective. On a strategic level, there are four degrees of learning and capacity building
public engagement based on the level of participation to be accorded to the public: 1) inform, engage with stakeholders and agencies that
2) consult, 3) involve, and 4) collaborate or empower. Table 5 outlines the key principles for can support the process. In the early stages • support to groups wishing to form
community consultation and stakeholder management. of consultation, developers should signpost a community development trust.
community groups to support, including:
On occasion, there may be conflicts within
Principle Comment • Grant support for communities to form a or between stakeholder groups. It is
constituted group or to develop an action recommended developers seek advice or
Engage Early • Clear community engagement plan known to all at early stages plan support, and to be mindful that ‘community
Visualisations • Planners and developers should use visualisations, as project of place’ does not necessarily translate into
opponents may develop their own visualisations, which may • Advice and support from a regional
development officer ‘community of interest’.
be misrepresentations if not technically developed
(e.g., in terms of scale) • Online community guidance package
• Local councils or municipalities may not have the resources to to help with the process
develop such visualisations, particularly when a project is in its
infancy or exploratory stage • Local or regional government register
of community benefits from renewables
Community • Recognise the value of community involvement and local
Involvement knowledge in planning • Local supply chain opportunities
Consultation Process • Plan and design consultation process with the local planning noticeboard
authorities and stakeholders • Advice to access further tailored funding
Inclusive • Use an inclusive approach to engage and consider all and support.
stakeholder groups
Level of Strategic • Use consultation methods and techniques appropriate to the
Engagement local context; determine the level of strategic engagement
Transparency • Transparency and accessibility at all times and in engagement
activities disseminating information, and receiving feedback
Flexibility • The plan must be flexible so as to incorporate stakeholders’ perspectives
Dialogue • Continuing meaningful respectful dialogue regarding changes
to the project design/plan, which are communicated and discussed
on a timely basis, cognisant of the planning regime.
Networks • R ecognise the importance of social and informal networks;
establish collaborative relationship with community
Local Resources • Leverage local resources to fulfil jobs and contracts
Benefit Scheme • Discuss mitigation, compensation measures, and benefit scheme with
the local community
• Be cognisant of ethical corporate socially responsibility and governance
Table 5: Key Principles for Community Consultation and Stakeholder Management
18
2 19
3Offshore Wind Farm Neighbours
Project promoters need to recognise Visual impact Tourism Impact reported their experience would be worsened
inhabitants and other local stakeholders by the turbines; 13% reported it would be
within the surrounding area of an offshore It is recommended the local community An important question for coastal improved, and 67% reported no effect. In
wind farm are impacted. A general and other identified local stakeholders communities is how offshore wind farms will contrast, at 20 miles (32 km) offshore, only
information campaign is recommended at be informed about the proposed affect recreation and tourism. The distance 10% of respondents reported their experience
development before the submission of a wind turbines are from the beach significantly
project initiation and during the planning would be worsened, 17% said it would be
planning application through the normal influences how tourists feel about them.
process. improved, and 73% said it would have no
communication channels (e.g., non-statutory
effect.
There may be supporters of wind energy who consultation, localised information campaigns A survey conducted in the US (Parsons
do not accept wind turbines in their locality, via print, broadcast and social media). The and Firestone, 2018) interviewed almost This research found beachgoers are more
even though they perceive wind energy visual impact of wind turbines depends on two-thousand beachgoers, who were likely to go to another beach when the wind
as an innovation within energy generation their location, size, number, layout, design, representative of a beachgoing population turbines are closer to shore and are more
and transition. Opponents may view the colour, and the viewers’ perceptions. From on the East Coast. Participants experienced likely to remain when turbines are located
an early stage of the project, developers can visual simulations of a wind power project
offshore wind farm as a threat to nature, the farther from shore. The size of this effect is
prepare photomontages, perhaps polling the with 100 six-megawatt wind turbines, 150
environment, view shed, marine life, and the important to BOEM for documenting impacts
local and nearby communities on options to meters tall to the tip of the blade at its apex, at
local economy (e.g., impact on fishing and of wind turbines on local economies. The
gain insight on this aspect. different distances from shore, and in different
tourism community). break-even point is 15 miles (25 km) offshore.
As more wind farms are established, people conditions (i.e., clear, hazy, and night-time). At this distance, there are as many people who
When developing a consultation strategy, be will observe the visual impacts from offshore The wind turbines were assembled into a would be better off, as there are people who
clear about the level of involvement and the wind farms. The public’s positive attitude photomontage by a firm, recognised as a would be worse off. While there are economic
process by which that involvement should could shift, particularly if the experienced leader of visual impact analysis and graphics advantages to having wind turbines closer
take place. Some members of the public will visual impacts differ substantially from the in the wind industry. to shore, because it is cheaper to deliver the
not care about the origin of the energy they development plans. Offshore wind turbines energy and easier to maintain the turbines,
use, while others will be drawn to a green are much taller than onshore wind turbines, Participants were asked whether the projects
most proposed projects are placing turbines
energy electricity supply. but their visibility is moderated, because would affect their beach experience and
at the 15-mile (25 km) mark.
they are located several kilometres from the prompt them to change their travel plans. The
As the project mobilises and construction nearest shoreline. At 7 to 10 kilometres (4 to data were analysed using an economic model The researchers also found a surprising
commences, the project manager needs to 6 miles), the turbines appear to be about the of trip choice. The Federal Bureau of Ocean number of respondents would make special
monitor contractors and sub-contractors to height of a person’s thumbnail, held at arm’s Energy Management (BOEM), which leases trips just to see wind turbines offshore. The
ensure the project complies with planning length. Hence, the visual impact of offshore offshore areas for wind power generation, expansion of offshore wind can promote local
permission and any conditions attached. They wind turbines is lower than visual impact of and the National Oceanic and Atmospheric tourism. Researchers from the University of
should also have and continually assess and onshore wind turbines. Administration (NOAA) funded the research. Rhode Island, USA, found the first offshore
review implementation of the:
It is worthy to note the scale of offshore wind farm located on the east coast of the
Survey respondents were shown turbines
• Stakeholder Engagement Plan wind farms, which is in the hundreds of USA has strengthened local tourism. The
ranging from 2.5 to 20 miles (4 to 32 km)
megawatts, can achieve generation capacities Block Island offshore wind farm is located
• Communications Plan offshore. BOEM leases and planning areas
equivalent to many onshore projects. For approximately six kilometres (3.7 miles) off
for wind power projects are projected to be
example, in some European locations, one the island of the same name. For their study,
• Local Supply Chain/Local Economic installed at 13 or more miles (21 km) offshore.
400 MW offshore wind farm with 50 turbines the researchers analysed three years of Airbnb
Benefits Plan For example, the wind project proposed off
is equivalent to 20 onshore wind farms of 20 booking data during the timeframe when the
MW, not counting the effect of higher and Bethany Beach, Delaware would be located
• Community Benefits Plan. wind farm was commissioned. Their findings,
more consistent wind speeds offshore. about 17 miles (27 km) offshore. At the
published in the Journal Resource and
12.5-mile (20 km) mark, 20% of respondents
20 21Energy Economics, indicate bookings were Offshore wind development can also Political and Community Assessments
approximately 20% higher than before the have economic implications for coastal
wind farm was built. When wind farm planners recreation demand, particularly for countries A key consideration in an offshore wind project is to assess the political and community
announced they intended to install offshore characterised by high offshore wind power environments in which the project will be located. Table 6 outlines the general process developers
turbines off the coast of Block Island, concerns potential, and for being popular tourist and investors may follow, as a means to creating the foundation for an engagement plan.
were raised that the project might harm local destinations. In this context, a Spanish study
tourism. Several important indicators for (Voltaire et al., 2017) examined the impact Element Comment
the tourism market indicate that interest in of offshore wind farm projects on beach
Key Stakeholders • Create a core group of key stakeholders, who reflect the local and
visiting Block Island has increased. Coastal recreation demand in Catalonia, Spain,
regional opinion
cities where the offshore industry operates during the 2012 summer season. The results
have set up information centres and offer demonstrate a significant welfare loss up to Scope Issues • Identify stakeholders, conduct an initial scoping of the issues,
tours to offshore wind farms. Offshore wind €203 million per season. The results suggest clarifying which issues are important to which stakeholders
farm tourism complements the North Sea the installation of a wind farm will encourage
Consultation Process • Design the consultation process, agreeing objectives and outputs,
island of Heligoland (also spelt Helgoland). tourists to seek Catalan beaches without
techniques, key events, timing, resourcing, budgets, and
In this case, tourism did decrease, but then wind farms; the estimated negative economic
co-ordination with other statutory or non-statutory processes
recovered. More tourists have come to the impacts occur in areas where wind farms are
island since the offshore service port was located. From a political economy perspective, Stakeholders’ Liaison • Identify and appoint an individual with whom stakeholders can
opened. The increasing demand for tours with this finding may call for the design and Representative communicate with such as a Community/Project Liaison Representative.
fast catamarans and for sight-seeing flights to implementation of redistributive instruments Consider agreeing an Independent Chairperson and the establishment
nearby offshore wind farms suggest visitors to offset the negative impacts caused by wind of a Residents Project Monitoring Committee, which is representative
are interested in offshore wind. Wind power farms. (Voltaire et al., 2017). of the various previously identified stakeholders
plants at sea can become a tourism attraction
Dialogue • Bilateral communication methods such as public meetings, staffed
if local initiatives introduce visitors to the
exhibitions and establishment of local contact person or number would
technology.
be required at the early stages to draw out views and concerns of the
local community and interested parties, including clarity of the various
groups of stakeholders, and the unique elements of the proposed
location for the offshore wind farm
Communication Strategy • The project promoter needs to establish a comprehensive
understanding of the local stakeholders within the project catchment
area, and develop a strategy on how to approach them
Impacts • When the project developer is applying for consent, they must be able
demonstrate a comprehensive assessment of the project’s likely impacts
on a wide range of stakeholders and factors, including the marine
environment and birds, visual impact, fishing, and shipping
Table 6: Key Steps in Assessing the Political and Community Environments
22 23In developing a stakeholder engagement plan, it is advisable for the project developer to consider Consultation processes can experience difficulties in identifying and reaching the different groups
the manner in which to disseminate project information, timing of information, coordination within a community, which is barrier to engaging the community in planning. Table 8 lists the
with local governments, degree of engagement, community structures, how to leverage local questions on which developers should reflect during the consultation process.
intermediaries, identify stakeholder liaisons, and the need for independent facilitators. Table 7
illustrates the elements within a stakeholder engagement plan.
Topic Question
Political and Community Assessments
Element Comment Impact (+/-) • Who will be affected, positively or negatively, by the development?
A key consideration in an offshore wind project is to assess the political and community
Political and Community Assessments • Who holds official positions in the area and who are likely to be
Information • Consider what networks will be most effective for disseminating information environments in which the project will be located. Table 6 outlines the general process developers
affected by the development?
A key consideration in an offshore
• Use localwind projectprint
broadcast, is toand
assess themedia
social political and community
platforms and investors may follow, as a means to creating the foundation for an engagement plan.
environments in which the
• Which local papers and which local notice boards areprocess
project will be located. Table 6 outlines the general developers
always read Support and Opposition • Who supports or opposes the changes the development will bring
and investors may follow, as a means to creating the foundation for an engagement
• Consider the availability of parish (Ireland & UK) newslettersplan. and why?
• Are there local leaders who can share information
Interests • Who runs local organisations with economic, environmental,
• Identify groups that are hard to reach and how best to engage them
or social interests?
Timing of Information • Timing of information is important in several regards; for example,
Influencers • Who is influential in the local community; who are the opinion leaders?
when to inform people - what and how much detail is available to share
• Too much information in the wrong format can cause more confusion Previous Participation • Who has been involved in any similar issues in the past?
rather than enhance clarity • Approaches for reaching hard-to-reach stakeholders?
• When to engage people; for example, consultation events arranged
Future Impact • Who may not be affected by any immediate development, but may
for day-time hours are not typically well attended because people
be impacted, if similar developments were to locate in the area?
are working
Local Government • A stakeholder engagement plan can be coordinated with county and Table 8: Key Questions in Relation to the Consultation Process
Coordination local municipalities to be more efficient and effective
Degrees of Engagement • Consider different degrees and activities of engagement at different
stages throughout the process, making use of different methods
Community Structures • Consider community structures, geography of the area, the economic
climate, and the current concerns of local communities
Local Intermediaries • Consult local intermediary bodies, such as Parish Councils and Rural
Community Councils, and Public Participation Networks, that can help
the developer to understand the various interests in the area and to
find other community organisations
Stakeholder Liaisons • Establish a clear and well-linked contact to liaise with public and other
stakeholders (e.g., Project/Community Liaison Representative, Fishing
Liaison Representative), while encouraging identified stakeholders to
do so as well
Independent Facilitator • With statutory stakeholders, consider whether there is the need for
independent facilitator or intermediatory
• Cost of such services is usually born by the developer, low cost-high value
24 Table 7: Key Elements of a Stakeholder Engagement Plan 25Stakeholders Involved in Offshore Zoning
and Site Selection Considerations
Informal discussions should be held at an early be considered. Also to be considered are Phase Activity
stage with local planning officers, or national other environmental considerations, such Political and Community Assessments
planning officers, if the project is deemed Early Consultation • Identify a site
as recreational and conservation areas, A key consideration in an offshore wind project is to assess the political and community
to be national strategic infrastructure. The • Identify local communities
telecommunications, aircraft safety, and environments in which the project will be located. Table 6 outlines the general process developers
elimination of unsuitable sites at this stage • Develop consultation strategy
restricted areas. and investors may follow, as a means to creating the foundation for an engagement plan.
avoids spending time and money on sites • Conduct community and social audit
During this site selection phase, the • Assess facilities, services, boundaries, and factions
that have little chance of obtaining planning
preliminary internal research on the technical,
permission or may involve foreseeable Early Intermediate • Disseminate initial information
social, environmental, and infrastructural
opposition. Consultation • Raise awareness via leaflets, posters, press releases in local/
characteristics of an area should be
regional print, social media, information packs, and letters to
The impact on local ecology, marine life, and conducted. Site selection should draw on
community groups
migratory bird routes should be investigated various published sources, such as maps, local
• Identify and approach key groups and local figures
through the relevant state agency, searching development reports, and other relevant
• Prepare for a full consultation, including a virtual consultation option
state databases, performing a literature secondary sources.
• Conduct project feasibility
search, and conducting an initial field survey.
Initial community consultation involves
Engaging relevant consultants during the Advanced Intermediate • Provide a full consultation via press releases, a series of
discussions with officers of the local planning
site selection and feasibility stages should Consultation presentations, frequently asked questions, open days that include
authority and statutory consultees to identify
a virtual option, and a local base to respond to queries,
and agree potential issues to be addressed
• Define majority views regarding location, size, and power output
and consider approaching other consultees,
• Identify main concerns by maintaining a contact book, database
such as those suggested by the local
of residents and their concerns, and communications matrix
planning authority. The level of consultation,
(always adhering to Data Protection Regulations)
at this speculative stage, is kept high and
• Disseminate further information and responses regarding
restricted to the planning authority. It would
these concerns
be inappropriate for developers to begin a
• Clarify what constitutes non-statutory and statutory consultation phases
process of local public consultation, which
• Develop a community committee and identify roles
may cause unnecessary concern or excitement
• Prepare statutory documents for planning applications
about a proposal. To assess public sentiments
• Continue contact with interested parties, community liaison
regarding the project, conducting public
committees, and key personnel
opinion surveys is recommended early in
the project and on a period basis through Advanced Consultation • Disseminate plans to the community via traditional media, social
the development of the offshore wind farm media, and virtual channels; social media and virtual channels proved
operation. These polls will assist in identifying important during the Covid-19 pandemic and they are likely to remain
appropriate strategies to engage and inform prominent in communication campaigns
local stakeholder groups. The consultation • Continued contact with interested parties, community liaison
activities, according to the project committees, and key personnel
development phases, are itemised in Table 9. • Disseminate status and results of planning application
• Develop strategy for appeal or public inquiry
Table 9: Consultation Activities According to the Project Development Phases
26 27Community Benefit Schemes
The global offshore wind industry is at a In designing a new community benefit Another project funded a part-time business As there are many challenges in delivering
critical stage in its development. The industry’s scheme, the developer should examine and marketing manager, a new workshop with community benefits from offshore projects,
focus is on ensuring the deployment of offshore wind farm schemes already in equipment, and promotional materials. The there is a prerequisite for transparency in
offshore renewable energy projects and the operation. In addition, the developer should award helped support the business to create a all discussions between local stakeholders
creation of a strong, diverse supply chain, review schemes designed for other types of range of products, establish a customer base and the project promoter. Flexibility is a key
which will deliver sustainable benefits through infrastructure projects, such as landfill and quickly, and employ people locally. component of community benefits. There
the creation of jobs and inward investment. waste management, sports stadia, urban is no single approach and design which is
Other examples of project contributions
Complementary to the delivery of supply development, oil and gas offshore platforms, suitable for every project. Community benefit
within community benefit schemes are:2
chain benefits, developers are encouraged to onshore pipelines and processing facilities, schemes should be tailored to the needs of
consider a community benefit package. power plants, and overhead high-voltage • Water sports facilities the local context and characteristics of the site
electricity transmission lines. and project.
The challenges in delivering community • Apprenticeship schemes
benefits from offshore projects require Community benefit schemes are now a feature The scale of a community benefit fund
• Renovations to a sailing club’s boathouse
heightened transparency regarding the of international infrastructure development. In depends on the project variables and should
discussions and governance of distributive the context of wind farm projects, developers • Developing a coastal walkway be discussed openly with the community.
justice. Developers should consult widely provide funds to communities living in close Communities should understand that projects
• Creating slipways and moorings
and discuss openly what is achievable from proximity to their project and local benefits may be financially limited and should not
an early stage. The host can be any location can be in the form of new community facilities • Sea rescue boats and equipment expect transferal of fund arrangements from
geographically linked to a renewable energy or environmental enhancement. An important • Support for coastal area voluntary rescue one project to another.
development, and those living in the area. feature of community benefit schemes is that teams Table 10 suggests possible starting points in
In this context, there is no set formula to they are viewed and administered as distinct
• University bursary schemes discussing a fund.
identify a host community, although, self- from traditional economic benefits (e.g., local
identification and collaborative discussion supply chain, employment), though, there are • Local nature, conservation, and heritage
may help. Developers should not have a complementary synergies. enhancements
blanket policy, which is rolled out on all
One UK fund prioritised the following criteria • Promoting and safeguarding jobs in
projects. Scheme or package is often used
within their community benefit schemes: tourism
to describe community benefit provision.
There is no single delivery mechanism which • Small and medium size coastal The community benefits described
can, or should, be employed with every communities with a population of 60,000 and discussed in this document are
offshore wind farm. A successful scheme or or less, which are facing economic not compensation for any perceived
package is designed on a case-by-case basis challenges negative impacts. Community benefit
and has several components. For example, a provisions should not be confused with any
community benefit scheme may include funds • Promote sustainable economic growth
and jobs through economic diversification compensatory payments or provisions to
to assist coastal communities to experience specific stakeholder groups. Where developers
regeneration and economic growth through activities in coastal communities that
enable the growth of local businesses consider it appropriate to provide individual
projects that directly or indirectly create compensation for a development, this
sustainable jobs and safeguard existing jobs. • Complement strategic regeneration arrangement should be agreed between
initiatives within coastal communities the relevant parties and is separate from any
community benefit proposals.
2
See London Array and Beatrice Offshore Wind Farms
for examples of community benefit schemes.
28 29You can also read
