..
..

A .REPORTON THE
PUBLIC'S.·PERCEPTIONOF
ENVIRONMENTAL ISSUE~

: : :.

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.

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. ..

.. .

OPERATIONSPLANNING
.AND
.
. COOF3DINA
.
.. . . . TION
NOVEMBER
1984,
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. ..
~

I.IKK

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BKK52R.S/061

628,5
061
.. •

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*DOEG*
1 BI

1 1

1 1

111
1111
'W 111'll11
11
1

 1984

!!!

UPDATE OF ORGANISEDSPECIAL INTEREST !SUES AND CONCERNS
IN ENVIRONMENTAL
AREAS.

PREPARED FOR IMPERIAL OIL
BY PAT DELBRIDGE ASSOCIATES INC.
OCTOBER10TH 1984

1

 INTRODUCTION

of

issue

Environmental
areas
to

Challenging
concern
for nearly
best
seller.

work

issues
are
in today.

because
30 years

one

of

the

most

challenging

of
the
high
public
interest
and
since
Silent
~rin~
bacame
a runaway

Challenging
because
an environmental
any other
unexpected
event,
can have serious
a corporation's
image,
activities
and bottom

accident,
long term
line.

more
results

Challenging
because
the majority
of
influential,
educated
Canadians
attended
university
at
a
time
environmental
concerns
were
an
active
part
of
campus
leaving
a legacy
that
will
probably
influence
the so called
boomers
all
their
lives.

than
on

higher
when
life,
baby-

Challenging
because
the
largest
number
of
organised
special
interest
groups
fall
into
the environmental
issues
category
and this
category
has,
without
question,
the best
research,
most
skilled
staff
and volunteers
and the most organised
approach
to both
their
own operations
and the issues
themselves.
Challengin
g because
environmental
issues
are
the
federal
government
level
by a department
that
having
the
most
"activist"
orientation
of
all
departments
and,
as
part
of this
highly
political
role,
plays
a pacesetter
role
in its
close
relationship
use
of organised
special
interests.
Challenging
because
there
advantages
for
a
corporation
environmental
area
than probably
in Canada
today.

"managed"
at
is
seen
as
government
and
visable
with
and

are more opportunities
and more
to
become
proactive
in
the
in any other
active
public
issue

We set
out these
six points
because,
in our opinion,
they,
rather
than
the
actual
specific
issues
themselves,
are
fundamental
to
an understanding
of public
and special
interest
concern
in the environmental
area.
Effectively
managing
environmental
issues
requires
information
and understanding
but also
an
recognise
the
complex
values
and
perceptions
that
public
and government
priorities,
decision
making
and

not
only
ability
to
influence
regulation.

This
environmental
scan focuses
on the issues
and concerns
of organised
special
interests.
Our presentation
identifies
broad
environmental
concerns;
the
leading
groups
working
on
environmental
issues;
major
trends
which
presently
influence
their
priorities
and
strategies;
and
concludes
with
some
recommendations
of
action
approaches
to
a
more
por-active
orientation
to environmental
issues.

2

 ORGANISED SPECIAL

INTEREST

GROUP GROWTH

The
first
of the active
organised
special
interest
groups
working
in the environmental
issue
area
came into
being
in
the
early
'60•s.
Broad
conservation
oriented
groups
such
as
The
Nature
Conservancy
of Canada,
and World Wildlife
Fund and groups
concerned
with
recreational
interests
such as the Federation
of
Ontario
Cottagers,
and Ontario
Federation
of Anglers
and Hunters,
formed
traditional
representer
organizations
seeking
to provide
a
focal
point
for membership
concerns.
The more
active
advocacy
organizations
started
in Canada
with
Pollution
Probe
in
1969,
followed
closely
by the first
public
interest
law
organizations
in
the
Nader
model
(e.g.
The
Canadian
Environmental
Law
Association
in 1970).
The more militant
environmental
groups
came into
being
in the
early
and mid '70's;
their
increasing
concern
with
the
lack
of
government
and
industry
responsiveness
was reflected
in
their
names:
STOP
(Save
Tommorrow Oppose
Pollution);
THINK
(Total
Honesty
in Nuclear
Knowledge);
and the Ecology
Action
Centre.
The
end
of the 1970's
saw a rapid
rise
in small
single
issue
groups
and
community
organizations
with a vocal
and organised
concern
with
specific
environmental
issues.
Groups
such as CRAW (Citizens
Rebelling
Against
Waste),
CRAP (Citizens
Reacting
Against
Pollution),
TRAP
(Tiny
Ratepayers
Against
Pollution)
were
followed
by at least
300 small
organizations
that
sprang
up
to
fight
a specific
issue
and often
by petition,
media
pressure
and
or
political
savvy
achieved
project
postponement,
cancellation
adjustment.
From the Beaufort
Sea to Point
Pelee,
business
and industry
became
aware
that
a new operating
style
became
imperative.
This
style
involved
early
involvement
of stakeholders
in the planning
process,
recognition
of stakeholder
concerns
in discussion
with
government,
and acceptance
that
most projects
and programs
were
likely
to
involve
some
trade-offs
between
corporate
and
community
interests.
In
stand-off
feeling

many
instances
this
negotiating
or
confrontational
exercise
comfortable
or satisfied
with

Both
business
of the inappropriate
recognition
of
process.

and organised
legislation
the
inadequacies

process
ended
up
in
with
none of the
parties
the process
or outcome.

a

special
interests
feel
that
much
came about
because
of governmnet
of
existing
decision
making

Today's
environment
continues
to change
with
new
strategies
and
trends
emerging
from all
three
partners
in
env ironmental
planning
- government,
business
and organised
special
interests.
Unfortunately
the public,
through
media
reporting
of
disasters
and
reactions,
may still
continue
to feel
that
business
is
the
weak
link
in
the partnership
that
always
puts
profit
before
people
and short
term necessity
before
long
term
surv ival.

3

 We
experience
considerable
frustration
in
observing
the
environmental
partnership
in action.
With few exceptions
business
in
seems
content
to continue
to play a reactive
role,
at least
the
public
forum,
allowing
government
and special
interests
~o
define
the issues
suggest
solutions,
discuss
and dialogue.
This
reinforces
both p~blic
and special
interest
perceptions
that
only
they
are aware
of, and deeply
concerned,
about
the issues.
A.
The
Imperial

they

Issues
Oil

Identified.

Environmental

In gen e ral,
the
relate
specifically

broad

o Water

Quality

and

Air

Issues

environmental
to I mperial
Oil

concerns
may be

Relating

for the
categorized

to

'80s
as
as:

o Lan d Use

o Hazardous

o Energy

Waste

Disposa

l/Transportation

Production

o Depletion

o Environmental

of

Resources

and

Occupational

Health

In

each category
there
are issues
which,
i n actuality
or
public
perception,
are seen to be potential
d i s a s ter
scenarios.
Environmental
issues
should
also
be
recognised
as
constantly
shifting
in
priority
as
solutions
are
found.
Fo r
example,
although
sour
gas emissions
will
decrease
as bette r c ontrols
are
put in place,
concern
will
grow over
the developmen
t o f tar
sands
plants
and the coal-fired
industry.
Therefore,
any app ro a ch
to
environmental
issue
management
requires
early
warning
o f emerging
issues
of potential
public
concern,
as well
as a p l a n of action
for
resolution
of existing
priorities
and integrat
i on of
future
prevention
programs
in new projects
and developments.
It
terms

is
is

also
important
occuring
that

to
will

recognise
result
in

4

a subt l e red efinitio
changing
accept e d

n of
v al ue s .

 For
example,
"non-renewable
resources"
are
gradually
being
redefined
as anything
that
cannot
be replaced
as quickly
as it is
used,
thereby
increasing
the kinds
of resources
in the
spectrum
of concern,
as well as placing
a more immediate
onus on provision
for
the more tangible
future.
Similarly,
"hazardous
wastes"
may
be identified
as any industrial
waste
that
may have a potentially
deleterious
effect
on the environment,
as opposed
to those
which
are empirically
"toxic".
Environmental

Group

There
are seven
changing
special
o The

Trends

relating

new trends
interest

to

that
are
environment:

increasing

use

by

Imperial

important

Oil
to

of

organised

special

constituency

and

counter

lobby

in

interests
support

the

and

(political

government

bureaucratic)

recognise

as
to

both

a

government

initatives;
o Use
to

o f Court s to
conce r ns/rece

o Specialization
areas

of

o Increasing

prosecute/win

injunctions/bring

i ve

restitution

of

Gr oup s - breakdown

concern,

emphasis

then

and/or

form

attention

compensation;

into

specialized

coa litions;

on access

to

inform

ation/right

to

know;

o Increasing

Club

in

o Increased
process

politization

of

groups

- Green

Party,

Sierra

U.S.;

participation/concern
- hiring

of

with
experts,

5

pub lic

consultation

compen sation

for

 interventions

·

'

0

Increasing

pressure

on government

0

Increasing

emphasis

on reverse

to

onus

regulate,

in

legislate;

burden

of

proof.

ACTION APPROACHESTO ISSUES AND TRENDS
A
a corporation

three

proactive
approach
has many facets:

o

internal
ations,

problem
problem

o

an
active
government

o

consultation
differences
prio r iti e s,
conc e rn;

o

r esearc h a nd
ch a n gi ng pu blic

trends

on the

problem

relations
program
and priorities;

public
opinion
perceptions,
i nte r e st

sampling
issues
and

concerns

can

be

part

to

recognise
to
test
new
issue
to public

to
identify
concerns.
categorized

-

open

time-frame

wel l

de fin e d;

evident;
and

0 SHOULD DO: often

comprehensive
"easy

- demonstration
-

by

ACTIONS:
se rious
problems
having
an
or
long-term
h e alth
or safety
implica-

and

- action

of

prioritiz-

components
plan

e.g.

and

with
organised
special
interests
in issue
perception,
identify
and
demonstrate
responsiveness

MUST DO
immediate
tions.

~

issues

identification,
resolution;

government
pressures

Organ i sed special
l eve l s of activity:
0

to

joint

commun i ca tion

to

do",

projects

industry/interest

6

group

pr ojects

 - joint

industry/interest

group

information

industry/interest

group

research

seminars;
-

joint
projects

0

NICE

TO DO: actions
that
may be seen to be
"antiprofit"
but are construed
by the
public
as
industry
going
that
"extra
mile"
for
environmental
benefit.

REVIEWING
ENVIRONMENTAL ISSUES
PERSPECTIVE

CORPORATE

It interesting
to look at what conditions
concerned
with
corporate
responsibility
as
providin
g a comprehensive
proactive
in the environmental
area.

groups
identify
issues
They

FROM A

fall
1.

into

six

MI SSION

those
interest
issues
would
approach
to

areas:
STATEMENT

- corporate
identifying
stakeholder
2.

RESPONSIBILITY

IDENTIFIED

respons i bi lity
relating
relatio
n s hip
to
i n terests
.

to the environment
community,
external

RESPONSIBIL I TY

- structured
- external

internal
responsibility
communication
of ex i s t ance

3. AWARENESS OF ISSUES
- demonstrated
demonstration
4.

speeches,

c o n f er e nces,

ACTION RESPONSIVENESS
programs
in which
- involving,

5.

in
corporate
projects.

that
show IOL as
it operates
communicating,

responsive

in

community

consulting

COMMUNICATION OPENNESS
-

No statments
that
~o
be misleading

-

Open

and

can be subsequntly
or false.
No false

comprehensive

attempt

7

to

proven
reassurances

bring

public

up

to

 speed

6.

on environmental

issues.

CORPORATE ACCOUNTABILITY
-

involvement
(Board
of

of key
Directors,

publics
in
planning

decision
groups)

making

1. DIALOGUE/INFORMATION OUTREACH.
- contact
with
special
information
sharing.

interest

8

groups,

joint

research,

 SPECIFIC

ISSUE

APPLICATION:

AUTO EMISSIONS

At
this
point
it is perhaps
helpful
to pull
together
our
main
themes
into
one example
of an issue
that
has
particular
relevence
for both Imperial
Oil and organised
special
interests.
The
issue
of auto
emissions
may
represent
different
specific
concerns,
depending
on the objectives
and focus
of the
special
interest
groups
involved.
Industry
may have
a
very
direct
definition
of auto
emissions
that
does not take
into
account
its
connotation
to the groups.
Thus,
there
is a need for industry
to
a narrow
definition
of the issue
which may
overlook
some
avoid
other
areas
of concern
that
may impact
on public
perception
of
the
corporation.

Using
external
implementation
enhance
the

the
issue

above
framework,
it is possible
to
in
such
a way
that
it
could
of
corporate
goals
and objectives,
external
image of the company.

identify
support
as
well

the
the
as

WHAT DOES IT MEAN?
There

are

two

main

issue

thrusts

associated

Environmental

with

auto

emmissions.

Health

and

I ss u es
Acid
-

Issues

f orm in g emi ss i ons

pr eservation
and

Safety

of

Lead

fish,

wildlife

in

gasoline

- improvement

wilderness

lifestyle

-

forestry

and

agriculture

-

lakes

and

water

-

conservation

of

of
and

cond-

itions
quality

-

recreational

learning
in

disabilities

children

lands
-

emissions

of

nitrous

oxide

Objectives
reduce

emissions

preservation
research

Ob j ec tives
causing
of

to

acid

rain

r e duction

environment

de-acidify

" 0"

lakes

-

9

lead

improved

of
in

lead
gas

well-being

in

gas

 - encouragement
sound

policies

- public
of

of

environmentally

and

education

the

- regulation

programs

and

severity

of

of

and

auto

- regulation

awareness

acid

future

of

children

of

auto

emissions

rain

emissions

Groups

Groups
- Nat'l
Council
of Women
- Consumers
Assn of Cda.
- Cdn. Council
on Chldrn.
and Youth
- Cdn. Institute
of Child
Health
- Cdn. Assn.
for Children
with Learning
Disabilities

Cdn. Coalition
on Acid Rain (and mbr.groups)
Greenpeace,
Pollution
Probe,
Sierra
Club,
Wildlands
League,
Nat'l
Council
of Women,
Fed.
of Ont. Cottagers,
Cdn. Nature
Fed,
Society
to Overcome
Pollution,
Cdn. Wildlife
Fed.,
Fed. of Ont. Naturalists,
Ont.
Fed.
of Angl e rs & Hunter s , CELA,
Fed.
of Assns.
for Protection
of Env. & Lakes
Consv.
Council
of N. B., Que . Assn Against
Acid Rain
WHAT IS HAPPENING TO THE ISSUE?

0

Pressure

promise

o

tighten

Minister

open

o

Synopsis

in
of

government

controls

responsible

hearings,

for

o

to

on federal

near

transcripts

t o act

on car
has

pollut

on

Mulroney's

campaign

i on ;

indicated

possibi

lities

of

new

future;
from

previous

hearings

being

p r epa red

new Minister;
International

saw

a

annual

formal
sulphur

conference
commitment
dioxide

on acid

rain

by 10 countries
emissions

by 1993,

emissions.

10

held

in

to

Canada

a 30%

and

also

las t Marc h

reduction
nitrous

in
ox id e

 WHAT CAN INDUSTRY DO?

MUST DO ACTIONS:
-

Show

evidence

understanding

of

of

seen

of

external

stakeholder

a priority

internally

-

Issue

-

Comprehensive

plans

-

"On request"

openness,

research

as

awareness

for

action

concern

issue,

for

and

needs;
and

with

externally;

reasonable

willingnesa

to

share

time

frame;

information

evidence;

- Willingn

e ss

to

consider

communications

dialogue,

- company

to

s een

be

independent

research

consultation
self-regulated

(when
leader,

and

comprehensive

appropriate);
responsible

SHOULD DO ACTIONS:
pa r ticipa

visible

- Acti ve,

tion

in

government

committees,

he a rin gs;
- e ncouragement
-

l iaison

-

j o i nt

of

with

key

open

hearing

pr oc e ss;

groups;

industry/group

projects:

- research
-

information

- public

seminars

education

for

- Presentations/demonstrations

end-user
showing

action

and

co ncern

IICB TO DO ACTIONS:
- Ind i cate
time-frame
(cou l d b e a "must do"

for
if

movement
legislated)

11

towards

Zero

Lead

in

gasoline

 SPECTRUM OF ACTIVITIES

FROM THE IOL PERSPECTIVE

A comprehensive
list
concerns
are attached

of issues
as Appendix

From
this
addressed

would
identify
processes
to

They

can

list
using
also

we
similar
be

clasified

0

Must

O

Should

0

Nice

into

together
B.

our

with

special

14 issues
the emission
three

interest

that
could
example.

priority

categories.

Do
Do
To Do
MUST DO
(OF KEY OPERATIONAL INTEREST)
o Acid

Rain
(Federal

emissions

- automobile
hea rings)
- ref ining

emissions

- Transb oundary
Act
o Waste

(draft

of

- disposal

and

- sour
12

waste

selection

oil
t at io n )

"hazardous"

Response
spills
gas

waste

(consul
of

- tanker

s it es

existing

of

- definition
o Disaster

Manage ment

historical
of

- recycling

Reciprocal

Ont . l eg islation)

Disposal

- review

- site

Pollution

emissions

Preparat

i on

be

 o Transportation

of

Hazardous

Substances
SHOULD DO
o Land

Use

- compensation

to

- environmental
o Water

impact

Quality

- Federal

Task

o Resource

Force

Depletion

- alternate

energy

affordable
o Health

sources

and

Safety

- automobile

emissions

- occupational

- Amoco Ca diz
(environmenta

-

land

Peoples
claims

- rights
- way of
o Development
- northern
- offshore
-

tarsands

13

life

(lead)

health

o Burde n o f Proof

o Native

farmers

(Reverse
oil

spill

l

liability

Onus)

suits)

 NICE TO DO
o Conservation
- protection
- parks

of

and

sea

life

wilderness

o Recycling
- resource

recovery

and

pollution

control

SUMMARYAND CONCLUSIONS
Environmental
the general
public,
to repre se nt them,
industry
organised
the issu

issues
are
the organised
and government.

a major
special

focus
of
interests

interest
for
that
purport

undertaken
by business
and
To date
much of the activities
have
been
low
key or
reactive
in
nature,
leaving
s pecial
interests
and government
to identify
and define
es,
s ug g est
remedial
action
and longer
range
time-frames.

A
more
proactive
approach
to
organised
special
int e re s t s,
and
a
mor e consistent
communications
outreach
of
pre se n t programs
and initiatives
could
help
position
Imperial
Oil
with
government,
orga n ised
s pecial
interests,
and the public,
as
concerned
and responsive.
Building
on ex i sting
programs ,
particularly
in the
of
water
and
air
quality,
hazard ous
waste
and
public
workplace
health
and
safety,
would plac e Imperial
Oil
stronger
position
to
influence
new
r eg ulation
and
credability
and stakeholder
support
for e xi s ting
operations
new
plans
and programs.

14

areas
and
in
a
build
and

 ENI
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 APPENDIX B. USE OF

The

use

of

environmental
acknowledge

courts

group
that

will

often

are

perceived

use

the

is

likely

activity

the

to

THE LEGAL SYSTEM AS A SIGNIFICANT TREND

court
courts

have

the

to

date.

process

is

only

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most

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However,
not

most

without

in

in

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alternatives

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trend

fail,
terms

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as

of

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solutions:

COURTACTION
PROS
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- good
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action

fallback
other

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to

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months

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argument

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alternative

negotiation
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court

years

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system

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to

be expensive
groups

on both

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who lose

give

in

15

yes/no
both

sides

examination

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detrimental
(court

costs

sides)

may leave
(no

or

(class)

Canadian

of

action
courts

decision

that

dissatisfied
"grey

not

areas")

allowed

 ALTERNATIVESTO COURTACTION:

NEGOTIATION
(PUBLIC PARTICIPATION)

MEDIATION

Negotiation

and

is

favoured

process

most

public

ADVOCACY

participation

in

the

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plannin

by groups.

NEGOTIAT~ON

PROS

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and

to

CONS

question

assumptions

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decisions

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a substitute

be

heard

court

action

can

be

faster

- expense

of

trained
_ involves

for

more
and

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involved

hiring

experts

highlyas

intervenors

who can
in

key

stages

- public
if
or

participation

conflict
if

planning

16

blows
public
process

can

fail

up suddenly
brought
too

into
late

 MEDIATION
PROS
- trade-offs

CONS
can

be made voluntarily

- mediator

has

impose
- parties

reach

no authority

to

settlement

consensus
- in

order

both

for

sides

(i.e.

process
must

to

sit

at

work,
table

leverage

necessary

talks

continue--gov't

ensure
and

industry

not

the

have

it,

to

but

public)

ADVOCACY

PROS
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groups

-

focus
increases

can

CONS
be avoided

interact

at

on research
expertise,

early

(briefs,

if

- charitable
stages

studies)

credibility

problems

- institutionalization
organizations
requires
raising

17

registration

of
costs

investment

money-in

fund-