'Fracking', Framing and Effective Participation

Hydraulic fracturing ('fracking') is a technology that allows the extraction of unconventional fossil fuel resources (oil and gas). The technology has been widely used in North America over the last decade but is in a much earlier stage of development in the UK. Government policy in the UK is actively encouraging the deployment of this technology and test drilling has taken place at several sites in the UK. There has been significant policy and public controversy around the use of the technology: it is simultaneously viewed by some actors as a novel and risky technology with the potential to adversely affect public health and the environment, but by others as rather more mundane and manageable. Shale gas, furthermore, is viewed by some as able to help the UK meet emissions reduction objectives but by others as hindering this task. Finally, the governance of shale gas development is also a source of conflict, with varying ideas about the ways and extent to which publics and local communities should have a say in policy and decision-making. This contested nature of shale development amongst different groups and stakeholders represents a key socio-political challenge for development in the UK.

We analyse this challenge as arising from distinct ways of understanding and viewing the fracking issues ('framing') amongst different kinds of actors. We aim to improve understanding of this socio-political challenge facing shale development in the UK through an investigation of the relationships between three distinct but related research areas: public perceptions of the issue, policy debates ('frames') around shale gas and fracking, and formal processes of public engagement and participation on the matter. A nationally representative survey of public perceptions, as well as in-depth interviewing in a local community case study (the Fylde, Lancashire), will provide a better understanding of public perceptions on fracking for shale and the actors and processes of its governance, and the public acceptability of shale development in the UK. Policy debates will be analysed to better understand the arguments ('frames') put forward by advocates, their contestation, and how these debates have shaped and continue to shape UK policy. Finally, formal processes of public engagement and participation will be examined in order to assess the extent to which they help to resolve or amplify the public acceptance challenge for shale development in the UK. We are particularly interested in the relationships between these three research areas. For example, we ask, how well do policy debates reflect public views? And can the public influence decision making? Research findings will be of interest to policy makers, industry actors, regulators, environmental groups, and members of the public with an interest in the issue of fracking and shale gas development specifically, but also the issues of climate change, democracy and social controversies over technology more broadly. The primary benefit of the research will be to provide both a better understanding of the scale and nature of the social and political challenges facing shale gas development in UK, and a better understanding of the potential of public participation and engagement to help address these challenges.

Who might benefit from this research?

Possible beneficiaries of the research include policy makers, industry actors, regulators, planners, environmental groups, and members of the public with an interest in the issue of fracking and shale gas development specifically, but also the issues of climate change, democracy and public controversies over technology more broadly.

How might they benefits from this research?

Policy makers will benefit from the research due to the provisions of an updated and extended understanding of nature and extent of the socio-political challenges facing shale gas development in the UK arising from its public acceptability and ongoing policy contestation. Furthermore, policy makers will benefit from an assessment of the effectiveness of formal processes of public engagement and participation to address these challenges. Industry actors may benefit from this research by gaining insights into the effectiveness of industry public engagement in resolving issues around public acceptability. Insights will be produced around the kinds of practices and engagement designs likely to help or hinder the establishment of community support. Similarly, insights will also be produced on public participation in planning and regulatory decision making processes that will benefit regulators. This will in include an assessment of how well these processes 'accommodate' public views and how this interacts with public and community acceptability. Environmental NGOs and members of the public, finally, will benefit from the knowledge produced about their ability to have an influence on policy and decisions through formal processes of public engagement and participation. Furthermore, environmental NGOs may find insights regarding the process of policy framing struggles and how they shape policy decisions of use. Local public groups in the case study region, finally, may find comparisons between local community and general public perceptions instructive and may also benefit from a better understanding of the policy and planning processes surrounding shale gas development.

To ensure these insights reach their target beneficiary, the project has developed a programme of targeted activities described in the 'pathways to impact' section in more detail. In short, key policy makers and other stakeholder will be engaged through participation in an independent advisory group, by producing policy briefs, and organising a launch event in London. Engaging with the general public will occur through research team members contributing to the public debate through news and social media channels. Finally, local communities will be invited to an informal event in the case study region.