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Environmental justice in the UK: uncertainty, ambiguity and the law

Published online by Cambridge University Press:  02 January 2018

Ole W Pedersen*
Affiliation:
Newcastle Law School

Abstract

This paper examines the concept of environmental justice with particular reference to its development in the UK. The paper analyses the empirical evidence behind environmental justice and argues that, while the body of evidence is compelling, it simultaneously highlights a number of limitations. Moreover, the paper offers an analysis of the multiple responses taken at official and non-governmental organisation levels to environmental justice. The paper argues that often these responses are vague and diverse, and run the risk of rendering environmental justice, as a concept, ineffective. Finally, the paper discusses what role the law may be able to play in shaping environmental justice debates in the UK.

Type
Research Article
Copyright
Copyright © Society of Legal Scholars 2011

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References

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41. Ibid. The study noted that ‘[T]his exceptional group...appears to be living in a situation that is patently unjust’.

42. Walker et.al Environmental Quality, above n 34, p 101.

43. Ibid, p 73.

44. Ibid, p 132. The five pollutants measured were nitrogen dioxide (NO2), fine particulates (PM10), sulphur dioxide (SO2), carbon monoxide (CO2) and benzene.

45. Ibid, p 103 (emphasis added). The study noted that the ‘greatest differential occurs with respect to NO2 (least deprived decile has a ward mean concentration 58% above that for average deprivation decile, compared to only 38% for the most deprived decile)’.

46. Environment Agency, above n 33.

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51. Walker et.al, ibid, p 12.

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64. To this FoE have, however, argued that ‘whatever the direction of the link, the injustice is real’: McLaren et.al, above n 30.

65. See Mitchell and Dorling, above n 39, at 914.

66. Ibid, at 925.

67. See above n 11.

68. Burningham and Thrush, above n 59, p 13. See, however, Todd and Zogrofos arguing that ‘often the surrounding community suffers from the environmental costs but does not directly benefit from the development’, without, however, offering any empirical evidence for the claim: Todd and Zogrofos, above n 60, at 488.

69. See above n 9.

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76. Economic and Social Research Council, above n 32.

77. London Sustainability Exchange Environmental Justice in London (London: London Sustainability Exchange, 2004).Google Scholar See also Charles, A and Thomas, H ‘Deafness and disability – forgotten components of environmental justice: illustrated by the case of local Agenda 21 in South Wales’ (2007) 12(3) Local Environment 209.CrossRefGoogle Scholar

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79. See also London Sustainability Exchange, above n 77, noting that ‘[T]he lack of direct racism does not dilute the crucial need to review disproportionate impacts on BME [black and minority ethnic] groups and should not be lost in a general discussion of social inclusion; p 12.

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100. See n 71 above.

101. See Turner, S ‘Transforming environmental governance in Northern Ireland. Part one: the process of policy renewal’ (2006) 18(1) Journal of Environmental Law 55 CrossRefGoogle Scholar and Turner, S ‘Transforming environmental governance in Northern Ireland. Part two: the case of environmental regulation’ (2006) 18(2) Journal of Environmental Law 245 CrossRefGoogle Scholar, for a critical appraisal of environmental justice in Northern Ireland. Turner notes that ‘a lack of resources has also excluded the [Northern Ireland] Department [of the Environment] from the important debate ongoing in Great Britain concerning environmental justice’.

102. Turner ‘Part one’, ibid.

103. See Turner, S ‘Devolution as a barrier to environmental reform’ (2009) 11(3) Environmental Law Review 150 CrossRefGoogle Scholar, for an analysis of Northern Irish environmental governance.

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105. Poirier, MR ‘Environmental justice/racism/equity: can we talk?’ (1994) 96 W Va L Rev 1083 at 1104.Google Scholar See Layard, A ‘Environmental justice: the American experience and its possible application to the United Kingdom’ in Holder, J and McGillivray, D (eds) Locality and Identity: Environmental Issues in Law and Policy (Aldershot: Ashgate, 1999)Google Scholar, for a similar point in relation to the Executive Order.

106. See, eg, Holifield, R ‘Defining environmental justice and environmental racism’ (2001) 22(1) Urban Geography 78 CrossRefGoogle Scholar, noting that the vagueness might hamper its application on national level but instead it helps making it effective as a populist rhetorical tool, at 82.

107. See D Pellow and R Brulle ‘Power, justice, and the environment: toward critical environmental justice studies’ in Pellow and Brulle, above n 24, p 16, arguing that too broad a focus runs the risk of diffusing the movement's aim.

108. Environment Agency Using Science to Create a Better Place (Bristol: Environment Agency, 2007) p v.Google Scholar

109. Above n 16.

110. Nagel, T Equality and Partiality (Oxford: Oxford University Press, 1991) p 21.Google Scholar See also Rawls, J A Theory of Justice (Cambridge: Belknap Press, 1971) p 145,Google Scholar who notes that ‘If a conception of justice is unlikely to generate its own support, or lacks stability, this fact must not be overlooked. For then a different conception of justice might be preferred’.

111. A number of environmental justice Bills have been presented before US law makers throughout the last 15 years although none have so far been successful. These include attempts by Senator Al Gore of Tennessee (S 2806, 102nd Cong (1992)) and by Representative John Lewis of Georgia (HR 5326, 102nd Cong. (1992)) calling for a moratorium on siting of new hazardous waste facilities in what was proposed as 100 ‘high impact areas’. See Roberts, above n 5, at 239–240. Since then further attempts have been made throughout the 1990s and most recently in 2005 with the Environmental Justice Act of 2005 (HR 427 (Rep Udall, D Co)) seeking to require federal agencies to develop and implement policies and practices that promote environmental justice.

112. See, eg, Harrisburg Coalition against Ruining the Environment v Volpe 330 F.Supp 918 (MD Pa 1971) and Bean v Southwestern Waste Management Corp 482 F.Supp 673 (SD Texas 1979). In the latter it was noted ‘[A]t this juncture, the decision of TDH [Texas Department of Health] seems to have been insensitive and illogical. Sitting as the hearing examiner for TDH, based upon the evidence adduced, this Court would have denied the permit. But this Court has a different role to play, and that is to determine whether the plaintiffs have established a substantial likelihood of proving that TDH's decision to issue the permit was motivated by purposeful discrimination in violation of 42 USC s 1983 as construed by superior courts’: at681. See also in general Smith, K ‘How the legal system has failed the environmental justice movement’ (19961997) 12 J Nat Resources & Envtl L 325.Google Scholar

113. Alexander v Sandoval 532 US 275 (2001) and Gonzaga v Doe 536 US 273 (2002).

114. See Cole, LW ‘Environmental justice and the three great white myths of America’, (2008) 14 Hastings W–Nw J Envt'l L & Pol'y 573.Google Scholar

115. In support for extending legal rights to the environment, Stone's seminal essay remains one of the most compelling ones: Stone, C ‘Epilogue: “trees” at twenty five’ in Stone, C Should Trees have Standing? And Other Essays on Law Morals and the Environment (New York: Oceana Publications, 1996).Google Scholar

116. See, eg, R Benford ‘The half life of the environmental justice frame: innovation, diffusion and stagnation’ in Pellow and Brulle, above n 24.

117. Gordon, RW ‘Some critical theories of law and their critics’ in Kairys, D (ed) The Politics of Law: A Progressive Critique (New York: Basic Books, 3rd edn, 1998).Google Scholar See also Sunstein, C Laws of Fear: Beyond the Precautionary Principle (New York: Cambridge University Press, 2005) pp 168169 CrossRefGoogle Scholar, noting that although redistribution is best done through a tax system, where this fails, regulation (as the much cruder tool) may be used. See also Layard, above n 105, pp 180–186.

118. See above n 111 as well as American Bar Association and Hastings College of the Law Environmental Justice for All, a Fifty State Survey of Legislation Policies and Initiatives (American Bar Association, 2004), available at http://www.abanet.org/irr/committees/environmental/statestudy.pdf.

119. See, eg, N Targ ‘The states' comprehensive approach to environmental justice’ in Pellow and Brulle, above n 24, p 171.

120. See above n 22 and accompanying text.

121. Most recently the Environmental Information Regulations 2004, SI 2004/3391 and Environmental Information (Scotland) Regulations 2004, SSI 2004/520. See also Directive 2003/4/EC of the European Parliament and of the Council of 28 January 2003 on public access to environmental information and repealing Council Directive 90/313/EEC [2003] OJ L41/26.

122. See Macrory, R Modernising Environmental Justice: Regulation and the Role of an Environmental Tribunal (London: University College London, 2003)Google Scholar, Adebowale, M Using the Law: Access to Environmental Justice – Barriers and Opportunities (London: Capacity, 2004)Google Scholar and Leigh Day and Co Solicitors and WWF UK The Environmental Justice Project (2004), available at http://www.unece.org/env/pp/compliance/C2008 23/.../AnnexCEJP.pdf.

123. Sir Carnwarth, Robert ‘Environmental litigation – a way through the maze?’ (1999) 11(1) Journal of Environmental Law 3.CrossRefGoogle Scholar Sir Robert Carnwarth's assertion was largely echoed in Brooke LJ's paper ‘Environmental justice: the cost barrier’ (2006) 18(3) Journal of Environmental Law 341.Google Scholar

124. Working Group on Access to Environmental Justice Ensuring Access to Environmental Justice in England and Wales (2008). The Working Group found that the costs litigants face include not merely formal court fees but also the total exposure to costs, ie the risk of being ordered to pay costs for other parties and requirements of cost undertakings for, say, an interim injunctive relief. See also Morgan and Baker v Hinton Organics[2009] EWCA Civ 107, where the Court of Appeal found against the High Court's order of an interim cost order noting that the Aarhus Convention did not, as such, form part of UK domestic law.

125. LJ, Jackson Review of Civil Litigation Costs: Final Report (Norwich: TSO, 2010) p 310.Google Scholar

126. Environmental Law Foundation and BRASS Costs Barriers to Environmental Justice (London: Environmental Law Foundation, 2010).Google Scholar

127. Lee, R and Stech, R ‘Access to environmental justice in England and Wales: funding representation for court reviews of administrative actions’ in Steele, J and Van Boom, W (eds) Mass Justice: Challenges of Representation and Distribution (Cheltenham: Edward Elgar, 2011) forthcoming.Google Scholar

128. Friends of the Earth v Secretary of State for Business Enterprise and Regulatory Reform[2010] Env LR 11 and Warm Homes and Energy Conservation Act 2000, s 2.

129. Ibid, at 198.

130. Miller v Jackson[1977] QB 966.

131. Sturges v Bridgman (1879) 11 Ch D 852 at 865. See also Gillingham BC v Medway (Chatham Docks) Co Ltd[1993] QB 343.

132. Murdoch and Murdoch v Glacier Met.al Company Limited[1998] Env LR 732.

133. Wheeler v JJ Saunders[1995] Env LR 286.

134. Dennis v Ministry of Defence[2003] EWHC 793 (QB), [2003] Env LR 34. See also Rushmer v Polsue and Alfieri Ltd[1906] 1 Ch 234 and Maquire v Charles M'Neil Ltd[1922] SC 174.

135. Corby Group Litigation v Corby District Council[2009] EWHC 1944 (TCC).

136. For commentary on the judgment, see Hart, D, Jolliffe, J and Marcus, R ‘Contaminated land in Corby and Sandridge: historic liabilities’ (2009) 3 Env Liability 102 Google Scholar and Lee, B ‘Old iron: birth defects litigation and the Corby Steelworks' reclamation’ (2009) 25(4) Journal of Professional Negligence 174.Google Scholar

137. Above n 128.

138. Poustie, M Environmental Justice in SEPA's Environmental Protection Activities: A Report for The Scottish Environmental Protection Agency (Stirling: SEPA, 2004).Google Scholar

139. SEPA Protecting and Improving the Environment through Regulation: SEPA's Vision for Regulation (Stirling: SEPA, 2005) p 20.Google Scholar

140. SEPA Enforcement Policy Policy No 5 (Stirling: SEPA, 2008).

141. See Environment Agency Creating A Better Place 2010–2015: Our Corporate Strategy (Bristol: Environment Agency, 2010).Google Scholar

142. Office of the Deputy Prime Minister Planning Policy Statement 1 (PPS1) Delivering Sustainable Development (London: ODPM, 2005).Google Scholar

143. Office of the Deputy Prime Minister Planning Policy Statement 10: Planning for Sustainable Waste Management (London: ODPM, 2005).Google Scholar

144. Planning and Compulsory Purchase Act 2005.

145. Ibid, s 19. In Scotland, planning authorities are equally under an obligation to exercise any functions with the objective of achieving sustainable development. See Planning etc (Scotland) Act 2006, s 3E(2).

146. Ibid, ss 19 and 39 for local planning authorities and s 5(4) for revision of regional spatial strategy.

147. See in general Office of the Deputy Prime Minister Sustainability Appraisal of Regional Spatial Strategies and Local Development Documents (London: ODPM, 2005). See also Jackson, T and Illsley, B ‘An analysis of the theoretical rational for using strategic environmental assessment to deliver environmental justice in the light of the Scottish Environmental Assessment Act', (2007) 27(7) Environmental Impact Assessment Review 607 CrossRefGoogle Scholar and Connelley, S and Richardson, T ‘Value driven SEA: time for an environmental justice perspective?’ (2005) 25(4) Environmental Impact Assessment Review 391.CrossRefGoogle Scholar

148. Carpets of Worth Ltd v Wyre Forest DC (1991) 62 P & CR 334 at 339 and 342 per Purchas LJ. See also EC Gransden & Co Ltd v Secretary of State for the Environment and Gillingham BC[1986] JPL 519.

149. See s 71 of the Race Relations Act 1976 stipulating that bodies subject to the statute shall have due regard to the need (a) to eliminate unlawful racial discrimination; and (b) to promote equality of opportunity and good relations between persons of different racial groups.

150. R (Baker) v Secretary of State for Communities and Local Government[2008] EWCA Civ 141 at [31] per Dyson LJ.

151. See R (Janet Harris) v London Borough of Haringey[2009] EWHC 2329 Admin.

152. See in general Pedersen, OW ‘European environmental human rights and environmental rights: a long time coming?’ (2008) 21 Georgetown International Environmental Law Review 73.Google Scholar

153. See mainly Application No 16798/90 López Ostra v Spain decision of 9 December 1994, Application No 55723/00 Fadeyeva v Russia decision of 9 June 2005 and Application No 48939/99 Öneryıldız v Turkey decision of 30 November 2004. For a discussion of environmental rights and environmental justice, see Layard, above n 105, pp 171–175 and Osofsky, HM ‘Learning from environmental justice: a new model for international environmental rights’ (2005) 24 Stan Envtl LJ 71.Google Scholar

154. Öneryıldız v Turkey, ibid, para 56.

155. Application No Brânduşe v Romania decision of 7 April 2009.

156. Fadeyeva v Russia, above n 153, para 121.

157. See Sexton, K ‘Socioeconomic and racial disparities in environmental health: is risk assessment part of the problem or part of the solution?’ (2000) 6(6) Human and Ecological Risk Assessment 551.CrossRefGoogle Scholar