Governance of complex socio-environmental risks: the case of hazardous chemicals in the Baltic Sea.

Complex socio-environmental risks challenge society. In response to scientific uncertainty and sociopolitical controversies, environmental governance, precaution, and the ecosystem approach to management are held forward as complements to governmental risk-based sector-restricted regulation. We analyze this development for hazardous substances in the Baltic Sea. Based on interviews and policy analysis, we study informal governance and, in particular, four central EU and international policies, and investigate how present governance relates to risks and objectives at hand. While showing emergence of broader governance approaches, we conclude that central objectives will not likely be met. Furthermore, we question the quest for broad environmental governance and emphasize the value of command and control regulation, if it implements precaution. These findings contribute to the theorizing on environmental (risk) governance. Finally, we provide some ideas that could help development and implementation of risk policies for hazardous chemicals in the Baltic Sea as well as other complex risks.

Mind the gap: Coping with delay in environmental governance.

Gaps between public policy goals and the state of the environment are often significant. However, while goal failures in environmental governance are studied in a number of disciplines, the knowledge on the various causes behind delayed goal achievement is still incomplete. In this article we propose a new framework for analysis of delay mechanisms in science and policy, with the intention to provide a complementary lens for describing, analysing and counteracting delay in environmental governance. The framework is based on case-study findings from recent research focusing on goal-failures in policies for climate change, hazardous chemicals, biodiversity loss and eutrophication. It is also related to previous research on science and policy processes and their interactions. We exemplify the framework with two delay mechanisms that we consider particularly important to highlight-denial of science and decision thresholds. We call for further research in the field, for development of the framework, and not least for increased attention to delay mechanisms in environmental policy review and development on national as well as international levels.

Effects of settling organic matter on the bioaccumulation of cadmium and BDE-99 by Baltic Sea benthic invertebrates.

Settling organic matter (OM) is the major food source for heterotrophic benthic fauna. The high sorption affinity of many contaminants for OM implies that OM can influence both the distribution and bioavailability of contaminants. Here, we experimentally examine the role of settling OM of various nutritional qualities on the bioaccumulation of cadmium and the flame retardant BDE-99 by three benthic invertebrates; Macoma balthica, Monoporeia affinis and Marenzelleria sp. Contaminants were associated with three types of OM; a microalgae (Tetraselmis spp.), lignin and sediment. Bioaccumulation of Cd was proportional to OM nutritional quality for all three species, and was species-specific in the order Marenzelleria>M. balthica>M. affinis. BDE-99 bioaccumulation was highest in the treatment with the most nutritious OM (Tetraselmis). Consequently, both benthic species composition and the nutritive value of organic matter settling to the seafloor can have a substantial effect on the bioaccumulation of both metals and organic contaminants.

A multilevel approach to predict toxicity in copepod populations: assessment of growth, genetics, and population structure.

One of the goals of environmental risk assessment (ERA) is to understand effects of toxicant exposure on individual organisms and populations. We hypothesized that toxicant exposure can reduce genetic diversity and alter genotype composition, which may ultimately lead to a reduction in the average fitness of the exposed population. To test this hypothesis, we exposed a copepod, Nitocra psammophila, to a toxic reference compound and assayed resulting alterations in genetic structure, i.e. expected heterozygosity and percent polymorphic loci, as well as other population- and fitness-related measures, i.e. population abundance, demographic structure and juvenile growth. The copepods were exposed to 0.11-1.1 microg of the pentabromo-substituted diphenyl ether (BDE-47) mg(-1) freeze-dried algae for 24 days (i.e. >1 generation). There was no significant decline in total population abundance. However, there were significant alterations in population structure, manifested as diminished proportion of nauplii and increased proportion of copepodites. In addition, individual RNA content in copepodites decreased significantly in exposed individuals, indicating declined growth. Finally, in the exposed populations, heterozygosity was lower and genotype composition was altered compared to the controls. These results therefore confirm the hypothesized reduction in overall genetic variability resulting from toxicant exposure. Multilevel approaches, such as the one used in the present study, may help unravel subtle effects on the population level, thus increasing the predictive capacity of future ERA.

Water quality and macroinvertebrate community response following pesticide applications in a banana plantation, Limon, Costa Rica.

Pesticides used in banana production may enter watercourses and pose ecological risks for aquatic ecosystems. The occurrence and effects of pesticides in a stream draining a banana plantation was evaluated using chemical characterization, toxicity testing and macrobenthic community composition. All nematicides studied were detected in the surface waters of the banana plantation during application periods, with peak concentrations following applications. Toxicity tests were limited to the carbofuran application and no toxicity was observed with the acute tests used. However, since pesticide concentrations were generally below the lowest LC50 value for crustaceans but above calculated aquatic quality criteria, there remains a risk of chronic toxicity. Accurate ecological assessments of pesticide use in banana plantations are currently limited by the lack of local short-term chronic toxicity tests and tests using sensitive native species. Relatively constant levels of four pesticides (imazalil, thiabendazole, chlorpyrifos and propiconazole), which had toxic effects according to the 96h hydra and 21d daphnia chronic test, were recorded in the effluent of the packing plant throughout the study, indicating that the solid waste trap used in this facility was not effective in eliminating toxic chemicals. Certain taxa, such as Heterelmis sp. (Elmidae), Heteragrion sp. (Megapodagrionidae, Odonata), Caenis sp. (Caenidae, Ephemerotera), and Smicridea sp. (Hidropsychidae, Trichoptera), were more abundant at reference sites than in the banana farm waters, and may be good candidates for toxicity testing. Multivariate analyses of the macroinvertebrate communities clearly showed that the banana plantation sites were significantly different from the reference sites. Moreover, following the pesticide applications, all the banana plantation sites showed significant changes in community composition, with the same genera being affected at all sites and for all pesticides (terbufos, cadusafos and carbofuran). Consequently, the results presented here show that multivariate analysis of community composition was more sensitive in distinguishing pesticide effects than the toxicity tests and richness and composition measures used. We conclude that monitoring macroinvertebrate communities can be a powerful tool in the assessment of ecological effects of banana production.

Occupational exposure limits: a comparative study.

Occupational exposure limits (OELs) are used as an important regulatory instrument to protect workers' health from adverse effects of chemical exposures. The OELs mirror the outcome of the risk assessment and risk management performed by the standard setting actor. In this study we compared the OELs established by 18 different organisations or national regulatory agencies. The OELs were compared with respect to: (1) what chemicals have been selected and (2) the average level of exposure limits for all chemicals. Our database contains OELs for a total of 1341 substances; of these 25 substances have OELs from all 18 organisations while more than one-third of the substances are only regulated by one organisation. The average level of the exposure limits has declined during the past 10 years for 6 of the 8 organisations in our study for which historical data were available; it has increased for Poland and remained nearly unchanged for Sweden. The average level of OELs differs substantially between organisations; the US OSHA exposure limits are (on average) nearly 40 % higher than those of Poland. The scientific or policy-related motivations for these differences remain to be analysed.

Are occupational exposure limits becoming more alike within the European Union?

The occupational exposure limits (OELs) established by seven different national regulatory agencies of EU member states are compared with those of the European Commission (EC). The comparison concerned: (1) what chemicals have been selected, (2) the average level of exposure limits for all chemicals, and (3) the similarity between the OELs of different EU member states and the OELs recommended by the European Commission. The average level of the exposure limits has declined during the past 10 years in four of the five countries in our study for which historical data were available to us. Poland has not changed its level noticeably and Germany has increased it. Since the first list of indicative OELs was established by the EC, a few of the EU exposure limits have been lowered. The similarity index indicates that the exposure limits of EU member states are converging towards the European Commission's recommended OELs. Still, the average level of OELs differs between organizations--the Estonian OELs are on average 35% higher than the Polish OELs.

Assessing ecological effects of radionuclides: data gaps and extrapolation issues.

By inspection of the FASSET database on radiation effects on non-human biota, one of the major difficulties in the implementation of ecological risk assessments for radioactive pollutants is found to be the lack of data for chronic low-level exposure. A critical review is provided of a number of extrapolation issues that arise in undertaking an ecological risk assessment: acute versus chronic exposure regime; radiation quality including relative biological effectiveness and radiation weighting factors; biological effects from an individual to a population level, including radiosensitivity and lifestyle variations throughout the life cycle; single radionuclide versus multi-contaminants. The specificities of the environmental situations of interest (mainly chronic low-level exposure regimes) emphasise the importance of reproductive parameters governing the demography of the population within a given ecosystem and, as a consequence, the structure and functioning of that ecosystem. As an operational conclusion to keep in mind for any site-specific risk assessment, the present state-of-the-art on extrapolation issues allows us to grade the magnitude of the uncertainties as follows: one species to another > acute to chronic = external to internal = mixture of stressors > individual to population > ecosystem structure to function.