“Know What to Do If You Encounter a Flash Flood”: Mental Models Analysis for Improving Flash Flood Risk Communication and Public Decision Making

Understanding how people view flash flood risks can help improve risk communication, ultimately improving outcomes. This article analyzes data from 26 mental models interviews about flash floods with members of the public in Boulder, Colorado, to understand their perspectives on flash flood risks and mitigation. The analysis includes a comparison between public and professional perspectives by referencing a companion mental models study of Boulder‐area professionals. A mental models approach can help to diagnose what people already know about flash flood risks and responses, as well as any critical gaps in their knowledge that might be addressed through improved risk communication. A few public interviewees mentioned most of the key concepts discussed by professionals as important for flash flood warning decision making. However, most interviewees exhibited some incomplete understandings and misconceptions about aspects of flash flood development and exposure, effects, or mitigation that may lead to ineffective warning decisions when a flash flood threatens. These include important misunderstandings about the rapid evolution of flash floods, the speed of water in flash floods, the locations and times that pose the greatest flash flood risk in Boulder, the value of situational awareness and environmental cues, and the most appropriate responses when a flash flood threatens. The findings point to recommendations for ways to improve risk communication, over the long term and when an event threatens, to help people quickly recognize and understand threats, obtain needed information, and make informed decisions in complex, rapidly evolving extreme weather events such as flash floods.     

Flash Flood Risks and Warning Decisions: A Mental Models Study of Forecasters,Public Officials,and Media Broadcasters in Boulder,Colorado

Timely warning communication and decision making are critical for reducing harm from flash flooding. To help understand and improve extreme weather risk communication and management, this study uses a mental models research approach to investigate the flash flood warning system and its risk decision context. Data were collected in the Boulder, Colorado area from mental models interviews with forecasters, public officials, and media broadcasters, who each make important interacting decisions in the warning system, and from a group modeling session with forecasters. Analysis of the data informed development of a decision‐focused model of the flash flood warning system that integrates the professionals’ perspectives. Comparative analysis of individual and group data with this model characterizes how these professionals conceptualize flash flood risks and associated uncertainty; create and disseminate flash flood warning information; and perceive how warning information is (and should be) used in their own and others’ decisions. The analysis indicates that warning system functioning would benefit from professionals developing a clearer, shared understanding of flash flood risks and the warning system, across their areas of expertise and job roles. Given the challenges in risk communication and decision making for complex, rapidly evolving hazards such as flash floods, another priority is development of improved warning content to help members of the public protect themselves when needed. Also important is professional communication with members of the public about allocation of responsibilities for managing flash flood risks, as well as improved system‐wide management of uncertainty in decisions.     

Using Surveys in Public Participation Processes for Risk Decision Making: The Case of the 2003 British GM Nation? Public Debate

This article takes as its case study the “GM Nation?” public debate, a major participation process on the commercialization of agricultural biotechnology, which occurred in Britain during the summer of 2003. We investigate possible self‐selection biases in over 36,000 open questionnaire responses on the risks and benefits of genetically modified crops and food obtained during GM Nation? A comparison sample of equivalent responses from a statistically representative sample (n= 1,363) of the British general public obtained shortly after the conclusion of the debate is reported. This comparison shows that the GM Nation? open responses were indeed not fully representative of British “public opinion” regarding agricultural biotechnology. Rather, such opinion is not a unitary whole, but fragmented, with considerable ambivalence coexisting alongside outright opposition to GM agriculture. The methodological implications for multistage participation processes are discussed: in particular, the need to anticipate outcomes of complex design decisions, and to include representative public surveys as standard where measures of broader public attitudes to risk are an important objective.     

Risk Characterization and the Weight of Evidence: Adapting Gatekeeping Concepts from the Courts

Risk characterization objectives include evaluating the weight of evidence underlying risk determinations, communicating that evaluation to nonexperts, guiding risk assessors to achieve consistency, and preserving deference for those reasonable expert judgments inherent in any risk determination. Similar objectives are shared by American courts that face the gatekeeping task of screening scientific evidence before it is presented to nonexpert factfinders, such as juries. This article surveys the judicial gatekeeping concepts of relevance, evidentiary reliability, legal sufficiency, presumptions, and standards of proof (particularly, preponderance of the evidence). It examines recent court decisions that have applied these concepts to the kinds of scientific information common in risk assessments, and suggests how to adapt these gatekeeping concepts for use in weight-of-evidence characterization. If we can develop and adopt a neutral framework for characterizing the weight of evidence underlying risk assessments, it might help clarify not only the current debate over risk characterization and risk management, but also the drafting of treaty provisions, such as those invoking the Precautionary Principle of international environmental law.     

The Contrast Between Risk Assessment and Rules of Evidence in the Context of International Trade Disputes: Can the U.S. Experience Inform the Process?

Risk assessment provides a formalized process to evaluate human, animal, and ecological responses associated with exposure to environmental agents. The purpose of risk assessment is to answer two related questions.

• ? How likely is an (adverse) event to occur?
• ? If it does, how severe will the impact be?

In the United States, the science of risk assessment has evolved out of the necessity to make public health decisions in the face of scientific uncertainty. Its basic propositions have been established over the past three decades and its applications have impacted virtually every aspect of public health and environmental protection in many countries, including the United States. More recently, the World Trade Organization's (WTO) dispute‐settlement process has provided additional incentive for the reliance on risk assessments internationally through the requirement that member countries be able to provide scientific justification, based on a risk assessment, for public health and environmental regulatory measures that are challenged. The purpose of this article is to review the history of risk assessment in the United States, emphasizing the development of both its scientific and policy aspects, as one example of the development of institutional capacity for risk assessment. This article discusses the importance of the social, political, and economic contexts of risk assessment and risk management in shaping the approaches taken while highlighting the reality that the analytic or risk assessment part of the decision‐making process, in the absence of scientific data, can be completed only by inserting inferences, or policy judgments, which may differ among countries. This article recognizes these differences, and the consequent difference between risk assessment that incorporates public health protective assumptions and the rules of evidence that seek to answer questions of causality, and discusses implications for the WTO dispute‐settlement process. It further explores the value of country‐specific risk assessment guidelines to facilitate consistency within a country along with the appropriateness and feasibility of international risk assessment guidelines.     

Development of a Public Participation and Communication Protocol for Establishing Fish Consumption Advisories

Enabling people to make an informed choice on whether to change consumption behavior is ultimately the objective of any fish consumption advisory. This will occur only if people are aware of the advisory, know and understand the advisory information, and believe the information to be true. Interactive, meaningful communication and the opportunity to participate in the process to develop and review advisories are key to achieving these attributes. A case study was undertaken in a community in Alberta, Canada (where an existing advisory was under consideration for review) to determine public awareness, knowledge, compliance, communication effectiveness, information needs, and desire for involvement related to the advisory. The information obtained from this case study was used to develop 14 guiding principles as a foundation for the incorporation of public participation and risk communication into the process of developing and reviewing fish consumption advisories.     

The Alliance formation process

While interest in developing strategic alliances within the food system continues to increase, there remains considerable risk when firms adopt such a cooperative strategy. The risk is due in part to the lack of concrete guidelines that illustrate the steps or stages of alliance development and the important strategic and operational decisions required at each stage. The existence of such guidelines would facilitate alliance formation and enable managers and researchers to better understand alliance practice. This paper provides an alliance formation model that incorporates the process of alliance formation with the strategic and operational considerations required for long term success. The model can be used by managers and academicians to develop and understand alliances.     

Climate Change Risk Perception and Communication: Addressing a Critical Moment?

Climate change is an increasingly salient issue for societies and policy‐makers worldwide. It now raises fundamental interdisciplinary issues of risk and uncertainty analysis and communication. The growing scientific consensus over the anthropogenic causes of climate change appears to sit at odds with the increasing use of risk discourses in policy: for example, to aid in climate adaptation decision making. All of this points to a need for a fundamental revision of our conceptualization of what it is to do climate risk communication. This Special Collection comprises seven papers stimulated by a workshop on “Climate Risk Perceptions and Communication” held at Cumberland Lodge Windsor in 2010. Topics addressed include climate uncertainties, images and the media, communication and public engagement, uncertainty transfer in climate communication, the role of emotions, localization of hazard impacts, and longitudinal analyses of climate perceptions. Climate change risk perceptions and communication work is critical for future climate policy and decisions.     

Using Risk Communication to Disclose the Outcome of a Participatory Decision-Making Process: Effects on the Perceived Acceptability of Risk-Policy Decisions

It has been suggested that public participation during decision making about risks can lead to more widely accepted risk policies. This article discusses an experiment to determine if this is true when people are made aware of the fact that a participatory decision-making process has taken place only through information disclosed during a subsequent risk communication effort. The results from this experiment showed that, after receiving information during risk communication that cast risk policies about space exploration as the product of a participatory decision process, participants in the study felt more supportive of the resulting decisions than did participants in a control group. This result coincided with the participants in the study group perceiving the risks associated with the decision to be lower and the benefits higher. Responses from these participants also showed that they were more satisfied with the decision-making process than they were with the outcome of the decision itself Therefore, it may be premature to view the objective of participatory decision-making approaches-and the risk communication efforts that discuss them-as a means of making risk policies more widely acceptable to the public at large. Rather, it may be better to view the benefits of these approaches in terms of their ability to help lead to higher quality decisions that are the product of more widely accepted decision processes.     

The Significance of Socioeconomic and Ethnic Diversity for the Risk Communication Process

Risk communication is being characterized as one way of facilitating more effective, democratic and participatory risk management strategies. An emphasis on formal communication approaches as a means to improve decisions and decrease conflict will highlight the challenge of managing hazards within a culturally heterogeneous society. Communication and participatory strategies will be considered successful only if diverse communities can be engaged as partners in the policy process. Because responses to risks are embedded and evolve within broader social environments, achieving the promise of risk communication across a diverse society may not be possible absent an understanding of how sociocultural variables and past experiences shape the exchange of ideas or information in any particular situation. This paper considers the implications of ethnic and socioeconomic variability for the risk communication process, summarizing theoretical perspectives and empirical evidence on the link between sociocultural features and risk responses. Specifically, the factors that define the context of communication may influence: the initial framing of a risk issue, particularly, the adoption of an environmental justice vs. scientific/economic perspective; the perceived importance of various aspects of the decision problem; and prior beliefs about environmental hazards and agencies involved in risk management. Two examples of situations requiring communications about risk are presented and illustrate how these principles could operate in minority or lower-income communities. A significant challenge for health and regulatory officials will be to engage in an interactive process of information and opinion exchanges that is reasonable and effective within vastly different socioeconomic and cultural contexts.     

Industry Response to SARA Title III: Pollution Prevention, Risk Reduction, and Risk Communication

This paper reports results from a survey designed to: (1) evaluate changes in industrial pollution prevention practices since the passage of the landmark environmental legislation, the Emergency Planning and Community Right-to-Know Act of 1986, also known as SARA Title III, and (2) identify those factors that may contribute to an industrial facility engaging in pollution prevention and risk communication activities. The survey was conducted under a Cooperative Agreement between the U.S. Environmental Protection Agency and the Columbia University Center for Risk Communication. Evidence from the survey indicates that a wide variety of waste and pollution reduction activities have been undertaken since passage of the Act. Virtually all facilities surveyed in the pulp and paper, chemical, and petroleum and refining industries reported that they had reduced pollutants or wastes on at least one often measures, including reducing toxic air emissions. Most facilities indicated paying more attention to pollution prevention activities as a result of SARA Title III and half reported that their communication activities have also increased.     

Cognitive Mapping Tools: Review and Risk Management Needs

Risk managers are increasingly interested in incorporating stakeholder beliefs and other human factors into the planning process. Effective risk assessment and management requires understanding perceptions and beliefs of involved stakeholders, and how these beliefs give rise to actions that influence risk management decisions. Formal analyses of risk manager and stakeholder cognitions represent an important first step. Techniques for diagramming stakeholder mental models provide one tool for risk managers to better understand stakeholder beliefs and perceptions concerning risk, and to leverage this new understanding in developing risk management strategies. This article reviews three methodologies for assessing and diagramming stakeholder mental models—decision‐analysis‐based mental modeling, concept mapping, and semantic web analysis—and assesses them with regard to their ability to address risk manager needs.     

Plurality of Worlds, Plurality of Risks

Risk management decisions are not made only on the basis of expert risk assessment. In numerous instances, public controversy erupts, questioning the results of previous risk assessment procedures and shaping the development of risk management episodes. This article presents a case study of risk management in the context of a 1980s controversy over aerial spraying against a spruce budworm epidemic in Quebec and draws some general conclusions concerning the relationship between risk analysis and public controversies. Actors in public controversies define risks more broadly than risk assessment experts. Moreover, public controversies only partly concern issues of risk. They are first and foremost debates about social choices in which actors carry with them a multidimensional social experience of technology, trust, credibility and decision-making institutions. This experience contributes to the construction of a plurality of emergent representations of what is at stake in a controversy, referred to in this paper as "worlds of relevance." Analysis shows that in any given public controversy, there are not just two parties arguing against each other. Rather, several "worlds of relevance" can be found that link, in a variety of ways, a variety of entities not necessarily shared by all these worlds. Each "world of relevance" presents a different definition of what the issues and the stakes of the controversy are. Risks are only part of the picture, and they are embedded in "worlds of relevance" from which they take their significance. The successful management of a controversy entails the association of entities from different worlds.     

Community‐Driven Hypothesis Testing: A Solution for the Tragedy of the Anticommons

Shared ownership of property and resources is a longstanding challenge throughout history that has been amplifying with the increasing development of industrial and postindustrial societies. Where governments, project planners, and commercial developers seek to develop new infrastructure, industrial projects, and various other land‐and resource‐intensive tasks, veto power shared by various local stakeholders can complicate or halt progress. Risk communication has been used as an attempt to address stakeholder concerns in these contexts, but has demonstrated shortcomings. These coordination failures between project planners and stakeholders can be described as a specific kind of social dilemma that we describe as the “tragedy of the anticommons.” To overcome such dilemmas, we demonstrate how a two‐step process can directly address public mistrust of project planners and public perceptions of limited decision‐making authority. This approach is examined via two separate empirical field experiments in Portugal and Tunisia, where public resistance and anticommons problems threatened to derail emerging industrial projects. In both applications, an intervention is undertaken to address initial public resistance to such projects, where specific public stakeholders and project sponsors collectively engaged in a hypothesis‐testing process to identify and assess human and environmental health risks associated with proposed industrial facilities. These field experiments indicate that a rigorous attempt to address public mistrust and perceptions of power imbalances and change the pay‐off structure of the given dilemma may help overcome such anticommons problems in specific cases, and may potentially generate enthusiasm and support for such projects by local publics moving forward.     

Environmental Risk Assessors as Honest Brokers or Stealth Advocates

Risk assessment ought to provide a solid, evidence base to risk management in the development of environmental policy and decisions, where the risk assessors act without advocacy as honest brokers of science advice. But there are concerns that the values of the risk assessors might undermine the objectivity of the process. For similar reasons, there is suspicion that more interaction between risk assessors and risk managers might contaminate the science. On the contrary, here the argument is that making risk assessment more management‐ and value‐relevant, through more effective dialogue, provides a better foundation for objective science advice.     

Public participation in life cycle assessment and risk assessment: a shared need.

Life cycle assessment (LCA) and risk assessment are operationally different but share the common purpose of supporting decisions about reducing threats to human welfare. Both analysis methods also involve a complex mixture of science and value judgments reflecting epistemological as well as moral and esthetic values. The inability of risk assessment and LCA to be "value free" has been a source of considerable controversy in both communities. Recognition of the contingent and social nature of human interpretation of the risks and environmental impacts created by public and private decisions has led to an increased appreciation of the importance of involving interested and affected parties in risk characterization. Comparison of the value-based nature of LCA and risk assessment demonstrates the need for participation in LCA. Although the need for participation by affected parties in decision-making processes is gaining acceptance, there is little agreement as to how participation should be structured. Risk assessment and LCA have a shared need for research examining the design and analysis of participation processes appropriate to a given decision context. A proposed framework recommends participation strategies designed to enhance the effectiveness of policy-driven analyses such as risk assessment and LCA based on the level of trust that interested and affected parties have for other policy participants.     

Evaluating Citizen Advisory Boards: The Importance of Theory and Participant-Based Criteria and Practical Implications

The role of risk communication and public participation in environmental and public policy decision making has significantly increased over the last 15 years and remains an important social policy issue. In spite of this emphasis, government officials and participants in the process continue to struggle with what makes for "good" public participation. This study used two frameworks--one theoretical and one participant-based-to evaluate two U.S Army Restoration Advisory Boards (RABs). The theoretical framework explores the extent to which the RABs facilitate Habermas's idealized conditions of speech as related to fairness. Not surprisingly, we found that the two RABs do not consistently foster the idealized aspects of fairness suggested by Habermas. The participant-based criteria were elicited through interviews with participants from the various stakeholder groups represented on the RAB, direct observation of RAB meetings, and a review of RAB-related documents. We found that participants' value outcomes (the results of participatory processes) and not just the process itself, which is the focus of the theoretical framework. We also found that participants in the various stakeholder groups had different perceptions of the goals of the participatory process, which were closely related to their notions of success. Our results illustrate both the complexity and importance of using multiple frameworks for evaluating participatory efforts and the need for more systematic evaluation.     

Nanotechnology risk perceptions and communication: emerging technologies, emerging challenges

Nanotechnology involves the fabrication, manipulation, and control of materials at the atomic level and may also bring novel uncertainties and risks. Potential parallels with other controversial technologies mean there is a need to develop a comprehensive understanding of processes of public perception of nanotechnology uncertainties, risks, and benefits, alongside related communication issues. Study of perceptions, at so early a stage in the development trajectory of a technology, is probably unique in the risk perception and communication field. As such it also brings new methodological and conceptual challenges. These include: dealing with the inherent diversity of the nanotechnology field itself; the unfamiliar and intangible nature of the concept, with few analogies to anchor mental models or risk perceptions; and the ethical and value questions underlying many nanotechnology debates. Utilizing the lens of social amplification of risk, and drawing upon the various contributions to this special issue of Risk Analysis on Nanotechnology Risk Perceptions and Communication, nanotechnology may at present be an attenuated hazard. The generic idea of "upstream public engagement" for emerging technologies such as nanotechnology is also discussed, alongside its importance for future work with emerging technologies in the risk communication field.