Ways out of the sewage sludge dilemma: Connecting administrative and participatory decision making

This paper examines the problem of decisions about the disposal of sewage sludge, in the face of stakeholder groups with varying viewpoints, based on a current case from the state of Lower Saxony in Germany. Like other developed countries, Germany faces the dilemma that sludge arisings are increasing (e.g., because of better water treatment) while disposal options are becoming more scarce. Lower Saxony relies heavily on landfill and agricultural application, but landfill of untreated sludge will be banned after 2005. The state Environment Ministry sees agricultural application as having various advantages, but it faces scepticism from various stakeholders. The ministry has therefore taken steps to encourage a long-term dialogue process with the main stakeholders, including farming organizations, food processors, other landowners such as the churches, and environmental and consumer organizations. The process began with a discussion forum in 1995 that led to the proposal of specific discussions with stakeholders. This paper focuses in particular on the dialogue with environmental and consumer groups. It analyzes the initial positions of the various stakeholders, describes the concrete steps taken so far, describes the ongoing efforts, and critically evaluates the procedures used as well as their implications in terms of the ideas of deliberation and analysis.