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The Influence of Framing on the Legitimacy of Impact Assessment Patiwael, Patrick R.; Groote, Peter; Vanclay, Frank

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The Influence of Framing on the Legitimacy of Impact Assessment Patiwael, Patrick R.; Groote, Peter; Vanclay, Frank University of Groningen The influence of framing on the legitimacy of impact assessment Patiwael, Patrick R.; Groote, Peter; Vanclay, Frank Published in: Impact Assessment and Project Appraisal DOI: 10.1080/14615517.2020.1734402 IMPORTANT NOTE: You are advised to consult the publisher's version (publisher's PDF) if you wish to cite from it. Please check the document version below. Document Version Publisher's PDF, also known as Version of record Publication date: 2020 Link to publication in University of Groningen/UMCG research database Citation for published version (APA): Patiwael, P. R., Groote, P., & Vanclay, F. (2020). The influence of framing on the legitimacy of impact assessment: examining the heritage impact assessments conducted for the Liverpool Waters project. Impact Assessment and Project Appraisal, 38(4), 308-319. https://doi.org/10.1080/14615517.2020.1734402 Copyright Other than for strictly personal use, it is not permitted to download or to forward/distribute the text or part of it without the consent of the author(s) and/or copyright holder(s), unless the work is under an open content license (like Creative Commons). Take-down policy If you believe that this document breaches copyright please contact us providing details, and we will remove access to the work immediately and investigate your claim. Downloaded from the University of Groningen/UMCG research database (Pure): http://www.rug.nl/research/portal. For technical reasons the number of authors shown on this cover page is limited to 10 maximum. Download date: 24-09-2021 Impact Assessment and Project Appraisal ISSN: (Print) (Online) Journal homepage: https://www.tandfonline.com/loi/tiap20 The influence of framing on the legitimacy of impact assessment: examining the heritage impact assessments conducted for the Liverpool Waters project Patrick R. Patiwael , Peter Groote & Frank Vanclay To cite this article: Patrick R. Patiwael , Peter Groote & Frank Vanclay (2020) The influence of framing on the legitimacy of impact assessment: examining the heritage impact assessments conducted for the Liverpool Waters project, Impact Assessment and Project Appraisal, 38:4, 308-319, DOI: 10.1080/14615517.2020.1734402 To link to this article: https://doi.org/10.1080/14615517.2020.1734402 © 2020 The Author(s). Published by Informa Published online: 02 Mar 2020. UK Limited, trading as Taylor & Francis Group. Submit your article to this journal Article views: 357 View related articles View Crossmark data Citing articles: 1 View citing articles Full Terms & Conditions of access and use can be found at https://www.tandfonline.com/action/journalInformation?journalCode=tiap20 IMPACT ASSESSMENT AND PROJECT APPRAISAL 2020, VOL. 38, NO. 4, 308–319 https://doi.org/10.1080/14615517.2020.1734402 The influence of framing on the legitimacy of impact assessment: examining the heritage impact assessments conducted for the Liverpool Waters project Patrick R. Patiwael , Peter Groote and Frank Vanclay Department of Cultural Geography, University of Groningen, Groningen, The Netherlands ABSTRACT ARTICLE HISTORY The expertise of impact assessment practitioners and the legitimacy of their reports are Received 12 April 2019 increasingly being questioned. We analyze the subjectivity of impact assessment by exploring Accepted 20 February 2020 fl how the framing undertaken within Heritage Impact Assessment (HIA) in uences decision KEYWORDS making about spatial development projects. Framing is the process by which actors order and Cultural heritage; Heritage make sense of social reality. We argue that framing influences the content, conclusions, Impact Assessment; impact effectiveness and legitimacy of impact assessment reports. We examined a major urban assessment effectiveness; redevelopment, the Liverpool Waters project, for which three HIAs were commissioned to Outstanding Universal Value; assess its impact on the Liverpool Maritime Mercantile City World Heritage site. These HIAs had expert knowledge; historic varying outcomes with differences in baseline information, variables considered, methods places used, and assessment of impacts. In our in-depth interviews with practitioners and decision makers involved with these HIAs, discussion of legitimacy centered around assumed differ- ences between local and non-local knowledge. We argue that awareness of the role of framing is needed in the impact assessment field, and that transparency and participation by local stakeholders are crucial to prevent framing from having an undue influence. Introduction Impact Assessment, hereafter: HIA) and in decision mak- ing about proposed spatial development projects. We Impact assessment started in 1969 as a positivistic use a major urban redevelopment project in Liverpool appraisal method in which independent, objective (UK), in an area designated as a World Heritage site, as assessments were intended to improve decision making an illustrative case to show how framing influences the about spatial development projects (Owens et al. 2004; effectiveness and legitimacy of HIA. The Liverpool Richardson 2005;Elling2009). However, the neutrality Waters project is unusual because three separate HIAs and objectivity of this technical-rational model of were conducted, one by each of three protagonists: (1) impact assessment has been widely questioned Peel Holdings, the project developer and owner of the (Kørnøv and Thissen 2000; Weston 2000;Fischer2003; development site; (2) English Heritage (now called Owens et al. 2004; Richardson 2005). The subjective Historic England), the main organization responsible nature of impact assessment and the existence of con- for safeguarding World Heritage sites in the UK; and (3) flicting values (Kørnøv and Thissen 2000; Owens et al. Liverpool City Council, the responsible political body. 2004) gives reason to consider the phenomenon of The three HIAs came to contradictory conclusions ‘framing’ in the execution of impact assessments and about the project’s impact on the heritage values of the ensuing decision making processes (Hisschemöller Liverpool’s historic harbor and inner city (UNESCO and Hoppe 1996; Stirling 1999;Weston2000; Owens 2012;Patiwaeletal.2019). The diversity of the three et al. 2004). Framing is the process by which actors HIAs allowed us to analyze how this divergence of con- order and make sense of social reality (Ernste 2012). clusions originated and to consider the role of framing Assuming that it is impossible to establish purely objec- in the way these HIAs were conducted. The Liverpool tive knowledge (Mannheim 1936; Habermas 1976, Waters project is an important example in this respect, 1984), this phenomenon becomes a relevant element because it resulted in the Liverpool Maritime Mercantile in the study of assessment processes, more so because City World Heritage site being placed on the List of previous research has indicated that impact assess- World Heritage in Danger in 2012. ments are subjective (Kørnøv and Thissen 2000;Owens et al. 2004;Patiwaeletal.2019). This may imply that framing plays a role in the impact assessment process Background to the Liverpool Waters project and subsequent decision making. Liverpool Waters, the construction of which started in The purpose of this paper is to explore the roles of 2018, is one of the largest port-city redevelopment framing in impact assessment (specifically in Heritage projects in Europe. The project is located in Liverpool’s CONTACT Patrick R. Patiwael [email protected] Department of Cultural Geography, University of Groningen, Groningen, The Netherlands © 2020 The Author(s). Published by Informa UK Limited, trading as Taylor & Francis Group. This is an Open Access article distributed under the terms of the Creative Commons Attribution-NonCommercial-NoDerivatives License (http://creativecommons.org/licenses/by- nc-nd/4.0/), which permits non-commercial re-use, distribution, and reproduction in any medium, provided the original work is properly cited, and is not altered, transformed, or built upon in any way. IMPACT ASSESSMENT AND PROJECT APPRAISAL 309 important role in the growth of the British Empire and became the major port for the mass movement of people, e.g. slaves and emigrants from northern Europe to America’. Liverpool also had a seminal posi- tion in dock and warehouse design and construction, which is reflected in the surviving urban landscape of its historic harbor and inner city (Rodwell 2014;UNESCO 2019). The buildings known as ‘the Three Graces’ are considered to be the pinnacle of this World Heritage site (see Figure 2) and make Liverpool’sharbor‘one of the most recognizable waterfront ensembles in the world’ (Rodwell 2014,p.29). Liverpool’s historic harbor was the basis of Liverpool City Council’s heritage-led regeneration strategy (Rodwell 2014), which presumed that World Heritage status would be a stimulus attracting investment to the city (ICC 2014). Having been in economic decline since the 1960s, the city needed investment (Sykes et al. 2013; Rodwell 2014). In 2009, the proponent Peel Holdings and Liverpool City Council agreed on a shared vision for Liverpool Waters implying ‘that the scheme would capitalize upon and conserve the cultural heritage of the site’ (LCC 2012, p.19). The Liverpool Waters project was seen locally as an essen- tial step towards restoring Liverpool’s former status as Figure 1. Map of Liverpool’s World Heritage area, its buffer a global city. As a £5.5 billion redevelopment scheme, zone and the Liverpool Waters project. the project is a grand plan to be developed over
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