- Email: [email protected]
Lights, camera … approval? video in the EA process
] 77
ENVIRON IMPACTASSESSREV 1993;13:177-188
MANAGING
LIGHTS, CAMERA
THE EIA PROCESS
.. • APPROVAL?
V I D E O IN T H E E A P R O C E S S *
W. Murray Paterson, Heather E. Reid, and Stewart K. S e a r s Ontario Hydro
John M. Morrow Whitewater Communications Ltd.
Introduction Inherent in any environmental assessment (EA) is the need to provide ongoing information to a wide range of audiences throughout the life cycle of the project. These audiences might be government reviewers, the general public, project staff, consultants, or any group with an interest in the EA process. The challenge facing environmental assessment proponents, therefore, is to build into their planning a comprehensive strategy for communicating clear, relevant information that is presented in ways that are easily absorbed by the targeted audiences. The EA process helps to ensure that environmental and socioeconomic issues are identified and addressed throughout the planning and implementation phases of new projects or programs. It provides sufficient information and justification to decide among alternatives, to predict potential effects of project or program development, and to identify ways to reduce and mitigate unacceptable impacts. At each stage of this process, it is imperative that the activities and findings of the study team are communicated clearly and concisely to a variety of audiences. Feedback and involvement of key stakeholders is critical to ensure the success of the planning and decision-making activities that make up the EA process. An environmental assessment is primarily a scientific, data-driven undertaking. The EA document reflects the scientific and technical nature of the studies *Note: The views expressedin this paper ate the authors, and do not necessarilyreflect those of Ontario Hydro. Address correspondence to: MurrayPaterson, Ontario Hydro, EnvironmentalSupport and Integration,HI7 F21, 700 UniversityAvenue,To~nto, Ontario, Canada M5G 1)(6.
© 1993 ElsevierScience Publishing Co,, Inc. 655 Avenueof the Americas,New York, NY 10010
0195-9255/93/$6.00
178
W M. PATERSON ET AL.
and is often focused heavily on detailed analysis. Although this may meet many of the needs of technically oriented audiences such as government officials and decision makers, less-technical groups may require a different communication approach. To this end, video is being developed as a communication tool to inform, educate, solicit feedback, and facilitate better and more timely decision making throughout the EA process. For many people involved in the EA process--predominantly scientists, engineers, policy makers, planners, and administrators---communicating through video is a new and often somewhat intimidating experience. This paper discusses how video can be effectively used in alI levels of the EA process. The paper also provides practical guidelines for implementing a program of video support and identifies associated costs and benefits. The information and viewpoints contained in the paper come from experience. Since 1987, Ontario Hydro has been using video as an integral part of its communications program for EA studies.
Background Ontario Hydro, a Crown Corporation of the government of Ontario, is responsible for providing a reliable supply of electricity at the lowest feasible cost to the people of Ontario. All of Ontario Hydro's activities related to supplying this electricity are subject to review and approval under the Ontario Environmental Assessment Act (EA Act). Since the inception of the EA Act in 1976, Ontario Hydro has submitted about 30 EAs and approximately 325 Environmental Reports filed under three Class EAs. Throughout this experience, the need for clear and balanced two- way communication has emerged as an essential element in the EA process. Effective communication contributes to the early identification of issues and provides a forum for dealing with them in a timely and cooperative manner. Given that EAs involve making decisions about activities that affect people's lives, there is a strong need to capture and communicate the human dimension of a proposed project.
Understanding the Medium EA videos have the ability to personalize project issues and put human faces on the issues involved. This provides a human dimension that EA documents cannot communicate and allows the emotions attached to the issues to be perceived and understood. A good example of this involved an aboriginal trapper, Frank Tebishgoeshik, who appeared in a video that summarized the proposed hydroelectric project on the Little Jackfish River system in northern Ontario. The video showed him in his cabin, shaping a wooden form for stretching fur pelts. It was one of those moments when the mood and atmosphere of the setting spoke volumes. He spoke from his heart about his past and his concern for the changes that the proposed project would bring to his children's future. This combination of sights, sounds, and self-expressed concerns had an impact that could be realized only through the medium of video.
LIGHTS, CAMERA...APPROVAL?
179
Video's ability to communicate the human dimension of research data benefits proponent representatives as well. Through the use of on-camera interviews, EA videos provide an opportunity for the viewers to see that the utility staff are people with real feelings about the project and concern for the people affected. Qualities such as sincerity, commitment, and thoroughness can be communicated through this forum in a way that is much more convincing and complimentary than can black and white print. Because of its ability to present information in a way that blends reason and emotion, video represents a powerful tool for communication. Because of this same ability, however, video can be misused in ways detrimental to the overall goals of the EA process. A common mistake is to take the raw scientific detail of an environmental assessment and try to communicate it directly to the audience through the video medium. Without first processing the data and translating it to the visual language of video, the result will not be effective. Another misuse of video during the EA process is to use its abilities to mold attitudes and to persuade. It is tempting to get caught up in the medium's power to generate emotion and lose sight of the fact that without a credible, balanced, and factual base, videos can become manipulative. The result of this misuse can create a disastrous public relations situation that could severely damage the project or the proponent's credibility. Video is most effective when information and emotion blend in order to motivate, inform, encourage, and explain. Like an EA document, video can be used to describe the proponent's planning process and the ways used to evaluate alternatives and their impacts.
Hydro's Video Support Program for EA Studies Ontario Hydro's experience shows that the environmental assessment process for a major project can take between three and five years to complete. Ontario Hydro has considered using a series of up to six potential videos to capture the entire life cycle of generation projects, and the associated EA process with a series of up to six video support products. Figure 1 outlines a typical project life cycle, showing where video can be utilized within various stages of the EA process. The videos can be generically categorized as follows: safety and environmental awareness project introduction/orientation environmental assessment summary environmental assessment issues project environmental requirements project summary To date, Ontario Hydro's experiences have focused primarily on the first four categories because the projects for which video support has been used have progressed only to the EA Act approval stage.
] 80
V~ M . P A T E R S O N E T A L .
SAFEP¢& PROJECT ENVL INTRODUCTION/ E~. EA AWARENESS ORIENTATION ISSUES ~ VIDEO ~ VIDEO VIDEO
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FIGURE 1. EA Videos in the Project Life Cycle.
The following paragraphs are brief descriptions about each video type in Hydro's EA support program, including its purposes, scope, and benefits.
Safety and Environmental Awareness Early in the project life cycle, a precursory video can be used to provide an overview of the project site and vicinity for the purpose of identifying the predevelopment environment. This enables persons such as project staff, consultants, government EA reviewers, and the public to establish a preliminary understanding of the proposed project as well as an appreciation of the environment within which the development is proposed. In addition, this type of video is important for identifying any hazards that may affect the safety of field study programs carried out by members of an EA study team. Ontario Hydro has prepared a safety and environmental awareness video for the proposed Niagara River hydroelectric project. It was used to focus on the sensitive environmental features in the Niagara River study area as well as the potential dangers associated with the fast-moving water, surrounding cliffs, and toxic waste discharges and landfills. A safety and environmental awareness video also targets those directly involved with the project. The video could be used to prepare initial environmental inventories, identify important issues, or establish frameworks for future studies. A video at this stage in the project helps to minimize the need for extraneous site visits and provides valuable predevelopment footage of the study area.
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181
Project Introduction~Orientation To formally introduce a project and its EA process, videos can be a valuable communication tool. Project introduction/orientation videos allow people not directly involved in or familiar with a project, such as government EA reviewers and the public, an opportunity to become familiar with it. It may also introduce the project's purposes, definition, study process, and approval procedures, as well as provide a preliminary evaluation of its potential benefits and issues. By furnishing balanced, credible information about the proposed project, an introductory video can provide viewers with a solid knowledge base that will allow them to deal with the various conflicting opinions that will invariably arise in connection with a proposed project. The project introduction/orientation video may also solicit and encourage participation in the project's public involvement and presubmission consultation programs. This approach formed the message of a recent Ontario Hydro video dealing with the proposed hydroelectric developments in the Moose River basin in northern Ontario. Once the proposal was clearly defined, various groups with differing perspectives were seen presenting their views in a public forum. Although these conflicting views were not resolved in the video, they provided the basis of an appeal for cooperation in designing studies that would involve the various groups and provide the data necessary to assess project impacts and mitigation. The project introduction/orientation video allows viewers to develop a better understanding of a project. It also provides a formal opportunity for both public education and involvement, which may help to minimize opposition and misunderstanding later in the project and perhaps lead to a more effective EA process.
Environmental Assessment Summary When reading the detailed information in an EA document, government reviewers and other officials can easily lose sight of the fact that it is based on existing natural and human environments. Thus the production of an environmental assessment summary video can help remind the reviewer of the sights and sounds that exist behind the pages of the EA document. This video can help to provide a better appreciation for the proposed undertaking, the planning process that led up to submission of the EA document, and the people associated with the proposed project, as well as an overview of the key issues and how they were addressed or resolved. The EA summary video is done concurrently with the document preparation and is issued as a companion to the EA document itself. For those viewing the video (government EA reviewers, the public, and the EA hearing board), the content of the video can provide a user-friendly executive summary of the EA document, as well as further develop their understanding of the project. This could potentially help to enhance the formal review of the EA document.
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Environmental Assessment Issues When considering a project requiring an EA, issues of special interest often arise. Although these are usually highlighted and examined in the EA investigations, there may be a need for further discussion, explanation, and/or clarification about how the issues relate to or are affected by the project and how a proponent intends to deal with them. These issues may vary in scope and affect a number of interest groups, so it is often appropriate to deal with each issue individually. To this end, the use of videos that are focused entirely on one issue can be quite effective. The cost of producing these videos can be justified in that many of the specific issues are common to a variety of project EAs. Once produced, these videos can be reused whenever the issue emerges in future project assessments. An example of this is an EA issues video prepared by Ontario Hydro to describe the production and accumulation of methyl-mercury in hydroelectric reservoirs. The video was produced to provide a clear explanation of this complex scientific process in layperson's terms. Later, this same video was incorporated into the environmental assessment summary video for the Little Jaekfish hydroelectric project.
Project Environmental Requirements To ensure that involved project staff and contractors are aware of and committed to compliance with government regulations and environmental protection, a video summarizing the project's environmental requirements, EA commitments, and construction guidelines may be produced. An additional benefit is that a project environmental requirements video will help to demonstrate to the public and regulatory staff, as well as internal and contract staff, the commitment to environmental protection and government regulations. It also portrays how the proponent intends to be responsible and accountable to both of these.
Project Summary The sixth and final video is a broad overview of the project from start to finish. Mainly documentary in approach, this video provides an archival record of the entire life cycle of the project. It can highlight the EA process, the project's benefits and costs, planning, approval, construction, operation, and the ongoing monitoring process that determines the effectiveness of the mitigation measures. By using footage previously shot for other project videos, a project summary video can be a very cost-effective production that can be used for all of the abovementioned audiences. By providing an overview of the project's life cycle and by highlighting the lessons learned, the project summary video can be a useful tool in similar or future projects.
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CAMERA
. . . APPROVAL?
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Using Videos in the EA Process Videos have both tremendous capabilities and very real limitations. A video is not a universal panacea for every communication ill. Making the decision to produce one should be carefully and thoughtfully considered. The first step in this decision process may seem obvious: "Do we really need a video?" A video is, after all, just one of the many communication tools available. During the early stages of the EA process, time should be allocated for developing an overall communication strategy. Key to these discussions are two basic questions: "What are we going to communicate?" and "To whom are we communicating?" Answering these leads naturally to the question, "How are we going to deliver our message?" Establishing a clear, comprehensive communication strategy at the outset will assist in the coordination of the various "tools" and messages. Greater cost efficiency is an obvious benefit of this approach. In determining the communication objective and target audience of a video, it is important to be as specific as possible. One frequent mistake is to have inflated expectations of what a video can say and do. Trying to deliver a complex message to a variety of audiences may seem to be cost effective, but it rarely is. Broadening the focus leads to a generalization of the message. In our experience, it is advisable to have several short, well-targeted videos, rather than a single, general one. Consideration must also be given to the coordination and management of a video production. Ontario Hydro's experience has shown that a team of 6-7 professionals, consisting of a producer, a writer/director, and 4-5 senior members of the project team, provides the necessary expertise to get the job done effectively. One overall coordinator, who acts as a liaison between the video director and producer and the project team, is essential to ensure that everyone's interests are satisfied. Establishing and maintaining communication within this group is vital. The time frame in which one can produce a video is influenced by the range and complexity of the services required. In Ontario Hydro's experience, about six months is required to research and write the video text, assemble the footage, undertake the necessary interviews, develop the supporting graphics, and finally, produce a suitable end product. Although schedules tighter than six months can sometimes be accommodated, one must consider whether or not seasonal or other time-dependent or process-dependent shots are required. Therefore it is critical that production target dates be mapped out with as much lead time and certainty as possible. Having a critical path for the video production is essential, but of equal importance is allowing room for flexibility. Videos, after all, are not "engineered," but rather "created." This type of flexibility was needed when video coverage for the Moose River introduction/orientation video was done. A shot was needed of the break-up of fiver ice in the spring, in order to show how
184
w M. PATERSONETAL.
ice build-up and scouring affected the riverbanks. Recording this meant embarking on a "floating schedule." Despite extensive local speculation, comprehensive weather forecasts, and scientific information, the video crew had to wait for three days to capture the right moment. Without flexibility in the shooting schedule, the break-up would have gone unrecorded. Another consideration is the "shelf life" of the video. Generally speaking, the more specific the message, the quicker it becomes dated. Determining the anticipated period of time the video will be used should be part of the process of deciding whether the medium is cost effective. For a more detailed outline of die key stages in video production, see Figure 2. Assessing the Costs and Benefits In choosing to use video support productions, associated costs and benefits need to be balanced. Mills and Diamond (1988) stated that, although video production is not suitable for every project, it is cost effective for "large projects, for projects in remote locations, and for projects in environmentally sensitive areas where public approval may be difficult to obtain" (p. 619). In reference to Ontario Hydro's projects, one or all of these criteria often apply. Table 1 summarizes the range of costs dispersed, to date, for the videos produced by Ontario Hydro. Typically included in these cost figures are services such as: Preproduction: scouting and research, travel time, expenses, and scriptwriting Production: full crew video recording, camera, recorder, lights, sound equipment, travel time and expenses Postproduction: computer graphics, animation, narrator recording and audio mixing The costing framework for each individual video must be developed with consideration of the above-mentioned production services and other extraneous factors. These other factors may include remoteness of location, availability of stock footage, proportion of on-site shooting, use of high-technology presentation formats and graphics, available working time, and overall quality required for the final product. In very general terms, however, production of a high-quality video could cost on the order of $200~6000 per minute of final run time. Thus, a typical 20-minute video could cost between $40,000 and $120,000 (Canadian). Determining the cost effectiveness of producing videos during the EA process is a somewhat subjective exercise. In any communication exercise, such as creating public awareness about personal fitness or the hazards of smoking, tangible results are difficult to determine. The results of videos that are designed to inform, facilitate discussion, expedite the learning process, and focus on key issues may never be charted on a graph. However, in our experience, the commitment to provide clear, relevant, and balanced information does benefit the
LIGHTS,CAMERA...APPROVAL?
185
L
D~umenli~"
]
VIDEO 1 COMPLETE SCRIPT l
ROUGHCUT
T
VIDEO 1 SHOOTING
T
FIRST ROUGH CUT J SECC~ND ROUGH CUT I PRODUCTION
T
I
L
1. Determine audience, delivery mechanism, and message Set the parameters for the project. Thoroughness here will save time and money later.
2. Proposal Based on message, audience, and delivery mechanism. It should outline basic content, style, structure, and tone of video. A budget estimate is also included.
3. Documentary/non-documentary Determining the production style of the video. A documentary style allows for a more flexible approach to events that are changing or evolving. The final script is based on the footage shot. However, non-documentary is scripted first and then shot. This is more cost-effeotive and is used when the content of the video is known before shooting.
4. Outline~shooting script If the video is a documentary based on an evolving process, a detailed script is often written after the footage has been shot. An outline/shooting script precedes this shooting and provides a "concept grid" that sketches out the flow of ideas and suggested pictures.
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5. Draft script A major stage. Ideas are fully expressed and the storyline emerges. In a documentary video, this is usually accompanied by a rough cut of the video. In other types of video, shooting happens after the script is completed. Several versions of the draft script are often required before it is approved by the management team. 6. Rough cut A preliminary edit of images. Similar to a rough draft in writing. 7. Video shooting The gathering of original footage. 8. Final narration script The version of the script that is approved by the management team and recorded by the narrator. 9. Post-production Concluding stage of production involving final editing, narration, music recording and sound mixing. FIGURE 2. Stages of Video Production.
entire EA process. The following are examples of some of the more tangible characteristics and benefits of using EA videos as part of the overall communications strategy: User-friendliness: video is a medium that has become familiar at home and in the workplace Consistency: the message and the quality of its presentation are guaranteed Availability: once the video has been produced, copies are relatively inexpensive and can be easily packaged for distribution Visual context: communicating the sights and sounds of the study area adds a new level of understanding to the EA process and the EA document Human dimension: video provides a forum for people to exchange ideas, present their viewpoints, and express their concerns
Lessons and Suggestions The following list of lessons and suggestions has come out of Ontario Hydro's experience in producing support videos for the EA process. In 1987, when the first videos were produced, little information on the topic existed. What follows may not be a definitive list, but it may provide helpful guidelines for those considering the use of video. 1. Start early. The success of a video support program in the EA preparation and communication process will be enhanced if it is incorporated at the beginning of the project. The videos may be designed to stand alone and/or work as a series--each being interrelated to the previous one.
LIGHTS,CAMERA... APPROVAL?
187
TABLE 1 Costs of Ontario Hydro' s Environmental Assessment Videos
Type of Video
Number Completed
Safety and EnvironmentalAwareness Project lntroducfordOrientation EnvironmentalAssessmentSummary
1 4 3
Environmental Assessment Issues
1
Year
Percentage Video Cost of Total ($Canadian) ProjectCost
1987 $35K-$40K <0.1% 1987-t991 $35K~$110K <0.1-0.3% 1988-1991 $50K-$100K <0.1-0.3% 1987
$60K-$65K
< 0.2%
2. Discuss how it will be used. Determining how the video will be shown is critical. As part of the communication strategy for the entire EA process, each video needs a clear and realistic plan for making it available to the various target audiences. Consideration should be given to using it in presentations, workshops, information centers, cable TV showings, news clips, information kiosks, etc. Linking a video to other media will ensure a clear, consistent message. 3. Identify audiences and purpose. The audiences for the proposed videos must be clearly defined early in the process and constantly reviewed throughout the project life cycle. Similarly, the purpose of each video must be laid out in simple terms at an early stage in the planning. Both of these are essential to ensure that the end product meets the user's needs. 4. Level of detail. It is important to identify the required level of detail for the video early in the production process. This is determined mainly by the needs of the target audience. It is inappropriate to present a detailed discussion on a topic if the audience is unfamiliar with the subject, scientific terminologies, and technical jargon. Communicating only the key issues and findings in the video provides a greater degree of understanding and appreciation for the project. Conversely, "talking down" to audiences by oversimplifying ideas can make them frustrated and offended. 5. Show sensitivity to communities. Proposed projects are often located in or near areas where residents are particularly sensitive to major development proposals. It is critical, when filming in and around such communities, to recognize these sensitivities and to coordinate activities with community leaders. 6. Need for balanced perspectives. It is very important for the proponent to present to the public and the decision makers a balanced and fair representation of the project. Presenting differing viewpoints on key issues gives credibility to the overall message. It is potentially harmful to present a biased message that attempts to "sell" or "win over" the audience. 7. Involve experts, government officials, and the public. The involvement of experts, government officials, and the public in a video production brings a sense of credibility to the message. The use of external people (i.e., nouproponent) allows the presentation of differing opinions and perspectives.
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8. Scheduling. If a video series is planned, coordinating the shooting schedules will provide budget savings. Cataloging the shooting of key events throughout the EA process is quite important, as the footage provided could be useful in the development of a comprehensive video series. Most importantly, set realistic target dates and remain flexible. 9. Test independent groups. The reactions and comments obtained from various focus groups (i.e., those to whom the video is shown before public release) provide critical feedback about the potential success of the video content and character. Acknowledgment of these reactions and feedback should be reflected in the final product as well as in subsequent project videos. 10. Provide feedback mechanisms. Similar to number 9, the provision for structured feedback mechanisms from the general public and other video users allows the proponent to determine the success of the video and provides the opportunity for the proponent to incorporate viewers' concerns and comments into future endeavors. Conclusions Video is now an established method of communication in our society, and environmental assessment is a legislative requirement in most developed countries. The use of video to augment the EA process at numerous points along its life cycle is being demonstrated by Ontario Hydro and other proponents. An EA video can provide a wealth of information to a wide range of audiences. It may be shown in a variety of ways: from cable TV to stand-alone VCR units, and from personal viewing to public meetings. A video allows a consistent message to be communicated to an audience in a manner that is easy to understand. It also allows the presentation of a balanced message by offering both positive and negative aspects and a range of divergent opinions. At Ontario Hydro, the underlying purpose of our EA communications programs is to encourage a greater appreciation and understanding for a proposed project, as well as to stimulate public participation. In accomplishing this, Ontario Hydro's experiences have shown that the video medium can be extremely beneficial in promoting effective communication and facilitating better decision making throughout the EA process. References
Mills, J.S., and Diamond, S. 1988. Environmental impact statements--Videotaping provides a new dimension. EnvironmentalScience Technology22(6):618-619.
ENVIRON IMPACTASSESSREV 1993;13:177-188
MANAGING
LIGHTS, CAMERA
THE EIA PROCESS
.. • APPROVAL?
V I D E O IN T H E E A P R O C E S S *
W. Murray Paterson, Heather E. Reid, and Stewart K. S e a r s Ontario Hydro
John M. Morrow Whitewater Communications Ltd.
Introduction Inherent in any environmental assessment (EA) is the need to provide ongoing information to a wide range of audiences throughout the life cycle of the project. These audiences might be government reviewers, the general public, project staff, consultants, or any group with an interest in the EA process. The challenge facing environmental assessment proponents, therefore, is to build into their planning a comprehensive strategy for communicating clear, relevant information that is presented in ways that are easily absorbed by the targeted audiences. The EA process helps to ensure that environmental and socioeconomic issues are identified and addressed throughout the planning and implementation phases of new projects or programs. It provides sufficient information and justification to decide among alternatives, to predict potential effects of project or program development, and to identify ways to reduce and mitigate unacceptable impacts. At each stage of this process, it is imperative that the activities and findings of the study team are communicated clearly and concisely to a variety of audiences. Feedback and involvement of key stakeholders is critical to ensure the success of the planning and decision-making activities that make up the EA process. An environmental assessment is primarily a scientific, data-driven undertaking. The EA document reflects the scientific and technical nature of the studies *Note: The views expressedin this paper ate the authors, and do not necessarilyreflect those of Ontario Hydro. Address correspondence to: MurrayPaterson, Ontario Hydro, EnvironmentalSupport and Integration,HI7 F21, 700 UniversityAvenue,To~nto, Ontario, Canada M5G 1)(6.
© 1993 ElsevierScience Publishing Co,, Inc. 655 Avenueof the Americas,New York, NY 10010
0195-9255/93/$6.00
178
W M. PATERSON ET AL.
and is often focused heavily on detailed analysis. Although this may meet many of the needs of technically oriented audiences such as government officials and decision makers, less-technical groups may require a different communication approach. To this end, video is being developed as a communication tool to inform, educate, solicit feedback, and facilitate better and more timely decision making throughout the EA process. For many people involved in the EA process--predominantly scientists, engineers, policy makers, planners, and administrators---communicating through video is a new and often somewhat intimidating experience. This paper discusses how video can be effectively used in alI levels of the EA process. The paper also provides practical guidelines for implementing a program of video support and identifies associated costs and benefits. The information and viewpoints contained in the paper come from experience. Since 1987, Ontario Hydro has been using video as an integral part of its communications program for EA studies.
Background Ontario Hydro, a Crown Corporation of the government of Ontario, is responsible for providing a reliable supply of electricity at the lowest feasible cost to the people of Ontario. All of Ontario Hydro's activities related to supplying this electricity are subject to review and approval under the Ontario Environmental Assessment Act (EA Act). Since the inception of the EA Act in 1976, Ontario Hydro has submitted about 30 EAs and approximately 325 Environmental Reports filed under three Class EAs. Throughout this experience, the need for clear and balanced two- way communication has emerged as an essential element in the EA process. Effective communication contributes to the early identification of issues and provides a forum for dealing with them in a timely and cooperative manner. Given that EAs involve making decisions about activities that affect people's lives, there is a strong need to capture and communicate the human dimension of a proposed project.
Understanding the Medium EA videos have the ability to personalize project issues and put human faces on the issues involved. This provides a human dimension that EA documents cannot communicate and allows the emotions attached to the issues to be perceived and understood. A good example of this involved an aboriginal trapper, Frank Tebishgoeshik, who appeared in a video that summarized the proposed hydroelectric project on the Little Jackfish River system in northern Ontario. The video showed him in his cabin, shaping a wooden form for stretching fur pelts. It was one of those moments when the mood and atmosphere of the setting spoke volumes. He spoke from his heart about his past and his concern for the changes that the proposed project would bring to his children's future. This combination of sights, sounds, and self-expressed concerns had an impact that could be realized only through the medium of video.
LIGHTS, CAMERA...APPROVAL?
179
Video's ability to communicate the human dimension of research data benefits proponent representatives as well. Through the use of on-camera interviews, EA videos provide an opportunity for the viewers to see that the utility staff are people with real feelings about the project and concern for the people affected. Qualities such as sincerity, commitment, and thoroughness can be communicated through this forum in a way that is much more convincing and complimentary than can black and white print. Because of its ability to present information in a way that blends reason and emotion, video represents a powerful tool for communication. Because of this same ability, however, video can be misused in ways detrimental to the overall goals of the EA process. A common mistake is to take the raw scientific detail of an environmental assessment and try to communicate it directly to the audience through the video medium. Without first processing the data and translating it to the visual language of video, the result will not be effective. Another misuse of video during the EA process is to use its abilities to mold attitudes and to persuade. It is tempting to get caught up in the medium's power to generate emotion and lose sight of the fact that without a credible, balanced, and factual base, videos can become manipulative. The result of this misuse can create a disastrous public relations situation that could severely damage the project or the proponent's credibility. Video is most effective when information and emotion blend in order to motivate, inform, encourage, and explain. Like an EA document, video can be used to describe the proponent's planning process and the ways used to evaluate alternatives and their impacts.
Hydro's Video Support Program for EA Studies Ontario Hydro's experience shows that the environmental assessment process for a major project can take between three and five years to complete. Ontario Hydro has considered using a series of up to six potential videos to capture the entire life cycle of generation projects, and the associated EA process with a series of up to six video support products. Figure 1 outlines a typical project life cycle, showing where video can be utilized within various stages of the EA process. The videos can be generically categorized as follows: safety and environmental awareness project introduction/orientation environmental assessment summary environmental assessment issues project environmental requirements project summary To date, Ontario Hydro's experiences have focused primarily on the first four categories because the projects for which video support has been used have progressed only to the EA Act approval stage.
] 80
V~ M . P A T E R S O N E T A L .
SAFEP¢& PROJECT ENVL INTRODUCTION/ E~. EA AWARENESS ORIENTATION ISSUES ~ VIDEO ~ VIDEO VIDEO
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FACIL~TIES COMMISSIONED AND~ . SERVIGE
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FIGURE 1. EA Videos in the Project Life Cycle.
The following paragraphs are brief descriptions about each video type in Hydro's EA support program, including its purposes, scope, and benefits.
Safety and Environmental Awareness Early in the project life cycle, a precursory video can be used to provide an overview of the project site and vicinity for the purpose of identifying the predevelopment environment. This enables persons such as project staff, consultants, government EA reviewers, and the public to establish a preliminary understanding of the proposed project as well as an appreciation of the environment within which the development is proposed. In addition, this type of video is important for identifying any hazards that may affect the safety of field study programs carried out by members of an EA study team. Ontario Hydro has prepared a safety and environmental awareness video for the proposed Niagara River hydroelectric project. It was used to focus on the sensitive environmental features in the Niagara River study area as well as the potential dangers associated with the fast-moving water, surrounding cliffs, and toxic waste discharges and landfills. A safety and environmental awareness video also targets those directly involved with the project. The video could be used to prepare initial environmental inventories, identify important issues, or establish frameworks for future studies. A video at this stage in the project helps to minimize the need for extraneous site visits and provides valuable predevelopment footage of the study area.
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Project Introduction~Orientation To formally introduce a project and its EA process, videos can be a valuable communication tool. Project introduction/orientation videos allow people not directly involved in or familiar with a project, such as government EA reviewers and the public, an opportunity to become familiar with it. It may also introduce the project's purposes, definition, study process, and approval procedures, as well as provide a preliminary evaluation of its potential benefits and issues. By furnishing balanced, credible information about the proposed project, an introductory video can provide viewers with a solid knowledge base that will allow them to deal with the various conflicting opinions that will invariably arise in connection with a proposed project. The project introduction/orientation video may also solicit and encourage participation in the project's public involvement and presubmission consultation programs. This approach formed the message of a recent Ontario Hydro video dealing with the proposed hydroelectric developments in the Moose River basin in northern Ontario. Once the proposal was clearly defined, various groups with differing perspectives were seen presenting their views in a public forum. Although these conflicting views were not resolved in the video, they provided the basis of an appeal for cooperation in designing studies that would involve the various groups and provide the data necessary to assess project impacts and mitigation. The project introduction/orientation video allows viewers to develop a better understanding of a project. It also provides a formal opportunity for both public education and involvement, which may help to minimize opposition and misunderstanding later in the project and perhaps lead to a more effective EA process.
Environmental Assessment Summary When reading the detailed information in an EA document, government reviewers and other officials can easily lose sight of the fact that it is based on existing natural and human environments. Thus the production of an environmental assessment summary video can help remind the reviewer of the sights and sounds that exist behind the pages of the EA document. This video can help to provide a better appreciation for the proposed undertaking, the planning process that led up to submission of the EA document, and the people associated with the proposed project, as well as an overview of the key issues and how they were addressed or resolved. The EA summary video is done concurrently with the document preparation and is issued as a companion to the EA document itself. For those viewing the video (government EA reviewers, the public, and the EA hearing board), the content of the video can provide a user-friendly executive summary of the EA document, as well as further develop their understanding of the project. This could potentially help to enhance the formal review of the EA document.
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Environmental Assessment Issues When considering a project requiring an EA, issues of special interest often arise. Although these are usually highlighted and examined in the EA investigations, there may be a need for further discussion, explanation, and/or clarification about how the issues relate to or are affected by the project and how a proponent intends to deal with them. These issues may vary in scope and affect a number of interest groups, so it is often appropriate to deal with each issue individually. To this end, the use of videos that are focused entirely on one issue can be quite effective. The cost of producing these videos can be justified in that many of the specific issues are common to a variety of project EAs. Once produced, these videos can be reused whenever the issue emerges in future project assessments. An example of this is an EA issues video prepared by Ontario Hydro to describe the production and accumulation of methyl-mercury in hydroelectric reservoirs. The video was produced to provide a clear explanation of this complex scientific process in layperson's terms. Later, this same video was incorporated into the environmental assessment summary video for the Little Jaekfish hydroelectric project.
Project Environmental Requirements To ensure that involved project staff and contractors are aware of and committed to compliance with government regulations and environmental protection, a video summarizing the project's environmental requirements, EA commitments, and construction guidelines may be produced. An additional benefit is that a project environmental requirements video will help to demonstrate to the public and regulatory staff, as well as internal and contract staff, the commitment to environmental protection and government regulations. It also portrays how the proponent intends to be responsible and accountable to both of these.
Project Summary The sixth and final video is a broad overview of the project from start to finish. Mainly documentary in approach, this video provides an archival record of the entire life cycle of the project. It can highlight the EA process, the project's benefits and costs, planning, approval, construction, operation, and the ongoing monitoring process that determines the effectiveness of the mitigation measures. By using footage previously shot for other project videos, a project summary video can be a very cost-effective production that can be used for all of the abovementioned audiences. By providing an overview of the project's life cycle and by highlighting the lessons learned, the project summary video can be a useful tool in similar or future projects.
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Using Videos in the EA Process Videos have both tremendous capabilities and very real limitations. A video is not a universal panacea for every communication ill. Making the decision to produce one should be carefully and thoughtfully considered. The first step in this decision process may seem obvious: "Do we really need a video?" A video is, after all, just one of the many communication tools available. During the early stages of the EA process, time should be allocated for developing an overall communication strategy. Key to these discussions are two basic questions: "What are we going to communicate?" and "To whom are we communicating?" Answering these leads naturally to the question, "How are we going to deliver our message?" Establishing a clear, comprehensive communication strategy at the outset will assist in the coordination of the various "tools" and messages. Greater cost efficiency is an obvious benefit of this approach. In determining the communication objective and target audience of a video, it is important to be as specific as possible. One frequent mistake is to have inflated expectations of what a video can say and do. Trying to deliver a complex message to a variety of audiences may seem to be cost effective, but it rarely is. Broadening the focus leads to a generalization of the message. In our experience, it is advisable to have several short, well-targeted videos, rather than a single, general one. Consideration must also be given to the coordination and management of a video production. Ontario Hydro's experience has shown that a team of 6-7 professionals, consisting of a producer, a writer/director, and 4-5 senior members of the project team, provides the necessary expertise to get the job done effectively. One overall coordinator, who acts as a liaison between the video director and producer and the project team, is essential to ensure that everyone's interests are satisfied. Establishing and maintaining communication within this group is vital. The time frame in which one can produce a video is influenced by the range and complexity of the services required. In Ontario Hydro's experience, about six months is required to research and write the video text, assemble the footage, undertake the necessary interviews, develop the supporting graphics, and finally, produce a suitable end product. Although schedules tighter than six months can sometimes be accommodated, one must consider whether or not seasonal or other time-dependent or process-dependent shots are required. Therefore it is critical that production target dates be mapped out with as much lead time and certainty as possible. Having a critical path for the video production is essential, but of equal importance is allowing room for flexibility. Videos, after all, are not "engineered," but rather "created." This type of flexibility was needed when video coverage for the Moose River introduction/orientation video was done. A shot was needed of the break-up of fiver ice in the spring, in order to show how
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ice build-up and scouring affected the riverbanks. Recording this meant embarking on a "floating schedule." Despite extensive local speculation, comprehensive weather forecasts, and scientific information, the video crew had to wait for three days to capture the right moment. Without flexibility in the shooting schedule, the break-up would have gone unrecorded. Another consideration is the "shelf life" of the video. Generally speaking, the more specific the message, the quicker it becomes dated. Determining the anticipated period of time the video will be used should be part of the process of deciding whether the medium is cost effective. For a more detailed outline of die key stages in video production, see Figure 2. Assessing the Costs and Benefits In choosing to use video support productions, associated costs and benefits need to be balanced. Mills and Diamond (1988) stated that, although video production is not suitable for every project, it is cost effective for "large projects, for projects in remote locations, and for projects in environmentally sensitive areas where public approval may be difficult to obtain" (p. 619). In reference to Ontario Hydro's projects, one or all of these criteria often apply. Table 1 summarizes the range of costs dispersed, to date, for the videos produced by Ontario Hydro. Typically included in these cost figures are services such as: Preproduction: scouting and research, travel time, expenses, and scriptwriting Production: full crew video recording, camera, recorder, lights, sound equipment, travel time and expenses Postproduction: computer graphics, animation, narrator recording and audio mixing The costing framework for each individual video must be developed with consideration of the above-mentioned production services and other extraneous factors. These other factors may include remoteness of location, availability of stock footage, proportion of on-site shooting, use of high-technology presentation formats and graphics, available working time, and overall quality required for the final product. In very general terms, however, production of a high-quality video could cost on the order of $200~6000 per minute of final run time. Thus, a typical 20-minute video could cost between $40,000 and $120,000 (Canadian). Determining the cost effectiveness of producing videos during the EA process is a somewhat subjective exercise. In any communication exercise, such as creating public awareness about personal fitness or the hazards of smoking, tangible results are difficult to determine. The results of videos that are designed to inform, facilitate discussion, expedite the learning process, and focus on key issues may never be charted on a graph. However, in our experience, the commitment to provide clear, relevant, and balanced information does benefit the
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1. Determine audience, delivery mechanism, and message Set the parameters for the project. Thoroughness here will save time and money later.
2. Proposal Based on message, audience, and delivery mechanism. It should outline basic content, style, structure, and tone of video. A budget estimate is also included.
3. Documentary/non-documentary Determining the production style of the video. A documentary style allows for a more flexible approach to events that are changing or evolving. The final script is based on the footage shot. However, non-documentary is scripted first and then shot. This is more cost-effeotive and is used when the content of the video is known before shooting.
4. Outline~shooting script If the video is a documentary based on an evolving process, a detailed script is often written after the footage has been shot. An outline/shooting script precedes this shooting and provides a "concept grid" that sketches out the flow of ideas and suggested pictures.
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5. Draft script A major stage. Ideas are fully expressed and the storyline emerges. In a documentary video, this is usually accompanied by a rough cut of the video. In other types of video, shooting happens after the script is completed. Several versions of the draft script are often required before it is approved by the management team. 6. Rough cut A preliminary edit of images. Similar to a rough draft in writing. 7. Video shooting The gathering of original footage. 8. Final narration script The version of the script that is approved by the management team and recorded by the narrator. 9. Post-production Concluding stage of production involving final editing, narration, music recording and sound mixing. FIGURE 2. Stages of Video Production.
entire EA process. The following are examples of some of the more tangible characteristics and benefits of using EA videos as part of the overall communications strategy: User-friendliness: video is a medium that has become familiar at home and in the workplace Consistency: the message and the quality of its presentation are guaranteed Availability: once the video has been produced, copies are relatively inexpensive and can be easily packaged for distribution Visual context: communicating the sights and sounds of the study area adds a new level of understanding to the EA process and the EA document Human dimension: video provides a forum for people to exchange ideas, present their viewpoints, and express their concerns
Lessons and Suggestions The following list of lessons and suggestions has come out of Ontario Hydro's experience in producing support videos for the EA process. In 1987, when the first videos were produced, little information on the topic existed. What follows may not be a definitive list, but it may provide helpful guidelines for those considering the use of video. 1. Start early. The success of a video support program in the EA preparation and communication process will be enhanced if it is incorporated at the beginning of the project. The videos may be designed to stand alone and/or work as a series--each being interrelated to the previous one.
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TABLE 1 Costs of Ontario Hydro' s Environmental Assessment Videos
Type of Video
Number Completed
Safety and EnvironmentalAwareness Project lntroducfordOrientation EnvironmentalAssessmentSummary
1 4 3
Environmental Assessment Issues
1
Year
Percentage Video Cost of Total ($Canadian) ProjectCost
1987 $35K-$40K <0.1% 1987-t991 $35K~$110K <0.1-0.3% 1988-1991 $50K-$100K <0.1-0.3% 1987
$60K-$65K
< 0.2%
2. Discuss how it will be used. Determining how the video will be shown is critical. As part of the communication strategy for the entire EA process, each video needs a clear and realistic plan for making it available to the various target audiences. Consideration should be given to using it in presentations, workshops, information centers, cable TV showings, news clips, information kiosks, etc. Linking a video to other media will ensure a clear, consistent message. 3. Identify audiences and purpose. The audiences for the proposed videos must be clearly defined early in the process and constantly reviewed throughout the project life cycle. Similarly, the purpose of each video must be laid out in simple terms at an early stage in the planning. Both of these are essential to ensure that the end product meets the user's needs. 4. Level of detail. It is important to identify the required level of detail for the video early in the production process. This is determined mainly by the needs of the target audience. It is inappropriate to present a detailed discussion on a topic if the audience is unfamiliar with the subject, scientific terminologies, and technical jargon. Communicating only the key issues and findings in the video provides a greater degree of understanding and appreciation for the project. Conversely, "talking down" to audiences by oversimplifying ideas can make them frustrated and offended. 5. Show sensitivity to communities. Proposed projects are often located in or near areas where residents are particularly sensitive to major development proposals. It is critical, when filming in and around such communities, to recognize these sensitivities and to coordinate activities with community leaders. 6. Need for balanced perspectives. It is very important for the proponent to present to the public and the decision makers a balanced and fair representation of the project. Presenting differing viewpoints on key issues gives credibility to the overall message. It is potentially harmful to present a biased message that attempts to "sell" or "win over" the audience. 7. Involve experts, government officials, and the public. The involvement of experts, government officials, and the public in a video production brings a sense of credibility to the message. The use of external people (i.e., nouproponent) allows the presentation of differing opinions and perspectives.
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8. Scheduling. If a video series is planned, coordinating the shooting schedules will provide budget savings. Cataloging the shooting of key events throughout the EA process is quite important, as the footage provided could be useful in the development of a comprehensive video series. Most importantly, set realistic target dates and remain flexible. 9. Test independent groups. The reactions and comments obtained from various focus groups (i.e., those to whom the video is shown before public release) provide critical feedback about the potential success of the video content and character. Acknowledgment of these reactions and feedback should be reflected in the final product as well as in subsequent project videos. 10. Provide feedback mechanisms. Similar to number 9, the provision for structured feedback mechanisms from the general public and other video users allows the proponent to determine the success of the video and provides the opportunity for the proponent to incorporate viewers' concerns and comments into future endeavors. Conclusions Video is now an established method of communication in our society, and environmental assessment is a legislative requirement in most developed countries. The use of video to augment the EA process at numerous points along its life cycle is being demonstrated by Ontario Hydro and other proponents. An EA video can provide a wealth of information to a wide range of audiences. It may be shown in a variety of ways: from cable TV to stand-alone VCR units, and from personal viewing to public meetings. A video allows a consistent message to be communicated to an audience in a manner that is easy to understand. It also allows the presentation of a balanced message by offering both positive and negative aspects and a range of divergent opinions. At Ontario Hydro, the underlying purpose of our EA communications programs is to encourage a greater appreciation and understanding for a proposed project, as well as to stimulate public participation. In accomplishing this, Ontario Hydro's experiences have shown that the video medium can be extremely beneficial in promoting effective communication and facilitating better decision making throughout the EA process. References
Mills, J.S., and Diamond, S. 1988. Environmental impact statements--Videotaping provides a new dimension. EnvironmentalScience Technology22(6):618-619.