Key challenges of offshore wind power: three essays addressing public acceptance, stakeholder conflict, and wildlife impacts

Firestone, Jeremy M.Society is facing a pressing need to reduce greenhouse gas emissions to limit anthropogenic climate change, which has far reaching implications for humans and the environment. Transforming the energy infrastructure to carbon-free sources is one solution to curb greenhouse gas emissions, but this transformation has been slow to materialize in many places, such as the United States (U.S.). Offshore wind energy is one of the most promising renewable energy sources available, which can be deployed in large-scale developments in many parts of the world. Yet, offshore wind has faced many challenges, which are more social and regulatory than technical. This dissertation addresses social and regulatory issues surrounding offshore wind development through three stand-alone essays, which, in combination, address a decision-making framework of where to locate offshore wind turbines, by minimizing effects on people and wildlife. The challenges to offshore wind that are addressed by this dissertation include (1) understanding underlying factors that drive support for or opposition to offshore wind energy; (2) conflict with existing ocean uses and users; and (3) public concern and regulatory processes related to wildlife impacts. The first paper identifies unique factors that drive public opinion of proposed offshore wind projects in nearby coastal communities. Wind energy development on land has faced local opposition for reasons such as effects on cultural landscapes and wildlife, which can be instrumental in whether or not and the speed with which a project moves ahead toward completion. Factors leading to support for, or opposition to, offshore wind energy are not well known, particularly for developments that are near-shore and in-view of coastal communities. Results are presented from a survey of 699 residents (35.5% response rate) completed in 2013 in greater Atlantic City, New Jersey and coastal Delaware, United States, where near-shore wind demonstration projects had been proposed. The essay examines how the public considers the societal tradeoffs that are made to develop small-scale, in-view demonstration wind projects instead of larger facilities farther offshore. Results indicate that a strong majority of the public supports near-shore demonstration wind projects in both states. Primary reasons for support include benefits to wildlife, cost of electricity, and job creation, while the primary reasons for opposition include wildlife impacts, aesthetics, tourism, and user conflicts. These factors differ between coastal Delaware and greater Atlantic City and highlight the importance of local, community engagement in the early stages of development. The second essay examines the interaction of a new proposed use of the ocean—offshore wind—and a key existing ocean user group—commercial fishers. A key component of offshore wind planning includes consideration of existing uses of the marine environment in order to optimally site wind projects while minimizing conflicts. Commercial fisheries comprise an important stakeholder group, and may be one of the most impacted stakeholders from offshore renewable energy development. Concern of the fishing industry stems from possible interference with productive fishing grounds and access within wind developments resulting in costs from increased effort or reduction in catch. Success of offshore wind development may in part depend on the acceptance of commercial fishers, who are concerned about loss of access to fishing grounds. Using a quantitative, marine spatial planning approach in the siting of offshore wind projects with respect to commercial fishing in the mid-Atlantic, U.S., this essay develops a spatially explicit representation of potential conflicts and compatibilities between these two industries in the mid-Atlantic region of the United States. Areas that are highly valuable to the wind industry are determined through a spatial suitability model using variable cost per unit energy. Areas that are highly valuable to the fishing industry are determined by examining fishing effort in three high-value fishing sectors (sea scallops, clam fisheries, and high-value mobile fisheries). Ultimately, the results identify locations where the industries are conflicting and where they are compatible. This quantitative analysis of the potential tradeoffs between the commercial fishing industry and offshore wind development benefits wind developers, states, and federal regulators by helping advance offshore wind power to meet national priorities. Finally, the third essay addresses wildlife impacts through a comprehensive review of the impacts to marine mammals and the regulatory context to manage these impacts. Regulators, scientists, and stakeholders are interested in the potential impacts from pre-construction surveys, turbine installation, operation and maintenance, and decommissioning of offshore wind sites. This article reviews both commissioned reports and peer-reviewed literature to provide a comprehensive overview of the expected impacts of offshore wind energy to marine mammals. Impacts include noise, which is generated during three stages of development: investigation/construction, operation, and decommissioning. Additional potential effects arise from electromagnetic fields, changes in prey abundance and distribution, and the creation of artificial reefs and ‘de-facto’ marine protected areas. Because offshore wind power may also deliver substantial long-term benefits to wildlife and humans in the form of reduced CO2 emissions, implementation of mitigation measures to reduce negative impacts to marine mammals may be a plausible option to help this industry advance. An overview of mitigation options is reviewed, as well as the legal framework protecting marine mammals from anthropogenic impacts. Finally, the essay makes several recommendations where government and wind developers can improve research and regulatory processes to increase efficiency and streamline the application and review process.University of Delaware, School of Marine Science and PolicyPh.D