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Summary

The study group 'Environmental Standards' established in 1987 as an expert panel of the German Academy of Sciences and Technology in Berlin compiled this book on setting environmental standards that has been literally written and authorized by all group members. The group consisted of eleven individuals representing the following disciplines: physics, chemistry, biology, engineering, law, psychology, and sociology/economics. Firstly, Environmental Standards summarizes the state of the art in each discipline with respect to the topic of environmental standards, limited to one major case study: the effects of ionizing radiation. Within the subject of ionizing radiation and its impacts, the book intends to provide a complete and accurate picture of the various health impacts and environmental problems. Second, this volume provides guidelines for a desirable procedure that would guarantee the inclusion of all scientific data and reasoning but would also assure the incorporation of social costs, cultural values and individual preferences in the decision making process. The study includes a section that describes an analytic framework for collective decision making under uncertainty and a section on institutional innovations necessary to implement a procedure for integrating scientific input and rational decision making. The procedural suggestions are focused around a new environmental institution that is empowered to initiate and promulgate new standards on the basis of a present process of linking scientific data with social values and preferences. The volume represents a rare example of integrating the natural and social sciences and developing consistent and complete procedural guidelines for standard setting in a democratic society.

Table of Contents

Preface to the English Edition IX(4)
List of Abbreviations XIII(4)
Summary XVII(16)
Introduction XXXIII
Chapter 1 Necessity and Function of Environmental Standards
1(44)
1.1 Environment and Environmental Standards
2(13)
1.1.1 The Notion of Environment
2(2)
1.1.2 Special Position of Human Beings
4(2)
1.1.3 Human Task
6(5)
1.1.4 Objectives of Environmental Standards
11(4)
1.2 Rational Establishment and Evaluation of Environmental Standards
15(10)
1.2.1 Environmental Standards and Acting under Risk
15(2)
1.2.2 Problems of the Notion of Risk
17(5)
1.2.3 Multiattributivity of Undesirability
22(2)
1.2.4 Problems of Generalizability
24(1)
1.3 Normative Implications and Environmental Policy
25(20)
1.3.1 Factual and Normative Validity in a Democracy
25(3)
1.3.2 Individual Reasonableness of Environmental Law
28(2)
1.3.3 Pragmatic Consistency
30(5)
1.3.4 Social Decision Processes
35(10)
Chapter 2 Scientific-Medical Foundations of Radiation Protection
45(96)
2.1 Exposure to Radiation
46(46)
2.1.1 Survey
46(2)
2.1.2 Types of Radiation
48(3)
2.1.3 Dose Concepts and Dose Units
51(8)
2.1.4 Dosimetry
59(14)
2.1.5 Calculation Example -- Thyroid Dose Factors for Incorporated Radioactive Iodine Isotopes
73(9)
2.1.6 Radiation Exposure of the Population
82(10)
2.2 Biological Impacts of Ionizing Radiation
92(35)
2.2.1 Survey
92(2)
2.2.2 Basic Radiobiological Phenomena
94(8)
2.2.3 Non-Stochastic Effects in Tissues and Organs
102(4)
2.2.4 Induction of Developmental Anomalies
106(3)
2.2.5 Stochastic Effects
109(8)
2.2.6 Effective Dose
117(3)
2.2.7 The Small-Dose Problem
120(7)
2.3 Discussion of Methods and Errors
127(14)
2.3.1 Observations about Dosimetric Errors
127(4)
2.3.2 Discussion of the Scattering Range of Risk Factors
131(10)
Chapter 3 Development of Environmental Standards for Radiation and Other Noxae
141(32)
3.1 Historical Development of Radiation Protection Standards
142(5)
3.2 Decision Processes in the Formation of Other Standards
147(18)
3.2.1 Standards of Workers' Protection
147(4)
3.2.2 Standards for Asbestos
151(3)
3.2.3 Risk Assessments
154(2)
3.2.4 Chlorofluorocarbons (CFCs)
156(3)
3.2.5 Environmental Standards for SO(2)
159(6)
3.3 Comparative Consideration
165(8)
Chapter 4 Individual Social and Governmental Risk Assessment and Perception
173(96)
4.1 Formation of Individual Assessments about and Attitudes towards Risks
174(14)
4.1.1 Hypotheses on Differences between Rational and Intuitive Assessments
176(1)
4.1.2 Criteria of Rational Assessments and Decisions
177(1)
4.1.3 Formation of Intuitive Assessments
178(1)
4.1.4 Cognitive Heuristics in the Formation of Intuitive Assessments
179(3)
4.1.5 Relevant Factors in Intuitive Risk Evaluation
182(4)
4.1.6 Relevance of General Value Orientations for Intuitive Risk Assessments
186(1)
4.1.7 Social Influences on Individual Risk Evaluation
187(1)
4.2 Social Processes and Conflicts in Risk Evaluation
188(27)
4.2.1 Social Reception of the Concept of Risk
190(5)
4.2.2 Actors in the Nuclear Power Conflict
195(5)
4.2.3 Mobilization and Readiness to Take Action
200(2)
4.2.4 Roles of Government and Science in the Controversy about Nuclear Energy
202(4)
4.2.5 The Role of the Media as Social Amplifiers of the Conflict
206(2)
4.2.6 Public Opinion in the Nuclear Arena
208(2)
4.2.7 Social Evaluation and Rational Finding of Standards
210(5)
4.3 Governmental Evaluation of the Radiation Risk by Legal Regulation
215(25)
4.3.1 Development of the German Law on Radiation Protection
215(2)
4.3.2 Influence of International and European Law on the German Law on Radiation Protection
217(2)
4.3.3 German Ordinance on Radiation Protection
219(8)
4.3.4 Procedures of Licensing Plants under Nuclear Law
227(2)
4.3.5 German Law on Preventive Radiation Protection
229(4)
4.3.6 German Ordinance on X-Rays
233(1)
4.3.7 Penal Provisions
233(1)
4.3.8 Conclusion Concerning Risk Assessment
234(6)
4.4 Organizational and Structural Factors in Establishing Environmental Standards
240(26)
4.4.1 Structure of the Ministerial Administration in Germany
242(5)
4.4.2 Integration of Environmental Policy in Public Administration
247(1)
4.4.3 External Pressure and Effects on the Outside World
248(4)
4.4.4 Structural Suggestions for a More Effective Environmental Policy
252(7)
Chapter 5 Formal Criteria and Instruments for Improving the Decision Process
269(70)
5.1 Social Formation of Objectives
271(1)
5.2 Possible Consequences of Measures to Reach Objectives
272(8)
5.2.1 Basic Principles and Effectiveness of Risk Studies
272(3)
5.2.2 Determining Costs
275(3)
5.2.3 Distributive Justice
278(2)
5.3 Balancing Expenditure and Success. On Logic and Meaningfulness of Standards of Comparison
280(12)
5.3.1 Risk-Risk Comparisons
280(3)
5.3.2 Cost-Effectiveness Procedure
283(3)
5.3.3 Cost-Benefit Analysis
286(2)
5.3.4 Welfare-Theoretical Approaches
288(1)
5.3.5 Establishing Environmental Standards According to the Precautionary Principle
289(3)
5.4 Decision Analytic Procedures of Establishing Standards
292(47)
5.4.1 Decision Analytic Way of Proceeding for Individual Decision Makers
293(16)
5.4.2 Decision Analytic Way of Proceeding in Group Decisions
309(18)
5.4.3 Decision Analytic Procedures in the Context of Risk-Risk Comparisons
327(1)
5.4.4 Application of Decision Analysis in Political Practice
327(2)
5.4.5 Summary
329(10)
Chapter 6 Institutional and Organizational Perspectives
339(55)
6.1 Principles and Problems of the Present Practice in Germany
341(9)
6.1.1 The Diversity of Environmental Standards
341(3)
6.1.2 Priorities Regarding the Establishment of New Standards
344(1)
6.1.3 Establishing Non-Effect Exposure Standards
345(1)
6.1.4 Optimization Deficiencies
346(4)
6.2 Environmental Instruments of Market and Law
350(20)
6.2.1 Environmental Instruments of the Market Economy
350(11)
6.2.2 Environment Protection in Civil Law and in Public Law
361(9)
6.3 Institutionalization of the Procedure of Establishing Environmental Standards
370(24)
6.3.1 Environmental Discourse
370(4)
6.3.2 Environmental Council
374(4)
6.3.3 Normal Procedure -- Guidelines for Establishing Environmental Standards by Environmental Authorities
378(3)
6.3.4 Possible Institutional Objections
381(3)
6.3.5 Environment Council and Risk Communication
384(10)
Conclusions 394

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