Energy Research & Social Science 110 (2024) 103427
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Energy Research & Social Science
journal homepage: www.elsevier.com/locate/erss
Original research article
Winds of change: An engaged ethics approach to energy justice
Eric Brandstedt a, *, Henner Busch b, Ellen Lycke b, Vasna Ramasar c
a
Human Rights Studies, Lund University, PO Box 192, 221 00 Lund, Sweden
Lund University Centre for Sustainability Studies, Biskopsgatan 5, 221 00 Lund, Sweden
c
Human Ecology, Lund University, Sölvegatan 10, 221 00 Lund, Sweden
b
A R T I C L E I N F O
A B S T R A C T
Keywords:
Engaged ethics
Wind power development
Normative justification
Public reflective equilibrium
Procedural energy justice
Normative theory
Theories of energy justice are standardly used to evaluate decision-making and policy-design related to energy
infrastructure. All too rarely attention is paid to the need for a method of justifying principles of justice as well as
justice-based judgments that are appealed to in this context. This article responds to this need by offering an
engaged ethics approach to normative justification useful for energy justice theory. More specifically, it presents
a method of public reflective equilibrium and shows its potential as systematic method for both anchoring analyses of justice in practically relevant judgments and for critically examining perceived injustices. The method is
developed and demonstrated through the case of injustices related to a hypothetical but realistic case of wind
power development. Participants were invited to a process of justifying justice-claims, using a version of the
method of public reflective equilibrium. They reflected on a preliminary normative framework created by the
research team and visually depicted by a graphic artist. The analysis of the workshop identifies the following
three themes as particularly important for just wind power development: (1) establishing trust among the
stakeholders; (2) questioning energy demand; and (3) identifying the right site and scale for energy decisions. All
three themes have to do with fair procedures. The latter part of the paper explores what this means for theorising
energy justice and outlines a theory of imperfect procedural energy justice.
1. Introduction
Development of wind power is an increasingly controversial imperative: an essential part of the low-carbon transition, cost efficient and
clean, but also facing severe implementation issues due to strong local
opposition. To reach the objective of the Paris Agreement of net zero
emissions by the second half of this century, an extensive and rapid
expansion of wind power globally is considered necessary [1,2]. As of
now, wind power is the second most important (next to hydro power)
and fastest growing renewable energy technology globally [3]. In 2020,
1592 TWh of electricity came from wind, which is 12 % higher than in
2019. To stay on the net zero path, the increase must be an average 18 %
per year during 2021–2030 [4].
Although wind power generally is a popular source of energy, there
is also widespread local opposition [5–8]. Some see wind power as
harmful, unjustified and unwelcome and point to a long list of grievances and complaints underlying the ‘complex, multidimensional nature
of forces shaping public perception’ [9]. It has been known for a long
time that wind power regularly meets opposition, but this issue has only
recently been analysed in terms of justice [10–14]. In this article, we
address the problem of how to determine which of these objections are
more or less important to consider from the point of view of justice and
how to design supportive or corrective measures in a just way. In the
context of energy decision-making, justice is standardly understood to
have a procedural, a distributive and a recognitional dimension. It
concerns how decisions are made, how the costs and benefits are
distributed, and respect for individual differences and circumstances.
Research around ‘energy justice’ [15] points to the complex political
factors – beyond economics and technology – that affect and sometimes
hinder the roll out of renewable energy projects. The research also shows
the potential of turning opposition into support in community-led energy projects [16–19].
Seen from the perspective of political philosophy, however, such
analyses are incomplete. One problem is that they provide little guidance as to which normative considerations are more or less important to
take into consideration in energy decision-making, and which considerations are fundamental principles and which are instead judgments
derived from principles. Political philosophy, furthermore, takes as its
* Corresponding author.
E-mail addresses: eric.brandstedt@mrs.lu.se (E. Brandstedt), henner.busch@lucsus.lu.se (H. Busch), ellen.lycke@norrkoping.se (E. Lycke), vasna.ramasar@hek.lu.
se (V. Ramasar).
https://doi.org/10.1016/j.erss.2024.103427
Received 12 January 2023; Received in revised form 12 January 2024; Accepted 16 January 2024
2214-6296/© 2024 The Authors. Published by Elsevier Ltd. This is an open access article under the CC BY license (http://creativecommons.org/licenses/by/4.0/).
E. Brandstedt et al.
Energy Research & Social Science 110 (2024) 103427
starting point the reasonable disagreement that pertains to principles of
justice, a controversy that is absent in energy justice theory. People
reasoning in good faith have different opinions about what justice dictates. In order to move from this state of disagreement to a just transition
each party can reflectively accept, there is a need to engage in a process
of justification. We cannot assume to know what the demands of justice
are e.g., when it comes to implementing wind power, neither can we
trust intuitions about what is just or unjust at face value. Instead, these
things must be justified: we must search for reasons to hold certain
judgments warranted and reasons for adopting certain principles to
explain intuitive judgments. This points to the method philosophers call
reflective equilibrium as an ideal approach to scrutinise both intuitions
and principles of justice [20].
In this paper, we employ a version of this method to examine when
and why decisions aimed at developing renewable energy – and in
particular wind power – create injustices. The overall aim is to show the
potential of taking an “engaged” approach to normative theorising
[21,22] by which we mean inviting stakeholders to the low-carbon
transition as collaborators to a process of scrutinising justice-claims as
well as developing normative principles. This can be contrasted to the
more typical approaches of either applying an existing normative
framework to a particular case (with little public input) or eliciting lay
intuitions about justice but without exposing them to moral scrutiny.
The method of public reflective equilibrium is used both to review and
explain intuitive judgments and to test and develop energy justice theory, which is a novel contribution to this field of research. The method,
as well as this paper, is situated in the intersection of empirical research
and normative theory. Although the methodological aim is primary, we
also intend to make a substantial contribution to energy justice theory
and the understanding of what justice requires when it comes to wind
power development.
In pursuit of these aims, we organised a workshop in which we
invited participants to scrutinise a preliminary normative framework of
justice-based arguments created by the research team. The framework
serves as context for both the workshop discussion and for the theory
development that comes later in this article. It consists of arguments for
and against wind power development which we assembled through a
literature review. The framework was used in the workshop to elicit
intuitions of the participants and it is used below in this article to contextually specify normative principles of energy justice. The framework
also provides an overview of existing research on justice aspects of wind
power development. We elaborate further on our methodology, in Section 2, and present the preliminary normative framework in Section 3.
In Section 4, we present and analyse the results from the workshop.
We there identify three themes that emerged from the workshop discussions as particularly important for just wind power development: (1)
establishing trust among the stakeholders; (2) questioning energy demand; and (3) identifying the right site and scale for energy decisions.
We then use these themes to inform a critical review of existing theories
of energy justice in the context of wind power. The main conclusion is
that just procedures are central to just development of wind power (all
three themes can be understood in such terms). This stimulates us to, in
Section 5, outline a theory of imperfect procedural energy justice, a
theory according to which just procedures (properly interpreted) function as a rough guide to just outcomes and make the discussion about
finding a criterion for just outcomes less relevant. For this to be
convincing, a broad understanding of the domain of procedural energy
justice is required. We thus argue that it applies also to how energy
decisions are formulated and by whom and that these prior decisions
have to do with agenda setting and discursive power. This offers a novel
interpretation of procedural justice in the energy justice context.
Finally, a caveat and a note about our contribution: neither the
preliminary normative framework nor the procedural theory we present
below are developed with the aim of explaining all normative – justicebased – considerations relevant to wind power development. There are
important arguments and considerations which we do not address but
which must be taken into account in actual decision-making. Our contributions are methodological and theoretical. We outline and exemplify
an approach to energy justice theorising which combines the critical
edge of normative theory with the practical relevance of a participatory
research in the hope of inspiring in scholars in the field of energy justice
of taking an engaged approach to normative theorising.
2. A graphically illustrated method of public reflective
equilibrium
2.1. Reflective equilibrium
In normative theory (e.g., applied ethics and political philosophy) it
is commonplace to use the method of reflective equilibrium for moral
justification. This means testing the “fit” or coherence of generally
formulated normative principles and independently formed normative
judgments about relevant cases [23]. If the principle prescribes actions
incompatible with intuitive judgments about what is right or wrong,
then either the principle must be revised, or the conflicting intuitions be
given up. Let us say, for illustration, that one is interested in seeking the
justification of some typical moral beliefs or intuitive judgments that
pertain to wind power development, say the belief that wind power is
wrong because the rotor blades of wind turbines kill birds. How could
such a judgment be justified morally? According to the method of
reflective equilibrium, the way to proceed is by trying to subsume it
under some more general principle, which in this example might be one
of environmental ethics, e.g., ‘it is wrong to kill sentient beings’. The
principle in question explains the particular judgment and justifies
someone's belief in it, but of course in itself needs justification. We then
ask, what reason do we have to affirm this principle? To answer, the
method of reflective equilibrium advises us to consult our intuitions, not
about the particular case we started with, but instead other cases the
principle applies to. So, we consider other cases of killing sentient beings
and ask ourselves whether we think they exhibit morally impermissible
actions. Is it always wrong to kill sentient beings? We may then realise
that there are many cases in which we would not find anything morally
objectionable with such killing and thereafter revise the principle
accordingly (e.g., ‘it is wrong to kill sentient beings just for fun and
without this leading to any greater human benefit’).
2.2. Public reflective equilibrium
Traditionally, this process is ‘private’ in the sense that both principles and intuitions about particular cases come from the theorist
themself. But in the public version of this method [24], stakeholders or
practitioners are invited to the process of justification to enhance its
practical value. The process still aims at determining which normative
judgments are more or less justified and which normative principles are
best supported, but it does not occur in the theorist's head. Stakeholders
are consulted for their unique insights into the forms of injustice the
theorist wants to understand. But it is not a one-way street. The justificatory process is mutually beneficial: the theorist wants to learn about
the attitudes and judgments of others, but the participants from the
public can – and hopefully will – get something out of it: they can learn
about new ways of thinking about their roles and responsibilities in
various situations. The process is critical on both ends: neither particular
judgments, nor general principles are accepted at face value, but instead
scrutinised, revised or rejected.
Public reflective equilibrium can play out in different ways [25]:
either by inviting the public to express intuitions about principles of
justice formulated by theorists, or by opening up for the public to
formulate (or reformulate) principles, or by handing over the whole
process of justification to the public with little or no guidance from the
theorist. The first version, i.e., opening up for public input for intuitions,
is most common. An example of this is the work by Wolff and De-Shalit
[24] who seek public input to a process of justifying an already well2
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Energy Research & Social Science 110 (2024) 103427
developed and sophisticated philosophical theory, the Capability
Approach. In our application of the method, we also focus on the level of
intuitions (justice-claims, complaints, grievances), but unlike Wolff and
De-Shalit do not present the participants with an already developed
normative theory.
important to emphasise, however, that all of these stages – from the
literature review to the theoretical discussion carried out in Section 5 –
are equal parts of the process of public reflective equilibrium.
2.3. Graphic illustrations
Here follows our preliminary normative framework which consists of
six common arguments (or rather categories of arguments or things to
consider) for or against wind power. The first two are generally used in
favour of wind power whereas the remaining four are typically used to
criticise wind power development and to argue for the need to complement it with social safeguards.
3. A preliminary normative framework for wind power justice
We choose a less theoretical starting point for our research. We
started by assembling a preliminary normative framework through a
broad interdisciplinary literature review and summarised it, not in a set
of principles but rather in a series of graphic illustrations. This is because
we wanted the framework, which we would present to the stakeholders,
to be more relatable and accessible than an abstract philosophical theory
of justice, but also be more ‘open’ for interpretation and less questionbegging. We reviewed academic literature, but also grey literature and
media coverage. Most of the academic works are within social science
and rarely make explicit normative arguments. Rather, the ambition is
often to explain or to understand public opposition to wind power as a
social phenomenon. Some of the reviewed works do, however, implicitly
make normative arguments and all of them at least evaluate empirical
data and use evaluative or normative concepts to do so. Within more
philosophical literature around normative theory and practical ethics,
there is a scarcity of literature on renewable energy justice. What one
finds of direct relevance is just a few papers on the ‘NIMBY’-phenomenon [26–28]. As for the grey literature, we focused on the renewable
energy strategy of the European Union and the Swedish national strategy for wind power. In developing the framework, we also drew on our
own previous experiences of having worked on similar topics, talked to
colleagues, and tested versions of the framework in pilot workshops with
our students.
Secondly, we developed a vignette (i.e., a fictional case described in
one page text) about the development of a large wind power park in
Northern Sweden (see Appendix A) that presents different justice-claims
we had identified in the literature review. On the basis of this, we
worked with a graphic artist to develop the vignette and its justiceclaims in more concrete visual details. This part of the process proceeded over close to a year's time and included an iterative process of
discussing, sketching and revising. This greatly contributed to clarifying
our ideas about which normative arguments are most relevant to the
case as well as to make them visually accessible. This resulted in a poster
and six cards with graphic illustrations. The poster is a representative
image for the case (wind turbines on a hill and associated infrastructure), and the graphic illustrations depict different justice-claims or
rather categories of arguments relevant to the case (more on this below).
With our graphically accessible materials at hand, we invited
stakeholders to the workshop. The format was a mixture of a philosophy
seminar and a focus group. The purpose was not to get the participants
to share their own experiences, but to initiate a reflective philosophical
dialogue around justice claims relevant in this context through which
arguments could be tested (of course always informed by the different
experiences of the participants). There were few participants (four plus
the project team) and they had plenty of time to reason and discuss. The
group consisted of: (1) a sustainability officer at a big energy company in
Sweden, (2) a youth climate activist, (3) an entrepreneur who works
with small scale and community-based energy solutions, (4) a sustainability specialist at a regional government in Sweden. All four were
generally positive to climate action and in favour of developing
renewable energy although they had different priorities and evaluative
starting points. They were invited in their capacity as stakeholders to the
low-carbon transition and exemplify a plurality of different perspectives
relevant to concrete energy and climate policy debates, but we did not
aim for full representativeness.
The final two stages of the process of justification are those we carried out after the workshop when we first analysed the results and then
explored some possible consequences for energy justice theory. It is
3.1. New jobs and economic growth
This category summarises arguments and reasons referring to how
the development of wind power promises to produce new (green) jobs
and economic growth. Such arguments are commonly made by those
arguing in favour of renewable energy and they are usually considered a
strong reason in their favour. Sometimes the arguments are made in the
context of a discussion about how one can renew and bolster regions
with depressed economies, high unemployment rates and decreasing
populations. Renewable energy investments promise a new industrial
boom; an inflow of new people, more tax money, and better social
services.
The European Union's strategy for wind power [29] has taken up this
argument. It states that it ‘acknowledges the strategic importance of
renewable energies as a key industry that will make Europe more sustainable, resilient and globally competitive’. One of the most important
reasons for a quick and massive roll-out of wind power is to maintain a
competitive edge on the global market. EU-based manufacturers of wind
turbines have a 54 % share of the global market, the wind industry
makes a substantial contribution to EU GDP, as well as being a major
employer. Furthermore, the costs of investing in wind power have fallen
rapidly in recent years due to technological innovation. Thus, investments in wind power make market sense. Similar arguments are
made in national contexts. For example, in the Swedish national strategy
for wind power it is noted that wind power is the renewable energy
source with lowest monetary costs, which is why this is where producers
turn for good investments. It foresees a rapid and extensive expansion of
both on- and offshore wind in the coming decades. This is motivated
both in terms of maintaining international competitiveness and because
wind power can provide a good, stable supply of climate neutral energy.
The main obstacle related to in these argumentations is the permitting
processes, which is filled with regulatory hurdles and delays the realisation of this investment opportunity.
Previous research has also shown that wind power projects can have
a range of positive economic impacts on local communities [18]. In
particular, a community-centred approach can help to unleash general
economic benefits of renewable energy projects [30–32]. These benefits
take different shape, such as local jobs [33] or local business taxes
[34,35]. Potentially, benefits increase further when (part of) the wind
park is owned locally or compensatory payments flow into the local
community [36]. These benefits have often been mobilised in discussions about wind power development, presenting a way forward for
(often rural) communities that have to deal with economic hardship.
3.2. Combat climate change
The most common argument for renewable energy investments, such
as in wind power, these days is that it is part of the low-carbon transition
done to combat climate change. Compared to most other energy sources
(the exception being hydro power), wind power has very low CO2emissions per kilowatt-hour (these figures include emissions
throughout the full life cycle, including manufacturing). According to a
study by the German Environment Agency [37], offshore wind emits
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around 7 g of CO2 per kilowatt-hour (g CO2/kWh), whereas nuclear
emits around 117 g CO2/kWh and brown coal (lignite) around 1034 g
CO2/kWh. Considering also other emissions ‘saved’ (e.g., the health
benefits wind power generates by producing lower emissions of sulphur
dioxide and nitrogen oxide), the societal benefits from wind power are
huge. Lots of countries have thus set targets for what share of their energy production should come from renewable energy at some date. This
is particularly pressing as this transition also is expected to lead to a
huge increase in demand for low-carbon energy due to the electrification
of transport among other things and because there are few other viable
sources. Sometimes this argument is given a more rhetorical frame in
which it is argued that there are no alternatives or that alternatives will
come at the cost of reducing the pace of the global decarbonisation. For
example, it is said if we do not invest in wind power here, we will have to
import fossil fuel energy from other countries, with the result of more
CO2-emissions in total.
violated or infringed by wind power projects. There are numerous cases
worldwide in which development of e.g., hydro and wind power have
had such consequences [45]. There are, for example, several documented rights violations in the north of Sweden involving the indigenous Sami people [46,47]. Sami people have traditionally used and
depended on land, although they often lack official land rights to it, and
this land is now designated as suitable for wind power with the result
that their livelihood is at risk. Their objections fall under several of the
other categories too, but there are also specific losses, for example
having to do with disrespect and patterns of paternalism and colonialism. Often wind power projects are another interference by the
mainstream society that is added to the long history of intrusive and
restrictive practices.
3.6. Decision-making and planning
Finally, wind power projects are often objected to on procedural
grounds, having to do with how decisions are made and how the planning process is carried out. There are plenty of cases in which the
decision-making process has been opaque, the information process nonexisting, complaints by affected parties have not been heard and they
have not been able to appeal decisions. Walker & Baxter [13] show in a
Canadian context ‘that a lack of procedural justice elements – particularly the ability to affect facility outcomes – are important drivers of
local views of wind energy siting processes and facility support’. Similar
results have been produced in other contexts too [47–49].
This concludes the presentation of our preliminary normative
framework. It captures, we contend, the most important although not all
(e.g. loss of property value and the impacts of the global production
networks are not directly covered, although they can be incorporated
under these categories as we shall see) arguments presented for and
against wind power. These categories are also relevant considerations
for many other energy projects, such as for development of solar power,
biofuel plants and energy infrastructure. Some of the categories are
generally applicable (e.g. decision-making and planning), whereas
others might be relevant only in some specific contexts (e.g. indigenous
rights).
3.3. Landscape impact
One of the most common arguments against wind power focuses on
the consequences on the landscape of these large-scale industrial projects in areas previously undeveloped and with pristine nature. This
includes threats against old growth forest, birds that die from collusions
with wind power turbine blades, and threats against local biodiversity.
Many environmentalists and conservationists flag the negative impacts
of wind projects on the environment. In addition, much public opposition centres around aesthetic aspects because wind farms are often
perceived as an intrusion into landscapes both on- and offshore [38].
An example of this argument, which received a lot of attention some
years ago because it was presented by a famous novelist, is Jonathan
Franzen arguing that we should give up on the most ambitious plans of
combatting climate change at any price and instead prioritise preserving
as much wild nature as possible. ‘As long as mitigating climate change
trumps all other environmental concerns’, argued Franzen [39], ‘no
landscape on earth is safe’. Charles Warren et al. [40] note that ‘the key
motivation for anti-windfarm campaigners is opposition to the visual
despoliation of valued landscapes’. This is partly because the best spots
to place wind turbines, i.e., those with the highest windspeeds, are also
often considered to have scenic nature. They conclude that “[m]uch of
the noisy debate over windfarms comes down to ‘location, location,
location’: site selection and scale are crucial, and cumulative impacts
must be considered” [40].
4. Results
Here follows a summary of the results of the workshop presented in
two ways: we first present rankings of the different categories that the
participants produced and then three themes we see as emerging from
the discussions. To begin with the ranking, the participants as a group
reasoned their way to the following list of the most important considerations to attend to in a just development of wind power: (1) Decisionmaking and planning; (2) Indigenous rights; (2) Landscape impact; (2)
Recreation and tourism (these three categories share the second position);
(3) New jobs and economic growth; (4) Rights of all species (new category);
(5) Combat climate change; (6) Faith and religion (new category).
The participants added two new categories to capture concern for
non-human species and religious or spiritual values, respectively, but
did not rank either of them as particularly important. The most surprising placement on the list is that combatting climate change was
ranked so low. One explanation for this is that the participants disputed
the relevance of this kind of consideration in the decision-making
context we had been specified in the vignette, i.e., that of a municipality. One participant drew attention to the fact that there is no clear
distribution of responsibility for combatting climate change on a local
level in Sweden: “At the global level - it would be the Paris agreement,
and then every nation has a responsibility. But in Sweden we have not
put the responsibility to the lower levels, we have not said Skåne [a
region in Sweden] you must do this, and then Malmö and then Lund
[two cities within the region of Skåne] etc.” Thus, they reasoned,
combatting climate change is a less important consideration in deciding
about to move ahead with the wind power park or not. This reasoning
3.4. Recreation and tourism
This argument is related to landscape impact, but focuses on other
values at stake. In particular, it is the idea that large-scale wind power
projects can damage the landscape to the detriment of recreational users
and tourists [41,42], that is, those who appreciate wild nature and an
undisturbed environment. It also includes those experiencing noise
pollution from wind turbines and those whose aesthetic appreciation of
the landscape has diminished as a result of wind turbines. Tourism is an
important economic interest in many regions and so if changes to the
landscape from wind turbines risk discouraging visitors, this is a major
concern. Broekel & Alfken [43] present evidence from Germany that
wind turbines are negatively related to tourism demand and proposes a
‘displacement hypothesis’: ‘that tourists tend to avoid destinations
where these are characterized by large and further growing wind turbine
numbers’ [43]. There are, however, also studies which suggest that the
argument can be turned on its head because wind farms can boost
tourism [44].
3.5. Indigenous rights
This category summarises a wide set of arguments related to how
indigenous peoples' rights – to e.g., health, consent and land – may be
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Energy Research & Social Science 110 (2024) 103427
unfortunately refers to pragmatic rather than moral reasons, and is thus
less relevant to use to inform the theory development below. One can,
for example, not conclude that global consequences of local decisionmaking are judged to be less significant (in several other discussion
points, the participants referred to the significance of external harms, e.
g., in the global supply chains for manufacturing wind power turbines).
The other parts of the ranking are less surprising, but still in some
significant ways different from how we would have done it ourselves
(were we to have proceeded more traditionally through a private
reflective equilibrium approach). One notable finding is the agreement
that non-anthropocentric values (e.g., rights of other species and
concern about nature) should be considered in these kinds of decisions.
At the same time that which in practice is often most weighty for decisions about wind power approval, i.e., economic growth and jobs, was
ranked relatively low, e.g., below recreational values. The main reason
for this again relate to disputing the relevance of the argument: that this
project will create good jobs and economic growth for the municipality.
The participants argued that there must be other ways of promoting
development in the region. Finally, Decision-making and planning came
out on the top of the list of important considerations for policy-makers to
include in a just transition. Interestingly none of them had individually
made it their top priority, but once they reasoned together and were
asked to come to a collective group ranking this resulted. The main
reason was that all the categories pointed in this way or eventually led
them there in the discussion of them. In the end, it was all about fair
decision-making. We will now elaborate on how they understood
decision-making and planning by introducing three themes we see as
emerging from the discussions which all concern this category.
The first of these is the importance of trust. This is, for example, seen in
the following quote by one of the participants: “Maybe it comes to the
thing of transparency and trust, who can we trust? Just because someone
claims to be creating jobs...” Another participant reasoned from the
perspective of the indigenous peoples of the case, the Sámi, and said “If I
were Sámi I would not trust them - Sweden has a history of oppressing
my people so why should I trust that this is not another form of
oppression?” and furthermore “Why should they (the Sámi) trust? The
vignette says they are not being heard. If they don't feel trust then the
whole thing could collapse.”
The second theme is that of questioning energy demand. One of the
participants said “We have excess energy, efficiency is the answer” and
another “what is interesting is whether there is not a need, then we
should not build it at all”. The vignette did not problematise this – that is
the demand side – but implicitly assumed there would be “a market for”
or “need for” more low-carbon energy and that the project therefore
made sense. This was most clearly the assumption behind the graphic
illustration having to do with combatting climate change, which depicts
a contrast between meeting energy demands with either clean domestic
wind power or dirty imported coal power. In a panel in the centre of the
illustration there is a picture of a newspaper with a headline saying
“which energy source will meet the energy needs of tomorrow?” The
participants thought that this was a false dichotomy (it is not one or the
other) and they again rather wanted to problematise the assumption that
energy demand must continually increase. One participant said: “The
way society has developed, you need a smartphone. But maybe we don't
have to live the way we do right now?” Another questioned who is really
paying for cheap electricity: “how much are we willing to pay for electricity? We complain in the South [of Sweden] but it's not that much!”,
and opened up the international dimension of the question: “it is also the
demand for other products in the rest of the world too, e.g., children
working in mines, low or no payment for works, because we need these
materials.”
The third theme we call whose decision is it? Here are some representative quotes from the participants: “I also see an apparent problem,
that different groups of people who are all affected are pitted against
each other, e.g., working class vs the Sami vs coming generations. This
implies conflict between various groups of people who are more or less
powerless to make a decision (other people are making these decisions).” This issue also came up in their reasoning about the relevance
of some of the other cards. One of them said: “These are not a municipality's responsibility or under their control. It could be in a different
case, say, if there is an obligation to produce a certain amount of energy
in the whole country.” Based on such scepticism about where to properly
locate decision-making power, they judged some categories less
important, as we explained above with the example of dealing with
climate change.
Let us now move up the ladder of abstraction and explore some
possible implications of these themes for theories of energy justice.
5. Implications for energy justice
If energy planners are to take justice into consideration in making
decisions about wind power development, what should they prioritise?
We shall now argue on the basis of the results of the workshop discussions that the most important matter to attend to is to create conditions
for fair procedures. By this we mean not only the conditions around how
individual energy projects are decided about but also broader strategic
discussions around energy policy-making in fair democratic forms. This
makes for a broader understanding of fair procedures than what is
typical in energy justice theory. We argue that this widened definition of
fair procedures allows theories of energy justice to better explain relevant injustices energy decision-making can give rise to. We will proceed
in two steps. Firstly, by providing a more principled ground for prioritising the procedural energy justice and secondly by widening the scope
of existing understandings of procedural energy justice.
That energy justice is partly a matter of procedural justice is wellestablished. It is reflected in most definitions of energy justice, e.g.
that of Sovacool and Dworkin [15], which states that energy justice is ‘a
global energy system that fairly disseminates both the benefits and costs
of energy services, and one that has representative and impartial energy
decision-making’. Thus, it is both about outcomes of energy-decisions, e.
g. the distribution of energy goods and services, and about how such
decisions are taken. The procedural parts are usually explicated in terms
of due process and good governance, including respect for procedural
norms such as access to information, transparency, accountability, the
right to prior informed consent, and inclusive participation. Some of
these norms are occasionally sorted under ‘recognition justice’, such as
when Jenkins et al. [50] analyse participation: The inclusion of all
stakeholders in a non-discriminatory way, they argue, is a prerequisite
for, but not a proper part of, fair procedures. They exemplify this with
how claims of some individuals are dismissed and not taken seriously, e.
g., in cases in which opponents to wind power are dismissed as ignorant
and conservative. Finally, in this literature, procedural justice is also
argued to require that special consideration given to marginalised
groups, such as indigenous communities.
There is also empirical evidence showing that cases of wind power
development that are seen as “successful” applications of energy justice
are based on considerable investments in procedural justice [51,52]. For
example, the development on the Danish Island of Samsø, which is often
portrayed as a lighthouse case of a just energy transition, was only
possible because the local community dedicated a lot of resources (time,
social and financial capital) into negotiating solutions that made the roll
out of wind power projects fair in the eyes of the locals [33]. This sense
of fairness was partly “bought” by compromises on distributional justice
[17]. Similar findings surfaced in the case of the German village of
Feldheim [53,54] where long negotiations led to a consensus agreement
to greenlight the project even though the distribution of benefits and
burdens was not considered evenly balanced. These cases show that
procedural justice is the most important tool to achieve acceptance for
wind power projects in many cases.
These descriptions of the procedural dimension of energy justice are
carefully developed, but still do not exactly answer the question about
how fair procedures should be weighed against fair outcomes (and
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possibly against measures having to do with recognition, but for
simplicity we will hereafter focus on the relationship between distributive and procedural justice considerations) in general. With a limited
budget (of money and time), which is always the case, there is a need to
prioritise: should efforts first be made to reform unfair decision-making
processes or is it more important to redistribute to correct for unfair
outcomes? Fig. 1 illustrates how distributive and procedural justice
considerations are weighed against each other. To say something about
the relative importance of these different kinds of considerations is
relevant also because the different ‘tenets’ of energy justice may come
into conflict, such as when a fair procedure leads to an unfair outcome or
when a redistribution aiming to achieve a just outcome can only be
implemented in procedurally unjust ways [55].
The relative importance of distributive and procedural justice can be
teased out with the distinction between perfect, imperfect and pure
procedural justice [56]. With perfect and imperfect procedural justice
fair procedures are defined through an independent criterion of just
outcomes (illustrated by a scale in Fig. 2): the procedures aim to
approximate the independently formulated ideal about just outcomes,
either perfectly (in the case of a theory of perfect procedural justice,
which is illustrated with a solid line arrow in Fig. 2) or imperfectly
(imperfect procedural justice, which is illustrated with a dashed arrow
in Fig. 2). In other words, following the procedures in question will
either guarantee that the outcome arrived at is just or make that very
likely. Pure procedural justice, on the other hand, makes no use of an
independent criterion of just outcomes (illustrated with a question mark
in Fig. 2), but instead accepts whatever outcome results from following
fair procedures (as specified by such a theory) as fair (or at least
acceptable). Fair procedures lead to fair outcomes rather than the other
way around, which is why the arrow has the opposite direction for
perfect procedural justice in Fig. 2. The latter kind of procedural justice
theory is often seen as unsatisfactory in that it gives up on independently
evaluating outcomes in terms of justice. The main argument for such a
theory, however, is that it is often easier to get parties to agree on what
are fair procedures than on fair outcomes. Still, we contend, to the extent
that some outcomes can justifiably be said to be unjust, that procedures
Fig. 2. An illustration of three different kinds of procedural justice whereby
ideal procedures match ideal outcomes in different ways.
should try to approximate these. That is why we think that a theory of
imperfect procedural justice is most promising in this context.
On the basis of the literature review and the workshop discussions, it
is easy to see the widespread disagreement around distributive justice in
the context of wind power development. Some see wind power as a
necessary part of a low-carbon transition that must be undertaken to
combat climate change, others argue that the deployment of this technology at large-scale is a threat to basic interests and rights. There is also
much disagreement concerning which locations are best suited for the
location of wind power, a kind of regional justice conflict. In addition,
there is disagreement around how relevant benefits – e.g., reduced
climate impact and better economic growth – and costs – e.g., land
conflicts and environmental impact – should be defined, measured and
weighed together. Claims are made in different ‘currencies’ (some of
which may be considered personal and non-monetary) and there are
conflicts over the relevant scope of consideration. Some conflicting
claims related to costs and benefits run deep and relate back to historical
patterns which are not easily rectified now; some losses may be
impossible to compensate for through redistribution, e.g. because of
incommensurable values at stake [28].
Nevertheless, some things can be said about distributive justice in
cases of wind power development. One can, for example, reasonably
assert that as things stand with renewable technologies, wind power
ought to be part of the energy mix of the future because other options are
unrealistic. Another is that when wind power plants are developed,
there are certain outer boundaries, or moral redlines, that must be
respected [57]. This applies to the full life cycle of a wind turbine (as
assed by life cycle assessments): from construction, assembling, transportation, erection, operation and dismantling of the facility [58]
Certain outcomes of wind energy projects are simply morally beyond the
pale, e.g. because they lead to violations of human rights. Wind powerrelated decisions and processes must e.g., respect rights to safe and
decent work in the mining and waste management industries. Furthermore, also some impacts on local residents to wind power plants have
justified claims of distributive nature. Certain consequences can be
asserted as unjust, such as if someone is forced to leave their house or see
its property value sharply decrease then they have a justified claim to
compensation. Energy decisions should conform to widely agreed upon
norms of distributive justice. But this still leave many distributive conflicts unresolved. Many times, a wind power project will be good for
some and bad for others and there is no commonly accepted standard of
just outcomes that can be used to decide what is right overall.
This shifts the focus to imperfect procedural justice as the best means
of approximating justice or at least of avoiding injustice. The idea,
roughly, is that when it comes to making just energy decision-making,
we know some things about unacceptable outcomes and that some
things are justice-based constraints in decision-making processes. Put
these together and we have a theory of imperfect procedural energy
justice. What then are its ingredients more specifically? Many of these
have already been described in energy justice theory and were presented
Fig. 1. An illustration of the need to balance distributive and procedural justice
considerations.
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Energy Research & Social Science 110 (2024) 103427
above. To recapitulate, fair procedures require representative, inclusive
and impartial decision-making processes which are characterized by
respect for procedural norms such as access to information, transparency, accountability, the right to prior informed consent, and
recognition of all participants as being morally equal in some basic
sense.
But now, let us develop this theory further by adding two ingredients, corresponding to the second (“questioning energy demand”)
and third (“whose decision is it?”) theme identified in the results section.
The questioning of energy demand can be understood as a call for a
wider sense of procedural justice: it is not enough to assess the merits of
an already proposed project, not even considering its full life cycle; one
must also consider how societies' energy problems are defined in the first
place. Whenever problems are dealt with politically, they are placed
within a particular jurisdiction and policy-context having a particular
scope and reach. Some things are included and focused on as central
obstacles to be overcome, whereas other things are left out and judged
irrelevant. The government of a state can to a large extent influence the
energy system, either directly by subsidising particular energy technologies and giving state own utilities' directives about what to invest in,
or indirectly by influencing the political discourse which in turn may
lead to norms being renegotiated or to new social attitudes about
different energy technologies. Depending on which values are considered more or less important, different energy policy problems are
formulated (is mitigating climate change most important? Or geopolitics? Or preserving an unspoiled coastline? Or cheap and abundant energy for a growing industry?).
Depending on what is seen as the most important problem, different
things will shift in and out of focus. Local opposition may for example be
seen as a problem that points to the need for more inclusive and
accountable decision-making processes, but in another understanding of
the problem, it may seem that bureaucracy or too much local power is
the main issue. Problem formulations tend to speak in favour of one kind
of solution and make alternative solutions less apparent. In formulations
that revolve around how wind power can be expanded as quickly as
possible, alternative energy sources as well as energy efficiency measures may become invisible options. There may be no room for questioning energy demand, for example, as one of the workshop
participants complained. But also vice versa, a strong emphasis on the
need for a reliable base load may tilt the balance in favour of nuclear or
coal over wind power. Another concern is that as energy decisions are
largely situated in either a national or local decision-making context, the
problems related to external effects (e.g., possible injustices having to do
with manufacturing of wind turbines) are not seriously considered.
Thus, the formulation of what is the relevant problem is a matter of
justice in the sense that the discursive power thereby exercised can skew
the decision-making process unfairly already from the start.
The second ingredient is related but focusses more on the ‘who’ than
on the ‘what’. Injustices can be created by an unfair exclusion or indeed
unfair inclusion at the stage of problem formulation. Part of formulating
the problem is determining who ‘owns’ the problem: is a decision to
develop wind power, for example, a local decision, national, regional, or
even global? From a legal point of view, there is usually an answer to this
question, but from a normative perspective, it is not so clear. When there
is a discrepancy between the perception among relevant actors about
who ‘owns’ the problem and who actually (i.e., legally speaking) ‘owns’
the problem this can generate discontent and perceived injustices, and
when this ‘ownership’ indeed is unjustified, it also generates injustices.
Fig. 3 illustrates possible stakeholder groups to wind power development decisions based on proximity to the decision.
A relevant conflict here is that between two different principles of
procedural justice, i.e., the ‘subsidiarity principle’ [59] and the ‘allaffected principle’ [60]. The former principle states that decisions ought
to be taken at the lowest expedient level of political organisation, i.e., as
Fig. 3. An illustration of possible stakeholders to wind power projects. Deciding whose perspective to include is a normative decision.
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close as possible to concerned parties, and only be lifted to a higher level
(national, regional, global) if that is necessary to deal with the problem.
The all-affected principle, on the other hand, often points to ‘lifting’
decisions for the reason that local decisions have consequences on nonlocal parties, which is often the case with energy- and climate decisions.
We shall not argue for a principled solution to the problem of identifying
the right site and inclusion principle for democratic energy decisionmaking. This is a normative problem, which must be dealt with by
engaging in further reasoning about among other things the principles
just mentioned (but also other considerations, such as effectiveness).
Our point is that a fair decision-making process with respect to development of wind power, as well as energy decisions more broadly, begins
already at this stage. Another implication is that this general consideration does not only concern unfair exclusion in energy decision-making
but also unfair inclusion, such as undue influence by special interests or
non-local parties. Having a strong opinion on the matter is not in itself
sufficient to have a right to participate in the preparation of the decision.
Now, let us finally put these ingredients together and see whether it
makes for a good theory of imperfect procedural energy justice. A just
process with regards to development of wind power must begin already
at the stage of a reasonable discussion around what kind of energy
system is best suited given present and future needs of all affected
parties. This discussion must also address what responsibility different
actors have in relation to the overall system. Any sustainable energy
system, as required by the imperative of combatting climate change, will
to a fairly high extent involve wind power being developed in places
where it is suitable, on- and offshore. The siting of wind energy infrastructure must take into account all relevant costs and benefits that such
decisions amount to. There are certain absolute imperatives that should
not be compromised in the processes of deciding where to place wind
turbines, not least respect for human rights. Beyond that, actors living in
places suitable for wind power must share a responsibility in at least
willingly engaging in discussions around the pros and cons of wind
power plans. Regardless of whether there are cases of NIMBYs here or
not, it is incumbent on all to engage in an open-ended discussion around
wind power. Another condition is that all relevant stakeholders ought to
be included in the process and as far as possible represented fairly.
Furthermore, the fair and inclusive discussion in question must begin
long before specific projects are planned and implemented. It is deep
down a question about democracy. Energy justice is equally about fair
participation in the design of energy policy strategies. Thus, it is
fundamentally about guaranteeing basic democratic forms (however
those are defined, which is not something we define here). Then, more
specific project-level negotiations must also abide by the traditional
norms relevant to just decision-making, such as transparency, access to
information and possibilities to appeal. These are the parts that form a
theory of imperfect procedural energy justice as applied to wind power.
of participants may well have produced different ideas about what is just
or unjust, as well as more or less prioritised in the case at hand. The
success factor is not descriptive adequacy (although we of course claim
some kind of internal validity in that we hope to have adequately
captured what the participants at the workshop discussed).
The point, rather, is that by opening up the process of justification as
we did, we arrived at novel inputs to the normative theories of energy
justice. Perhaps we could have come to (at least some of) these ideas by
discussing the questions with our colleagues at seminars and conferences, but that is far from guaranteed. There is always the risks of blind
spots and biases. The engaged ethics-approach has a heuristic epistemic
value. To engage non-theorists in processes of reasoning about justice
also has the value of showing the possibilities of a more reasoned and
well-argued discussion than what is often the case in heated public
debate. We are not claiming that a just development of wind power itself
must be like the workshop we organised (there are probably many
pragmatic reasons for why that would be too cumbersome). But existing
consultation processes, as well as other democratic fora, can likely be
improved by taking inspiration from the open-ended philosophical
scrutiny of justice-claims, the testing of different problem formulations,
and the perspective taking which was done at the workshop. The
engaged ethics-approach we have used in this paper is a tool for opening
up for discussions around the role and relevance of justice in energy
decision-making and way of moving beyond surface-level descriptions
of perceived injustices.
6. Conclusions
This work was supported by the Swedish Energy Agency [grant
number P48693-1]. The funder had no role in the research design, the
collection, analysis and interpretation of the data, nor in the writing of
the paper. We thank the audiences of Principles of Ethical Decision Making
in Environmental Practice Workshop in Fribourg, Switzerland, and Just
Transitions in a Changing Climate in Potsdam, Germany where earlier
versions of this paper were presented. We also thank Tara Nair van
Ryneveld for research assistance in the workshop and Lena Halldenius
for commenting on an earlier version of the manuscript.
CRediT authorship contribution statement
Eric Brandstedt: Conceptualization, Funding acquisition, Investigation, Methodology, Project administration, Writing – original draft,
Writing – review & editing. Henner Busch: Conceptualization, Funding
acquisition, Methodology, Writing – review & editing. Ellen Lycke:
Data curation, Methodology, Writing – review & editing. Vasna Ramasar: Conceptualization, Funding acquisition, Methodology, Writing –
review & editing.
Declaration of competing interest
The authors declare that they have no known competing financial
interests or personal relationships that could have appeared to influence
the work reported in this paper.
Data availability
Data will be made available on request.
Acknowledgement
We shall conclude by briefly reflecting on the merits and limitations
of our engaged ethics-approach. We took as our starting point the need
to engage in a process of justifying ethical principles, such as those
related to wind power development. Our objective was not to explain
how public resistance comes about, but rather to explore which
normative principles (of justice) justify the perceptions of injustice seen
in such opposition (and the relative strengths of these different reasons).
Philosophers and political theorists operate with normative principles
and have developed the method of reflective equilibrium for drawing
justified conclusions about normative matters. In this paper, we used a
version of this method with the aim of arriving at a more sophisticated
understanding of the demands of justice in the context of energydecision-making, but also on the premise that leaving the philosophy
seminar room is a means of better realising this aim. Our conclusions for
theorising energy justice should not be interpreted as empirical generalisations nor as claims to explicate what people think. A different group
Appendix A. Construction of large-scale wind power
"Policies in support of renewable energy development have led to a
boom of wind power projects in the North of Sweden. The small town of
Lakajärvi in Norrbotten County offers ideal conditions for wind power. A
Norwegian project developer approaches the municipality with plans to
establish a 200 Million SEK wind park some 10 km west of the town. The
developer plans 45 turbines of which 10 are part of a trial for the newest
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E. Brandstedt et al.
Vestas V150 wind-turbines, which stand at a height of 175 m. The turbines would have a capacity of 160 MW and would increase Sweden's
renewable energy capacity by around 3 %. The park is estimated to bring
a number of jobs during the construction phase and 30 permanent jobs
to the region.
The municipality generally welcomes the plans, as they would increase local tax income and provide jobs to the high number of unemployed inhabitants. Many people in the community appreciate the new
job opportunities. The central government in Stockholm is in favour of
the project as it helps achieving Sweden's climate mitigation plans.
However, there is also resistance to the project. The local tourism
association is concerned that a new wind park will lead to a drop in
visitors coming to the region, known for its exclusive trout fishing and
excellent hiking trails. In addition, reindeer herders from the Jåkkåkaska
Sameby are concerned that the wind farm will affect the grazing
behaviour of the animals because the tall turbines scare them and
necessary access roads for the construction cut through the pastures.
Several of them claim that they will have to quit reindeer herding if the
wind power project is to be developed. The Swedish environmental NGO
Naturskyddsföreningen raises concerns about the partial clear cutting of
old growth forest to make way for turbines and access roads.
A first round of public consultations was held last month. Simultaneously, an access road to the site has been built. The project developer
who constructed the road claims that it is needed for the necessary
exploration of the ground if the wind park gets a building permit. This
sparked heated discussion at the public consultation as citizens feel that
construction is already on the way and their concerns are not taken
seriously. A further conflict ensued around the siting of the required
power lines that will transmit the electricity to the national grid; the
project developer prefers to use existing infrastructure and build new
power lines along the road leading through Lakajärvi, whereas citizens
are in favour of an alternative route that does not go through town but is
significantly more expensive.
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Voices from the negotiations
Project developer: “This investment will bring new jobs and
development to the region and contributing to the battle against climate
change. It is a win-win-win project for the local community, our investors and the environment. We understand and respect local concern
and will do all we can to address the remaining questions”.
Jåkkåkaska Sameby: “We are already under extreme pressure by
climate change, the reintroduction of predators such as wolves and the
destruction of grazing grounds for our reindeer by the forestry industry.
This project will most probably be the end for reindeer herding in the
region. The animals feel threatened by the turbines and will not linger to
feed in the nearby forests. Access roads are a further threat. Every year,
it is getting more and more difficult for us to survive.”
Lakajärvi municipality: “The project will bring tax money to the
municipality that we need to keep the local high school running.
Without the money, several of our services will have to close down in the
coming years, which will lead to even more of the young people leaving
the town. Nobody here wants to see that happening.”
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