The use of ex-ante modelling tools in European Impact Assessment: What role does land use play?

Impact Assessment was introduced by the European Commission in 2002 in order to make policy development more transparent and improve the ‘quality’ of European policies. Cross-sectoral consultation, broad participation and the quantitative assessment of the impacts of policies are significant elements of this process. This article specifically addresses the role of tools modelling the impact of policies on land use in Impact Assessment. The choice of a specific modelling tool is conceptualised as an action situation interlinked with other action arenas. The article aims to uncover the institutions structuring the action situation. The outcome of the empirical work suggests that two types of Impact Assessments can be distinguished. Impact Assessments either substantively contribute to the specific policy that the Commission proposes or they legitimise policy choices ex post that have already been adopted. The legislative procedure that applies to a specific policy sector, the policy making culture in the DG and the stakes that are at issue seem to influence whether Impact Assessments contribute to policy development, or legitimise it. Furthermore, the article describes the situation in which desk officers choose a modelling tool throughout Impact Assessment. To advance their careers desk officers aim to produce policy proposals which respond to the issues raised by the actors involved in Impact Assessment and specifically in policy development and, later on, adoption. Therefore, desk officers’ preferences are shaped by the community that is involved in policy development and Impact Assessment. The article describes what role modelling tools play in European Impact Assessment procedures and it names the heuristic of criteria which desk officers use to choose a modelling tool. Besides several technical and data problems of modelling land use impact, it seems to be unlikely that land use will become a significant dimension of Impact Assessment and modelling as it is confronted with an unfavourable institutional environment at the European level.