SCIENCE AND POLICY IN INTEGRATED WATERSHED MANAGEMENT: A CASE STUDY1

ABSTRACT: Policy and management plans can be enhanced through effective communication between researchers and decision makers. Differences in understanding can come from differences in professional cultures. Scientists deal with facts, proof and incremental progress whereas the decision makers are often faced with perceptions, emotions and deadlines. A case study is presented illustrating the interaction between the political system and science on a water management issue. Irrigation projects in the western San Joaquin Valley of California lead to a situation requiring subsurface drainage and disposal of the drainage water. The original plan was to discharge the drainage water in the Suisun Bay east of the San Francisco Bay. Severe damage to birds associated with selenium in the water led to a reevaluation of irrigation and drainage management options. Federal and state agencies cooperated to establish a San Joaquin Valley Drainage Program (SJVDP) which was to develop plans for solving the problem. Discharge to the Bay was politically eliminated as an option for evaluation, an action criticized by a National Research Council Committee as not being scientifically based. The SJVDP published a Management Plan in 1990 which contained proposals viewed by the scientific community as not necessarily incorrect but not completely justified based on the scientific knowledge at the time. A segment of the Citizens Advisory Committee that was part of the SJVDP consisting of representatives from the interest groups viewed the Management Plan as a negotiated agreement between the environmental and agricultural interests. Presently, an Activity Plan exists, consisting of technical committees to evaluate the current technical and economic evaluation of the management options proposed in the Management Plan. This case study illustrates that factors other than scientific facts have bearing on decisions. Successful management plans must be technically sound, economically viable and socially acceptable. The scientific community needs to evaluate its role in the policy making arena and to focus research on questions of greatest value to decision makers, as well as to scientific peers.     

Implementing the UNCCD: Participatory challenges

The United Nations Convention to Combat Desertification (UNCCD) emphasizes the need for public participation in land degradation assessment and rehabilitation. While participatory approaches are supported by a growing body of research and practice, meaningfully involving the people affected by land degradation is far from straightforward. This paper investigates the challenge of using the UNCCD as a guide to influence community participation in policy‐making and practice at national and local levels by analyzing experiences from three southern African countries. We show that the UNCCD represents a useful normative framework for addressing degradation problems, but that the participatory ethos is difficult to enact at the national level. Whilst there is increasing evidence that combining local and scientific knowledge using participatory mechanisms can deliver the benefits that the Convention strives to achieve, communication between researchers and practitioners, and those involved in implementing the UNCCD at the national level needs to be strengthened. Broad lessons and best practices in incorporating participatory practices into policy development are elucidated. Our case studies show that a range of mixed‐method, interdisciplinary approaches can enable policy‐makers and practitioners to meaningfully engage those who are affected by land degradation in its definition, assessment and rehabilitation.     

The drivers of greenhouse gas emissions: What do we learn from local case studies?

Abstract

What can local case studies contribute to our understanding of the processes underlying the growth in greenhouse gas emissions? Since much abatement and mitigation are local in character, it is important that policy makers identify the mix of local, national and international processes that contribute to changes in greenhouse gas emissions. Drawing upon the results of case studies in Kansas, North Carolina and Ohio, how patterns of emissions in local areas can be connected analytically to the driving forces of environmental change is demonstrated. Emissions at the local level are empirically associated with the same set of trends found at national and international scale, namely, changes in population, affluence‐consumption and technology.     

Implementing agenda 21 in local government: The Swedish experience

Abstract

Chapter 28 of the UNCED agreement ‘Agenda 21’ asks for implementing sustainable development at the local level of government. Sweden is amongst the fore‐running nations in having responded quickly to these demands. Virtually all of Sweden's 288 municipalities have decided to embark on the Local Agenda 21 process. In this article, the progress so far and how LA21 has been interpreted at the local level are examined. The motives behind the process, the tensions between national and local policy making, and the role of municipal networks and NGOs are analysed. Four case studies of pioneer municipalities are used to illustrate how LA21 has sometimes inspired more far‐reaching goals at the local than at the national level, and the combination of economic development and marketing with environmental policy. It remains to be seen whether the most recent national government investment programme towards local projects for sustainable development will resolve the present conflicts between national goals and local priorities.     

Approach of Decision Making Based on the Analytic Hierarchy Process for Urban Landscape Management

This paper proposes a two-stage group decision making approach to urban landscape management and planning supported by the analytic hierarchy process. The proposed approach combines an application of the consensus convergence model and the weighted geometric mean method. The application of the proposed approach is shown on a real urban landscape planning problem with a park-forest in Belgrade, Serbia. Decision makers were policy makers, i.e., representatives of several key national and municipal institutions, and experts coming from different scientific fields. As a result, the most suitable management plan from the set of plans is recognized. It includes both native vegetation renewal in degraded areas of park-forest and continued maintenance of its dominant tourism function. Decision makers included in this research consider the approach to be transparent and useful for addressing landscape management tasks. The central idea of this paper can be understood in a broader sense and easily applied to other decision making problems in various scientific fields.     

Moving from agenda to action: evaluating local climate change action plans

Climate change is conventionally recognised as a large-scale issue resolved through regional or national policy initiatives. However, little research has been done to directly evaluate local climate change action plans. This study examines 40 recently adopted local climate change action plans in the US and analyses how well they recognise the concepts of climate change and prepare for climate change mitigation and adaptation. The results indicate that local climate change action plans have a high level of ‘awareness’, moderate ‘analysis capabilities’ for climate change, and relatively limited ‘action approaches’ for climate change mitigation. The study also identifies specific factors influencing the quality of these local jurisdictional plans. Finally, it provides policy recommendations to improve planning for climate change at the local level.     

Discounted knowledges: farmers» and residents» understandings of nature conservation goals and policies

Local Biodiversity Action Plans are the preferred policy mechanism for setting and delivering local biodiversity targets in the UK. This paper reviews the kind of knowledge conservation scientists envisage being used to identify and set local targets, and explores the means of incorporating local knowledge into this process. We use a case study of a Wildlife Enhancement Scheme (WES) on the Pevensey Levels, East Sussex, to reveal the understandings that local farmers and residents have of the nature conservation goals and practices associated with the scheme. Drawing on the findings of in-depth discussion groups, we show how farmers challenge both the monopoly of knowledge conservationists profess about nature, and the enlistment of farmers on the scheme as «technicians», motivated solely by financial rewards, rather than as knowledgeable experts who also have emotional attachments and ethical values for nature. Local people use their knowledge of both local farmers, and the industry in general, to challenge the assumption that farmers can be trusted with delivering nature conservation goals. In the absence of a commitment by central government to agree widely-held environmental standards, and a more democratic process of making judgements about what local nature is worth conserving, local residents challenge existing processes designed to conserve nature that are driven by the knowledge and practices of official experts alone. The findings of the study suggest that a widening of the knowledge base on which the goals and practices of nature conservation are founded, and a more deliberative process of making decisions about what nature is important locally, will secure and strengthen public support for local biodiversity action plans.1998 Academic Press     

Towards sustainable airport development

Summary This paper considers the application of the principles of sustainable development to an airport situation. If sustainable development is to be enshrined as the global development pathway which reconciles economic and environmental issues then it must be applicable to a range of spatial scales. Airports will interact at a variety of levels with this multi-level decision making and enactment structure. The requirements imposed upon an airport may differ according to whether decisions are being taken by local, regional or national decision makers. Conflicts and uncertainties will inevitably result. Definitions of sustainable development are considered and policy guidance from the United Nations (UN), the European Union (EU) and the nation State level evaluated for its relevance to airport decision making. An attempt is made to reconcile definitions and interpretations before an idealized representation of a sustainable airport is presented. Mechanisms by which this may be actualized are then suggested. A need for improved theoretical knowledge is identified but research is also necessary on application and localization procedures for sustainable development.Professor James Longhurst is Head of Department of Environmental Health and Science at UWE, Bristol. Until recently he was the Director of the Atmospheric Research and Information Centre. David Gibbs is Professor of Human Geography at the University of Hull, UK. David Raper is Deputy Director and D.E. Conlan Environmental Projects Manager in the Atmospheric Research and Information Centre, Manchester Metropolitan University, UK.     

Local Institutional Development and Organizational Change for Advancing Sustainable Urban Water Futures

This paper presents the local institutional and organizational development insights from a five-year ongoing interdisciplinary research project focused on advancing the implementation of sustainable urban water management. While it is broadly acknowledged that the inertia associated with administrative systems is possibly the most significant obstacle to advancing sustainable urban water management, contemporary research still largely prioritizes investigations at the technological level. This research is explicitly concerned with critically informing the design of methodologies for mobilizing and overcoming the administrative inertia of traditional urban water management practice. The results of fourteen in-depth case studies of local government organizations across Metropolitan Sydney primarily reveal that (i) the political institutionalization of environmental concern and (ii) the commitment to local leadership and organizational learning are key corporate attributes for enabling sustainable management. A typology of five organizational development phases has been proposed as both a heuristic and capacity benchmarking tool for urban water strategists, policy makers, and decision makers that are focused on improving the level of local implementation of sustainable urban water management activity. While this investigation has focused on local government, these findings do provide guideposts for assessing the development needs of future capacity building programs across a range of different institutional contexts.     

Economic instruments for sustainable community development

Abstract

In recent years there has been increasing interest in the use of so‐called ‘economic instruments’ in environmental policy. Economic instruments influence the behaviour of economic agents by providing financial incentives for environmentally improved behaviour, or disincentives for damaging behaviour. This paper explores the use of economic instruments in the field of sustainable community planning and development. It does so in the wider context of how environmental economic policy is made. The focus of this paper is to examine the role of policy instruments in community planning, and to review the different types of instruments that are available to policy‐makers. Numerous examples of the various instruments at the community level are described. It is widely believed that policy making should occur at the lowest or most local level possible while maintaining effectiveness. A system of government that does not give adequate legal power to local governments, and does not allow local governments considerable flexibility in the use of funds, cannot be expected to achieve all community objectives. Central governments must give local governments permission to take measures towards sustainable community planning, even though that requires giving them power to address broader issues. At the same time, when issues that should be addressed at national and international levels are not addressed, local governments may be able to take action individually. Given the general reluctance (and perhaps inability) of governments at all levels today to consider non‐economic and, particularly, non‐market policy instruments, it is pragmatic as well as timely to improve our understanding of economic instruments for sustainable community development.     

Sustainability indicator system and policy processes in Malaysia: a framework for utilisation and learning

Formulation of effective sustainability indicators for national assessment demands a comprehensive understanding of the utilisation, diffusion and dissemination of information in policy processes. To illustrate the dynamic of sustainability assessment within the context of policy processes, this paper uses a case study of national sustainability indicators development in Malaysia. Subsequently, this paper ascribes the limited achievement of national sustainability assessment in Malaysia to four types of constraints: meta-policy issues; technical capacities; communication concerns; and the inherent knowledge gaps within the indicator developer community vis-a-vis their theoretical limitations. It is proposed that such constraints will be encountered in many countries. Drawing from the literature on public policy, this paper outlines a framework for investigating indicator behaviour within policy processes based on well-established concepts such as knowledge utilisation and policy learning. I conclude this paper by elaborating on the corresponding future challenges that must be addressed before effective integration of sustainability indicators within policy systems can occur.     

THE (POLITICAL) SCIENCE OF WATERSHED MANAGEMENT IN THE ECOSYSTEM AGE1

ABSTRACT: Ecosystem management has become an important unifying theme for environmental policy in the past decade. Whereas the science of ecosystem dynamics suggests that it will remain difficult to define ecosystem borders and all of the natural and anthropogenic effects that influence them, the politics of ecosystem management require that a national ecosystem delineation standard be adopted. Moreover, a political framework for ecosystem management decision making must be designed in such a way as to complement the hierarchical, interrelated nature of ecosystems generally. This paper advocates that a watershed-based ecosystem delineation standard is the most politically suitable because it will be easily understood by the public and watersheds have a long history as a medium of environmental policy. The paper then proposes that the political framework for watershed-based ecosystem management must depend heavily on state and local autonomy, subject to federally prescribed standards and goals. The Coastal Zone Management Act provides a model for how a national ecosystem management policy can work within state and local watershed cultures and economies.     

A critical and empirical analysis of the national-local ‘gap’ in public responses to large-scale energy infrastructures

A national-local ‘gap’ is often used as the starting point for analyses of public responses to large scale energy infrastructures. We critique three assumptions found in that literature: the public's positive attitudes, without further examining other type of perceptions at a national level; that local perceptions are best examined through a siting rather than place-based approach; that a gap exists between national and local responses, despite a non-correspondence in how these are examined. Survey research conducted at national and local levels about electricity transmission lines in the UK confirm these criticisms. Results do not support a gap between national and local levels; instead, both differences and similarities were found. Results show the value of adopting a place-based approach and the role of surveys to inform policy making are discussed.     

Contested and polluted terrain

This paper examines the new Ontario guidelines for the clean-up of contaminated sites using Toronto as an empirical case. The contention of the paper is that Ontario's new soil clean-up policy is the product of a set of embedded understandings about the economy, about the environment and about deep interconnections between the environment and the economy. These understandings are, to a large degree, specifically local. We contextualise the new guidelines by arguing that they contribute to restructuring the political economy of Toronto from an industrial to a global city. The analysis is based on, among other sources, a series of interviews with policy makers, scientists, bankers, insurance representatives and other knowledgeable individuals in the debate on polluted soil clean-up. Substantively, the paper focuses on the introduction of various risk-assessment processes into the debate on contaminated sites. The paper concludes that these processes need to be made subject to democratic rather than purely technocratic processes of evaluation and decision making.     

CREATING MEANINGFUL STAKEHOLDER INVOLVEMENT IN WATERSHED PLANNING IN PIERCE COUNTY,WASHINGTON1

ABSTRACT: Since 1989, the government of Pierce County, Washington, has prepared four watershed action plans. The watersheds cover almost 800,000 acres and include about 600,000 residents and diverse land uses, from the city of Tacoma to Mount Rainier National Park. The primary purpose of these plans was to address water quality impacts from nonpoint sources of pollution and to protect beneficial uses of water. Pierce County has experienced problems such as shellfish bed closures and the Federal Clean Water Act Section 303(d) listing of local water bodies as a result of declining water quality. Pierce County achieved improvements by engaging diverse groups of stakeholders in generating solutions to nonpoint sources of water pollution through our watershed planning process. Using participatory methods borrowed from private industry, Pierce County was able to reach consensus, build trust, maximize participation, facilitate learning, encourage creativity, develop partnerships, shorten time frames for the planning processes, and increase the level of commitment participants had to implementing the plans. As a result, the earliest plans have a high rate of voluntary implementation. This indicates that the process and methodology used to develop watershed plans has a significant, if not critical, impact on their success.     

Creating and sustaining community capacity for ecosystem-based management: Is local government the key?

Recently, collaborative approaches to natural resource management have been widely promoted as ways to broaden participation and community involvement in furthering the goals of ecosystem management. The language of collaboration has even been incorporated into controversial legislation, such as the US Healthy Forests Restoration Act of 2003. This research examines collaboration and sharing management responsibility for federal public land with local communities through a case study of the Ashland Municipal Watershed in southern Oregon. A policy sciences approach is used to analyze community participation and institutional relationships between the US Department of Agriculture, Forest Service, and local city government in the planning processes of five land management actions occurring over a 7-year period. The knowledge gained from examining differing approaches to planning and decision making in the Ashland watershed is used to suggest future planning processes to develop and sustain the community capacity necessary to support implementation of community-based ecosystem management.     

Hazardous waste indicators for national decision makers

Indicators and indices are important tools that assist decision makers to formulate and implement plans for management at local, national and international levels. Four indicators for hazardous waste management are described that have recently been adopted within the United Nations framework of Indicators of Sustainable Development. Although these four indicators will be useful tools, the need for a broader range of policy-relevant qualitative and quantitative indicators, proxy indicators and indices is outlined. The argument is advanced that in order for all nations to better manage the range of hazardous waste issues, including waste generation, export/import and disposal, a set of innovative indicators and indices is required. Useful indicators and indices are described that could be used to link and quantify likely environmental, ecosystem and health impacts and risks especially from hazardous waste disposal. Indicators are also suggested that could be used to illustrate the shift in industrial strategy away from end-of-pipe processes towards waste recycling, cleaner production and integrated life-cycle analysis. It was concluded that until the lack of reliable and harmonized data on hazardous waste is addressed, indicator development and use by national and international decision makers cannot readily be implemented.     

Climate Change Adaptation Among Tibetan Pastoralists: Challenges in Enhancing Local Adaptation Through Policy Support

While researchers are aware that a mix of Local Ecological Knowledge (LEK), community-based resource management institutions, and higher-level institutions and policies can facilitate pastoralists' adaptation to climate change, policy makers have been slow to understand these linkages. Two critical issues are to what extent these factors play a role, and how to enhance local adaptation through government support. We investigated these issues through a case study of two pastoral communities on the Tibetan Plateau in China employing an analytical framework to understand local climate adaptation processes. We concluded that LEK and community-based institutions improve adaptation outcomes for Tibetan pastoralists through shaping and mobilizing resource availability to reduce risks. Higher-level institutions and policies contribute by providing resources from outside communities. There are dynamic interrelationships among these factors that can lead to support, conflict, and fragmentation. Government policy could enhance local adaptation through improvement of supportive relationships among these factors. While central government policies allow only limited room for overt integration of local knowledge/institutions, local governments often have some flexibility to buffer conflicts. In addition, government policies to support market-based economic development have greatly benefited adaptation outcomes for pastoralists. Overall, in China, there are still questions over how to create innovative institutions that blend LEK and community-based institutions with government policy making.     

Implementation of the ecosystem services approach in Swedish municipal planning

While ecosystem-based planning approaches are increasingly promoted through international and national policies, municipalities are still struggling with translating them into practice. Against this background, this paper aims to increase the knowledge of current advances and possible ways to support the implementation of the ecosystem services (ES) approach at the municipal level. More specifically, we analyze how ES have been integrated into comprehensive planning within the municipality of Malmö in Sweden over the last 60 years, a declared forerunner in local environmental governance. Based on a content analysis of comprehensive plans over the period 1956–2014 and interviews with municipal stakeholders, this paper demonstrates how planning has shifted over time toward a more holistic view of ES and their significance for human well-being and urban sustainability. Both explicit and implicit applications of the ES concept were found in the analyzed comprehensive plans and associated programs and projects. Our study shows how these applications reflect international, national, and local policy changes, and indicates how municipalities can gradually integrate the ES approach into comprehensive planning and facilitate the transition from implicit to more explicit knowledge use.     

Collaborative approaches to local climate change and clean energy initiatives in the USA and England

This paper analyses how 10 localities in the USA and England, recognised as leaders in clean energy and climate action, have used collaborative approaches to develop local climate change plans and energy conservation, efficiency, and renewable energy initiatives. It examines these planning and policy-making processes in the context of Margerum's [2008. A typology of collaboration efforts in environmental management. Environmental Management, 41 (4), 487–500] typology of “action”, “organizational”, and “policy-level” collaborations, as well as Gray's [1989. Collaborating: finding common ground for multiparty problems. San Francisco: Jossey-Bass] classification of collaboration in the “problem-setting”, “direction-setting”, and “implementation” phases. We conducted interviews with local elected officials, municipal staff, energy professionals, and citizen volunteers in each community, supplemented with an analysis of their adopted energy, climate change, and land-use plans. We find that despite the different government structures and political contexts between the two countries, there was a surprising amount of commonality in how the case study localities used collaborative planning to develop local climate plans and clean energy initiatives. These processes were most often initiated by local elected officials and/or high-level staff members, and then carried out in collaboration with local third-sector organisations and other community stakeholders. In the USA, collaboration was strongest at the policy level and in the direction-setting phase, with the distinguishing feature that citizen advisory boards or stakeholder working groups often took a more active role in shaping local plans and policies. The English localities had some of those same types of collaborations, but were more likely to also employ action collaboration, in the implementation phase, in which third-sector organisations coordinated with the locality to directly provide clean energy services.