Adaptive Management of Nonnative Species: Moving Beyond the “Either-Or” Through Experimental Pluralism

This paper develops the outlines of a pragmatic, adaptive management-based approach toward the control of invasive nonnative species (INS) through a case study of Kings Bay/Crystal River, a large artesian springs ecosystem that is one of Florida’s most important habitats for endangered West Indian manatees (Trichechus manatus). Building upon recent critiques of invasion biology, principles of adaptive management, and our own interview and participant–observer research, we argue that this case study represents an example in which rigid application of invasion biology’s a␣priori imperative to minimize INS has produced counterproductive results from both an ecological and social standpoint. As such, we recommend that INS control in Kings Bay should be relaxed in conjunction with an overall program of adaptive ecosystem management that includes meaningful participation and input from non-institutional stakeholders. However, we also note that adaptive management and INS control are by no means mutually exclusive, in Kings Bay or elsewhere. Instead, we suggest that adaptive management offers a means by which INS control efforts can emerge from—and be evaluated through—ongoing scientific research and participatory dialogue about the condition of specific places, rather than non-contextual assumptions about the harmfulness of INS as a general class.     

Moving Beyond Strawmen and Artificial Dichotomies: Adaptive Management When an Endangered Species Uses an Invasive One

Evans et al. (Journal of Agricultural and Environmental Ethics, 2008) have attempted to enmesh me in their dispute with the Florida Bureau of Invasive Plant Management about a specific system, Kings Bay/Crystal River. In so doing, they repeatedly mischaracterize my positions in order to depict, incorrectly, invasion biology as monolithic and me as a representative of one extreme of a false dichotomy about management of introduced species. In addition, they introduce an issue irrelevant in this case (extinctions) and cite incorrect data. Proposing to manage people, manatees, introduced plants, and cyanobacteria in Kings Bay by participative adaptive management, they ignore the fact that living organisms can both disperse autonomously and hitchhike. Finally, they present few details on any aspect of their management proposal and do not address the myriad problems that have beset previous attempts at scientific adaptive management, especially at large scales. Until such a management approach is fleshed out and implemented, it is impossible to assess its validity for Kings Bay, and it is very premature to suggest it as a general model for dealing with invasive species disputes.     

Non-native Species <Emphasis Type="Italic">DO</Emphasis> Threaten the Natural Environment!

Sagoff [Journal of Agricultural and Environmental Ethics 18 (2005), 215–236] argues, against growing empirical evidence, that major environmental impacts of non-native species are unproven. However, many such impacts, including extinctions of both island and continental species, have both been demonstrated and judged by the public to be harmful. Although more public attention has been focused on non-native animals than non-native plants, the latter more often cause ecosystem-wide impacts. Increased regulation of introduction of non-native species is, therefore, warranted, and, contra Sagoff’s assertions, invasion biologists have recently developed methods that greatly aid prediction of which introduced species will harm the environment and thus enable more efficient regulation. The fact that introduced species may increase local biodiversity in certain instances has not been shown to result in desired changes in ecosystem function. In other locales, they decrease biodiversity, as they do globally.     

The Moral Considerability of Invasive Transgenic Animals

The term moral considerability refers to the question of whether a being or set of beings is worthy of moral consideration. Moral considerability is most readily afforded to those beings that demonstrate the clearest relationship to rational humans, though many have also argued for and against the moral considerability of species, ecosystems, and “lesser” animals. Among these arguments there are at least two positions: “environmentalist” positions that tend to emphasize the systemic relations between species, and “liberationist” positions that tend to emphasize the attributes or welfare of a particular individual organism. Already, this classic conflict provides for some challenging theoretical clashes between environmentalists and animal liberationists. The question of moral considerability is complicated, however, by recent developments in genetic engineering. Some animals, like pigs and fish, have been genetically modified by humans to grow organs that can then be transplanted into humans. If environmental arguments for the moral consideration of species are correct, then we are released from our obligations to morally consider those animals that we have genetically modified, since they are by their nature always an “invader species.” If, instead, the welfare of the animal is of penultimate importance, then there is a case for strengthening the moral considerability of GM animals over “naturally-occurring” animals, since they bear a closer relationship to humans. This would appear to be an intractable problem, a “bad marriage,” as Mark Sagoff once proposed. This paper argues that the case of invasive transgenic animals exposes weaknesses in this classic conflict, and particularly, in the framing of this conflict. To remedy this framing problem, this paper argues for a reconceptualization of the term “moral considerability,” instead urging a strong distinction between moral considerability, moral relevance, and moral significance.     

Community-based climate change adaptation: a review of academic literature

The focus on climate change adaptation, rather than mitigation, has become more prominent since the turn of the century. Given this, it is important to consider what has been achieved so far, particularly community-based approaches which have become the resolve for practitioners and donor agencies working in the sector. This review of 128 publications on community-based climate change adaptation, identified through a systematic database search, follows the development of this body of work in the academic literature. Commencing in the early 2000s, the literature detailed the emergence of community-based adaptation (CBA), driven by a number of factors: recognition of the human dimensions of changes; appreciation of the role of local knowledge for strengthening adaptive capacity; and a push to focus on the scale at which impacts are felt and link this action with pro-poor development outcomes. A more substantial body of work emerged in the literature from 2010 onwards, defining a series of key enablers for effective CBA, which included: use participatory approaches; recognise that adaptation is a social process; and support CBA at multiple scales. More recently, there has been a growing emphasis in the literature to re-conceptualise CBA, which will require focusing on innovation, learning and multi-sectoral approaches.     

Guiding Climate Change Adaptation Within Vulnerable Natural Resource Management Systems

Climate change has the potential to compromise the sustainability of natural resources in Mediterranean climatic systems, such that short-term reactive responses will increasingly be insufficient to ensure effective management. There is a simultaneous need for both the clear articulation of the vulnerabilities of specific management systems to climate risk, and the development of appropriate short- and long-term strategic planning responses that anticipate environmental change or allow for sustainable adaptive management in response to trends in resource condition. Governments are developing climate change adaptation policy frameworks, but without the recognition of the importance of responding strategically, regional stakeholders will struggle to manage future climate risk. In a partnership between the South Australian Government, the Adelaide and Mt Lofty Ranges Natural Resource Management Board and the regional community, a range of available research approaches to support regional climate change adaptation decision-making, were applied and critically examined, including: scenario modelling; applied and participatory Geographical Information Systems modelling; environmental risk analysis; and participatory action learning. As managers apply ideas for adaptation within their own biophysical and socio-cultural contexts, there would be both successes and failures, but a learning orientation to societal change will enable improvements over time. A base-line target for regional responses to climate change is the ownership of the issue by stakeholders, which leads to an acceptance that effective actions to adapt are now both possible and vitally important. Beyond such baseline knowledge, the research suggests that there is a range of tools from the social and physical sciences available to guide adaptation decision-making.     

Threshold-Based Resource Management: A Framework for Comprehensive Ecosystem Management

The problems posed by adaptive management for improved ecosystem health are reviewed. Other kinds of science-informed ecosystem management are needed for those regions of conflict between rapid human population growth, increased resource extraction, and the rising demand for better environmental amenities, where large-scale experiments are not feasible. One new framework is threshold-based resource management. Threshold-based resource management guides management choices among four major science and engineering approaches to achieve healthier ecosystems: self-sustaining ecosystem management, adaptive management, case-by-case resource management, and high-reliability management. As resource conflicts increase over a landscape (i.e., as the ecosystems in the landscape move through different thresholds), management options change for the environmental decision-maker in terms of what can and cannot be attained by way of ecosystem health. The major policy and management implication of the framework is that the exclusive use or recommendation of any one management regime, be it self-sustaining, adaptive, case-by-case, or high-reliability management, across all categories of ecosystems within a heterogeneous landscape that is variably populated and extractively used is not only inappropriate, it is fatal to the goals of improved ecosystem health. The article concludes with detailed proposals for environmental decision-makers to undertake “bandwidth management” in ways that blend the best of adaptive management and high-reliability management for improved ecosystem health while at the same time maintaining highly reliable flows of ecosystem services, such as water.     

Management by Assertion: Beavers and Songbirds at Lake Skinner (Riverside County,California)

Management of ecological reserve lands should rely on the best available science to achieve the goal of biodiversity conservation. “Adaptive Resource Management” is the current template to ensure that management decisions are reasoned and that decisions increase understanding of the system being managed. In systems with little human disturbance, certain management decisions are clear; steps to protect native species usually include the removal of invasive species. In highly modified systems, however, appropriate management steps to conserve biodiversity are not as readily evident. Managers must, more than ever, rely upon the development and testing of hypotheses to make rational management decisions. We present a case study of modern reserve management wherein beavers (Castor canadensis) were suspected of destroying habitat for endangered songbirds (least Bell’s vireo, Vireo bellii pusillus, and southwestern willow flycatcher, Empidonax traillii extimus) and for promoting the invasion of an exotic plant (tamarisk, Tamarix spp.) at an artificial reservoir in southern California. This case study documents the consequences of failing to follow the process of Adaptive Resource Management. Managers made decisions that were unsupported by the scientific literature, and actions taken were likely counterproductive. The opportunity to increase knowledge of the ecosystem was lost. Uninformed management decisions, essentially “management by assertion,” undermine the long-term prospects for biodiversity conservation.     

Environmental Harm: Political not Biological

In their fine paper, Evans et al. (2009) discuss the proposition that invasive non-native species (INS) are harmful. The question to ask is, “Harmful to whom?” Pathogens that make people sick and pests that damage their property—crops, for example—cause harms of kinds long understood in common law and recognized by public agencies. The concept of “harm to the environment,” in contrast, has no standing in common law or legislation, no meaning for any empirical science, and no basis in a political consensus other than might be drawn from the Endangered Species Act. As a generalization, the proposition that INS cause “environmental harm”—since this concept is empty of legal, scientific, and political meaning—must rest on definition, diktat, or diatribe. As Evans et al. suggest, however, the idea of “harm to the environment” is not always and certainly need not be arbitrary; it might gather significance in the context of a particular place through a political process that weighs economic concerns with cultural, religious, aesthetic, and other relevant beliefs, practices, and commitments that people who care about that place present. It is not clear, however, that adaptive management, which Evens et al. propose, will provide that democratic political process.     

Improving our legacy: incorporation of adaptive management into state wildlife action plans

The loss of biodiversity is a mounting concern, but despite numerous attempts there are few large scale conservation efforts that have proven successful in reversing current declines. Given the challenge of biodiversity conservation, there is a need to develop strategic conservation plans that address species declines even with the inherent uncertainty in managing multiple species in complex environments. In 2002, the State Wildlife Grant program was initiated to fulfill this need, and while not explicitly outlined by Congress follows the fundamental premise of adaptive management, 'Learning by doing'. When action is necessary, but basic biological information and an understanding of appropriate management strategies are lacking, adaptive management enables managers to be proactive in spite of uncertainty. However, regardless of the strengths of adaptive management, the development of an effective adaptive management framework is challenging. In a review of 53 State Wildlife Action Plans, I found a keen awareness by planners that adaptive management was an effective method for addressing biodiversity conservation, but the development and incorporation of explicit adaptive management approaches within each plan remained elusive. Only ~25% of the plans included a framework for how adaptive management would be implemented at the project level within their state. There was, however, considerable support across plans for further development and implementation of adaptive management. By furthering the incorporation of adaptive management principles in conservation plans and explicitly outlining the decision making process, states will be poised to meet the pending challenges to biodiversity conservation.     

Benefits of Collaborative Learning for Environmental Management: Applying the Integrated Systems for Knowledge Management Approach to Support Animal Pest Control

Resource management issues continually change over time in response to coevolving social, economic, and ecological systems. Under these conditions adaptive management, or “learning by doing,” offers an opportunity for more proactive and collaborative approaches to resolving environmental problems. In turn, this will require the implementation of learning-based extension approaches alongside more traditional linear technology transfer approaches within the area of environmental extension. In this paper the Integrated Systems for Knowledge Management (ISKM) approach is presented to illustrate how such learning-based approaches can be used to help communities develop, apply, and refine technical information within a larger context of shared understanding. To outline how this works in practice, we use a case study involving pest management. Particular attention is paid to the issues that emerge as a result of multiple stakeholder involvement within environmental problem situations. Finally, the potential role of the Internet in supporting and disseminating the experience gained through ongoing adaptive management processes is examined.     

Pathology and failure in the design and implementation of adaptive management

The conceptual underpinnings for adaptive management are simple; there will always be inherent uncertainty and unpredictability in the dynamics and behavior of complex ecological systems as a result non-linear interactions among components and emergence, yet management decisions must still be made. The strength of adaptive management is in the recognition and confrontation of such uncertainty. Rather than ignore uncertainty, or use it to preclude management actions, adaptive management can foster resilience and flexibility to cope with an uncertain future, and develop safe to fail management approaches that acknowledge inevitable changes and surprises. Since its initial introduction, adaptive management has been hailed as a solution to endless trial and error approaches to complex natural resource management challenges. However, its implementation has failed more often than not. It does not produce easy answers, and it is appropriate in only a subset of natural resource management problems. Clearly adaptive management has great potential when applied appropriately. Just as clearly adaptive management has seemingly failed to live up to its high expectations. Why? We outline nine pathologies and challenges that can lead to failure in adaptive management programs. We focus on general sources of failures in adaptive management, so that others can avoid these pitfalls in the future. Adaptive management can be a powerful and beneficial tool when applied correctly to appropriate management problems; the challenge is to keep the concept of adaptive management from being hijacked for inappropriate use.     

Impediments to Integrated Urban Stormwater Management: The Need for Institutional Reform

It is now well established that the traditional practice of urban stormwater management contributes to the degradation of receiving waterways, and this practice was more recently critiqued for facilitating the wastage of a valuable water resource. However, despite significant advances in alternative “integrated urban stormwater management” techniques and processes over the last 20 years, wide-scale implementation has been limited. This problem is indicative of broader institutional impediments that are beyond current concerns of strengthening technological and planning process expertise. Presented here is an analysis of the institutionalization of urban stormwater management across Sydney with the objective of scoping institutional impediments to more sustainable management approaches. The analysis reveals that the inertia with the public administration of urban stormwater inherently privileges and perpetuates traditional stormwater management practices at implementation. This inertia is characterized by historically entrained forms of technocratic institutional power and expertise, values and leadership, and structure and jurisdiction posing significant impediments to change and the realization of integrated urban stormwater management. These insights strongly point to the need for institutional change specifically directed at fostering horizontal integration of the various functions of the existing administrative regime. This would need to be underpinned with capacity-building interventions targeted at enabling a learning culture that values integration and participatory decision making. These insights also provide guideposts for assessing the institutional and capacity development needs for improving urban water management practices in other contexts.     

Changing Approaches to Mountain Watersheds Management in Mainland South and Southeast Asia

Mountain watersheds, comprising a substantial proportion of national territories of countries in mainland South and Southeast Asia, are biophysical and socioeconomic entities, regulating the hydrological cycle, sequestrating carbon dioxide, and providing natural resources for the benefit of people living in and outside the watersheds. A review of the literature reveals that watersheds are undergoing degradation at varying rates caused by a myriad of factors ranging from national policies to farmers' socioeconomic conditions. Many agencies—governmental and private—have tried to address the problem in selected watersheds. Against the backdrop of the many causes of degradation, this study examines the evolving approaches to watershed management and development. Until the early 1990s, watershed management planning and implementation followed a highly centralized approach focused on heavily subsidized structural measures of soil conservation, planned and implemented without any consultation with the mainstream development agencies and local people. Watershed management was either the sole responsibility of specially created line agencies or a project authority established by external donors. As a consequence, the initiatives could not be continued or contribute to effective conservation of watersheds. Cognizant of this, emphasis has been laid on integrated, participatory approaches since the early 1990s. Based on an evaluation of experiences in mainland South and Southeast Asia, this study finds not much change in the way that management plans are being prepared and executed. The emergence of a multitude of independent watershed management agencies, with their own organizational structures and objectives and planning and implementation systems has resulted in watershed management endeavors that have been in complete disarray. Consistent with the principle of sustainable development, a real integrated, participatory approach requires area-specific conservation programs that are well incorporated into integrated socioeconomic development plans prepared and implemented by local line agencies in cooperation with nongovernment organizations (NGOs) and concerned people.     

Management Regimes,Property Rights,and Forest Biodiversity in Nepal and India

This article compares a range of initiatives aimed at involving people in the management of forest resources in Nepal and India. In Nepal, we focus on three categories of state-initiated programs: community forestry, the parks’ buffer zone program, and leasehold forestry. In the southern Indian state of Karnataka, we study the state-initiated Joint Forest Planning and Management program along with older institutions of leaf manure forests (Soppina betta) and historical sacred forests (Kans). We conclude that state-initiated approaches to involving communities have been limited, at best, promote standardized and relatively inflexible management practices, and lead to partial improvement in biodiversity and people’s livelihoods. When management is initiated and owned by the community, as in the case of sacred groves in India, and when other conditions are appropriate, communities can have the opportunity to demonstrate their capacity for putting effective and adaptive conservation practices in place.     

Nipped in the Bud: Why Regional Scale Adaptive Management Is Not Blooming

Adaptive management is an approach to managing natural resources that emphasizes learning from the implementation of policies and strategies. Adaptive management appears to offer a solution to the management gridlock caused by increasing complexity and uncertainty. The concept of adaptive management has been embraced by natural resource managers worldwide, but there are relatively few published examples of adaptive management in use. In this article, we explore two watershed management projects in southeastern Australia to better understand the potential of adaptive management in regional scale programs through qualitative, case study–based investigation. The program logic of one case implies the use of passive adaptive management, whereas the second case claims to be based on active adaptive management. Data were created using participant observation, semistructured interviews with individuals and groups, and document review. Using thematic content and metaphor analysis to explore the case data, we found that each case was successful as an implementation project. However, the use of both passive and active adaptive management was constrained by deeply entrenched social norms and institutional frameworks. We identified seven “imperatives” that guided the behavior of project stakeholders, and that have consequences for the use of adaptive management. Reference to recent evaluations of the Adaptive Management Areas of the Pacific Northwest of the United States suggests that some of these imperatives and their consequences have broad applicability. The implications of our findings are discussed, and suggestions for improving the outcomes of regional scale adaptive management are provided.     

Managing for Multiple Resources Under Climate Change: National Forests

This study explores potential adaptation approaches in planning and management that the United States Forest Service might adopt to help achieve its goals and objectives in the face of climate change. Availability of information, vulnerability of ecological and socio-economic systems, and uncertainties associated with climate change, as well as the interacting non-climatic changes, influence selection of the adaptation approach. Resource assessments are opportunities to develop strategic information that could be used to identify and link adaptation strategies across planning levels. Within a National Forest, planning must incorporate the opportunity to identify vulnerabilities to climate change as well as incorporate approaches that allow management adjustments as the effects of climate change become apparent. The nature of environmental variability, the inevitability of novelty and surprise, and the range of management objectives and situations across the National Forest System implies that no single approach will fit all situations. A toolbox of management options would include practices focused on forestalling climate change effects by building resistance and resilience into current ecosystems, and on managing for change by enabling plants, animals, and ecosystems to adapt to climate change. Better and more widespread implementation of already known practices that reduce the impact of existing stressors represents an important “no regrets” strategy. These management opportunities will require agency consideration of its adaptive capacity, and ways to overcome potential barriers to these adaptation options.     

Vulnerability of Rehabilitated Agricultural Production Systems to Invasion by Nontarget Plant Species

Vast areas of arable land have been retired from crop production and “rehabilitated” to improved system states through landowner incentive programs in the United States (e.g., Conservation and Wetland Reserve Programs), as well as Europe (i.e., Agri-Environment Schemes). Our review of studies conducted on invasion of rehabilitated agricultural production systems by nontarget species elucidates several factors that may increase the vulnerability of these systems to invasion. These systems often exist in highly fragmented and agriculturally dominated landscapes, where propagule sources of target species for colonization may be limited, and are established under conditions where legacies of past disturbance persist and prevent target species from persisting. Furthermore, rehabilitation approaches often do not include or successfully attain all target species or historical ecological processes (e.g., hydrology, grazing, and/or fire cycles) key to resisting invasion. Uncertainty surrounds ways in which nontarget species may compromise long term goals of improving biodiversity and ecosystem services through rehabilitation efforts on former agricultural production lands. This review demonstrates that more studies are needed on the extent and ecological impacts of nontarget species as related to the goals of rehabilitation efforts to secure current and future environmental benefits arising from this widespread conservation practice.     

Local Responses to Participatory Conservation in Annapurna Conservation Area, Nepal

Biodiversity conservation has undergone a profound change in philosophy, policies and management approaches over the last forty years. The traditional top–down approach to nature protection has been widely criticized for failing to include critical social elements in management practices, and is being gradually replaced by a slew of participatory strategies under the rubric of bottom-up conservation. The new approach recognizes local communities as key partners in wildlife management and seeks their participation in social development and biodiversity conservation. However, every social context is different in its structure and functions, and in the way social groups respond to calls for participation. In order to gain a better understanding of the approach and the barriers encountered in its implementation, a questionnaire survey of 188 households was employed in the communities of the Upper Mustang extension of Annapurna Conservation Area (ACA) in Nepal. The study provides a comparative analysis of community participation and its barriers between Non-Tourist (NT) and Tourist (TV) villages. The results revealed important differences between the two groups in terms of their participation in community programs, barriers to participation, and perception of benefits from participation. Owing to their distinct spatial, demographic and attitudinal differences, the two village groups have their own sets of needs, values and motivation factors which cannot be generalized and treated as such. The research clearly identifies the need for the conservation agency to be creative in devising strategies and initiatives appropriate to specific social groups so as to optimize their input in participatory conservation.     

Can We Manage for Resilience? The Integration of Resilience Thinking into Natural Resource Management in the United States

The concept of resilience is now frequently invoked by natural resource agencies in the US. This reflects growing trends within ecology, conservation biology, and other disciplines acknowledging that social–ecological systems require management approaches recognizing their complexity. In this paper, we examine the concept of resilience and the manner in which some legal and regulatory frameworks governing federal natural resource agencies have difficulty accommodating it. We then use the U.S. Forest Service’s employment of resilience as an illustration of the challenges ahead.