What Influences Innovation Adoption by Water Managers? Climate Information Use in Brazil and the United States1

Abstract: This paper examines the use of climate forecasting in water management in Brazil and the United States (U.S.). Specifically, it seeks to understand how different institutional arrangements shape the willingness and ability of water managers to incorporate technoscience, especially seasonal climate forecasting (SCF), in their decision‐making process. It argues that among the many factors shaping the willingness of water managers to use SCF, institutional design and change is critical to explain different patterns in Brazil and the U.S. Moreover, factors related to individual flexibility, discretion, and accountability also affect the ability of managers to use climate information in water management. This paper finds that while water managers in the U.S operate in a mostly fragmented and risk‐averse system – which constrains the adoption of innovation – decision makers in Brazil can afford more flexibility to introduce new decision tools as a result of widespread water management reforms initiated in the 1990s.     

U.S. Natural Resources and Climate Change: Concepts and Approaches for Management Adaptation

Public lands and waters in the United States traditionally have been managed using frameworks and objectives that were established under an implicit assumption of stable climatic conditions. However, projected climatic changes render this assumption invalid. Here, we summarize general principles for management adaptations that have emerged from a major literature review. These general principles cover many topics including: (1) how to assess climate impacts to ecosystem processes that are key to management goals; (2) using management practices to support ecosystem resilience; (3) converting barriers that may inhibit management responses into opportunities for successful implementation; and (4) promoting flexible decision making that takes into account challenges of scale and thresholds. To date, the literature on management adaptations to climate change has mostly focused on strategies for bolstering the resilience of ecosystems to persist in their current states. Yet in the longer term, it is anticipated that climate change will push certain ecosystems and species beyond their capacity to recover. When managing to support resilience becomes infeasible, adaptation may require more than simply changing management practices—it may require changing management goals and managing transitions to new ecosystem states. After transitions have occurred, management will again support resilience—this time for a new ecosystem state. Thus, successful management of natural resources in the context of climate change will require recognition on the part of managers and decisions makers of the need to cycle between “managing for resilience” and “managing for change.”     

INFORMATION TECHNOLOGY IN WATERSHED MANAGEMENT DECISION MAKING1

ABSTRACT: Watershed management decision making is a complex process. Cooperation and communication among federal, state, and local stakeholders is required while balancing biophysical and socioeconomic concerns. The public is taking part in environmental decisions, and the need for technology transfer from public agencies to stakeholders is increasing. Information technology has had a profound influence on watershed management over the past decade. Advances in data acquisition through remote sensing, data utilization through geographic information systems (GIS), and data sharing through the Internet have provided watershed managers access to more information for management decisions. In the future, applications incorporating hydrologic simulation models, GIS, and decision support systems will be deployed through the Internet. In addition to challenges in making complex modeling technology available to diverse audiences, new information technology issues, such as interoperability, Internet access, and security, are introduced when GIS, simulation models, and decision support systems are integrated in an Internet environment. This paper presents a review of current use of information technology in watershed management decision making and a discussion of issues created when developing Internet based, integrated watershed management decision support systems. A prototype spatial decision support system (SDSS) for rangeland watershed management was developed using web services, which are components that communicate using text based messages, thus eliminating proprietary protocols. This new framework provides an extensible, accessible, and interoperable approach for SDSS.     

Procedural Integration in Support of Environmental Policy Objectives: Implementing Sustainability

Translating sustainability policy goals into concrete action has proven to be a complex challenge for government agencies, municipalities and businesses. Existing planning and decision-making methods, such as Comprehensive Planning, Environmental Impact Assessment and Environmental Management Systems, are being used to address this focus on sustainability. United States Army policy requires the use of these three procedures by installation planners and managers, providing a unique opportunity for innovation. This paper examines the applicability of these procedures for implementing the Army's sustainable operations policy goals, and explores how the current independent and disconnected implementation can be improved through integration. Included in this analysis is a review of organizational barriers to integrated planning and management. The analysis is applicable outside the Army as these three decision-making procedures are used in many contexts, and installation management shares many characteristics with local government land use planning, federal land management, and corporate business operations.     

From Management to Negotiation: Technical and Institutional Innovations for Integrated Water Resource Management in the Upper Comoé River Basin, Burkina Faso

This study focuses on the potential role of technical and institutional innovations for improving water management in a multi-user context in Burkina Faso. We focus on a system centered on three reservoirs that capture the waters of the Upper Comoé River Basin and servicing a diversity of users, including a sugar manufacturing company, a urban water supply utility, a farmer cooperative, and other downstream users. Due to variable and declining rainfall and expanding users’ needs, drastic fluctuations in water supply and demand occur during each dry season. A decision support tool was developed through participatory research to enable users to assess the impact of alternative release and diversion schedules on deficits faced by each user. The tool is meant to be applied in the context of consultative planning by a local user committee that has been created by a new national integrated water management policy. We contend that both solid science and good governance are instrumental in realizing efficient and equitable water management and adaptation to climate variability and change. But, while modeling tools and negotiation platforms may assist users in managing climate risk, they also introduce additional uncertainties into the deliberative process. It is therefore imperative to understand how these technological and institutional innovations frame water use issues and decisions to ensure that such framing is consistent with the goals of integrated water resource management.     

Sustainable coasts? Perceptions of change and livelihood vulnerability in Nordland,Norway

ABSTRACT

Northern coastal regions are facing multiple challenges from accelerating global environmental and socioeconomic changes, such as ecosystem degradation, climate change, intensified resource extraction, land use change and declining populations. Based on interviews with 13 farmers, fishers and aquaculture employees from coastal Nordland, northern Norway, this study demonstrates how the local stakeholders’ perceptions of change and experiences of vulnerability are closely linked to their livelihood values and worldviews. What the informants consider a sustainable and meaningful way of coastal living does not coincide with national goals for sustainable, natural resource dependent development of the region. The article demonstrates the importance of attending to local values if policymakers and managers are to ensure successful local mobilisation, reduce vulnerability to ongoing and future processes of change, and ensure legitimacy and consistency in development goals of coastal zone management. Insights from this study are useful for local and regional decision makers with responsibility for natural resource policies and development efforts.     

Approaches to Evaluating Climate Change Impacts on Species: A Guide to Initiating the Adaptation Planning Process

Assessing the impact of climate change on species and associated management objectives is a critical initial step for engaging in the adaptation planning process. Multiple approaches are available. While all possess limitations to their application associated with the uncertainties inherent in the data and models that inform their results, conducting and incorporating impact assessments into the adaptation planning process at least provides some basis for making resource management decisions that are becoming inevitable in the face of rapidly changing climate. Here we provide a non-exhaustive review of long-standing (e.g., species distribution models) and newly developed (e.g., vulnerability indices) methods used to anticipate the response to climate change of individual species as a guide for managers grappling with how to begin the climate change adaptation process. We address the limitations (e.g., uncertainties in climate change projections) associated with these methods, and other considerations for matching appropriate assessment approaches with the management questions and goals. Thorough consideration of the objectives, scope, scale, time frame and available resources for a climate impact assessment allows for informed method selection. With many data sets and tools available on-line, the capacity to undertake and/or benefit from existing species impact assessments is accessible to those engaged in resource management. With some understanding of potential impacts, even if limited, adaptation planning begins to move toward the development of management strategies and targeted actions that may help to sustain functioning ecosystems and their associated services into the future.     

Belief network models of land manager decisions and land use change

A two-stage model of land use change is described, which is driven by the types of decisions that land managers make when changing their broad styles of use. The first stage uses decision modelling techniques to assess if a manager is currently satisfied with the present situation, when compared to various potential alternatives. If this evaluation indicates satisfaction, it is assumed that the present land use will continue. However, if it indicates dissatisfaction, Belief Network techniques are used to estimate, in more detail, both how dissatisfied the manager is and whether the costs of changing, from the present use to a potentially better one, will be out-weighed by the anticipated benefits. The proposed models can use a variety of cost and benefit criteria (e.g. financial, social and ecological). The approach is illustrated with a case-study of the factors that might influence changes from farming to forestry in marginal upland areas of the UK.     

Landform Classification for Land Use Planning in Developed Areas: An Example in Segovia Province (Central Spain)

Landform-based physiographic maps, also called land systems inventories, have been widely and successfully used in undeveloped/rural areas in several locations, such as Australia, the western United States, Canada, and the British ex-colonies. This paper presents a case study of their application in a developed semi-urban/suburban area (Segovia, Spain) for land use planning purposes. The paper focuses in the information transfer process, showing how land use decision-makers, such as governments, planners, town managers, etc., can use the information developed from these maps to assist them. The paper also addresses several issues important to the development and use of this information, such as the goals of modern physiography, the types of landform-based mapping products, the problem of data management in developed areas, and the distinctions among data, interpretations, and decisions.     

ECOSYSTEM MODELING OF A FORESTED RIVER BASIN1

ABSTRACT: A present concern in decision making processes for forest land use is the environmental effects of land use activities on water, air, and the land itself. Criteria for evaluating the magnitude and detriment of environmental impacts are not definite since it is often difficult to isolate a particular activity as the cause of a particular impact. Instead, interactions between various forest practices must be considered along with their integrated impacts. In order to provide an effective decision tool, the College of Forest Resources, University of Washington, is modeling the forest ecosystem of the Snohomish River Basin located in the Cascade Mountains of western Washington. The project consists of a general system model comprised of subsystem models dealing with product conversion processes, forest production processes, recreation supply processes, wildlife and fisheries supply processes, and the interactions of these processes with water and the atmosphere. The system model is interfaced with a computerized multiple player management game which enables land managers, manufacturing managers, and regulation agency personnel to make management decisions and respond to indications of lack of environmental control. Responses of the hydrologic system to various management decisions are simulated by the water subsystem model. The responses being considered include surface flow quantity and water quality. The model emphasizes the monitoring of non-point as well as point source impacts rather than predicting short-term hydrographs. The significance of impacts vary with land use patterns and the goals of the game player. Therefore, the model has flexible resolution and is able to predict hydrologic conditions for both large and small scale. The water subsystem model responds to management decisions by interpreting the effects of management options selected by game players for 40-acre cells within the Basin. The model then determines which streams are immediately affected, defines the watersheds contributing to these streams, and extracts from a resource data bank the information needed to define model parameters. Using these parameters and precipitation inputs, mean flow discharge on a montly and annual basis is calculated for the impactcd sub watersheds as well as 21 major watersheds of the Basin. Water quality responses predicted for these watersheds include suspended sediment concentration, temperature increases due to stream exposure, dissolved oxygen concentrations, the effects of fertilization on nitrogen content, biocide and herbicide effects, and residues from product conversion processes.     

Adaptation in Practice: How Managers of Nature Conservation Areas in Eastern England are Responding to Climate Change

Although good general principles for climate change adaptation in conservation have been developed, it is proving a challenge to translate them into more detailed recommendations for action. To improve our understanding of what adaptation might involve in practice, we investigated how the managers of conservation areas in eastern England are considering climate change. We used a written questionnaire and semi-structured interviews to collect information from managers of a range of different conservation areas. Topics investigated include the impacts of climate change perceived to be of the greatest importance; adaptation goals being set; management actions being carried out to achieve these goals; sources of information used; and perceived barriers to taking action. We identified major themes and issues that were apparent across the sites studied. Specifically, we found ways in which adaptation had been informed by past experience; different strategies relating to whether to accept or resist change; approaches for coping with more variable conditions; ways of taking a large-scale approach and managing sites as networks; some practical examples of aspects of adaptive management; and examples of the role that other sectors can play in both constraining and increasing a conservation area’s capacity to adapt. We discuss the relevance of these findings to the growing discussion in conservation about identifying adaptation pathways for different conservation areas and a potential progression from a focus on resilience and incremental change to embracing “transformation.” Though adaptation will be place-specific, we believe these findings provide useful lessons for future action in both England and other countries.     

Can David and Goliath Get Along? Federal Land in Local Places

It is often unclear what the role of a local jurisdiction is with regard to land use management on nearby federal properties. Yet federal lands clearly impact nearby local communities. The US Department of Energy (DOE), with over 100 sites across the United States with varying degrees of environmental contamination, may be in a very difficult position with regard to relationships with local government about land use. Yet few, if any, studies have examined DOE land use issues. This study asks: (1) In general, how do local planners feel about federal government relationships with them? (2) Do local planners feel differently about the DOE than they do about other federal agencies? (3) What reasons explain any differences observed in answer to the second question? To answer these questions, local planners were interviewed from communities adjacent to non-DOE federal properties, and their responses compared to those of planners located near DOE facilities in the same regions. Findings showed that compared to other federal agencies that own land in the same regions, the DOE is relatively poorer at actively involving local officials in land use decisions at its sites. Primary reasons are the historic legacy of a culture of secrecy, focus on mission, and especially the lack of experience, training, or mandates in local planning cooperation. Findings also suggest that this attitude is markedly stronger in areas west of the Rocky Mountains. Recommendations for improved federal–local communications include the development of a vision for local government involvement that is supported by top levels of management and filtered effectively to the site level.     

Development of an integrated environmental data base

The ability to access information for use in decision making is a well-recognized need within the context of management sciences. A similar need exists in order to make effective technical decisions pertaining to environmental resource management. Data bases are the principle vehicle by which scientists, engineers, and resource managers store and access environmental information. An integrated data-base mechanism is essential in order for federal agencies to manage programs such as enforcement of the Canadian Environmental Protection Act (CEPA), state of the environment (SOE) reporting, and the environmental assessment and review process (EARP). A data-base structure and data dissemination mechanism under current development within Environment Canada, Conservation and Protection, Atlantic Region, is presented along with some of its operational benefits and constraints.     

Improving the Integration of Recreation Management with Management of Other Natural Resources by Applying Concepts of Scale from Ecology

In this article, we examine how issues of scale affect the integration of recreation management with the management of other natural resources on public lands. We present two theories used to address scale issues in ecology and explore how they can improve the two most widely applied recreation-planning frameworks. The theory of patch dynamics and hierarchy theory are applied to the recreation opportunity spectrum (ROS) and the limits of acceptable change (LAC) recreation-planning frameworks. These frameworks have been widely adopted internationally, and improving their ability to integrate with other aspects of natural resource management has significant social and conservation implications. We propose that incorporating ecologic criteria and scale concepts into these recreation-planning frameworks will improve the foundation for integrated land management by resolving issues of incongruent boundaries, mismatched scales, and multiple-scale analysis. Specifically, we argue that whereas the spatially explicit process of the ROS facilitates integrated decision making, its lack of ecologic criteria, broad extent, and large patch size decrease its usefulness for integration at finer scales. The LAC provides explicit considerations for weighing competing values, but measurement of recreation disturbances within an LAC analysis is often done at too fine a grain and at too narrow an extent for integration with other recreation and resource concerns. We suggest that planners should perform analysis at multiple scales when making management decisions that involve trade-offs among competing values. The United States Forest Service is used as an example to discuss how resource-management agencies can improve this integration.     

Remediation of contaminated lands: a decision methodology for site owners

Deciding how to remediate and redevelop contaminated lands should involve more than just selecting remediation techniques to clean a site to meet regulations for a predetermined site use. Owners and their consultants also need to understand aspects such as alternative site uses and liability, and how issues such as uncertainty can affect them. A methodology has been developed that provides a framework for current site owners when making decisions. It clarifies the above issues and details the type of information that is needed. It offers a step-by-step approach to improve decision making when contemplating remediation of contaminated sites by identifying the site use and remedial action combination that maximizes the current owner's net benefits. It examines various factors in decision making--with special emphasis on the timely issues of liability and uncertainty--and how expert opinion can be used to address diverse or incomplete data. Future research should include developing a complementary methodology that incorporates community and ecological objectives, resulting in a unified decision framework.     

A Framework for Assessing Climate Change Impacts on Water and Watershed Systems

In this article we present a framework for assessing climate change impacts on water and watershed systems to support management decision-making. The framework addresses three issues complicating assessments of climate change impacts—linkages across spatial scales, linkages across temporal scales, and linkages across scientific and management disciplines. A major theme underlying the framework is that, due to current limitations in modeling capabilities, assessing and responding to climate change should be approached from the perspective of risk assessment and management rather than as a prediction problem. The framework is based generally on ecological risk assessment and similar approaches. A second theme underlying the framework is the need for close collaboration among climate scientists, scientists interested in assessing impacts, and resource managers and decision makers. A case study illustrating an application of the framework is also presented that provides a specific, practical example of how the framework was used to assess the impacts of climate change on water quality in a mid-Atlantic, U.S., watershed.     

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.     

WATER RESOURCE MANAGEMENT AND DROUGHT FORECASTS IN SOUTH CAROLINA1

ABSTRACT: Despite potential benefits for resource planning, community water systems managers have not used seasonal climate forecasts extensively. Obstacles to forecast use include a lack of awareness of their existence, distrust of their accuracy, perceived irrelevance to management decisions, and competition from other technological innovations. In this paper, ways in which seasonal forecasts might be extended to address more directly some concerns of South Carolina community water systems managers are explored. From May 1998 through August 2002, this group experienced drought conditions that threatened water quality and supply and required restrictions on water consumption. Methods for incorporating long lead forecasts with joint probabilities of monthly temperature and precipitation to produce drought forecasts are demonstrated. When tailored to specific places, such forecasts show the likelihood of exceeding drought thresholds that would trigger water use restrictions. The methods illustrate how long lead forecasts can be extended and customized into secondary products that address issues of greater relevance to water resource managers.     

Science and Decision Making: Water Management and Tree‐Ring Data in the Western United States1

Abstract: Growing populations, limited resources, and sustained drought are placing increased pressure on already over‐allocated water supplies in the western United States, prompting some water managers to seek out and utilize new forms of climate data in their planning efforts. One source of information that is now being considered by water resource management is extended hydrologic records from tree‐ring data. Scientists with the Western Water Assessment (WWA) have been providing reconstructions of streamflow (i.e., paleoclimate data) to water managers in Colorado and other western states (Arizona, New Mexico, and Wyoming), and presenting technical workshops explaining the applications of tree‐ring data for water management for the past eight years. Little is known, however, about what has resulted from these engagements between scientists and water managers. Using in‐depth interviews and a survey questionnaire, we attempt to address this lack of information by examining the outcomes of the interactions between WWA scientists and western water managers to better understand how paleoclimate data has been translated to water resource management. This assessment includes an analysis of what prompts water managers to seek out tree‐ring data, how paleoclimate data are utilized by water managers in both quantitative and qualitative ways, and how tree‐ring data are interpreted in the context of organization mandates and histories. We situate this study within a framework that examines the coproduction of science and policy, where scientists and resource managers collectively define and examine research and planning needs, the activities of which are embedded within wider social and political contexts. These findings have broader applications for understanding science‐policy interactions related to climate and climate change in resource management, and point to the potential benefits of reflexive interactions of scientists and decision makers.     

Limitations of an optimum sustainable population or potential biological removal approach for conserving marine mammals: Pacific walrus case study

Decision rules are the agreed-upon points at which specific management interventions are initiated. For marine mammal management under the U.S. Marine Mammal Protection Act (MMPA), decision rules are usually based on either a numeric population or biological-removal approach. However, for walrus and other ice-associated pinnipeds, the inability to reliably assess population numbers or biological removals highlights a significant gap in the MMPA, particularly when the Arctic environment is rapidly changing. We describe the MMPA's ecosystem-based management goals, and why managers have bypassed these goals in favor of an approach that depends upon numerical population assessment. We then revisit the statute's primary goals in light of current knowledge about the Pacific walrus ecosystem and new developments in environmental governance. We argue that to monitor and respond to changes in the walrus ecosystem, decision rules should be based on scientific criteria that depend less on the currently-impractical goal of accurately enumerating population size and trends, or removals from that population. Rather, managers should base decisions on ecological needs and observed ecological changes. To implement this approach would require an amendment to the MMPA that supports filling the gap in management with achievable decision rules. Alternatively, walrus and other ice-associated pinnipeds will remain largely unmanaged during a period of profound environmental change.