Realizing the Potential of Ecosystem Services: A Framework for Relating Ecological Changes to Economic Benefits

Increasingly government agencies are seeking to quantify the outcomes of proposed policy options in terms of ecosystem service benefits, yet conflicting definitions and ad hoc approaches to measuring ecosystem services have created confusion regarding how to rigorously link ecological change to changes in human well-being. Here, we describe a step-by-step framework for producing ecological models and metrics that can effectively serve an economic-benefits assessment of a proposed change in policy or management. A focus of the framework is developing comparable units of ecosystem goods and services to support decision-making, even if outcomes cannot be monetized. Because the challenges to translating ecological changes to outcomes appropriate for economic analyses are many, we discuss examples that demonstrate practical methods and approaches to overcoming data limitations. The numerous difficult decisions that government agencies must make to fairly use and allocate natural resources provides ample opportunity for interdisciplinary teams of natural and social scientists to improve methods for quantifying changes in ecosystem services and their effects on human well-being. This framework is offered with the intent of promoting the success of such teams as they support managers in evaluating the equivalency of ecosystem service offsets and trades, establishing restoration and preservation priorities, and more generally, in developing environmental policy that effectively balances multiple perspectives.     

Perspectives on Disconnects Between Scientific Information and Management Decisions on Post-fire Recovery in Western US

Environmental regulations frequently mandate the use of “best available” science, but ensuring that it is used in decisions around the use and protection of natural resources is often challenging. In the Western US, this relationship between science and management is at the forefront of post-fire land management decisions. Recent fires, post-fire threats (e.g. flooding, erosion), and the role of fire in ecosystem health combine to make post-fire management highly visible and often controversial. This paper uses post-fire management to present a framework for understanding why disconnects between science and management decisions may occur. We argue that attributes of agencies, such as their political or financial incentives, can limit how effectively science is incorporated into decision-making. At the other end of the spectrum, the lack of synthesis or limited data in science can result in disconnects between science-based analysis of post-fire effects and agency policy and decisions. Disconnects also occur because of the interaction between the attributes of agencies and the attributes of science, such as their different spatial and temporal scales of interest. After offering examples of these disconnects in post-fire treatment, the paper concludes with recommendations to reduce disconnects by improving monitoring, increasing synthesis of scientific findings, and directing social-science research toward identifying and deepening understanding of these disconnects.     

Engaging with the Ecological Footprint as a Decision-Making Tool: Process and Responses

Since the initial development of the Ecological Footprint in the early 1990s, the concept has gained increased interest amongst academics and practitioners internationally. In the UK, it is estimated that some 60 to 70 Ecological Footprint studies were undertaken between 1999 and 2004. Although the majority of interest in Ecological Footprinting has come from local government, a recent study has found that government officers involved in the formulation of council policy have not been able to engage with the Ecological Footprint as a process or use the results to inform policy decisions. This paper analyses how an Ecological Footprint has been developed for Cardiff, the capital city of Wales. The approach used to construct an Ecological Footprint for Cardiff has been significantly different to that which had been used previously in the UK, as it has involved a unique consortium of researchers at Cardiff University and policy development officers at Cardiff Council checking the quality of data used in the Footprint calculation, and developing a range of policy scenarios.     

CASE STUDIES OF AGRICULTURAL WATER CONSERVATION1

Farmers from four irrigation districts in Texas and California were questioned about water conservation practices they are now using, those they plan to adopt, and potential incentives that government might offer to induce still further water conservation on their part. While responses differed somewhat from place to place and among individual farmers, the general results were: a) farmers reported that “water conservation” is not new to them, it is something they practice regularly; b) recent innovations such as laser controlled land leveling devices have permitted some substantial water use reductions in recent years; and c) even greater incentive mechanisms that government could provide and that farmers would accept as useful incentives, such as long term low interest loans for water saving equipment, would probably not be able to reduce water use in agriculture much further than 15 percent below current levels. It is recommended nonetheless that Federal agencies and local water districts and individuals should nonetheless pursue water conservation training and education programs, demonstrations of conjunctive use and water banking opportunities for water saving, and increased loan programs for installation of water saving equipment.     

Conflict and Coalitions: An Examination of Outdoor Recreation Magazines

We examined whether value differences between various recreation interest/activity groups are created and sustained by the textual information presented to their readers in magazines. Using a two-stage qualitative approach, our research sought to explore the exact nature of the dialogue in the magazines. We sought detailed, intimate information on a selected number of magazines to assess how the popular press socially constructs knowledge about recreation groups, and we sought to better understand how various recreation group members assign meaning to their activities and interpret the interests of other groups. Findings revealed limited negativity of activity users towards one another; most of the conflict found in the text of the articles in recreational magazines was characterized as macrodispositional. Accordingly, in the articles most of the antipathy was directed towards government because of stricter regulation of activity or towards commercial consumers whose exploitation of resources is perceived to threaten groups' activities. Moreover, such conflict crosscuts various groups whose issues and concerns are often similar. Since environmental battles are no longer any one group's issue, many have coalesced and engaged in conflict with lawmakers and commercial consumers. It is clear that the recreational magazines do play a role in shaping readers' attitudes.     

The contribution of computer‐based information systems to partnership between public agencies and voluntary environmental groups

This paper considers the contribution of computing to the implementation of a policy of partnership between public environmental agencies and local voluntary groups. The present policy commitment to partnerships of this kind is reviewed. Particular information needs arise when public agencies seek to give co‐ordinated support to the environmental action undertaken by local groups. These stem from the disaggregated nature of the structure and functions of the voluntary sector. Computer‐based information systems are identified as a bridge between the regional organisation of public agencies and the local activities of voluntary groups. A computer system devised to aid the forward planning of public support for voluntary action is described. It is considered that this technique has value as part of a wider strategy of interaction between the public and voluntary sectors.     

Tensions between Fiscal Accountability Policy and Collaborative Management Implementation in State Wildlife Agencies

Exploration of collaborative management implementation at two state wildlife agencies (SWAs) found that government fiscal accountability requirements create tensions that negatively impact collaborative plan implementation. Interview-derived insights highlight state policy misalignments between the support of collaborative governance and the application of governmental accountability controls. Tensions from this misalignment can negatively impact implementation and disrupt relationships among the SWA management staff, their partners, and their procurement staff. Rather than working as a part of a unified state interest to implement collaborative governance, procurement processes function as an internal regulatory authority that addresses different state policies. Informant comments identify dissimilar tension levels within the two SWAs, potentially due to the organizational location of procurement staffs. Confirmation of the influence of an SWA procurement staff organizational location on collaborative implementation requires further investigation. Tensions identified here likely exist in other natural resource management agencies and represent an understudied aspect of governmental collaborative management capacity often overlooked in collaborative planning and management scholarship.     

Reflexive governance: exploring the concept and assessing its critical potential for sustainable development. Introduction to the special issue

ABSTRACT

Elaborated in publications on transition management, sustainability governance and deliberative environmental governance, ‘reflexive governance’ addresses concerns about social-ecological vulnerabilities, flawed conceptualisations of human-nature relations fragmented governance regimes and conditions for a sustainability transition. Key barriers to reflexive government include unavoidable politics; the influence of broader discursive systems that shape actors’ strategic interests; and structural and deliberate limitations to the range of admitted epistemological understandings, normative perspectives and material practices. Against this background, the contributions to the special issue provide novel conceptual linkages between reflexive governance and boundary objects, intercultural dialogue, conflict management heuristics, discourse linguistics, theories of the policy cycle and reflexive law, network and learning theories, and Lasswell’s ‘developmental constructs’. Based on the contributions, we identify five inherent conceptual tensions of reflexive governance: between the openness of horizontal learning processes and the desired direction towards sustainable development; between reflexive governance as a normative or procedural concept; between expected learning orientations and other, strategic orientations; between governance as a precondition for reflexivity and reflexive learning as a precondition for reorganized governance structures; and between reflexivity as an open-ended, evolutionary process and the need to strategically defend the space for reflexivity against powerful groups with an interest in the status quo.     

Publicly-provided information in environmental management: incorporating groundwater quality goals into herbicide treatment recommendations

Use of publicly-provided information to promote environmental quality has received somewhat less attention in the environmental management literature than use of other environmental policy tools based on economic incentives such as emissions taxes, subsidies and marketable permits. Yet publicly-provided information may have potential as an environmental policy tool, especially in managing problems of agricultural pollution, due in large part to the existing capability of public information agencies associated with the agricultural research community. Information provided by these agencies is known to be an important factor in decision making in agriculture and may have potential for influencing decisions that relate directly to preserving the integrity of environmental resources. Moreover, this potential may have particular relevance for protecting groundwater quality from agricultural production since the results of contamination are often at least partially internal to the farm decision maker. This paper develops an empirical model to formulate publicly-provided herbicide treatment recommendations designed to protect both the quality of groundwater and the income of farmers. An economic and statistical model of a crop-pest system is used in conjunction with a groundwater loading model to derive the trade-off relationship between producer income and movement of herbicide material through the root zone. The trade-off relationship can provide the basis for formulating herbicide treatment recommendations and can also shed light on appropriate groundwater quality goals.     

Choice of stakeholder groups and members in multicriteria decision models

Simplistic economic objectives such as maximisation of producer profits are of little relevance in generating information to assist in the management of natural resources beyond the individual firm level. To provide data and information to support decision-making in natural resource management, it is necessary to take into account the views of various stakeholder groups and the multiple objectives of each group, through the use of some form of multicriteria analysis (MCA). Important decisions arise in the choice of stakeholder, since this will influence the management advice generated. Many groups and individuals can be affected by resource management decisions, but it would be impractical to attempt to identify the objectives and estimate their importance for each group. Also, questions arise concerning whether or not to include government agencies (which represent the broader community) and researchers as stakeholders. A further issue concerns choosing representative samples of stakeholder groups, from which to obtain preference data. Discussions with modellers and a reading of the literature would suggest that the choice of stakeholder groups and representatives is conducted haphazardly and is perhaps biased, and that a more systematic approach is needed. This article explores the above issues with reference to a number of multicriteria analyses, including local studies.     

The “Revolving Door” between Regulatory Agencies and Industry: A Problem That Requires Reconceptualizing Objectivity

There is a “revolving door” between federal agencies and the industries regulated by them. Often, at the end of their industry tenure, key industry personnel seek employment in government regulatory entities and vice versa. The flow of workers between the two sectors could bring about good. Industry veterans might have specialized knowledge that could be useful to regulatory bodies and former government employees could help businesses become and remain compliant with regulations. But the “revolving door” also poses at least three ethical and policy challenges that have to do with public trust and fair representation. First, the presence of former key industry personnel on review boards could adversely impact the public’s confidence in regulatory decisions about new technology products, including agrifood biotechnologies. Second, the ‘‘revolving door’’ may result in policy decisions about technologies that are biased in favor of industry interests. And third, the ‘‘revolving door’’ virtually guarantees industry a voice in the policy-making process, even though other stakeholders have no assurance that their concerns will be addressed by regulatory agencies. We believe these three problems indicate a failure of regulatory review for new technologies. The review process lacks credibility because, at the very least, it is procedurally biased in favor of industry interests. We argue that prohibiting the flow of personnel between regulatory agencies and industry would not be a satisfactory solution to the three problems of public trust and just representation. To address them, regulatory entities must reject the traditional notion of objectivity. Instead they should adopt the conception of objectivity developed by Sandra Harding and re-configure their regulatory review on the basis of it. That will ensure that a heterogeneous group of stakeholders is at the decision-making table. The fair representation of interests of different constituencies in the review process could do much to inspire warranted public confidence in regulatory protocols and decisions.     

Could Peace be Worse than War for Colombia's Forests?

The forests of Colombia are influenced by the actions of armed groups and, in many cases, their settlers are economically dependent on illicit crops. Up to the present armed conflict has simultaneously discouraged organized exploitation in some frontier areas, and encouraged unsustainable use of natural resources therein. The Colombian government seeks to end the conflict by pursuing peace negotiations, and to eradicate illicit crops. How will these policies affect the forests? The environmental consequences of these policies are not only dependent on the unlikely economic success of alternative development, but on making informed decisions about infrastructure development in affected areas.     

A formal model for consensus and negotiation in environmental management

Environmental management decisions typically lie at the interface of science and public policy. Consequently, these decisions involve a number of stakeholders with competing agendas and vested interests in the ultimate decision. In such cases, it is appropriate to adopt formal methods for consensus building to ensure transparent and repeatable decisions. In this paper, we use an environmental management case study to demonstrate the utility of a mathematical consensus convergence model in aggregating values (or weights) across groups. Consensus models are applicable when all parties agree to negotiate in order to resolve conflict. The advantage of this method is that it does not require that all members of the group reach agreement, often an impossible task in group decision making. Instead, it uses philosophical foundations in consensus building to aggregate group members' values in a way that guarantees convergence towards a single consensual value that summarizes the group position. We highlight current problems with ad hoc consensus and negotiation methods, provide justification for the adoption of formal consensus convergence models and compare the consensus convergence model with currently used methods for aggregating values across a group in a decision making context. The model provides a simple and transparent decision support tool for group decision making that is straightforward to implement.     

Irrigation activities and institutions in Kenya's Lake Victoria Basin

Irrigation activities in Kenya range from large-scale government-owned schemes involving thousands of acres on which farmers work for wages to small individually owned and irrigated plots of three or four acres. This paper examines the institutions and operational workings of the government schemes as well as the privately owned plots. In general the most successful irrigation schemes are those which are organized and run by individuals or by private groups with government agencies and NGOs providing technical support.     

Trends and applications of multi-criteria decision analysis: use in government agencies

Government agencies are responsible for making complex, high-stake decisions, which require them to balance political, technical, and economic considerations. Pressure from stakeholders and administrative requirements necessitate a traceable and transparent method for decision making. Multi-criteria decision analysis (MCDA) methods are available to decision makers to facilitate systematic treatment of the information and factors necessary to make informed and effective decisions in complex circumstances. A survey of gray and academic literature was conducted to gauge the level of application and awareness of MCDA methods by US government agencies and determine if the tools’ benefits are being realized. Results show an increase in awareness and consideration of MCDA from 2000 to the present, and that agencies are especially considering and using tools to engage with stakeholders. Government agencies would benefit from extending the application of MCDA to strategic planning and congressional engagement, as well as by standardizing MCDA use to better enable inter-agency collaboration and communication.     

Class: an Essential Aspect of Watershed Planning

A study of a watershed planning process in the Cache River Watershed in southern Illinois revealed that class divisions, based on property ownership, underlay key conflicts over land use and decision-making relevant to resource use. A class analysis of the region indicates that the planning process served to endorse and solidify the locally-dominant theory that landownership confers the right to govern. This obscured the class differences between large full-time farmers and small-holders whose livelihood depends on non-farm labor. These two groups generally opposed one another regarding wetland drainage. Their common identity as “property owner” consolidated the power wielded locally by large farmers. It also provided an instrument – the planning document – for state and federal government agencies to enhance their power and to bring resources to the region. The planning process simultaneously ameliorated conflicts between government agencies and the large farmers, while enhancing the agencies’ capacity to reclaim wetlands. In this contradictory manner, the plan promoted the environmental aims of many small-holders, and simultaneously disempowered them as actors in the region’s political economy. An erratum to this article is available at .     

Rhetoric and Reality of Water Quality Trading and the Potential for Market‐like Reform1

Stephenson, Kurt and Leonard Shabman, 2011. Rhetoric and Reality of Water Quality Trading and the Potential for Market‐Like Reform. Journal of the American Water Resources Association (JAWRA) 47(1):15‐28. DOI: 10.1111/j.1752‐1688.2010.00492.x Abstract: Many public interest groups, government agencies, and professional economists argue that current approaches to water quality trading are a cost‐effective, politically practical innovation for achieving water quality standards, in part by addressing one of the most difficult water quality improvement challenges – limiting the discharge from nonpoint sources. A critical analysis shows that these claims for current water quality trading programs are often unrealized. This rhetoric, without adherence to principles of market‐like reform, can undermine the support of regulated parties for meaningful water quality policy reform, contribute to missed opportunities to implement cost‐effective programs, and postpone successfully meeting the challenge of limiting nonpoint source discharges. A better understanding and application of market‐like principles can result in an improved design of trading as well as general water quality management programs.     

Implementing Participatory Decision Making in Forest Planning

Forest policy decisions are often a source of debate, conflict, and tension in many countries. The debate over forest land-use decisions often hinges on disagreements about societal values related to forest resource use. Disagreements on social value positions are fought out repeatedly at local, regional, national, and international levels at an enormous social cost. Forest policy problems have some inherent characteristics that make them more difficult to deal with. On the one hand, forest policy decisions involve uncertainty, long time scales, and complex natural systems and processes. On the other hand, such decisions encompass social, political, and cultural systems that are evolving in response to forces such as globalization. Until recently, forest policy was heavily influenced by the scientific community and various economic models of optimal resource use. However, growing environmental awareness and acceptance of participatory democracy models in policy formulation have forced the public authorities to introduce new participatory mechanisms to manage forest resources. Most often, the efforts to include the public in policy formulation can be described using the lower rungs of Arnstein’s public participation typology. This paper presents an approach that incorporates stakeholder preferences into forest land-use policy using the Analytic Hierarchy Process (AHP). An illustrative case of regional forest-policy formulation in Australia is used to demonstrate the approach. It is contended that applying the AHP in the policy process could considerably enhance the transparency of participatory process and public acceptance of policy decisions.