Changing Climate,Challenging Choices: Identifying and Evaluating Climate Change Adaptation Options for Protected Areas Management in Ontario,Canada

Climate change will pose increasingly significant challenges to managers of parks and other forms of protected areas around the world. Over the past two decades, numerous scientific publications have identified potential adaptations, but their suitability from legal, policy, financial, internal capacity, and other management perspectives has not been evaluated for any protected area agency or organization. In this study, a panel of protected area experts applied a Policy Delphi methodology to identify and evaluate climate change adaptation options across the primary management areas of a protected area agency in Canada. The panel identified and evaluated one hundred and sixty five (165) adaptation options for their perceived desirability and feasibility. While the results revealed a high level of agreement with respect to the desirability of adaptation options and a moderate level of capacity pertaining to policy formulation and management direction, a perception of low capacity for implementation in most other program areas was identified. A separate panel of senior park agency decision-makers used a multiple criterion decision-facilitation matrix to further evaluate the institutional feasibility of the 56 most desirable adaptation options identified by the initial expert panel and to prioritize them for consideration in a climate change action plan. Critically, only two of the 56 adaptation options evaluated by senior decision-makers were deemed definitely implementable, due largely to fiscal and internal capacity limitations. These challenges are common to protected area agencies in developed countries and pervade those in developing countries, revealing that limited adaptive capacity represents a substantive barrier to biodiversity conservation and other protected area management objectives in an era of rapid climate change.     

International and European Law on Protected Areas and Climate Change: Need for Adaptation or Implementation?

The protection and management of protected areas must be adapted to the effects of climate change. An important question is if the law on protected areas is capable of dealing with the required changes. In general, both international nature conventions and European Union nature conservation law do not contain any specific provisions on climate change and protected areas. Attention has been paid to this link in non-binding decisions and policy documents. In order to adapt the law to increased dynamics from climate change, more flexibility is needed. This flexibility should not be understood as “legal” flexibility, in the sense of the weakening nature conservation provisions. Scientific uncertainties on the effects of climate change might conflict with the need for legal certainties. In order to adapt to the effects of climate change, the two crucial elements are the strengthening of core protected areas and connectivity between the core areas. At the international level, both elements can be found in non-binding documents. International law enables the required adaptation; however, it often lacks concrete obligations. A stronger legal framework can be found at the level of the European Union. The Birds and Habitats Directives contain sufficient tools to deal with the effects of climate change. The Directives have been insufficiently implemented so far. Especially the central goals of reaching a favorable conservation status and connectivity measures need to be addressed much more in the future.     

Windows of opportunity: addressing climate uncertainty through adaptation plan implementation

There is a pressing need for municipalities and regions to create urban form suited to current as well as future climates, but adaptation planning uptake has been slow. This is particularly unfortunate because patterns of urban form interact with climate change in ways that can reduce, or intensify, the impact of overall global change. Uncertainty regarding the timing and magnitude of climate change is a significant barrier to implementing adaptation planning. Focusing on implementation of adaptation and phasing of policy reduces this barrier. It removes time as a decision marker, instead arguing for an initial comprehensive plan to prevent maladaptive policy choices, implemented incrementally after testing the micro-climate outcomes of previous interventions. Policies begin with no-regrets decisions that reduce the long-term need for more intensive adaptive actions and generate immediate policy benefits, while gradually enabling transformative infrastructure and design responses to increased climate impacts. Global and local indicators assume a larger role in the process, to evaluate when tipping points are in sight. We use case studies from two exemplary municipal plans to demonstrate this method's usefulness. While framed for urban planning, the approach is applicable to natural resource managers and others who must plan with uncertainty.     

The role of scale in integrating climate change adaptation and mitigation in cities

By using a scale framework, we examine how cross-scale interactions influence the implementation of climate adaptation and mitigation actions in different urban sectors. Based on stakeholder interviews and content analysis of strategies and projects relevant to climate adaptation and mitigation in the cities of Copenhagen and Helsinki, we present empirical examples of synergies, conflicts and trade-offs between adaptation and mitigation that are driven by the cross-scale interactions. These examples show that jurisdictional and institutional scales shape the implementation of adaptation and mitigation strategies, projects and tasks at the management scale, creating benefits of integrated solutions, but also challenges. Investigating the linkages between adaptation and mitigation through a scale framework provides new knowledge for urban climate change planning and decision-making. The results increase the understanding of why adaptation and mitigation are sometimes handled as two separate policy areas and also why attempts to integrate the two policies may fail.     

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.     

Understanding the Local Socio-political Processes Affecting Conservation Management Outcomes in Corbett Tiger Reserve,India

Several measures have been recommended to guarantee a sustainable population of tigers: sufficient inviolate spaces for a viable population, sufficient prey populations, trained and skilled manpower to guard against poaching and intrusion, banning trade in tiger products to reduce poaching, and importantly, the political will to precipitate these recommendations into implementation. Of these, the creation of sufficient inviolate spaces (generally in the form of protected areas) has created the most issues with local resource-dependent communities, often resulting in significant challenges for tiger conservation policy and management. Very little empirical research has, however, been done to understand and contextualize the local-level socio-political interactions that may influence the efficacy of tiger conservation in India. In this paper, we present the results of exploratory research into the ways in which local-stakeholder groups affect the management of Corbett Tiger Reserve (CTR). Using a combined grounded theory–case study research design, and the Institutional Analysis and Development framework for analysis, we identify the socio-political processes through which local-stakeholder groups are able to articulate their issues and elicit desirable actions from the management of CTR. Increasing our awareness of these processes can help inform the design and implementation of more effective tiger conservation management and policy strategies that have the potential to create more supportive coalitions of tiger conservation stakeholders at the local level.     

Integrating Climate Change into Habitat Conservation Plans Under the U.S. Endangered Species Act

Habitat Conservation Plans (HCPs) under the Endangered Species Act (ESA) are an important mechanism for the acquisition of land and the management of terrestrial and aquatic ecosystems. HCPs have become a vital means of protecting endangered and threatened species and their habitats throughout the United States, particularly on private land. The scientific consensus that climate is changing and that these changes will impact the viability of species has not been incorporated into the conservation strategies of recent HCPs, rendering plans vulnerable biologically. In this paper we review the regulatory context for incorporating climate change into HCPs and analyze the extent to which climate change is linked to management actions in a subset of large HCPs. We conclude that most current plans do not incorporate climate change into conservation actions, and so we provide recommendations for integrating climate change into the process of HCP development and implementation. These recommendations are distilled from the published literature as well as the practice of conservation planning and are structured to the specific needs of HCP development and implementation. We offer nine recommendations for integrating climate change into the HCP process: (1) identify species at-risk from climate change, (2) explore new strategies for reserve design, (3) increase emphasis on corridors, linkages, and connectivity, (4) develop anticipatory adaptation measures, (5) manage for diversity, (6) consider assisted migration, (7) include climate change in scenarios of water management, (8) develop future-oriented management actions, and (9) increase linkages between the conservation strategy and adaptive management/monitoring programs.     

Climate Change Adaptation: Putting Principles into Practice

Carrying out wildlife conservation in a changing climate requires planning on long timescales at both a site and network level, while also having the flexibility to adapt actions at sites over short timescales in response to changing conditions and new information. The Royal Society for the Protection of Birds (RSPB), a land-owning wildlife conservation charity in the UK, achieves this on its nature reserves through its system of management planning. This involves setting network-wide objectives which inform the 25-year vision and 5-year conservation objectives for each site. Progress toward achieving each site’s conservation objectives is reviewed annually, to identify any adjustments which might be needed to the site’s management. The conservation objectives and 25-year vision of each site are reviewed every 5 years. Significant long-term impacts of climate change most frequently identified at RSPB reserves are: loss of intertidal habitat through coastal squeeze, loss of low-lying islands due to higher sea levels and coastal erosion, loss of coastal freshwater and brackish wetlands due to increased coastal flooding, and changes in the hydrology of wetlands. The main types of adaptation measures in place on RSPB reserves to address climate change-related impacts are: re-creation of intertidal habitat, re-creation and restoration of freshwater wetlands away from vulnerable coastal areas, blocking artificial drainage on peatlands, and addressing pressures on freshwater supply for lowland wet grasslands in eastern and southeastern England. Developing partnerships between organizations has been crucial in delivering large-scale adaptation projects.     

Agricultural landscapes as multi-scale public good and the role of the Common Agricultural Policy

During the last 50 years, the Common Agricultural Policy (CAP) has impacted the evolution of European agricultural landscapes by driving changes in land use and farming practices. We propose a typology characterising the scales relevant for agricultural landscapes management and argue that action is required on three scales: (1) a landscape oriented management at the farm level; (2) the coordination of land managers’ actions at the landscape level; and (3) the conservation of the diversity of agricultural landscapes in the EU. We provide evidence that until now the CAP has mainly focused on the first scale. We also illustrate how agricultural policy could encourage coordinated actions at the landscape- and EU-scales. In particular, we propose policy instruments to coordinate actions of individual land owners (e.g. collective bonus in agro-environmental contracts or support to environmental cooperatives (scale 2)). We also analyse how the recognition and transposition of the European Landscape Convention could promote trans-frontier landscape cooperation in order, not only to conserve high-quality rural landscapes, but also to ensure the conservation of the diversity of EU landscapes (scale 3). This paper provides a knowledge base to support an integrated CAP design in the direction of improved landscape management, as an important component of the EU project towards more sustainable agriculture.     

Options for National Parks and Reserves for Adapting to Climate Change

Past and present climate has shaped the valued ecosystems currently protected in parks and reserves, but future climate change will redefine these conditions. Continued conservation as climate changes will require thinking differently about resource management than we have in the past; we present some logical steps and tools for doing so. Three critical tenets underpin future management plans and activities: (1) climate patterns of the past will not be the climate patterns of the future; (2) climate defines the environment and influences future trajectories of the distributions of species and their habitats; (3) specific management actions may help increase the resilience of some natural resources, but fundamental changes in species and their environment may be inevitable. Science-based management will be necessary because past experience may not serve as a guide for novel future conditions. Identifying resources and processes at risk, defining thresholds and reference conditions, and establishing monitoring and assessment programs are among the types of scientific practices needed to support a broadened portfolio of management activities. In addition to the control and hedging management strategies commonly in use today, we recommend adaptive management wherever possible. Adaptive management increases our ability to address the multiple scales at which species and processes function, and increases the speed of knowledge transfer among scientists and managers. Scenario planning provides a broad forward-thinking framework from which the most appropriate management tools can be chosen. The scope of climate change effects will require a shared vision among regional partners. Preparing for and adapting to climate change is as much a cultural and intellectual challenge as an ecological challenge.     

Adaptive Management and Climate Change Adaptation: Two Mutually Beneficial Areas of Practice

Adaptive management (AM) is a rigorous approach to implementing, monitoring, and evaluating actions, so as to learn and adjust those actions. Existing AM projects are at risk from climate change, and current AM guidance does not provide adequate methods to deal with this risk. Climate change adaptation (CCA) is an approach to plan and implement actions to reduce risks from climate variability and climate change, and to exploit beneficial opportunities. AM projects could be made more resilient to extreme climate events by applying the principles and procedures of CCA. To test this idea, we analyze the effects of extreme climatic events on five existing AM projects focused on ecosystem restoration and species recovery, in the Russian, Trinity, Okanagan, Platte, and Missouri River Basins. We examine these five case studies together to generate insights on how integrating CCA principles and practices into their design and implementation could improve their sustainability, despite significant technical and institutional challenges, particularly at larger scales. Although climate change brings substantial risks to AM projects, it may also provide opportunities, including creating new habitats, increasing the ability to quickly test flow‐habitat hypotheses, stimulating improvements in watershed management and water conservation, expanding the use of real‐time tools for flow management, and catalyzing creative application of CCA principles and procedures.     

基于生态学研究制定湿地保护策略：以台湾七股湿地为例

制定合理有效的滨海湿地保护法律制度和管理策略,需要我们理解生物多样性、生态功能和生态系统服务之间的相互关系,并正确地评估滨海湿地的脆弱性以及人类活动和环境变化对湿地的影响。然而,当前滨海湿地保护政策制定过程中有关生态及经济评估数据尚显不足。在此,本文以台湾七股滨海区域作为案例,展示了滨海湿地环境保护政策制定过程生态学研究发挥的影响力,并体现出对其他领域和当地居民相互协作的力量整合,最终实现湿地保护的策略。     

Climate Change Adaptation for the US National Wildlife Refuge System

Since its establishment in 1903, the National Wildlife Refuge System (NWRS) has grown to 635 units and 37 Wetland Management Districts in the United States and its territories. These units provide the seasonal habitats necessary for migratory waterfowl and other species to complete their annual life cycles. Habitat conversion and fragmentation, invasive species, pollution, and competition for water have stressed refuges for decades, but the interaction of climate change with these stressors presents the most recent, pervasive, and complex conservation challenge to the NWRS. Geographic isolation and small unit size compound the challenges of climate change, but a combined emphasis on species that refuges were established to conserve and on maintaining biological integrity, diversity, and environmental health provides the NWRS with substantial latitude to respond. Individual symptoms of climate change can be addressed at the refuge level, but the strategic response requires system-wide planning. A dynamic vision of the NWRS in a changing climate, an explicit national strategic plan to implement that vision, and an assessment of representation, redundancy, size, and total number of units in relation to conservation targets are the first steps toward adaptation. This adaptation must begin immediately and be built on more closely integrated research and management. Rigorous projections of possible futures are required to facilitate adaptation to change. Furthermore, the effective conservation footprint of the NWRS must be increased through land acquisition, creative partnerships, and educational programs in order for the NWRS to meet its legal mandate to maintain the biological integrity, diversity, and environmental health of the system and the species and ecosystems that it supports.     

The Adaptation for Conservation Targets (ACT) Framework: A Tool for Incorporating Climate Change into Natural Resource Management

As natural resource management agencies and conservation organizations seek guidance on responding to climate change, myriad potential actions and strategies have been proposed for increasing the long-term viability of some attributes of natural systems. Managers need practical tools for selecting among these actions and strategies to develop a tailored management approach for specific targets at a given location. We developed and present one such tool, the participatory Adaptation for Conservation Targets (ACT) framework, which considers the effects of climate change in the development of management actions for particular species, ecosystems and ecological functions. Our framework is based on the premise that effective adaptation of management to climate change can rely on local knowledge of an ecosystem and does not necessarily require detailed projections of climate change or its effects. We illustrate the ACT framework by applying it to an ecological function in the Greater Yellowstone Ecosystem (Montana, Wyoming, and Idaho, USA)-water flows in the upper Yellowstone River. We suggest that the ACT framework is a practical tool for initiating adaptation planning, and for generating and communicating specific management interventions given an increasingly altered, yet uncertain, climate.     

Wildlife conservation through people-centred approaches to natural resource management programmes and the control of wildlife exploitation

While the Convention on Biological Diversity (1992) introduced a new and progressive outlook on conservation, the South African government has failed to produce a comprehensive legal body of legislation to give effect to its varied obligations. Inconsistency and incompleteness of regulations governing wildlife conservation in conjunction with the failure to implement objectives to conserve wildlife through restricted exploitation with the political, social and economic motives of community conservation must be seen as major contributions to failed conservation goals. This paper analyses post-apartheid conservation laws and policies and argues that current plans for people-centred approaches to natural resource management programmes have been unsuccessful in operationalizing policy goals of biodiversity conservation and sustainable development into transparent plans for implementation. In fact, legal instruments and implementation plans seem to focus on the benefit-sharing components of community participation and therefore fail to address important issues of resource exploitation. It is suggested that where communities are expected to take part in the management of wildlife resources, the responsibility for sustainable wildlife management must be linked to the benefit-sharing instruments of the programmes. However, these would not deal with 'outsiders' like poachers and poaching driven by commercial interests. The paper proposes a model that allows communities to take control over wildlife resources.     

Interactions Between Spatially Explicit Conservation and Management Measures: Implications for the Governance of Marine Protected Areas

Marine protected areas are not established in an institutional and governance vacuum and managers should pay attention to the wider social–ecological system in which they are immersed. This article examines Islas Choros-Damas Marine Reserve, a small marine protected area located in a highly productive and biologically diverse coastal marine ecosystem in northern Chile, and the interactions between human, institutional, and ecological dimensions beyond those existing within its boundaries. Through documents analysis, surveys, and interviews, we described marine reserve implementation (governing system) and the social and natural ecosystem-to-be-governed. We analyzed the interactions and the connections between the marine reserve and other spatially explicit conservation and/or management measures existing in the area and influencing management outcomes and governance. A top-down approach with poor stakeholder involvement characterized the implementation process. The marine reserve is highly connected with other spatially explicit measures and with a wider social–ecological system through various ecological processes and socio-economic interactions. Current institutional interactions with positive effects on the management and governance are scarce, although several potential interactions may be developed. For the study area, any management action must recognize interferences from outside conditions and consider some of them (e.g., ecotourism management) as cross-cutting actions for the entire social–ecological system. We consider that institutional interactions and the development of social networks are opportunities to any collective effort aiming to improve governance of Islas Choros-Damas marine reserve. Communication of connections and interactions between marine protected areas and the wider social–ecological system (as described in this study) is proposed as a strategy to improve stakeholder participation in Chilean marine protected areas.     

Adapting to changing climate risk by local government in New Zealand: institutional practice barriers and enablers

Adaptation to climate change has been reviewed in several developed nations, but in none where consideration of the effects of climate change is required by statute and devolved to local government. We examine the role of institutional arrangements, the players operating under them, the barriers and enablers for adaptation decision-making in the developed nation of New Zealand. We examine how the roles and responsibilities between national, regional and local governments influence the ability of local government to deliver long-term flexible responses to changing climate risk. We found that the disciplinary practices of law, engineering and planning, within legal frameworks, result in the use of static mechanisms which create inflexible responses to changing risk. Several enablers are identified that could create greater integration between the different scales of government, including better use of national policy instruments, shared professional experience, standardised information collection and risk assessment methods that address uncertainties. The framing of climate risk as dynamic and changing that differentiates activities over their lifetime, development of mechanisms to fund transitions towards transformational change, are identified as necessary conditions for delivering flexible responses over time.     

Project coordinators’ views on climate adaptation costs and benefits – justice implications

ABSTRACT

As local climate adaptation activity increases, so does the number of questions about costs, benefits, financing and the role that economic considerations play in adaptation-related decision-making and policy. Through five cases, covering a range of climate risks and types of adaptation measures, this paper critically examines Swedish project coordinators’ perceptions of costs and benefits in already-implemented climate adaptation measures. Our study finds that project coordinators make use of different system boundaries – on temporal, geographical and administrative scales – in their cost/benefit evaluations, making the practice of determining adaptation costs arbitrary and hard to compare. We further demonstrate that the project coordinators interpret costs and benefits in a manner that downplays the intangible environmental and social costs and benefits arising from the adaptation measures, despite their own experience of how such measures negatively impact upon social value. The exclusion of social and environmental costs and benefits has severe implications for justice, as it can bias decisions against people and ecosystems that are affected negatively. Based on the findings, we propose three tentative social justice dilemmas in local climate adaptation planning and implementation: 1. Cost and benefit distribution across scales; 2. The identification and valuation of non-market effects; and 3. The equitable allocation of costs and benefits.     

Does Community-Based Conservation Shape Favorable Attitudes Among Locals? An Empirical Study from Nepal

Like many developing countries, Nepal has adopted a community-based conservation (CBC) approach in recent years to manage its protected areas mainly in response to poor park–people relations. Among other things, under this approach the government has created new “people-oriented” conservation areas, formed and devolved legal authority to grassroots-level institutions to manage local resources, fostered infrastructure development, promoted tourism, and provided income-generating trainings to local people. Of interest to policy-makers and resource managers in Nepal and worldwide is whether this approach to conservation leads to improved attitudes on the part of local people. It is also important to know if personal costs and benefits associated with various intervention programs, and socioeconomic and demographic characteristics influence these attitudes. We explore these questions by looking at the experiences in Annapurna and Makalu-Barun Conservation Areas, Nepal, which have largely adopted a CBC approach in policy formulation, planning, and management. The research was conducted during 1996 and 1997; the data collection methods included random household questionnaire surveys, informal interviews, and review of official records and published literature. The results indicated that the majority of local people held favorable attitudes toward these conservation areas. Logistic regression results revealed that participation in training, benefit from tourism, wildlife depredation issue, ethnicity, gender, and education level were the significant predictors of local attitudes in one or the other conservation area. We conclude that the CBC approach has potential to shape favorable local attitudes and that these attitudes will be mediated by some personal attributes.     

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.