Conflicting Frames about Ownership and Land Use Drive Wildfire Ignitions in a Protected Conservation Area

The creation of protected conservation areas may result in protracted conflicts between stakeholders. In this study we examine the drivers of anthropogenic wildfire ignitions in the National Park of “los Alerces” (NPA) in Patagonia, Argentina. The NPA was established in 1937 to protect the native “andino-patagónico” forests from wildfires as well as preserving its scenic beauty and native flora and fauna. At the time of its creation state authorities prohibited all extractive human activities in the “intangible”—fully protected—“National Park” section, while other regulated extractive and ecotourism activities were allowed to continue in the “Natural Reserve” section in an effort to accommodate the historical entitlements of the displaced populations of “pobladores” (settlers) that had been living in the NPA for over a century. Here we interviewed the main stakeholder groups—“pobladores”, forest rangers and administrators, ecolodge owners and angler club members—to identify the drivers of wildfire ignitions in the park. Wildfires have been singled out by state authorities as the main threat to the NPA though considerable scientific uncertainty exists regarding their complex ecological effects. This study argues, based on the human and biophysical system data collected, that two conflicting cultural frames exist within the NPA that provide the necessary backdrop for understanding the drivers of wildfire ignitions. In turn, these findings raise puzzling dilemmas for the main theoretical approaches that have been used to inform and design conflict management strategies in protected conservation areas.     

Environmental Equity and the Role of Public Policy: Experiences in the Rijnmond Region

This Φ Ψ study of environmental equity uses secondary quantitative data to analyze socioeconomic disparities in environmental conditions in the Rijnmond region of the Netherlands. The disparities of selected environmental indicators—exposure to traffic noise (road, rail, and air), NO₂, external safety risks, and the availability of public green space—are analyzed both separately and in combination. Not only exposures to environmental burdens (“bads”) were investigated, but also access to environmental benefits (“goods”). Additionally, we held interviews and reviewed documents to grasp the mechanisms underlying the environmental equity situation, with an emphasis on the role of public policy. Environmental equity is not a priority in public policy for the greater Rotterdam region known as the Rijnmond region, yet environmental standards have been established to provide a minimum environmental quality to all local residents. In general, environmental quality has improved in this region, and the accumulation of negative environmental outcomes (“bads”) has been limited. However, environmental standards for road traffic noise and NO₂ are being exceeded, probably because of the pressure on space and the traffic intensity. We found an association of environmental “bads” with income for rail traffic noise and availability of public green space. In the absence of regulation, positive environmental outcomes (“goods”) are mainly left up to market forces. Consequently, higher-income groups generally have more access to environmental “goods” than lower-income groups.     

Human dignity and the dignity of creatures

In their report for the Swiss government on the notion of the dignity of creatures, Philipp Balzer, Klaus-Peter Rippe, and Peter Schaber analyze the relationship between human dignity and the dignity of creatures, taking them as two categorically different concepts. Human dignity is defined as the “moral right not to be humiliated,” whereas the dignity of creatures is taken to be “the inherent value of non-human living beings.” To my mind there is no need to draw a categorical distinction between the two concepts. Both notions could be brought together under an all-encompassing concept of the inherent value of living beings, humans and non-humans alike, a concept one could name “the dignity of living beings.” Indeed, this very notion underlies the position taken in the report, although this is not made explicit by the authors themselves. As the aim of the paper is only to clarify the concepts used, I do not go beyond this “internal” critique of their position, i.e., I don’t assess how the claims articulated via these concepts — the claim that humans and/or creatures have an inherent value consisting in a supposed intrinsic good — are to be justified, although I myself would be rather skeptical that this might be successfully done.     

The ethics and politics of the caged layer hen debate in New Zealand

Changes in attitudes toward animal welfare, with a greater emphasis on the importance of allowing animals to express normal patterns of behavior has led to an examination of the practice of keeping hens in battery cages. There is widespread scientific consensus that the conditions of confinement and the barren nature of battery cages severely restrict hens’ behavioral repertoire, and are thus detrimental to their welfare. The New Zealand Animal Welfare Act 1999, stipulates that animals must have “the opportunity to display normal patterns of behaviour.” In spite of this provision, the New Zealand government has not acted in phasing out battery cages, arguing instead that there is insufficient evidence that welfare will be improved by a phase-out. There is evidence of strong industry pressure on the government, and the use of tactics common in policy considerations where changes are resisted by powerful interests. It is important that policy processes are better managed so that welfare changes are based on both public preferences and scientific knowledge, and ways of doing this are discussed.     

Norton and Passmore on Valuing Nature

Norton argues on pragmatic “Deweyan” grounds that we should cease to ask scientists for value neutral definitions of “sustainability,” developed independently of moral and social values, to guide our environmental policy making debates. “Sustainability,” like human “health,” is a normative concept from the start—one that cannot be meaningfully developed by scientists or economists without input by all the stake holders affected. While I endorse Norton’s approach, I question his apparent presumption that concern for sustainability for the future is at odds with and ought to trump concern for enhancement in the present of public opportunities to access the goods nature represents. I argue that the two are not separable in practice. I argue for Passmore’s position that unless we take care to enhance equitable access to the good and services nature represents in the present, we cannot succeed in promoting sustainability for future generations.     

Drawing the Battle Lines: Tracing the “Science War” in the Construction of the Chloroform and Human Health Risks Debate

The United States Environmental Protection Agency (US EPA) and the Chlorine Chemistry Council, the Chemical Manufacturers Association, and others have been embroiled in a legal challenge concerning the US EPA's “reversal” regarding the scientific assessment of chloroform's carcinogenicity. This issue arose during the US EPA's November 1998 promulgation of a Maximum Contaminant Level Goal for chloroform in the Stage 1 Final Rules for Disinfectants and Disinfection Byproducts in drinking water. In this paper we adopt a claimsmaking approach: to trace the development and outcome of the chloroform court challenge in the USA, to examine the construction of scientific knowledge claims concerning chloroform risk assessments, and to investigate how different interpretations of scientific uncertainties regarding the evidence are contested when such uncertainties are brought into a regulatory and judicial arena. This “science war” (Chlorine Chemistry Council and others v. US EPA and others) took place in the US Court of Appeals for the District of Columbia Circuit. The scientific “authority” in the construction of scientific claims in this dispute is based on the International Life Sciences Institute expert panel report on chloroform. Examining these science wars is important because they signal critical shifts in science policy agendas. The regulatory outcome of the chloroform science war in the United States can have profound implications for the construction and acceptance of scientific claims regarding drinking water in other jurisdictions (e.g., Canada). In this challenge, we argue that the actors involved in the dispute constructed “boundaries” around accepted and credible scientific claims.     

The Scaling of Water Governance Tasks: A Comparative Federal Analysis of the European Union and Australia

Conflicts over how to “scale” policy-making tasks have characterized environmental governance since time immemorial. They are particularly evident in the area of water policy and raise important questions over the democratic legitimacy, economic efficiency and effectiveness of allocating (or “scaling”) tasks to some administrative levels as opposed to others. This article adopts a comparative federalism perspective to assess the “optimality” of scaling—either upward or downward—in one issue area, namely coastal recreational water quality. It does so by comparing the scaling of recreational water quality tasks in the European Union (EU) and Australia. It reveals that the two systems have adopted rather different approaches to scaling and that this difference can partly be accounted for in federal theoretical terms. However, a much greater awareness of the inescapably political nature of scaling processes is nonetheless required. Finally, some words of caution are offered with regard to transferring policy lessons between these two jurisdictions.     

Across Space <Emphasis Type="Italic">and</Emphasis> Time: Social Responses to Large-Scale Biophysical Systems

The conceptual rubric of ecosystem management has been widely discussed and deliberated in conservation biology, environmental policy, and land/resource management. In this paper, I argue that two critical aspects of the ecosystem management concept require greater attention in policy and practice. First, although emphasis has been placed on the “space” of systems, the “time”—or rates of change—associated with biophysical and social systems has received much less consideration. Second, discussions of ecosystem management have often neglected the temporal disconnects between changes in biophysical systems and the response of social systems to management issues and challenges. The empirical basis of these points is a case study of the “Crown of the Continent Ecosystem,” an international transboundary area of the Rocky Mountains that surrounds Glacier National Park (USA) and Waterton Lakes National Park (Canada). This project assessed the experiences and perspectives of 1) middle- and upper-level government managers responsible for interjurisdictional cooperation, and 2) environmental nongovernment organizations with an international focus. I identify and describe 10 key challenges to increasing the extent and intensity of transboundary cooperation in land/resource management policy and practice. These issues are discussed in terms of their political, institutional, cultural, information-based, and perceptual elements. Analytic techniques include a combination of environmental history, semistructured interviews with 48 actors, and text analysis in a systematic qualitative framework. The central conclusion of this work is that the rates of response of human social systems must be better integrated with the rates of ecological change. This challenge is equal to or greater than the well-recognized need to adapt the spatial scale of human institutions to large-scale ecosystem processes and transboundary wildlife.     

Images of Environmental Management: Competing Metaphors in Focus Group Discussions of Swedish Environmental Quality Objectives

In managing environmental problems, several countries have chosen the management by objectives (MBO) approach. This paper investigates how focus group participants from the Swedish environmental administration used metaphors to describe the mode of organization needed to attain environmental objectives. Such analysis can shed light on how an MBO system is perceived by actors and how it works in practice. Although the Swedish government intended to stimulate broad-based cooperation among many actors, participants often saw themselves as located at a certain “level,” i.e., “higher” or “lower,” in the MBO system—that is, their conceptions corresponded to a traditional, hierarchical interpretation of MBO. Prepositions such as “in” and “out” contributed to feelings of inclusion and exclusion on the part of MBO actors. However, horizontal metaphors merged with vertical ones, indicating ongoing competition for the right to interpret how the system of environmental objectives should best be managed. The paper concludes that any organization applying MBO could benefit from discussing alternate ways of talking and thinking about its constituent “levels.”     

Learning about Environments: The Significance of Primal Landscapes

The way we learn about our environments—be they farms, forests, or tribal lands—has implications for the formulation of environmental policy. This article presents the findings of how residents learned about their environments in two rural case studies conducted in northern Queensland and relates these to the concept of “primal landscapes,” which is concerned with the interaction that occurs between children and the environments in which they mature. Rather than focusing specifically on built environments or natural environments, the article draws on an approach that conceptualizes environment as meaning-laden places in which we live and work, which integrate social, cultural, biological, physical, and economic dimensions. In drawing insights for environmental policy, the article draws attention to the timing of policy interventions, the significance of experiential environmental education, the potential to learn from place-based festivals, and the importance of learning from extreme events such as fires and floods.     

Regionalization of Municipal Solid Waste Management in Japan: Balancing the Proximity Principle with Economic Efficiency

The proximity principle—disposing of waste close to its origin—has been a central value in municipal solid waste (MSW) management in Japan for the last 30 years and its widespread adoption has helped resolve numerous “Not in My Backyard” issues related to MSW management. However, MSW management costs have soared, in large part because of aggressive recycling efforts and because most MSW is incinerated in a country that has scarce landfill capacity. In addition, smaller, less sophisticated incinerators have been closed because of high dioxin emissions. Rising costs combined with the closure of smaller incinerators have shifted MSW management policy toward regionalization, which is the sharing of waste management facilities across municipalities. Despite the increased use of regionalized MSW facilities, the proximity principle remains the central value in Japanese MSW management. Municipal solid waste management has become increasingly regionalized in the United States, too, but different driving forces are at work in these two countries. The transition to regionalized MSW management in Japan results from strong governmental control at all levels, with the central government providing funds and policy direction and prefectures and municipalities being the primary implementing authorities. By contrast, market forces are a much stronger force with US MSW management, where local governments—with state government oversight—have primary responsibility for MSW management. We describe recent changes in Japan’s MSW programs. We examine the connections between MSW facility regionalization, on the one hand, and, on the other hand, the proximity principle, coordination among local governments, central government control, and financing mechanisms.     

Public Sector Reform and Governance for Adaptation: Implications of New Public Management for Adaptive Capacity in Mexico and Norway

Although many governments are assuming the responsibility of initiating adaptation policy in relation to climate change, the compatibility of “governance-for-adaptation” with the current paradigms of public administration has generally been overlooked. Over the last several decades, countries around the globe have embraced variants of the philosophy of administration broadly called “New Public Management” (NPM) in an effort to improve administrative efficiencies and the provision of public services. Using evidence from a case study of reforms in the building sector in Norway, and a case study of water and flood risk management in central Mexico, we analyze the implications of the adoption of the tenets of NPM for adaptive capacity. Our cases illustrate that some of the key attributes associated with governance for adaptation—namely, technical and financial capacities; institutional memory, learning and knowledge; and participation and accountability—have been eroded by NPM reforms. Despite improvements in specific operational tasks of the public sector in each case, we show that the success of NPM reforms presumes the existence of core elements of governance that have often been found lacking, including solid institutional frameworks and accountability. Our analysis illustrates the importance of considering both longer-term adaptive capacities and short-term efficiency goals in public sector administration reform.     

Green Space Changes and Planning in the Capital Region of China

Green space plays an important role in complex urban ecosystems and provides significant ecosystem services with environmental, aesthetic, recreational and economic benefits. Beijing is the capital city of China and has a large population of about 15.81 million. Construction of green spaces is an important part of sustainable development in Beijing. To attain the sustainable development of Beijing as a capital city, an international city, a historical cultural city, and a living amenity city, this article attempts to develop a comprehensive plan of green space development both at the municipal and regional levels. At the municipal level of Beijing, based on the study of green space changes, and taking physical geographic conditions and historical context into account, we propose to establish green barriers in the mountainous area, and plan a comprehensive green space pattern composed of one city, two rings, three networks, eight water areas, nine fields, and several patches in the plain area. At the regional level of the Capital Circle Region, integrating the characteristics and causes of main environmental issues, we design a macroscopic pattern—“barriers by mountains in the northwest,” “seaward open spaces in the southeast,” “grassland-forest-field-coast zones,” and “green-blue symphony”—for ecological restoration and green space construction. Finally, we discuss the principles necessary to implement green space planning considering adaptation to local conditions, composite function exploitation, interregional equity and integrated planning.     

The Concept of Farm Animal Welfare: Citizen Perceptions and Stakeholder Opinion in Flanders, Belgium

Several attempts to conceptualize farm animal welfare have been criticized for diverging reasons, among them often the failure to incorporate the public concern and opinion. This paper’s objective is to develop a conception of farm animal welfare that starts from the public’s perception and integrates the opinion of different stakeholder representatives, thus following a fork-to-farm approach. Four qualitative citizen focus group discussions were used to develop a quantitative questionnaire, which has been completed by a representative sample of Flemish citizens (n = 459). Exploratory and confirmatory factor analyses were applied to develop a conception of farm animal welfare starting from an extended list of aspects that relate to animal production and associate with farm animal welfare in the public’s perception. In depth interviews with stakeholder representatives were used to match and adapt the structure of the animal welfare conception model. The resulting conception revealed seven dimensions grouped in two different levels. Three dimensions were animal-based: “Suffering and Stress,” “Ability to Engage in Natural Behavior,” and “Animal Health.” Four dimensions were resource-based: “Housing and Barn climate,” “Transport and Slaughter,” “Feed and Water,” and “Human-Animal Relationship.” This conception is distinct from earlier attempts since it is based on public perceptions; it addresses the opinion of different stakeholders, and it distinguishes empirically between animal-based and resource-based dimensions in the conceptualization of farm animal welfare. The relevancy of a popular definition is supported by the present demand oriented economy, in which animal welfare is a non-trade concern, and mainly left to the market where consumers still mainly act as individuals who calculate and weigh pros and cons.     

A New Format for Learning about Farm Animal Welfare

Farm animal welfare is a knowledge domain that can be regarded as a model for new ways of organizing learning and making higher education more responsive to the needs of society. Global concern for animal welfare has resulted in a great demand for knowledge. As a complement to traditional education in farm animal welfare, higher education can be more demand driven and look at a broad range of methods to make knowledge available. The result of an inventory on “farm animal welfare,” “e-learning,” “learning resources,” and “open educational resources” in three different search engines is presented. A huge amount of information on animal welfare is available on the Internet but many of the providers lock in the knowledge in a traditional course context. Only a few universities develop and disseminate open learning resources within the subject. Higher education institutions are encouraged to develop open educational resources in animal welfare for the benefit of teachers, students, society, and, indirectly, animal welfare.     

Policy Development for Biodiversity Offsets: A Review of Offset Frameworks

Biodiversity offsets seek to compensate for residual environmental impacts of planned developments after appropriate steps have been taken to avoid, minimize or restore impacts on site. Offsets are emerging as an increasingly employed mechanism for achieving net environmental benefits, with offset policies being advanced in a wide range of countries (i.e., United States, Australia, Brazil, Colombia, and South Africa). To support policy development for biodiversity offsets, we review a set of major offset policy frameworks—US wetlands mitigation, US conservation banking, EU Natura 2000, Australian offset policies in New South Wales, Victoria, and Western Australia, and Brazilian industrial and forest offsets. We compare how the frameworks define offset policy goals, approach the mitigation process, and address six key issues for implementing offsets: (1) equivalence of project impacts with offset gains; (2) location of the offset relative to the impact site; (3) “additionality” (a new contribution to conservation) and acceptable types of offsets; (4) timing of project impacts versus offset benefits; (5) offset duration and compliance; and (6) “currency” and mitigation replacement ratios. We find substantial policy commonalities that may serve as a sound basis for future development of biodiversity offsets policy. We also identify issues requiring further policy guidance, including how best to: (1) ensure conformance with the mitigation hierarchy; (2) identify the most environmentally preferable offsets within a landscape context; and (3) determine appropriate mitigation replacement ratios.     

The reintroduction and reinterpretation of the wild

This paper is concerned with changing social representations of the “wild,” in particular wild animals. We argue that within a contemporary Western context the old agricultural perception of wild animals as adversarial and as a threat to domestication, is being replaced by an essentially urban fascination with certain emblematic wild animals, who are seen to embody symbols of naturalness and freedom. On closer examination that carefully mediatized “naturalness” may be but another form of domestication. After an historical overview of the human-animal, domestic-wild construction, an anthropological approach is used to interpret the social representation of wild animals held by different social actors — farmers, hunters, and tourists — within the context of an inhabited National Park, that of the Cévennes in south east France. Within the Park, the domestic and the wild, along with agriculture, hunting, conservation, re-introduced wild animals, and tourists cohabit. It is argued that changes in the representation of “wildness” may well be an important indicator of changes in the social representation of nature.     

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.     

Science, Policy, Stakeholders, and Fish Consumption Advisories: Developing a Fish Fact Sheet for the Savannah River

In recent years there has been a startling rise in the issuance of fish consumption advisories. Unfortunately, compliance by the public is often low. Low compliance can be due to a number of factors, including confusion over the meaning of advisories, conflicting advisories issued by different agencies, controversies involving health benefits versus the risks from consuming fish, and an unwillingness to act on the advisories because of personal beliefs. In some places, such as along the Savannah River, one state (South Carolina) had issued a consumption advisory while the other (Georgia) had not, although at present, both states now issue consumption advisories for the Savannah River. Herein we report on the development of a fish fact sheet to address the confusing and conflicting information available to the public about consuming fish from the Savannah River. The process involved interviewing fishers to ascertain fishing and consumption patterns, evaluating contaminant levels and exposure pathways, discussing common grounds for the provision of information, and consensus-building among different regulatory agencies (US Environmental Protection Agency, South Carolina Department of Health and Environmental Control, Georgia Department of Natural Resources) and the Department of Energy. Consensus, a key ingredient in solving many different types of “commons” problems, was aided by an outside organization, the Consortium for Risk Evaluation with Stakeholder Participation (CRESP). The initial role for CRESP was to offer scientific data as a basis for groups with different assumptions about risks to reach agreement on a regulatory response action. The process was an example of how credible science can be used to implement management and policies and provide a basis for consensus-building on difficult risk communication issues. The paper provides several lessons for improving the risk process from stakeholder conflicts, through risk assessment, to risk management. It also suggests that consensus-building and risk communication are continuing processes that involve assimilation of new information on contaminants and food-chain processes, state and federal law, public policy, and public response.     

Legitimacy &; Canadian Farm Animal Welfare Standards Development: The Case of the National Farm Animal Care Council

Awareness of farm animal welfare issues is growing in Canada, as part of a larger food movement. The baseline Canadian standards for farm animal welfare—the Recommended Codes of Practice for the Care and Handling of Farm Animals—are up for revision. The success of these standards will depend in part on perceived legitimacy, which helps determine whether voluntary code systems are adopted, implemented, and accepted by target audiences. In the context of the Codes, legitimacy will also hinge on whether the standards-developers marshal narratives about farm animals that accord with their audiences’ expectations. The aim of this paper is to catalogue factors that influence legitimacy in farm animal welfare standard-setting, including which narratives of animal welfare are emphasized by standard-setters. Drawing upon the example of the baseline Canadian standards, and the National Farm Animal Care Council, the paper will present a theoretical and methodological framework for analyzing legitimacy in the context of animal welfare standards-development and discuss associated policy considerations.