The use of recreation planning tools in U.S. Forest Service NEPA assessments

U.S. Forest Service managers are required to incorporate social and biophysical science information in planning and environmental analysis. The use of science is mandated by the National Environmental Policy Act, the National Forest Management Act, and U.S. Forest Service planning rules. Despite the agency’s emphasis on ‘science-based’ decision-making, little is known about how science is actually used in recreation planning and management. This study investigated the perceptions of Forest Service interdisciplinary (ID) team leaders for 106 NEPA projects dealing with recreation and travel management between 2005 and 2008. Our survey data show how managers rate the importance of social and biophysical science compared to other potential ‘success factors’ in NEPA assessments. We also explore how team leaders value and use multi-disciplinary tools for recreation-related assessments. Results suggest that managers employ a variety of recreation planning tools in NEPA projects, but there appears to be no common understanding or approach for how or when these tools are incorporated. The Recreation Opportunity Spectrum (ROS) was the most frequently used planning tool, but the Visitor Experience and Resource Protection (VERP) framework was the most consistently valued tool by those who used it. We recommend further evaluation of the strengths and weaknesses of each planning tool and future development of procedures to select appropriate planning tools for use in recreation-related NEPA assessments.     

An evaluation of resource inventory and monitoring program used in national forest planning

The National Forest Management Act (1976) specifies that multiresource inventories be conducted to provide baseline data for development and, later, monitoring of national forest management plans. This mandate entails the most ambitious and complex resource planning effort ever attempted. In this paper we evaluate the structure and use of current inventory-monitoring programs and recommend a framework for gathering data to improve national forest planning. Current national guidelines are general and provide only basic directions to forest-level planners. Forest inventories have traditionally concentrated on timber. Although these inventories are often well designed, the questions we are now asking about forest resources have outgrown these methods. Forest management is impeded by general confusion over definitions of resources and the interactions among them. We outline a simple classification scheme that centers on identification of basic ecosystem elements that can be readily measured. Furthermore, spatial and temporal scales must be considered in the design of inventory-monitoring programs. The concept of ecological indicators is reviewed, and caution is advised in their use. Inventory-monitoring programs should be goal-directed and based on as rigorous a statistical design as possible. We also review fundamental issues of variable selection, validation, and sampling bias. We conclude by developing a flexible inventory-monitoring program that is designed to provide information on individual characteristics of the environment, rather than being based on fixed definitions of resources.     

Risk Tradeoffs in Adaptive Ecosystem Management: The Case of the U.S. Forest Service

Natural resource planning processes on public lands in the United States are driven in large part by the requirements of the National Environmental Policy Act (NEPA), which dictates general processes for analyzing and disclosing the likely impacts of proposed actions. The outcomes of these processes are the result of multiple factors, many related to the manifold smaller incremental decisions made by agency personnel directing the processes. Through interviews with decision makers, team leaders, and team members on five NEPA processes within the U.S. Forest Service, this study examines those incremental decisions. Risk, in particular external relationship risk, emerged as a dominant lens through which agency personnel weigh and make process-related decisions. We discuss the tradeoffs associated with agency actors’ emphasis on this form of risk and their potential implications for adaptive ecosystem management and organizational performance.     

Why Won’t They Come? Stakeholder Perspectives on Collaborative National Forest Planning by Participation Level

Collaboration has taken root in national forest planning, providing expanded opportunities for stakeholder participation in decision-making, but are these processes considered meaningful by key stakeholders? Do the processes result in increased participation by key stakeholders? We present results of a study of stakeholder perspectives of a collaborative planning process on the Grand Mesa, Uncompahgre, and Gunnison National Forests in Western Colorado, U.S.A. The stakeholders were stratified by participation levels in order to explore a possible relationship between participation and perceptions of the collaborative process. We used a Q-methodology approach to compare and contrast perspectives across participant levels in the North Fork Valley Landscape Working Group process. The results demonstrate four distinct perspectives on the collaborative process: 1) The collaborative process is valued by the Forest Service and will directly influence planning decisions; 2) The Forest Service, the collaborative process, and other stakeholders are not to be trusted; 3) The collaborative process is most effective when emphasizing place-specific dialogue that primarily involves stakeholders educating the Forest Service about issues; and 4) Forest planning involves issues requiring the application of scientific knowledge and expertise rather than collaboration. These perspectives were not strongly associated with participation levels, with time constraint being the primary mediating factor affecting participation. There are several possible actions policymakers and planners can take to enhance participation and overcome high rates of nonparticipation.     

From the office to the field: Areas of tension and consensus in the implementation of the National Environmental Policy Act within the US Forest Service

We conducted an online survey (n = 3321) followed by five focus groups with Forest Service employees involved in compliance with the National Environmental Policy Act (NEPA) to explore agency views of how NEPA should be implemented within the agency. We filter these perceptions through the lenses of different functional groups within the agency, each with its own role in agency compliance with NEPA and its own suite of perceived accountabilities. In doing so, we uncover areas of consensus regarding valued practices as well as tensions between employees with different roles in NEPA compliance. General consensus exists regarding the importance of the effective functioning of interdisciplinary teams, but opinions about what constitutes an effective team vary. Findings suggest that NEPA serves as a playing field for competing accountabilities felt by line officers, disciplinary specialists, and advisory personnel within the agency, as each attempts to exert influence over NEPA processes and their outcomes.     

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.     

我国地方生态环境规划院（所）建设情况与发展展望

环境规划队伍是环保铁军的重要一员,随着生态文明建设和生态环境保护工作不断深入,我国环境规划院（所）建设逐步从无到有,人才队伍逐步发展壮大,支撑生态环境保护综合决策能力日益提高。本研究面向各省（区、市）及部分副省级城市环境规划院（所）开展了问卷调查,分析我国环境规划研究队伍和机构建设现状,围绕管理制度、市场发展、人才培养、交流合作等方面对未来发展进行展望。     

The Relationship of Ecosystem Management to NEPA and Its Goals

/ The National Environmental Policy Act of 1969 (NEPA) was intended to promote a systematic, comprehensive, interdisciplinary approach to planning and decisionmaking, including the integration of the natural and social sciences and the design arts. NEPA critics have cited three key shortcomings in its implementation: (1) a lack of engagement with the NEPA process early in the planning process through interdisciplinary collaboration; (2) a lack of rigorous science and the incorporation of ecological principles and techniques; and (3) a lack of emphasis on the Act's substantive goals and objectives. In recent years and independent of NEPA, a policy of ecosystem management has been developed, which represents a fundamental change from a fragmented, incremental planning and management approach to a holistic, comprehensive, interdisciplinary land and resource management effort. We postulate that by incorporating ecosystem management principles in their planning and decisionmaking, federal agencies can address the shortcomings in NEPA implementation and move closer to NEPA's intent. A case analysis of EISs prepared by the USDA Forest Service before and after adopting an ecosystem management approach supports our hypothesis.     

The meaning of the National Environmental Policy Act within the U.S. Forest Service

We conducted a survey of 3321 Forest Service employees involved in compliance with the National Environmental Policy Act (NEPA) followed by five focus groups to investigate agency views of the purpose of agency NEPA processes and their appropriate measures of success. Results suggest the lack of a unified critical task for Forest Service NEPA processes and that employees' functions relevant to NEPA influence their views of its meaning. Compared to other agency personnel, members of interdisciplinary teams who carry out most day-to-day NEPA-related tasks placed greater emphasis on minimizing negative environmental and social impacts, satisfying multiple stakeholders and avoiding litigation and appeals. Line officers, who typically serve as the decision makers following NEPA processes, placed greatest emphasis on efficient implementation and least emphasis on minimizing impacts. Advisory personnel placed greatest emphasis on effective disclosure of analyses and decision-making. We discuss the structural origins of these differences as well as their implications.     

Opportunity costs of implementing forest plans

Intellectual concern with the National Forest Management Act of 1976 has followed a course emphasizing the planning aspects of the legislation associated with the development of forest plans. Once approved, however, forest plans must be implemented. Due to the complex nature of the ecological systems of interest, and the multiple and often conflicting desires of user clientele groups, the feasibility and costs of implementing forest plans require immediate investigation. For one timber sale on the Coconino National Forest in Arizona, forest plan constraints were applied and resulting resource outputs predicted using the terrestrial ecosystem analysis and modeling system (TEAMS), a computer-based decision support system developed at the School of Forestry, Northern Arizona University, With forest plan constraints for wildlife habitat, visual diversity, riparian area protection, and soil and slope harvesting restrictions, the maximum timber harvest obtainable was reduced 58% from the maximum obtainable without plan constraints.Former Graduate Student at Northern Arizona University.     

Managing Public Forests: Understanding the Role of Collaborative Planning

/ As federal land management agencies such as the USDA Forest Service increasingly choose to implement collaborative methods of public participation, research is needed to evaluate the strengths and weaknesses of the technique, to identify barriers to effective implementation of collaborative processes, and to provide recommendations for increasing its effectiveness. This paper reports on the findings of two studies focused on the experiences of Forest Service employees and their external partners as they work to implement collaborative planning processes in national forest management. The studies show both similarities and differences between agency employees and their partners in terms of how they evaluate their collaborative experiences. The studies reveal that both Forest Service employees and external partners are supportive of collaborative planning and expect it to continue in the future, both see the trust and relationships built during the process as being its greatest benefit, and both see the Forest Service's organizational culture as the biggest barrier to effective collaborative efforts. The groups differed in terms of evaluating each other's motivation for participating in the process and in whether the process was a good use of time and resources, with external partners seeing it as too drawn out and expensive. The paper concludes with a discussion of the policy implications and changes necessary to increase the effectiveness of collaborative efforts within the Forest Service and other federal land management agencies.KEY WORDS: Public land management; Collaborative planning; National forests; Public participation     

Evaluating environmental protection in post-Hurricane Katrina plans in Mississippi

Immediately following Hurricane Katrina, the Mississippi Governor's Commission for Recovery, Rebuilding and Renewal provided planning teams to work with coastal communities to prepare long-range rebuilding plans followed by further community-initiated plans. Eighteen months after Katrina, this paper examines the degree to which environmental protection has been incorporated into the long-range plans developed in Harrison County, Mississippi. This study finds that environmental protection has not been adequately integrated into the plans. It concludes by offering recommendations on how these communities can improve their plans relative to environmental protection measures as they move into their next phase of planning.     

THE DEVELOPMENT OF A PLAN OF STUDY – AN INTERAGENCY APPROACH TO MULTIOBJECTIVE PLANNING AND EVALUATION OF WATER AND LAND RESOURCE USE1

ABSTRACT The paper presents a systems approach for planning and evaluating alternative plans for resource use incorporating the concepts of multiobjective planning and evaluation (MOPE). The need for multidisciplinary input and strong interagency cooperation in planning for resource use is related to the logical and orderly completion of the planning steps. The paper briefly describes MOPE, emphasizing two important concepts: (1) the relationship of the study problems and objectives to national social objectives, and (2) the display of alternative solutions showing tradeoffs. Several important characteristics of a plan of study which implements MOPE are presented and discussed. A proposed MOPE analytical system is discussed in detail. The MOPE analytical system is divided into eight interdependent subsystems that describe data collection, use, analysis, and results. A linear program (L.P.) model is proposed to analyze the present and future demand relationships for natural resources. The model will also evaluate the interaction of agriculture, forestry, and recreation with the resource base of the basin, considering National Economic Development, Environmental Quality, and Regional Development.     

Community wildfire protection planning in the American West: homogeneity within diversity?

As large wildfires have become common across the American West, federal policies such as the Healthy Forests Restoration Act have empowered local communities to plan for their own wildfire protection. Here, we present an analysis of 113 community wildfire protection plans from 10 western states where large fires have recently occurred. These plans contain wide diversity in terms of specific plan elements and dimensions, yet less diversity in the paradigms underlying their fire protection approaches. These patterns held true across both plans constructed solely by local actors as well as those constructed with the help of outside consultant expertise.     

Integrated resource management systems: Coupling expert systems with data-base management and geographic information systems

Decision making in natural resource management is becoming increasingly information-intensive because of the rising public concerns about resource conservation and environmental quality. The volume of information that must be analyzed and the complexity of the decision-making process demands that computerized systems be developed to provide decision support services. An integrated systems approach that couples data-base management, geographic information systems, and expert systems is needed. We refer to such an approach as integrated resource management automation (IRMA) and describe a prototype system that is currently being tested in the Nicolet National Forest. This type of information system is likely to play an increasingly important role in the management of natural resources in the future.     

A riparian wildlife habitat evaluation scheme developed using GIS

Recent Italian laws mandate the consideration of environmental factors in local plans, especially at the provincial level of government. The plan for the province of Cremona in northern Italy illustrates the integration of the environment in provincial-level planning. The Cremona plan was developed through an ecological planning approach that occurred from 1994 to 1998. As part of this process, the planning team designed an environmental sustainability index. This index was integrated with an environmental capability analysis. To improve the quality of the Cremona landscape, the planning team developed an ecological network. This network seeks to weave together the natural areas of the province, especially by connecting provincial parks to regional river parks throughout Lombardy. The experience of the Cremona provincial plan has implications for environmental management elsewhere in Italy, Europe, and abroad.     

Social learning in a policy-mandated collaboration: community wildfire protection planning in the eastern United States

Policies such as the US Healthy Forests Restoration Act (HFRA) mandate collaboration in planning to create benefits such as social learning and shared understanding among partners. However, some question the ability of top-down policy to foster successful local collaboration. Through in-depth interviews and document analysis, this paper investigates social learning and transformative learning in three case studies of Community Wildfire Protection Planning (CWPP), a policy-mandated collaboration under HFRA. Not all CWPP groups engaged in social learning. Those that did learned most about organisational priorities and values through communicative learning. Few participants gained new skills or knowledge through instrumental learning. CWPP groups had to commit to learning, but the design of the collaborative-mandate influenced the type of learning that was most likely to occur. This research suggests a potential role for top-down policy in setting the structural context for learning at the local level, but also confirms the importance of collaborative context and process in fostering social learning.     

Effect of public opinion on national park planning in Turkey: A case study

National park plans are mainly prepared by a central planning team of the National Parks of Turkey. In this article, a model is presented that proposes a different approach to preparing national park plans. The study is based on a questionnaire distributed among the residents of the villages just outside a selected national park in Turkey and the relevant local and general authorities who are interested in the national park in their region, to find out the effect of public opinion on national park planning. Four basic strategies that represent the four main alternative approaches to forming policies in the planning of the park were identified. Respondents were asked to choose one and to suggest their own ideas. As this is a first attempt of such a study in Turkey, the results of the survey have been very encouraging. Therefore, this paper suggests that the assessment of public opinion should be borne in mind throughout the planning process in Turkey.     

Analysis and application of forest fuels data

Recent advances in fire modeling permit quantitative estimations of fire behavior from quantitative inputs that describe the fuel array and conditions, such as weather and site data, under which it will burn. This paper describes the collection, analysis, and stratification of flammable forest fuels data for coniferous forest ecosystems in Montana and then illustrates the resource management application of these data in three areas: the development of the fire behavior model, a determination of the model's sensitivity to input errors as reflected by fire behavior prediction errors, and the development of a fire hazard simulator (TAROT). A new integrated stand simulator, GANDALF, is highlighted.Conclusions center on the need to integrate fire management into the land management planning decision-making process.This work was supported by a USDI National Park Service contract to Gradient Modeling, Inc., a nonprofit research foundation devoted to ecologic research and resource management applications, and by cooperative aid agreements between Gradient Modeling, Inc. and the USDA Forest Service, Intermountain Forest and Range Experiment Station, Northern Forest Fire Laboratory (Fire in Multiple Use Management, R, D, and A Program).     

Ecological planning: A review

Beginning with the passage of the National Environmental Policy Act in 1969, the federal government of the United States has enacted numerous pieces of legislation intended to protect or conserve the environment. Other national governments have also enacted environmental legislation during the past two decades. State and local governments have also adopted policies concerned with environmental planning and management. Multiple laws and overlapping governmental agency responsibilities have confused development and resource management efforts. A comprehensive methodology that integrates the legal mandates and the agency missions into a common and unified framework is needed. Ecological planning offers such a method. Application of the method allows planners and resource managers to better understand the nature and character of the land and/or resource and therefore make better decisions about its appropriate use or management. The steps taken in an ecological planning process—1) goal setting, 2) inventory and analysis of data, 3) suitability analysis, 4) developing alternatives, 5) implementation, 6) administration, and 7) evaluation—are outlined and explained. Hand-drawn overlays and computer programs as techniques for handling ecological planning information are compared. Observations and suggestions for further research are offered.