Collaborative Watershed Planning in Washington State: Implementing the Watershed Planning Act

In 1998 the Washington State Legislature enacted the Watershed Planning Act, which encourages local governments to develop watershed plans using collaborative processes. Objectives of the statute are to address water resource and water quality issues, salmon habitat needs and to establish instream flows. This exploratory study sought to examine two aspects of how local governments are implementing the Act: challenges and benefits associated with collaborative watershed planning and the capacity of local governments to conduct collaborative watershed planning. Using documents and interview data from four cases, it was found that all planning groups experience similar challenges, although newer planning groups experienced more challenges than groups with previous planning experience. Challenges include issues surrounding the collaborative process, interagency co-ordination and trust. Local governments struggle with building capacity to plan, particularly in the areas of funding, technical expertise, incentives for participation, adequate time to conduct planning and questions regarding appropriate scale and scope of their planning efforts. Despite the challenges, collaborative watershed planning is well underway, with more than 37 planning units conducting planning under the Act.     

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     

IntergovernmentalEnvironmental Planning: Addressing the Commitment Conundrum

Public policies aimed at environmental problems from improper land use typically work through or with the co-operation of local governments. But local governments sometimes fail to appreciate the importance of the environmental issues or programmes announced by higher level governments. In this paper, we use data on mitigation of natural hazards gathered in Florida in the US and New South Wales in Australia to demonstratethat planning mandates can suffer from gaps in local commitment to the environmental goals of higher level governments. Planning mandates must foster higher quality plans and also build supportivelocal political constituencies if they are to overcome this 'commitment conundrum'. We show that the needed improvements in the quality of plans can be fostered through capacity building. Supportive constituencies can be created through programmesthat enhance public awareness of environmental problems and also through provisions of environmental mandates that require local governments to undertake collaborative planning processes with affected stakeholders.     

CREATING MEANINGFUL STAKEHOLDER INVOLVEMENT IN WATERSHED PLANNING IN PIERCE COUNTY,WASHINGTON1

ABSTRACT: Since 1989, the government of Pierce County, Washington, has prepared four watershed action plans. The watersheds cover almost 800,000 acres and include about 600,000 residents and diverse land uses, from the city of Tacoma to Mount Rainier National Park. The primary purpose of these plans was to address water quality impacts from nonpoint sources of pollution and to protect beneficial uses of water. Pierce County has experienced problems such as shellfish bed closures and the Federal Clean Water Act Section 303(d) listing of local water bodies as a result of declining water quality. Pierce County achieved improvements by engaging diverse groups of stakeholders in generating solutions to nonpoint sources of water pollution through our watershed planning process. Using participatory methods borrowed from private industry, Pierce County was able to reach consensus, build trust, maximize participation, facilitate learning, encourage creativity, develop partnerships, shorten time frames for the planning processes, and increase the level of commitment participants had to implementing the plans. As a result, the earliest plans have a high rate of voluntary implementation. This indicates that the process and methodology used to develop watershed plans has a significant, if not critical, impact on their success.     

A WATER RESOURCE PLANNING PROCEDURE FOR RURAL TOWNS1

ABSTRACT: Six new techniques have been developed for lake watershed analysis and water resource management. The techniques are for determining: (1) watershed land use intensity with reference to water quality, (2) lake vulnerability, (3) water quality, (4) watershed carrying capacity, (5) the economic value of the lake, and (6) the potential of undeveloped lake-shore. These analyses are designed for use by rural planning commissions with guidance and assistance from state agencies and the state university. The comprehensive rural watershed land and water use plan developed by this procedure is inexpensive in time and money, understandable by the layman, and scientificially sound. It is based on presently available information. This water resource planning procedure has been demonstrated in several town planning projects. It is suggested that this method, or modification of it, could be adopted in all rural states by action by a few administrators and without any new enabling or appropriations legislation.     

Multiple Species Habitat Conservation Planning: Goals and Strategies of Local Governments

Drawing from experiences gained from the development and implementation of four approved habitat conservation plans (HCPs), I describe the goals and strategies used by the nine local government members of the Riverside County Habitat Conservation Agency (RCHCA) to reconcile conflicts among a rapidly growing population and the need to conserve the habitat of a number of declining wildlife species in western Riverside County, California. Several important goals have been pursued by RCHCA member governments in their sponsorship of multiple-species habitat conservation plans (MSHCPs), including (1) establishing certainty and control over future uses of land; (2) eliminating project-by-project negotiations with federal and state wildlife agencies; (3) coordinating mitigation obligations under the Endangered Species Act, Clean Water Act, California Environmental Quality Act, and other federal and state laws; (4) reducing conflict and litigation resulting from land development activities; and (5) ensuring that wildlife conservation activities are conducted in a manner that permits local governments to perform those functions necessary to maintain public health, safety, and welfare. I also describe the emergence of strategies by local governments to achieve MSHCP goals, including (1) use of an inclusive planning process that seeks to build consensus among affected interests; (2) extensive involvement of federal and state wildlife agencies in the preparation of MSHCP documents; (3) management of public lands to support MSHCP conservation objectives; (4) encouragement of voluntary conservation by private property owners through incentive programs; and (5) active solicitation of federal and state funding for MSHCP implementation activities.     

CLIMATE CHANGE AND WATERSHED PLANNING IN WASHINGTON STATE1

ABSTRACT: This paper draws on interviews with Washington State Watershed Planning Leads (Planning Leads) and interactions with local watershed planning units to identify factors that may influence the inclusion of climate change in watershed planning efforts in Washington State. These factors include the interest of individual planning unit members in climate change; Planning Lead familiarity with climate impacts; the influence of trust, leadership, and “genetic knowledge” on planning units; and perceptions of strategic gain. The research also identifies aspects of the planning process that may create opportunities for addressing climate impacts in future planning. These aspects include continuation of watershed planning units after plans are developed; commitment to updating watershed plans; recognition of climate impacts in planning documentation; dedicated incentive funding; and the availability of hydrologic modeling tools for assessing hydrologic impacts. Additional types of technical assistance that could support integration of climate impacts are also identified. It is hoped that the insight provided by this analysis will help individuals involved in stakeholder‐based watershed planning recognize the various dynamics potentially affecting the inclusion of climate change in watershed planning and in doing so, contribute to the development of planning approaches and tools that will support local efforts to adapt to climate impacts.     

The Coachella Valley Multiple Species Habitat Conservation Plan: A Decade of Delays

This article describes the history of the Coachella Valley Multiple Species Habitat Conservation Plan (CVMSHCP), in the Riverside County region of Southern California. When this collaborative biodiversity conservation planning process began, in 1994, local participants and supporters had numerous factors working in their favor. Yet, as of April 2007, nearly 13 years had passed without an approved plan. This is a common problem. Many multiple species habitat conservation plans now take more than a decade to complete, and the long duration of these processes often results in negative consequences. The CVMSHCP process became bogged down—despite strong scientific input and many political advantages—due to problematic relationships between the Plan’s local supporters, its municipal signatory parties, and officials from the state and federal wildlife agencies, particularly the regional office of the US Fish and Wildlife Service. This case study demonstrates the crucial importance of institutional structures and relationships, process management, and timeliness in habitat conservation planning. We conclude by offering several related recommendations for future HCP processes.     

CHICAGO METROPOLITAN FLOODWATER MANAGEMENT PLAN1

ABSTRACT: The Chicago Metropolitan Floodwater Management Plan is a cooperative planning program under Public Law 566 of the 83rd Congress (The Watershed Protection and Flood Prevention Act). The planning effort was jointly sponsored by the U.S. Department of Agriculture, Soil Conservation Service, and the Metropolitan Sanitary District of Greater Chicago. The project is unique in that it studies a 1260 square mile (3266 sq. kilometer) watershed, which is approximately 35 percent urbanized and contains approximately 7.5 million people. At present, approximately 4.4 percent or 330,600 people live in a floodplain. It is presently estimated that 80,000 acres (32,000 ha.) of the study area are subject to flooding with a current average annual damage estimated at approximately $10 million. The Plan which has been developed to reduce or eliminate these damages is divided into six separate watershed plans, and has been developed through extensive use of local citizen watershed steering committees. The paper discusses the planning process, public participation and implementation both at an overall river basin level and watershed case study level.     

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.     

Integrated Freshwater Solutions — A New Zealand Application of Mediated Modeling

Mediated Modeling (MM) refers to “model building with stakeholders,” enabling collaborative learning and decision support. This article presents results from the Integrated Freshwater Solutions (IFS — www.ifs.org.nz ) action research project in the Manawatū River watershed, New Zealand. Water quality in the watershed often rates poorly, with the key issues being sedimentation, eutrophication, and habitat destruction. IFS is to develop and test MM to support collaborative and adaptive freshwater management. The project team was presented with the opportunity to collaborate with the Manawatū River Leaders' Forum (MRLF), an initiative driven by the Regional Council to improve water quality. This article describes the process of MM and how it was adapted to meet the needs of MRLF stakeholders. This highlights some important conditions for collaborative and adaptive capacity building. The MM/MRLF stakeholders, represented: industry, farming, local and regional authorities, environmental groups, and indigenous Māori iwi/hapū (tribe/sub‐tribe). This article describes how MM assisted early in the collaborative process to develop the following: (1) a shared and more integrated understanding of causes and effects and (2) a sense of the order of magnitude of the problems and the impact proposed solutions might have. It also describes how the context of politics, time, and resource constraints played an important role reverting to a more traditional planning approach part way through the process.     

What drives plan implementation? Plans,planning agencies and developers

This article investigates the determinants of plan implementation by applying a recently‐developed Plan Implementation Evaluation methodology. The lack of methodology to assess the implementation of plans has so far precluded any systematic analysis of the determinants of the implementation of local environmental plans. The article focuses on the implementation of plans in New Zealand. The key factors of implementation are: the quality of the plan; the capacity and commitment of land developers to implement plans; the capacity and commitment of the staff and leadership of planning agencies to implement plans; and the interactions between developers and the agency. The analysis is based on 353 permits implementing six local environmental plans in New Zealand, and on surveys of the developers who obtained the permits and of the planning agencies that granted the permits. The analysis finds that plan implementation is mainly driven by the resources of the planning agencies and by the quality of the plans, rather than by the characteristics of developers. Investments in plan writing and agency and staff capacity building thus improve the implementation of plans in the long‐run.     

Collaborative approaches to local climate change and clean energy initiatives in the USA and England

This paper analyses how 10 localities in the USA and England, recognised as leaders in clean energy and climate action, have used collaborative approaches to develop local climate change plans and energy conservation, efficiency, and renewable energy initiatives. It examines these planning and policy-making processes in the context of Margerum's [2008. A typology of collaboration efforts in environmental management. Environmental Management, 41 (4), 487–500] typology of “action”, “organizational”, and “policy-level” collaborations, as well as Gray's [1989. Collaborating: finding common ground for multiparty problems. San Francisco: Jossey-Bass] classification of collaboration in the “problem-setting”, “direction-setting”, and “implementation” phases. We conducted interviews with local elected officials, municipal staff, energy professionals, and citizen volunteers in each community, supplemented with an analysis of their adopted energy, climate change, and land-use plans. We find that despite the different government structures and political contexts between the two countries, there was a surprising amount of commonality in how the case study localities used collaborative planning to develop local climate plans and clean energy initiatives. These processes were most often initiated by local elected officials and/or high-level staff members, and then carried out in collaboration with local third-sector organisations and other community stakeholders. In the USA, collaboration was strongest at the policy level and in the direction-setting phase, with the distinguishing feature that citizen advisory boards or stakeholder working groups often took a more active role in shaping local plans and policies. The English localities had some of those same types of collaborations, but were more likely to also employ action collaboration, in the implementation phase, in which third-sector organisations coordinated with the locality to directly provide clean energy services.     

Cumulative silvicultural impacts on watersheds: A hydrologic and regulatory dilemma

Because of the nature of watersheds, the hydrologic and erosional impacts of logging and related road-building activities may move offsite, affecting areas downslope and downstream from the operation. The degree to which this occurs depends on the interaction of many variables, including soils, bedrock geology, vegetation, the timing and size of storm events, logging technology, and operator performance. In parts of northwestern California, these variables combine to produce significant water quality degradation, with resulting damage to anadromous fish habitat.Examination of recent aerial photographs, combined with a review of public records, shows that many timber harvest operations were concentrated in a single 83 km² watershed in the lower Klamath River Basin within the past decade. The resulting soil disturbance in this case seems likely to result in cumulative off-site water quality degradation in the lower portion of the Basin.In California, both state and federal laws require consideration of possible cumulative effects of multiple timber harvest operations. In spite of recent reforms that have given the state a larger role in regulating forest practices on private land, each timber harvest plan is still evaluated in isolation from other plans in the same watershed. A process of collaborative state-private watershed planning with increased input of geologic information offers the best long-term approach to the problem of assessing cumulative effects of multiple timber harvest operations. Such a reform could ultimately emerge from the ongoing water quality planning process under Section 208 of the amended Federal Water Pollution Control Act.     

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 .     

Changing Approaches to Mountain Watersheds Management in Mainland South and Southeast Asia

Mountain watersheds, comprising a substantial proportion of national territories of countries in mainland South and Southeast Asia, are biophysical and socioeconomic entities, regulating the hydrological cycle, sequestrating carbon dioxide, and providing natural resources for the benefit of people living in and outside the watersheds. A review of the literature reveals that watersheds are undergoing degradation at varying rates caused by a myriad of factors ranging from national policies to farmers' socioeconomic conditions. Many agencies—governmental and private—have tried to address the problem in selected watersheds. Against the backdrop of the many causes of degradation, this study examines the evolving approaches to watershed management and development. Until the early 1990s, watershed management planning and implementation followed a highly centralized approach focused on heavily subsidized structural measures of soil conservation, planned and implemented without any consultation with the mainstream development agencies and local people. Watershed management was either the sole responsibility of specially created line agencies or a project authority established by external donors. As a consequence, the initiatives could not be continued or contribute to effective conservation of watersheds. Cognizant of this, emphasis has been laid on integrated, participatory approaches since the early 1990s. Based on an evaluation of experiences in mainland South and Southeast Asia, this study finds not much change in the way that management plans are being prepared and executed. The emergence of a multitude of independent watershed management agencies, with their own organizational structures and objectives and planning and implementation systems has resulted in watershed management endeavors that have been in complete disarray. Consistent with the principle of sustainable development, a real integrated, participatory approach requires area-specific conservation programs that are well incorporated into integrated socioeconomic development plans prepared and implemented by local line agencies in cooperation with nongovernment organizations (NGOs) and concerned people.     

Generating Co-Management at Kasha Katuwe Tent Rocks National Monument,New Mexico

Collaborative planning theory and co-management paradigms promise conflict prevention and the incorporation of indigenous knowledge into plans. Critics argue that without devolved power to culturally legitimate institutions, indigenous perspectives are marginalized. Co-management practice in North America is largely limited to treaty-protected fish and wildlife because federal agencies cannot devolve land management authority. This paper explores why the Pueblo de Cochiti, a federally recognized American Indian Tribe, and the U.S. Bureau of Land Management sustained an rare joint management agreement for the Kasha-Katuwe Tent Rocks National Monument in New Mexico despite a history of conflict over federal control of customary tribal lands that discouraged the Pueblo from working with federal agencies. Based on the participant interviews and documents, the case suggests that clear agreements, management attitudes, and the direct representation of indigenous forms of government helped achieve presumed co-management benefits. However, parties enter these agreements strategically. We should study, not assume, participant goals in collaborative processes and co-management institutions and pay special attention to the opportunities and constraints of federal laws and institutional culture for collaborative resource management with tribal and local communities.     

Evidence of integration of air quality management in the decision-making processes and procedures of English local government

The air quality management (AQM) framework in the UK is a risk management approach using effects-based objectives for air pollutants to determine the need for action. The Environment Act 1995 required a National Air Quality Strategy to be published, setting out health-based standards and objectives for eight pollutants, of which seven are to managed at a local scale. Because of the variety of sources of air pollution, if the AQM process is to succeed in the long term, solutions to identified problems will be required from transport, land use and economic planning sectors of local government in liaison with various other agencies, regulators and outside bodies. As such the task is inherently multi-disciplinary and an integrated, collaborative approach will be necessary. Although this observation is now fairly well documented, there is still little guidance relating to how, in relation to air quality management, integration can actually be accomplished. This paper presents some observations from case studies undertaken as part of a longer-term research study and in particular focuses on the identified problems of involving non-air-quality professionals in a highly technical scientific process. Various approaches to the collaborative aspects of air quality management will be presented. These case studies represent local authorities of different sizes in different political and organisational situations facing a range of air quality challenges. The creation of project teams or task forces is judged particularly useful for local air quality management. Methods that could be applied more widely include appointing individuals as integrators, and rotation of key personnel.     

Planning under a Co-operative Mandate: New Plans for New Zealand

The Resource Management Act 1991 provides a new mandate for effectsbased planning with its goal of sustainable management. Regional, city and district councils are responsible for administering the Act, including preparation of regional policy statements, regional and district plans. The paper reports on a collaborative research programme,funded by the New Zealand Foundation for Research, Science and Technology. The three-year programme has two objectives: (1) to determine the quality of policy statements and plans; and (2) to identify the extent and means by which councils co-ordinate policy statements and plans. Preliminary findings on implementation of the Act are presented.     

Citizen Advisory Groups in Remedial Action Planning: Paper Tiger or Key to Success?

In accordance with the Great Lakes Water Quality agreement and the Great Lakes Critical Protections Act, the Great Lakes States have developed (or are developing) remedial action plans (RAPs) for severely degraded areas of concern (AOCs). To provide citizen input into the planning process, state environmental agencies have established citizens' advisory groups (CAGs) for each AOC. These CAGs have been hailed as the key to RAP success, yet little is known about their role in the planning process. In this paper, we examine the constitution, organization and activities of CAGs in three Lake Michigan AOCs by comparing CAGs to municipal planning commissions, citizen advisory commissions and councils of government. We find that CAGs, like other advisory bodies, can provide public input into the planning process, foster communication between government agencies and special interest groups, and facilitate intergovernmental co-ordination. Also like other advisory bodies, however, CAGs can fail to represent all constituencies in the AOCs, have limited influence on agencies plans and activities, and lack the authority to assure the co-operation of local governments.