Where do we go from here? Environmental focus groups and planning policy formation

Focus groups have achieved a profile in the analysis of public values unparalleled since the emergence of national opinion polls. While they have been used in a variety of public policy, academic and political settings it is their employment within the field of environmental policy, specifically the land-use planning system, that is the focus of this paper. Using evidence from empirical research it is argued that the research-policy interface of environmental focus groups and planning is currently both undertheorised and underpractised. Undertheorised in that much of the literature on focus groups concentrates on their conduct rather than how they can inform policy. Underpractised because focus group data are failing to have much impact on policy. This paper concentrates on the second of these propositions by showing that while some of the problems with quantitative public environmental values surveys can be overcome by focus groups, the nature and content of the data they produce are not easily assimilated by existing planning structures. In an era when the role of the public, in all its diversity, is being emphasised in policy circles, and collaborative projects between academia and policy communities on environmental issues are becoming increasingly commonplace, early warning signs of tensions between research findings and policy development need to be heeded. A failure to acknowledge these problems may well lead to impoverished environmental policy in planning, a further marginalisation of publics from policy processes and an unjust devaluation of the focus-group method.     

Display and interpretation of fire behavior probabilities for long-term planning

Fire management planning for wildlands traditionally uses fire behavior estimated on the basis of worst-case weather at a specific site, but more realistic estimates can be obtained by considering the entire distribution of possible sites and weather conditions. Probability distributions of four widely used fire behavior variables were derived for four test cases in the Northern Rockies and Northern Intermountain Zone. The variables were rate of spread, fireline intensity, fire perimeter length-to-width ratio, and scorch height. Results were depicted in simple line graphs, three-dimensional pin graphs, and tables; they ranged from the cumulative probability of one variable to joint probabilities of four variables. Increasing the number of variables depicted increased the amount and scope of information available. Examples of interpreting the graphs and tables show how these techniques can be used in long-term fire program planning, fire suppression, management of various resources affected by fire, and interdisciplinary resource planning.     

An Event-Based Approach for Examining the Effects of Wildland Fire Decisions on Communities

Public concern over the consequences of forest fire to wildland interface communities has led to increased resources devoted to fire suppression, fuel treatment, and management of fire events. The social consequences of the decisions involved in these and other fire-related actions are largely unknown, except in an anecdotal sense, but do occur at a variety of temporal and social organizational scales. These consequences are not limited to the fire event itself. Preparation for the possibility of a fire, actions that suppression agencies take during a fire, and postfire decisions all have consequences, if unknown currently. This article presents an "event-based" approach that can be useful for constructing and systematic discussion about the consequences of wildland fire to human communities. For each of the three major periods within this approach, agencies, communities, and individuals make decisions and take actions that have consequences. The article presents an integrated, temporally based process for examining these consequences, which is similar to others developed in the natural hazards and disaster management literature.     

Predicting streamflow response to fire-induced landcover change: implications of parameter uncertainty in the MIKE SHE model

Fire is a primary agent of landcover transformation in California semi-arid shrubland watersheds, however few studies have examined the impacts of fire and post-fire succession on streamflow dynamics in these basins. While it may seem intuitive that larger fires will have a greater impact on streamflow response than smaller fires in these watersheds, the nature of these relationships has not been determined. The effects of fire size on seasonal and annual streamflow responses were investigated for a medium-sized basin in central California using a modified version of the MIKE SHE model which had been previously calibrated and tested for this watershed using the Generalized Likelihood Uncertainty Estimation methodology. Model simulations were made for two contrasting periods, wet and dry, in order to assess whether fire size effects varied with weather regime. Results indicated that seasonal and annual streamflow response increased nearly linearly with fire size in a given year under both regimes. Annual flow response was generally higher in wetter years for both weather regimes, however a clear trend was confounded by the effect of stand age. These results expand our understanding of the effects of fire size on hydrologic response in chaparral watersheds, but it is important to note that the majority of model predictions were largely indistinguishable from the predictive uncertainty associated with the calibrated model - a key finding that highlights the importance of analyzing hydrologic predictions for altered landcover conditions in the context of model uncertainty. Future work is needed to examine how alternative decisions (e.g., different likelihood measures) may influence GLUE-based MIKE SHE streamflow predictions following different size fires, and how the effect of fire size on streamflow varies with other factors such as fire location.     

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).     

Assessing drought-related ecological risk in the Florida Everglades

In the winter-spring of 2001, South Florida experienced one of the worst droughts in its recorded history. Out of a myriad of ecological concerns identified during this time, the potential for catastrophic peat fire and negative impacts to wading bird reproduction emerged as critical issues. Water managers attempted to strike a balance between the environment and protection of water supplies for agriculture and urban interests. It became evident, however, that a broad-scale, integrated way to portray and prioritise ecological stress was lacking in the Florida Everglades, despite this being considered a necessary tool for addressing issues of environmental protection. In order to provide a framework for evaluating various water management operations using real-time information, we developed GIS-based indices of peat-fire risk and wading bird habitat suitability. These indices, based on real physical, chemical, and biological data, describe two ecological conditions that help define the physical and biological integrity of the Everglades. In addition to providing continuous, updated assessments throughout the drought period, we incorporated predictive models of water levels to evaluate how various water management alternatives might exacerbate or alleviate ecological stress during this time.     

Applying a TQM framework to the public policy process: Part I—the framework

In Part I of this article, a TQM framework is described that can be used to analyze as well as manage the public policy process. Key elements of the framework include leadership, issues analysis, goal and policy development, strategic vehicles, implementation, indicators and outcomes, and stakeholder review. The framework can be used to analyze public policy cycles, predict future issues and outcomes, and develop more sustainable approaches to manage linked economic, environmental, and societal issues. In Part II, the framework is used to examine the effectiveness of management of environmental issues in the Great Lakes region over the past three decades and to demonstrate the need for a more integrated approach to regional management.     

Forest-user attitudes toward alternative fire management policies

The formulation and implementation of new fire policies in the national forests depend upon public acceptance. A national survey of organized groups of forest users indicates that, contrary to the concern of many forest managers, considerable support exists for flexible fire suppression policies. Forest users are also willing to accept the risk associated with the manager's use of prescribed fire. However, important intergroup differences do exist. Such variation is discussed in relation to a number of socioeconomic variables, general fire knowledge, specific knowledge about the effects of low-intensity fires, and risk preference levels.     

The Politics of Participation in Watershed Modeling

While researchers and decision-makers increasingly recognize the importance of public participation in environmental decision-making, there is less agreement about how to involve the public. One of the most controversial issues is how to involve citizens in producing scientific information. Although this question is relevant to many areas of environmental policy, it has come to the fore in watershed management. Increasingly, the public is becoming involved in the sophisticated computer modeling efforts that have been developed to inform watershed management decisions. These models typically have been treated as technical inputs to the policy process. However, model-building itself involves numerous assumptions, judgments, and decisions that are relevant to the public. This paper examines the politics of public involvement in watershed modeling efforts and proposes five guidelines for good practice for such efforts. Using these guidelines, I analyze four cases in which different approaches to public involvement in the modeling process have been attempted and make recommendations for future efforts to involve communities in watershed modeling.     

Natural fire management in National Parks

An evolving understanding of ecological processes, together with ambiguities in National Park Service policy, have led to multiple interpretations of the role of management in our large natural area National Parks. National Park Service management policies must be dynamic and responsive to changes in scientific knowledge and societal values. We propose that the principal aim of NPS resource management in natural areas is the unimpeded interaction of native ecosystem processes and structural elements. The case of the changing role of natural fire management is used as an example in developing this rationale.     

A focus group study of factors that promote and constrain the use of satellite-derived fire products by resource managers in southern Africa

Semi-structured focus group interviews were employed to examine factors that affect the likelihood that resource managers in southern Africa will use information on vegetation fires provided by two satellite-derived products: an active fire product and a burned area product. The two products are updated regularly and aim to deliver the state-of-the-art in the global monitoring of fires from satellite remote-sensing. Both products are derived from data transmitted by the Moderate Resolution Imaging Spectroradiometer (MODIS) sensors carried onboard NASA's Aqua and Terra satellites. The active fire product can be accessed for free via the internet and on media by users working anywhere in the world; the burned area product will be accessible in a similar manner in 2006. The MODIS fire products provide systematic, near-global coverage and are freely available; as such, they give resource managers new opportunities to obtain or supplement information they need to manage vegetation fires effectively. However, the availability of these products does not mean that resource managers will use them, and many other factors are involved. To understand factors that affect whether southern African resource managers will use the two products, two focus groups were held with members of the Southern African Fire Network (SAFNet) in Malawi, Africa, August 2004. Analysis of the group discussions reveals a number of factors that influence whether they will use the products. The qualitative, in depth nature of the group discussions revealed 12 main factors that influence product use; not least the low international internet bandwidths for African countries outside of South Africa. Analysis of the group discussions also suggests how the uptake of MODIS fire products by resource managers in southern Africa might be enhanced by affecting specific changes to how MODIS products are packaged and delivered.     

Landscape--wildfire interactions in southern Europe: implications for landscape management

Every year approximately half a million hectares of land are burned by wildfires in southern Europe, causing large ecological and socio-economic impacts. Climate and land use changes in the last decades have increased fire risk and danger. In this paper we review the available scientific knowledge on the relationships between landscape and wildfires in the Mediterranean region, with a focus on its application for defining landscape management guidelines and policies that could be adopted in order to promote landscapes with lower fire hazard. The main findings are that (1) socio-economic drivers have favoured land cover changes contributing to increasing fire hazard in the last decades, (2) large wildfires are becoming more frequent, (3) increased fire frequency is promoting homogeneous landscapes covered by fire-prone shrublands; (4) landscape planning to reduce fuel loads may be successful only if fire weather conditions are not extreme. The challenges to address these problems and the policy and landscape management responses that should be adopted are discussed, along with major knowledge gaps.     

Evaluation of the Fire Simulation Processes of the National Fire Management System's Initial Attack Analysis Processor

The fire simulation processes of the National Fire Management System's (NFMAS) Initial Attack Analysis (IAA) processor were evaluated by conducting two types of sensitivity analysis: one based on a hypothetical set of data to assess IAA's outputs under a wide range of fire input values, and the other using an actual Stanislaus National Forest database to test IAA's validity with a real set of data. The results revealed that IAA's outputs (projected annual number of fires and area burned) were most sensitive, in descending order, to the input values of the fire spread rate, the productivity rates of the suppression forces, and the initial attack time, for all fuel models tested. In contrast, IAA's outputs were extremely insensitive to variations in the fire size at discovery. Changes are necessary in the ways IAA incorporates the fire size at discovery to facilitate the comparison among various fire detection options. The program's “escaped fire situation” analysis was found inadequate, because the projected annual frequencies and final sizes of the simulated escaped fire events produced unacceptable results with the Stanislaus National Forest database. Assigning final sizes to simulated escaped fires according to the fire intensity level in which they are historically expected to occur provides a consistent way of calculation of the projected annual area burned and the consequent cost plus net value change (C + NVC).     

Constructing and justifying risk and accountability after extreme events: public administration and stakeholders’ responses to a wildfire disaster

ABSTRACT

The impacts of extreme weather events, causing severe storms and wildfires, cascade across administrative borders within a country, challenging the steering capacity of governance networks at different political scales. This paper examines how accountability and risk were constructed and negotiated in the aftermath of Sweden’s largest wildfire. It draws on results from an interview study with executives of organizations and landowners involved, and an analysis of government reports about the wildfire’s cause and consequences. Although the fire was human-caused, public administrative bodies paid considerable attention to the local emergency services and their poor handling of the wildfire, caused by lack of knowledge of forest fire behavior. The study confirms many of the challenges associated with governance networks. It finds that issues about who to hold accountable, in what forum and for what issue are not fully addressed, being overwhelmed by demands for better knowledge of forest fire prevention and improved coordination and collaboration. To conclude, the paper calls for a better-informed public administration, forest sector and interrelated networks that take responsibility for their actions or lack thereof.     

Creating Defensible Space in the Wildland–Urban Interface: The Influence of Values on Perceptions and Behavior

We examined the effect that value orientation to forests and wildland fire management has on an individual’s decision to create defensible space around his or her residence in the wildland–urban interface. Using data from a mail-back questionnaire, respondents in north central Minnesota were clustered by basic value–laden beliefs toward forest and wildland fire management and compared across a number of perceptions and behaviors related to creating defensible space around residences. Value orientation groups differed in attitudes, subjective norms, and perceived behavior control toward creating defensible space. In addition, relative effects of these perceptions on intention to create defensible space differed across groups. Implications lie in (a) understanding differences in motivations and reasons for support of strategies for managing fires near the wildland–urban interface, (b) developing information designed to address the perspectives of different groups related to creating defensible space, and (c) contributing to an improved integration of land management and public concerns and interests.     

Global risk, local values?: 'Risk society' and the greenhouse issue in Newcastle, Australia

Global environmental issues have permeated many disciplines over the last decade. Within the social sciences they have sparked a debate about the extent to which any 'ecological crisis' can be seen as symptomatic of deeper changes within modernity. The strength of such an explanation is examined in this paper with reference to the 'risk society' thesis advanced by Ulrich Beck and its applicability to the case of the greenhouse issue in Australia. Australia has received much international criticism for its 'differentiated' approach to the United Nations Framework Convention on Climate Change process. This paper examines how this approach has gained widespread currency within 'official' policy spheres through defining greenhouse risks in terms of the spatial and temporal referents of modernity: the individual; the nation-state; political and investment timetables. The possibility of alternative public understandings of greenhouse risks and responsibilities is examined through recent work undertaken in Newcastle, New South Wales, Australia. It is argued that these may represent very different interpretations of the greenhouse issue from those encountered within the 'official' policy sphere. However, without a greater recognition on the part of policy elites of the need to address an issue like greenhouse at a local scale and through public involvement, and institutions through which to do so, these interpretations will have little impact on the 'global' process of negotiating greenhouse outcomes.     

Integrating fire management into land-use planning: A multiple-use management research,development, and applications program

The traditional view of fire as a destructive agent requiring immediate suppression is giving way to the view that fire can and should be used to meet land management goals. Thus,fire control is being replaced by the more general concept offire management, which is based on the need to integrate fire policy with land management objectives. The social, economic, and ecologic effects of fire must be evaluated in the selection of land management alternatives.The activities of fire management organizations—fire prevention, control, and use of fire—must respond to needs of land management. Many agencies have developed fire organizations as separate entities that set their own objectives. The many land and resource managers who have recognized the need to incorporate fire considerations into land-use planning have so far lacked the techniques to do so.As a natural process, fire has an important function in forest and range ecosystems. Fire can greatly influence the quantity and quality of resource outputs; it is a two-edged sword that can either harm or benefit our goals, depending upon the complex effects of fire and the nature of our wants.The Fire in Multiple-Use Management Research, Development, and Applications (RD&A) Program was initiated by the U.S. Department of Agriculture, Forest Service, at the Northern Forest Fire Lab in Missoula to assist land managers. This profile explains what an RD&A program is; discusses its mission, goals, and approach to the problem; and tells why the approach involves federal laboratories, universities, and private research foundations.     

Urban Environmental Management in Botswana: Toward a Theoretical Explanation ofPublic Policy Failure

For the last three and half decades, Botswana has been widely acclaimed to be one of sub-Saharan Africa's longest and most stable liberal democracies, coupled with and sustained by a growing economy. One of the major contradictions, however, within this development scenario, has been the neglect of environmental problems in the country in general, and urban environmental issues in particular. Part of the problem fueling the misconception of environmental issues in Botswana is the state's domination of the country's environmental agenda. This is linked to the power disjunction in decision-making and policy processes between state and nonstate actors over the most appropriate course of action to tackle the problems. Without adopting appropriate analytical frameworks, it is possible that the problem of urban environmental mismanagement in Botswana will persist. This article examines some of the major urban environmental issues in Botswana from neighborhood, citywide, and urban–rural interface perspectives. Further, the elite theory of public policy is used to explain constraints on policy change in the urban environmental management arena in Botswana.     

Some basic principles of grassland fire management

Fire management of grasslands is best executed based on an understanding of the fundamental properties of grassland components, structures, and environments, and the nature of fire behavior in grassland fuels. The art of controlled burning combines experience, practicality, empirical knowledge, and sensitivity, with the effects of fire, the role of fire (particularly under natural conditions), inherent climatic conditions, and sound ecological management objectives. Some of the properties, effects, roles, conditions, experiences, and objectives of grassland burning are presented.     

Lead astray: scale,environmental justice and the El Paso smelter

Residents in Paso del Norte (El Paso, Texas; Sunland Park, New Mexico; and Juárez, Mexico) have been concerned about heavy metal contamination in their communities since the 1970s, when high blood lead levels were found in children living in Smeltertown – a company town for the local metals smelter. After the smelter's closure in 1999, and throughout onsite and offsite cleanup efforts, residents have continued to express concerns about these contamination issues. Using a politics of scale framework and analysing ethnographic data and government, media and scientific documents, this paper identifies a set of major disjunctures between the scales of heavy metal contamination and the scales at which that contamination is regulated. These disjunctures exacerbate regional environmental injustice by complicating public participation, neglecting vulnerability and displacing hazards to new communities. Consequently, applying a politics of scale framework to this case study highlights regulatory and policy failures to address environmental justice.