A Framework for Exploring Integrated Learning Systems for the Governance and Management of Public Protected Areas

This article discusses how the concept of integrated learning systems provides a useful means of exploring the functional linkages between the governance and management of public protected areas. It presents a conceptual framework of an integrated learning system that explicitly incorporates learning processes in governance and management subsystems. The framework is premised on the assumption that an understanding of an integrated learning system is essential if we are to successfully promote learning across multiple scales as a fundamental component of adaptability in the governance and management of protected areas. The framework is used to illustrate real-world situations that reflect the nature and substance of the linkages between governance and management. Drawing on lessons from North America and Africa, the article demonstrates that the establishment and maintenance of an integrated learning system take place in a complex context which links elements of governance learning and management learning subsystems. The degree to which the two subsystems are coupled influences the performance of an integrated learning system and ultimately adaptability. Such performance is largely determined by how integrated learning processes allow for the systematic testing of societal assumptions (beliefs, values, and public interest) to enable society and protected area agencies to adapt and learn in the face of social and ecological change. It is argued that an integrated perspective provides a potentially useful framework for explaining and improving shared understanding around which the concept of adaptability is structured and implemented.     

The Perceived Implications of an Outsourcing Model on Governance within British Columbia Provincial Parks in Canada: A Quantitative Study

Good governance is of paramount importance to the success of parks and protected areas. This research utilized a questionnaire for 10 principles of governance to evaluate the outsourcing model used by British Columbia Provincial Parks, where profit-making corporations provide all front country visitor services. A total of 246 respondents representing five stakeholder groups evaluated the model according to each principle, using an online survey. Principal component analysis resulted in two of the 10 principles (equity and effectiveness) each being split into two categories, leading to 12 governance principles. Five of the 12 criteria received scores towards good governance: effectiveness outcome; equity general; strategic vision; responsiveness; and effectiveness process. One criterion, public participation, was on the neutral point. Six criteria received scores below neutral, more towards weak governance: transparency; rule of law; accountability; efficiency; consensus orientation; and, equity finance. The five stakeholder groups differed significantly on 10 of the 12 principles (P < .05). The 2 exceptions were for efficiency and effectiveness process. Seven of the 12 criteria followed a pattern wherein government employees and contractors reported positive scores, visitors and representatives of NGOs reported more negative scores, and nearby residents reported mid-range scores. Three criteria had government employees and contractors reporting the most positive scores, residents and visitors the most negative scores, and NGO respondents reporting mid-range scores. This research found evidence that perceptions of governance related to this outsourcing model differed significantly amongst various constituent groups.     

A Global Analysis of Protected Area Management Effectiveness

We compiled details of over 8000 assessments of protected area management effectiveness across the world and developed a method for analyzing results across diverse assessment methodologies and indicators. Data was compiled and analyzed for over 4000 of these sites. Management of these protected areas varied from weak to effective, with about 40% showing major deficiencies. About 14% of the surveyed areas showed significant deficiencies across many management effectiveness indicators and hence lacked basic requirements to operate effectively. Strongest management factors recorded on average related to establishment of protected areas (legal establishment, design, legislation and boundary marking) and to effectiveness of governance; while the weakest aspects of management included community benefit programs, resourcing (funding reliability and adequacy, staff numbers and facility and equipment maintenance) and management effectiveness evaluation. Estimations of management outcomes, including both environmental values conservation and impact on communities, were positive. We conclude that in spite of inadequate funding and management process, there are indications that protected areas are contributing to biodiversity conservation and community well-being.     

Assessing participatory and multi-level characteristics of biodiversity and landscape protection legislation: the case of Poland

In this paper, we present a comprehensive framework for analysing formal rules regulating the involvement of various actors in protected areas decision-making over time and apply it to Poland. Based on the analysis of legal acts and policy documents, we suggest that since the democratic transition started in 1989, the governance of Polish protected areas has been increasingly multi-level and participatory. However, different designations indicate different levels of involvement by non-state actors, with Natura 2000 standing out from the traditional protected areas. Regarding governance issues, establishing and taking management decisions were characterised by the greatest changes in actors’ involvement. While participation of non-public actors is still limited mostly to information and consultation, the involvement of non-state public actors of various levels increased significantly. The paper highlights the importance of a systematic analysis of legal rules as a starting point for empirical investigation of the governance of protected areas.     

Measuring good governance: piloting an instrument for evaluating good governance principles

ABSTRACT

As federal, state, and local governments and agencies respond to calls to make decisions and implement programs according to tenets of ‘good governance’, a need exists to develop methods for systematically evaluating performance. ‘Good governance’ has been characterized as including a wide array of principles, which vary across literatures. Comparatively little scholarship has sought to systematically quantify program achievement in accordance with these principles. We develop and present a scale for measuring program achievement in accordance with eight main principles of good governance: inclusivity, fairness, transparency, accountability, legitimacy, direction, performance, and capability. We present the results of a pilot implementation of the scale within the context of two community-based deer management programs. Our results suggest that these principles of good governance may not sort into distinct dimensions in a real-world context.     

Building Capacity for Protected Area Management in Lao PDR

Declining biodiversity in protected areas in Laos is attributed to unsustainable exploitation of natural resources. At a basic level, an important need is to develop capacity in academic and professional training institutions to provide relevant training to conservation professionals. The paper (a) describes the capacity building approach undertaken to achieve this goal, (b) evaluates the effectiveness of the approach in building capacity for implementing conservation and (c) reviews implementation outcomes. Strong linkages between organizations implementing field conservation, professional training institutions, and relevant Government agencies are central to enhancing effectiveness of capacity building initiatives aimed at improving the practice of conservation. Protected area management technical capacity needs will need to directly influence curriculum design to insure both relevance and effectiveness of training in improving protected area management. Sustainability of capacity building initiatives is largely dependent on the level of interest and commitment by host-country institutions within a supportive Government policy framework in addition to engagement of organizations implementing conservation.     

Stakeholder Opinions on the Assessment of MPA Effectiveness and Their Interests to Participate at Pacific Rim National Park Reserve,Canada

As the number of marine protected areas (MPAs) is globally increasing, information is needed on the effectiveness of existing sites. Many protected area agencies however have limited resources and are unable to evaluate MPA effectiveness. An evaluation conducted entirely by the managing agency may also lack credibility. Long-term monitoring and evaluation programs should ideally offer opportunities for participation of diverse groups in the selection of evaluation indicators and their assessment. A participatory approach has the potential to enhance evaluation capacity, to increase credibility and acceptance of results, to strengthen relationships between managers and local stakeholders, and to address more locally relevant information. Using a case study approach, this paper investigates diverse stakeholder groups’ opinions on the design of an evaluation and their interest to participate in an assessment. Respondents were most interested in the assessment of MPA achievements and outcome indicators. Most groups identified a range of government agencies and stakeholders that should participate in an assessment but only half of all respondents were interested to participate in monitoring activities. Most frequently mentioned limitations for more participation were a lack of time and money, but also governance shortcomings such as limited participation possibilities and not paying enough credit to stakeholders’ input. Participation interest was also influenced by occupation, place of residency, and familiarity with the marine environment. Differences exist among stakeholders about suitable evaluators and preferred monitoring partners, which could affect the credibility of evaluation results and affect monitoring activities.     

Evaluation of management effectiveness of protected areas in the Volta Basin,Ghana: perspectives on the methodology for evaluation,protected area financing and community participation

ABSTRACT

Protected areas are widely recognized as an important strategy for biodiversity conservation. Most of the sites are, however, poorly managed as resource exploitation by fringe communities and low government funding, among other things, threaten their management effectiveness. We used the World Commission on Protected Areas framework for designing management effectiveness evaluation systems, with the Rapid Assessment and Prioritization of Protected Areas Management (RAPPAM) methodology as a tool, to evaluate six components of the management cycle at six sites in Ghana for their management effectiveness. We examined the robustness of RAPPAM as an evaluation tool in the African context. The results showed that most of the sites evaluated are vulnerable and exposed to various degrees of pressure and threats, including poverty in the nearby communities, adjacent land-use and encroachment. On RAPPAM, we noted that apart from inconsistencies in some of the assessment scores due to the biases associated with the self-assessment approach of the methodology, the management effectiveness framework places little emphasis on financing and community participation, though both play major roles in the management process. We proposed a modification of the framework within the African context, to address effectively the underlying courses of pressure and threats facing Ghana’s protected areas.     

Trends in Global Protected Area Governance,1992–2002

Governance refers to the interactions among structures, processes, and traditions that determine direction, how power is exercised, and how the views of citizens or stakeholders are incorporated into decision-making. Governance is now recognized as a critical aspect of effective conservation and is a prominent part of the Convention on Biological Diversity’s work program on protected areas. This study reports on a global survey to assess changes in governance of protected area systems between 1992 and 2002 based on responses from 41 countries. Results indicate that substantial changes have taken place with overall trends towards increased participation of more stakeholders, greater use of formal accountability mechanisms, and a wider range of participatory techniques. Many of these changes are supported by legislative and policy requirements and 75% of respondents reported changes in legislation over the past decade. Protected areas are becoming more influenced by global forces. A majority of respondents reported increased involvement of the private sector. Funding is coming from a broader range of sources, with a smaller proportion of income coming from government sources in 2002. Absolute funding amounts have increased, but almost two-thirds report that budgets fall short of requirements. Almost 90% of respondents felt that protected area governance had improved over the last decade; 67% felt that this had also led to improved management effectiveness. Respondents felt that secure funding, capacity building, and increased community involvement were the main governance needs for the future.     

Expansion of Nature Conservation Areas: Problems with Natura 2000 Implementation in Poland?

In spite of widespread support from most member countries’ societies for European Union policy, including support for the sustainable development idea, in many EU countries the levels of acceptance of new environmental protection programmes have been and, in particular in new member states, still are considerably low. The experience of the countries which were the first to implement union directives show that they cannot be effectively applied without widespread public participation. The goal of this study was, using the example of Poland, to assess public acceptance of the expansion of nature conservation in the context of sustainable development principles and to discover whether existing nature governance should be modified when establishing new protected areas. The increase in protected areas in Poland has become a hotbed of numerous conflicts. In spite of the generally favourable attitudes to nature which Polish people generally have, Natura 2000 is perceived as an unnecessary additional conservation tool. Both local authorities and communities residing in the Natura areas think that the programme is a hindrance, rather than a help in the economic development of municipalities or regions, as was initially supposed. This lack of acceptance results from many factors, mainly social, historic and economic. The implications of these findings for current approach to the nature governance in Poland are discussed.     

Improving Community-Based Conservation Near Protected Areas: The Importance of Development Variables

Community-based conservation projects implemented in conjunction with protected area management often struggle to meet expectations. This article argues that outcomes will improve if project leaders pay closer attention to four development indicators—rights, capacity, governance, and revenue—that are often taken for granted or considered beyond the scope of local conservation projects. I make the case for focusing on these variables in four steps. First, I distinguish community-based conservation linked to protected area management from community-based institutions studied by scholars of the commons. Second, I draw on the theory and practice of international development to highlight the central relevance of the variables highlighted in this article to development projects at all levels. Third, I discuss the four variables in some detail, considering problems of definition and measurement and reviewing possible interactions among them. Fourth, to illustrate the influence of the variables in particular cases, I review outcomes from community-based conservation projects implemented near protected areas in El Salvador and Zimbabwe.     

Evaluating the Management Effectiveness of Five Protected Areas in Taiwan Using WWF’s RAPPAM

This study adopts and modifies the WWF Rapid assessment and prioritization of protected areas management methodology (RAPPAM) to evaluate the management effectiveness of five protected areas in Taiwan. The results indicate that, unlike the situation in most developing countries, the threats and pressures faced by protected areas in Taiwan come mainly from the outside-with pollution as the most common pressure and threat, and difficult for their management authorities to deal with effectively. The categories and extent of these pressures and threats are related to remoteness and geographic location of the protected areas. All five cases under study reveal a similar management approach, clear management goals, adequate basic infrastructure and clear management decision-making; on the down side, however, all of them suffer from the lack of an effective comprehensive management plan, inadequate or poor quality human resources and insufficient funding. The present study suggests that first priority should be given to strengthening management planning in order to improve management effectiveness of protected areas in Taiwan. The adjustment made to RAPPAM in this study was to amend and take the format of the management plan as the basis for evaluation material preparations and open the discussion to encourage stakeholders' participation to open the dialogue among them. The results indicate that, although the system evaluation design still has some constraints, the quality of information collected is improved and can respond more directly to the specific demands of the respective areas.     

The Effectiveness of Contrasting Protected Areas in Preventing Deforestation in Madre de Dios, Peru

Accurate monitoring of the effectiveness of protected areas (PAs) in decreasing deforestation is increasingly important given the vital role of forest protection in climate change mitigation. Recent studies on PA effectiveness have used remote-sensing imagery to compare deforestation rates within PAs to surrounding areas. However, remote-sensing data used in isolation provides limited information on the factors contributing to effectiveness. We used landscape-modelling techniques to estimate the effectiveness of ten PAs in Madre de Dios, Peru. Factors influencing PA effectiveness were investigated using in situ key-informant interviews. Although all of the PAs studied had positive effectiveness scores, those with the highest scores were ecotourism and conservation concessions, where monitoring and surveillance activities and good relations with surrounding communities were reported as possible factors in decreasing deforestation rates. Native community areas had the lowest scores, with deforestation mainly driven by internal resource use and population growth. Weak local governance and immigration were identified as underlying factors decreasing the effectiveness of protection, whereas good relations with surrounding communities and monitoring activity increased effectiveness. The results highlight the need to combine remote sensing with in situ information on PA management because identification of drivers and deterrents of deforestation is vital for improving the effectiveness of protection.     

Towards the ecotourism: A decision support model for the assessment of sustainability of mountain huts in the Alps

This paper studies mountain hut infrastructure in the Alps as an important element of ecotourism in the Alpine region. To improve the decision-making process regarding the implementation of future infrastructure and improvement of existing infrastructure in the vulnerable natural environment of mountain ecosystems, a new decision support model has been developed. The methodology is based on qualitative multi-attribute modelling supported by the DEXi software. The integrated rule-based model is hierarchical and consists of two submodels that cover the infrastructure of the mountain huts and that of the huts’ surroundings. The final goal for the designed tool is to help minimize the ecological footprint of tourists in environmentally sensitive and undeveloped mountain areas and contribute to mountain ecotourism. The model has been tested in the case study of four mountain huts in Triglav National Park in Slovenia. Study findings provide a new empirical approach to evaluating existing mountain infrastructure and predicting improvements for the future. The assessment results are of particular interest for decision makers in protected areas, such as Alpine national parks managers and administrators. In a way, this model proposes an approach to the management assessment of mountain huts with the main aim of increasing the quality of life of mountain environment visitors as well as the satisfaction of tourists who may eventually become ecotourists.     

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

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

Accountability,Reporting, or Management Improvement? Development of a State of the Parks Assessment System in New South Wales,Australia

Management effectiveness evaluation has been recognized as an important mechanism for both reporting on and improving protected area management. The Convention on Biological Diversity’s program of work on protected areas calls on all countries to implement such systems. In 2004, the first whole of system assessment of park management effectiveness, based on the IUCN-WCPA Management Effectiveness Evaluation Framework, was undertaken in New South Wales, Australia as part of a State of the Parks reporting requirement. This article describes the development of the State of the Parks assessment tool, its elements, and how it addresses the management effectiveness difficulties associated with assessments conducted across an extensive and diverse range of park types. The importance of engaging staff, at all levels, throughout the process is highlighted, as well as the adjustments made to the assessment tool based on staff feedback. While some results are presented, the main purpose of the article is to identify and discuss important procedural and methodological considerations. These include balancing quantitative and qualitative assessment approaches, achieving a comprehensive understanding of the management processes, and responding to any problems associated with assessments.     

Integration and integrated approaches to assessment: what do they mean for the environment?

Integration and integrated approaches are increasingly presented as new and superior ways to consider the environment in policy- and decision-making. If used in an uncritical way, this assertion could become a hindrance to good practice and could undermine efforts to defend or improve environmental quality. The aim of this paper is to provide the missing critical perspective through an investigation of the meanings of integration found in recent literature on assessment. This literature represents a broad survey of European (particularly UK) and US critiques of assessment practices, and proposals for better and usually ‘more integrated’ approaches. These critiques and proposals relate to a range of assessment contexts, from relatively technical issues of data handling, to questions of the design, choice and implementation of policy options. This paper also surveys, and contributes to, literature that questions the central goals and assumptions informing assessment practice and environmental governance more widely. Fourteen meanings of ‘integration’ are presented, with a discussion of the potential synergies and conflicts among them, and with environmental objectives. Integration is argued to be a matter of value judgements concerning assessment design in specific historical and social contexts. Far from providing a panacea, integration would appear to create as many challenges as it might resolve in seeking to achieve more sustainable development. Copyright © 2002 John Wiley & Sons, Ltd.     

A framework for assessing the accountability of local governance arrangements for adaptation to climate change

Accountability has hardly been studied in the governance of climate change adaptation. This paper develops a framework for assessing the accountability of interactive governance arrangements for local adaptation. This framework is based on five important accountability mechanisms: Clear responsibilities and mandates, Transparency, Political oversight, Citizen control and Checks and sanctions. For illustration purposes, the proposed framework is applied to the case of a Dutch local adaptation governance arrangement. The application shows that the five proposed mechanisms and their operationalizations offer a valid assessment of the accountability of such arrangements. It also raises some challenges, such as the tensions between accountability and flexibility, legitimacy and effectiveness; the potentially important roles of trust and of the political skills of central actor(s) in the arrangement in raising accountability, and the potential need to distinguish between arrangements for policy planning and for service delivery.     

Assessing Naturalness in Northern Great Lakes Forests Based on Historical Land-Cover and Vegetation Changes

The concept of naturalness was developed to assess to what degree landscapes represent a natural state. Protected areas are often regarded as the remnants of untouched landscapes although many landscapes commonly perceived as pristine have a long history of human impact. Here, we introduced a historical perspective into the concept of naturalness and the analysis of the effectiveness of protected areas by analyzing historical trajectories in land-cover and forest communities for the Pictured Rocks National Lakeshore on Michigan’s Upper Peninsula (USA). Distribution of land-cover and forest community types was reconstructed for pre-settlement time (around 1850), the height of agricultural expansion (1928), and modern conditions (2000). Naturalness of the landscape was assessed by analyzing similarity between pre-settlement and current conditions and by assessing landscape continuity (1850–1928–2000). We compared changes in the strictly protected park core zone with those in the inland buffer zone with ongoing sustainable logging, and a not protected area adjacent to the park. Forest was the dominant land-cover type over the entire study period. We detected a gradient in land-cover continuity from the core zone (81 % continuity) to the inland buffer zone (74 %) and the area outside the park (66 %). Northern hardwood was the dominating forest type in all time points with high continuity (76 %). In contrast, pine forests show a more dynamic pattern with more than 50 % of the initial forests switching to non-forest or early succession forest types by 1928. More than half of the study area was considered as “natural virgin” (no changes in land-cover and forest community type) with a higher portion within the park than in the adjacent area. In contrast, areas with low naturalness are more abundant outside the park. Our study demonstrates the value of integrating historical information into naturalness assessments and the results provide useful information for future park management. More broadly speaking, our study advances research on the effectiveness of protected areas, by going beyond simple measures of averted deforestation, and introducing approaches to directly measure naturalness.