Theory into Practice: Implementing Ecosystem Management Objectives in the USDA Forest Service

In the United States and around the world, scientists and practitioners have debated the definition and merits of ecosystem management as a new approach to natural resource management. While these debates continue, a growing number of organizations formally have adopted ecosystem management. However, adoption does not necessarily lead to successful implementation, and theories are not always put into practice. In this article, we examine how a leading natural resource agency, the United States Department of Agriculture Forest Service, has translated ecosystem management theory into concrete policy objectives and how successfully these objectives are perceived to be implemented throughout the national forest system. Through document analysis, interviews, and survey responses from 345 Forest Service managers (district rangers, forest supervisors, and regional foresters), we find that the agency has incorporated numerous ecosystem management components into its objectives. Agency managers perceive that the greatest attainment of such objectives is related to collaborative stewardship and integration of scientific information, areas in which the organization has considerable prior experience. The objectives perceived to be least attained are adaptive management and integration of social and economic information, areas requiring substantial new resources and a knowledge base not traditionally emphasized by natural resource managers. Overall, success in implementing ecosystem management objectives is linked to committed forest managers.     

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     

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.     

Livestock grazing and habitat for a threatened species: Land-use decisions under scientific uncertainty in the White Mountains,California, USA

The North Fork of Cottonwood Creek, in the White Mountains, Inyo National Forest, California, is a critically important refuge for the Paiute cutthroat trout (Oncorhynchus clarki seleniris), a federally listed threatened species. Habitat for these fish appears to be limited by excessive levels of fine sediment in the channel, and livestock grazing of riparian meadows has been implicated in delivery of sediment to the channel. However, the relationships between land use and sediment yield have not been conclusively determined, in large part because there are no historically ungrazed sites to serve as long-term controls. Accordingly, land-use decisions must be made under scientific uncertainty. To reduce erosion and sedimentation in the stream, the Forest Service spent approximately US$260,000 from 1981 to 1991 to repair watershed damage from livestock grazing, prevent livestock from traversing steep banks, and limit livestock access to the channel. Throughout this period, livestock grazing has continued on these lands, yielding less than $12,000 in grazing fees. In revising its Allotment Management Plan for the basin, the Forest Service rejected the “no-grazing” alternative because it was inconsistent with its Land and Resource Management Plan, which specifies there is to be no net reduction of grazing. Joint appointment with the University of California White Mountain Research Station, East Line Street, Bishop, California 93518, USA.     

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.     

Timber harvest calculations on a National Forest: A case study

Harvest calculations determine sawtimber flows from public lands and are closely scruntinized by a wide spectrum of forest users. This study examines the reliability of harvest calculations on a single national forest in New Mexico Forest Service determinations of an array of variables were reviewed and evaluated. The study revealed a lack of precision in Forest Service adherence to self-imposed procedural standards governing the calculation process. Timber sales have taken place on lands where such standards prohibit harvesting and these lands have been included in annual harvest calculations. Assumptions required by a mathematical model used by the Forest Service in calculating the harvest were not followed in the subsequent implementation of the harvest level. These factors suggest that the Forest Service could have significantly over-stated annual harvest rate for the first decade. Opportunities exist to improve the calculation, and benefits realized may greatly exceed additional costs of implementation     

Using Canonical Correlation Analysis to Identify Environmental Attitude Groups: Considerations for National Forest Planning in the Southwestern U.S.

As public land management agencies pursue region-specific resource management plans, with meaningful consideration of public attitudes and values, there is a need to characterize the complex mix of environmental attitudes in a diverse population. The contribution of this investigation is to make use of a unique household, mail/internet survey data set collected in 2007 in the Southwestern United States (Region 3 of the U.S. Forest Service). With over 5,800 survey responses to a set of 25 Public Land Value statements, canonical correlation analysis is able to identify 7 statistically distinct environmental attitudinal groups. We also examine the effect of expected changes in regional demographics on overall environmental attitudes, which may help guide in the development of socially acceptable long-term forest management policies. Results show significant support for conservationist management policies and passive environmental values, as well as a greater role for stakeholder groups in generating consensus for current and future forest management policies.     

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.     

Institutional,Individual, and Socio-Cultural Domains of Partnerships: A Typology of USDA Forest Service Recreation Partners

Federal land management agencies, such as the USDA Forest Service, have expanded the role of recreation partners reflecting constrained growth in appropriations and broader societal trends towards civic environmental governance. Partnerships with individual volunteers, service groups, commercial outfitters, and other government agencies provide the USDA Forest Service with the resources necessary to complete projects and meet goals under fiscal constraints. Existing partnership typologies typically focus on collaborative or strategic alliances and highlight organizational dimensions (e.g., structure and process) defined by researchers. This paper presents a partner typology constructed from USDA Forest Service partnership practitioners’ conceptualizations of 35 common partner types. Multidimensional scaling of data from unconstrained pile sorts identified 3 distinct cultural dimensions of recreation partners—specifically, partnership character, partner impact, and partner motivations—that represent institutional, individual, and socio-cultural cognitive domains. A hierarchical agglomerative cluster analysis provides further insight into the various domains of agency personnel’s conceptualizations. While three dimensions with high reliability (RSQ = 0.83) and corresponding hierarchical clusters illustrate commonality between agency personnel’s partnership suppositions, this study also reveals variance in personnel’s familiarity and affinity for specific partnership types. This real-world perspective on partner types highlights that agency practitioners not only make strategic choices when selecting and cultivating partnerships to accomplish critical task, but also elect to work with partners for the primary purpose of providing public service and fostering land stewardship.     

The declining cocoa economy and the Atlantic Forest of Southern Bahia,Brazil: Conservation attitudes of cocoa planters

Summary The causes of the degradation of Brazilian Atlantic Forest in the south-eastern cocoa region of the State of Bahia are investigated by means of a survey on cocoa planter's forest conservation attitudes. Large land-owners were found to be responsible for most of the forest clearing that occurred in the past: cocoa prices compensated investment in the expansion of the area planted to cocoa on planters' forested land-holdings. Large land-owners were also responsible for most of the recent forest clearing, which occurred simply to sell trees in order to earn income while cocoa prices were depressed. Large land-owners are nonetheless more interested than small land-owners in conserving some of their forest. Policies encouraging private forest conservation, and the development of forest-conserving agricultural alternatives for the landless poor are recommended.Dr Keith Alger teaches at the Universidade Estadual de Santa Cruz in Southern Bahia, a community college in Brazil's cocoa producing region. He is Vice-President of Fundação Pau Brasil, a non-profit association of local researchers and environmentalists whose objective is to encourage the conservation of biodiversity in regional, economic and social development. He does volunteer work for Projeto Mico-Leão Baiano (The Bahian Lion Tamarin Project), an environmental education project coordinated by maria Cristina Alves and sponsored by the Wildlife Preservation Trust International. Dr Alger's current research on land-use tendencies in a wildlife park buffer zone is supported by Conservation International and the World Wildlife fund. Marcellus Caldas took his MS in agricultural economics at the Universidade Federal de Viçosa in Minas Gerais, and teaches at the Universidade Federal da Bahia in Cruz das Almas, Bahia, Brazil.     

Environmental Management in India: Recent Challenges to the Indian Forest Service

This paper examines the impact of various social, economic and political changes on the work of the Indian Forest Service, the elite organization concerned with environmental management in India. It is noted that whilst many leading authors criticize this organization, nobody has taken the time to analyse the role of the Indian Forest Service and the way it has responded to the many challenges it has faced in the last 20 years. This paper seeks to rectify this by focusing on three key challenges: (1) due to economic liberalization the actual work that the forest officer is expected to undertake has changed beyond recognition; (2) political manipulation and correspondingly accusations of corruption have increased; (3) social changes and their impact on recruitment into the Indian Forest Service. It is concluded that, despite the many challenges which the Indian Forest Service has faced over the years, it is remarkably resilient and remains the most powerful agent in rural India.     

Examining the Role of Voluntary Associations in Environmental Management: The Case of the Sam Houston National Forest

The purpose of this study was to gain a better understanding of voluntary associations involved in forest management. The specific areas examined in this study include organizational attributes, membership profile, attitudes toward forest-management priorities, and concerns about forest-management issues. To achieve this purpose, data were collected using a case study approach with mixed-methods (document reviews, personal interviews, and a Web survey) at a national forest in Texas, USA. Overall, the voluntary associations in this study can be described as place-based, small to moderate in scale, activity-oriented, and active groups that are adaptive to sociopolitical and environmental changes. General group members placed high importance on aesthetic, ecological, and recreation management of the national forest. In addition, this study showed five key forest management issues: (1) limited recreation access; (2) financial challenges for forest management; (3) conflict among recreation user groups; (4) inadequate communication by the United States Forest Service to the general public, and (5) sustainability of the forest. Theoretical and managerial implications of the results are discussed.     

Carbon sequestration,biological diversity,and sustainable development: Integrated forest management

Tropical deforestation provides a significant contribution to anthropogenic increases in atmospheric CO₂ concentration that may lead to global warming. Forestation and other forest management options to sequester CO₂ in the tropical latitudes may fail unless they address local economic, social, environmental, and political needs of people in the developing world. Forest management is discussed in terms of three objectives: carbon sequestration, sustainable development, and biodiversity conservation. An integrated forest management strategy of land-use planning is proposed to achieve these objectives and is centered around: preservation of primary forest, intensified use of nontimber resources, agroforestry, and selective use of plantation forestry. The information in this document has been wholly funded by the US Environmental Protection Agency. It has been subjected to the agency's peer and administrative review and approved for publication of an EPA document. Mention of trade names or commercial products does not constitute endorsement or recommendation for use.     

An Ecological Basis for Managing Giant Sequoia Ecosystems

A strategy for management of giant sequoia groves is formulated using a conceptual framework for ecosystem management recently developed by Region Five of the USDA Forest Service. The framework includes physical, biological, and social dimensions. Environmental indicators and reference variability for key ecosystem elements are discussed in this paper. The selected ecosystem elements include: 1) attitudes, beliefs, and values; 2) economics and subsistence; 3) stream channel morphology; 4) sediment; 5) water; 6) fire; 7) organic debris; and 8) vegetation mosaic. Recommendations are made for the attributes of environmental indicators that characterize these elements. These elements and associated indicators will define and control management activities for the protection, preservation, and restoration of national forest giant sequoia ecosystems.     

Cooperation or conflict? Interagency relationships and the future of biodiversity for US parks and forests

Cooperation between the United States Department of Agriculture (USDA) Forest Service and the United States Department of Interior (USDI) National Park Service is most often advocated to protect biological diversity on national forests and parks, but the agencies, so far, have done little to implement the biodiversity mandates of such laws as the Endangered Species Act and the National Forest Management Act. The ideological and political history of the Forest Service and Park Service is explored to determine the roots of interagency conflicts. Several recent models of cooperative reform are also critiqued and found to be insufficient to stimulate better working relationships. To protect biodiversity, cooperation must be framed within conservation biology and must place primary emphasis on ecosystem patterns and processes as well as on individual species. Increased education of agency managers, ecosystem-level research, local and regional public participation, scientific oversight committees, new legislation, and enlightened leadership also play important roles. Ultimately, management policies must be reframed within a context of ecocentric values.     

A study of forest values and management attitudes in the general public in Germany and Sweden: does context matter?

Based on the reasoning that contextual variations are important for understanding differences in forest cognitions, this study examined forest values and management attitudes in the general public in Germany (n = 1135) and Sweden (n = 1311) by means of a questionnaire. Results indicated that the public in both countries emphasised similar forest values, and the overall pattern was comparable for different types of forest, although certain differences based on forest type and country were evident. For example, the German public was more ecologically oriented, whereas the Swedish public was more production oriented in its forest values and management attitudes. Furthermore, ecological and various anthropocentric forest values were perceived to be quite compatible, with the Swedish respondents perceiving this to a greater extent than the German. The overall cognitive structure of forest values and management attitudes was similar in both countries, although differences were revealed, particularly regarding attitudes.     

iTree‐Hydro: Snow Hydrology Update For The Urban Forest Hydrology Model1

Yang, Yang, Theodore A. Endreny, and David J. Nowak, 2011. iTree‐Hydro: Snow Hydrology Update for the Urban Forest Hydrology Model. Journal of the American Water Resources Association (JAWRA) 47(6):1211–1218. DOI: 10.1111/j.1752‐1688.2011.00564.x Abstract: This article presents snow hydrology updates made to iTree‐Hydro, previously called the Urban Forest Effects—Hydrology model. iTree‐Hydro Version 1 was a warm climate model developed by the USDA Forest Service to provide a process‐based planning tool with robust water quantity and quality predictions given data limitations common to most urban areas. Cold climate hydrology routines presented in this update to iTree‐Hydro include: (1) snow interception to simulate the capture of snow by the vegetation canopy, (2) snow unloading to simulate the release of snow triggered by wind, (3) snowmelt to simulate the solid to liquid phase change using a heat budget, and (4) snow sublimation to simulate the solid to gas phase via evaporation. Cold climate hydrology routines were tested with research‐grade snow accumulation and weather data for the winter of 1996‐1997 at Umpqua National Forest, Oregon. The Nash‐Sutcliffe efficiency for open area snow accumulation was 0.77 and the Nash‐Sutcliffe efficiency for under canopy was 0.91. The USDA Forest Service offers iTree‐Hydro for urban forest hydrology simulation through http://www.iTreetools.org .     

Depletion of forest resources in south eastern Nigeria: who loses?

Forest management in south eastern Nigeria has changed hands from the forest communities to foreign technology. As a result the sustainable, conservative and cyclical use that characterised the communities that lived in balance with their forest resources are no longer practised. Consequently, a great deal of the region's valuable timber trees has been lost and the environmental influences of the forest grossly reduced. The local communities have not only been deprived of a multitude of non-timber forest resources upon which they depend for their survival and well-being but have also lost their knowledge of traditional forest management. Although these consequences are far-reaching, the neglected majority in the rural areas bear the brunt. To save what is left of the once vast forest areas, communities in and around the biome need to be empowered to manage their forest resources. Empowerment will challenge their responsibility and their ability to function for the common good—themselves, the State and the world at large.     

Using Topography to Meet Wildlife and Fuels Treatment Objectives in Fire-Suppressed Landscapes

Past forest management practices, fire suppression, and climate change are increasing the need to actively manage California Sierra Nevada forests for multiple environmental amenities. Here we present a relatively low-cost, repeatable method for spatially parsing the landscape to help the U.S. Forest Service manage for different forest and fuel conditions to meet multiple goals relating to sensitive species, fuels reduction, forest products, water, carbon storage, and ecosystem restoration. Using the Kings River area of the Sierra Nevada as a case study, we create areas of topographically-based units, Landscape Management Units (LMUs) using a three by three matrix (canyon, mid-slope, ridge-top and northerly, southerly, and neutral aspects). We describe their size, elevation, slope, aspect, and their difference in inherent wetness and solar radiation. We assess the predictive value and field applicability of LMUs by using existing data on stand conditions and two sensitive wildlife species. Stand conditions varied significantly between LMUs, with canyons consistently having the greatest stem and snag densities. Pacific fisher (Martes pennanti) activity points (from radio telemetry) and California spotted owl (Strix occidentalis occidentalis) nests, roosts, and sightings were both significantly different from uniform, with a disproportionate number of observations in canyons, and fewer than expected on ridge-tops. Given the distinct characteristics of the LMUs, these units provide a relatively simple but ecologically meaningful template for managers to spatially allocate forest treatments, thereby meeting multiple National Forest objectives. These LMUs provide a framework that can potentially be applied to other fire-dependent western forests with steep topographic relief.     

From Environmental Ethics to Nature Conservation Policy: Natura 2000 and the Burden of Proof

Natura 2000 is a network of natural sites whose aim is to preserve species and habitats of relevance in the European Union. The policy underlying Natura 2000 has faced widespread opposition from land users and received extensive support from environmentalists. This paper addresses the ethical framework for Natura 2000 and the probable moral assumptions of its main stakeholders. Arguments for and against Natura 2000 were analyzed and classified according to “strong” or “weak” versions of the three main theories of environmental ethics – anthropocentrism, biocentrism, and ecocentrism. Weak (intergenerational) anthropocentrism was found to underlie the Natura 2000 network itself and the positions of environmentalists, while strong (traditional) anthropocentrism pervaded the positions of economic developers. Land users seemed to fall somewhere between weak and strong anthropocentrism. The paper discusses the relation between ethics and different attitudes towards Natura 2000, highlighting some of the implications for the network’s ongoing implementation. It is shown that Natura 2000 achieves a strong reversal of the burden of proof from conservation to economic development and land use change under anthropocentrism. It is argued that the alleged theoretical divide between anthropocentrism and non-anthropocentrism in relation to the burden of proof does not seem to hold in practice. Finally, it is predicted that the weak versions of anthropocentrism, biocentrism, and ecocentrism, are likely to converge extensively in respect to nature conservation policy measures.“Charting the depths of law and policy disputes yield an understanding of ethical differences.” Paul B. Thompson (2002, p. 189).