Priorities for Improving the Scientific Foundation of Conservation Policy in North America

Abstract:  The Society for Conservation Biology (SCB) can enhance conservation of biodiversity in North America by increasing its engagement in public policy. Toward this end, the North America Section of SCB is establishing partnerships with other professional organizations in order to speak more powerfully to decision makers and taking other actions—such as increasing interaction with chapters—geared to engage members more substantively in science-policy issues. Additionally, the section is developing a North American Biodiversity Blueprint, which spans the continental United States and Canada and is informed by natural and social science. This blueprint is intended to clarify the policy challenges for protecting continental biodiversity, to foster bilateral collaboration to resolve common problems, and to suggest rational alternative policies and practices that are more likely than current practices to sustain North America's natural heritage. Conservation scientists and practitioners can play a key role by drawing policy makers' attention to ultimate, as well as proximate, causes of biodiversity decline and to the ecological and economic consequences of not addressing these threats.     

Conservation Focus on Europe: Major Conservation Policy Issues That Need to Be Informed by Conservation Science

Abstract:  Europe is one of the world's most densely populated continents and has a long history of human-dominated land- and seascapes. Europe is also at the forefront of developing and implementing multinational conservation efforts. In this contribution, we describe some top policy issues in Europe that need to be informed by high-quality conservation science. These include evaluation of the effectiveness of the Natura 2000 network of protected sites, implications of rapid economic and subsequent land-use change in Central and Eastern Europe, conservation of marine biodiversity and sustainability of fisheries, the effect of climate change on movement of species in highly fragmented landscapes, and attempts to assess the economic value of ecosystem services and biodiversity. Broad policy issues such as those identified are not easily amenable to scientific experiment. A key challenge at the science–policy interface is to identify the research questions underlying these problem areas so that conservation science can provide evidence to underpin future policy development .     

The Aquatic Conservation Strategy of the Northwest Forest Plan

Abstract:  Implemented in 1994, the Aquatic Conservation Strategy of the Northwest Forest Plan was designed to restore and maintain ecological processes for aquatic and riparian area conservation on federal lands in the western portion of the Pacific Northwest. We used decision support models to quantitatively evaluate changes in the condition of selected watersheds. In the approximately 10 years since strategy implementation, watershed condition scores changed modestly, but conditions improved in 64% of 250 sampled watersheds, declined in 28%, and remained relatively the same in 7%. Watersheds that had the largest declines included some where wildfires burned 30–60% of their area. The overall statistical distribution of the condition scores did not change significantly, however. Much of the increase in watershed condition was related to improved riparian conditions. The number of large trees (>51 cm diameter at breast height) increased 2–4%, and there were substantial reductions in tree harvest and other disturbances along streams. Whether such changes will translate into longer-term improvements in aquatic ecosystems across broader landscapes remains to be seen.     

Why the Conservation of Forest Genetic Resources Has Not Worked

Abstract:  Genetic diversity is indispensable for long-term forest sustainability and is therefore mentioned in numerous binding and nonbinding political covenants calling for action. Nevertheless, there are significant obstacles to the conservation of forest genetic resources. We discuss hindrances to genetic conservation, mainly in Europe. We identified impediments by reviewing the literature and on the basis of the experiences of the authors in this field and their participation in related political processes. The impediments include (1) difficulties in assessing and monitoring genetic erosion and human impacts (e.g., by the lack of markers showing adaptive variation and the lack of record keeping on the use and transfer of forest-tree germplasm), (2) complexities of European national structures that make the development of a common strategy toward forest genetic conservation problematic, (3) lack of effective forest governance in many parts of the world, (4) the general unattractiveness of genes as flagships in raising public awareness, (5) lack of integration of genetic aspects into biodiversity conservation, and (6) the fact that scientists and politicians are often at cross-purposes. To overcome these impediments, forest geneticists and their peers in species conservation have to participate more actively in decision making. In doing so, they must be prepared to face challenges on 2 fronts: participating in political processes and the provision of significant research findings to ensure that decisions with respect to forest genetic diversity are politically implementable and effectively address targets.     

Major Conservation Policy Issues for Biodiversity in Oceania

Abstract:  Oceania is a diverse region encompassing Australia, Melanesia, Micronesia, New Zealand, and Polynesia, and it contains six of the world's 39 hotspots of diversity. It has a poor record for extinctions, particularly for birds on islands and mammals. Major causes include habitat loss and degradation, invasive species, and overexploitation. We identified six major threatening processes (habitat loss and degradation, invasive species, climate change, overexploitation, pollution, and disease) based on a comprehensive review of the literature and for each developed a set of conservation policies. Many policies reflect the urgent need to deal with the effects of burgeoning human populations (expected to increase significantly in the region) on biodiversity. There is considerable difference in resources for conservation, including people and available scientific information, which are heavily biased toward more developed countries in Oceania. Most scientific publications analyzed for four threats (habitat loss, invasive species, overexploitation, and pollution) are from developed countries: 88.6% of Web of Science publications were from Australia (53.7%), New Zealand (24.3%), and Hawaiian Islands (10.5%). Many island states have limited resources or expertise. Even countries that do (e.g., Australia, New Zealand) have ongoing and emerging significant challenges, particularly with the interactive effects of climate change. Oceania will require the implementation of effective policies for conservation if the region's poor record on extinctions is not to continue .     

Integrating Top-Down with Bottom-Up Conservation Policy in Africa

Abstract:  Developed nations intervened in conservation policy across Africa during the 20th century to address needs to protect species and biodiversity that were based on their own perceptions and priorities. In the 21st century, conservationists in Africa have revised these perceptions and begun the process of identifying conservation priorities from an African perspective and in consideration of Africans' priorities. Although foreign conservation interveners struggled to identify mechanisms to which local people would respond, African conservationists are now demonstrating how to integrate the continent's unique socioeconomic circumstances into efforts to protect biodiversity. In Africa effective conservation policy must include the generation of wealth, reduction of disease and hunger, and support of traditional land-use practices.     

Science, Policy Advocacy, and Marine Protected Areas

Abstract:  Much has been written in recent years regarding whether and to what extent scientists should engage in the policy process, and the focus has been primarily on the issue of advocacy. Despite extensive theoretical discussions, little has been done to study attitudes toward and consequences of such advocacy in particular cases. We assessed attitudes toward science and policy advocacy in the case of marine protected areas (MPAs) on the basis of a survey of delegates at the First International Marine Protected Areas Congress. Delegates were all members of the international marine conservation community and represented academic, government, and nongovernmental organizations. A majority of respondents believed science is objective but only a minority believed that values can be eliminated from science. Respondents showed only partial support of positivist principles of science. Almost all respondents supported scientists being integrated into MPA policy making, whereas half of the respondents agreed that scientists should actively advocate for particular MPA policies. Scientists with a positivist view of science supported a minimal role for scientists in policy, whereas government staff with positivist beliefs supported an advocacy or decision-making role for scientists. Policy-making processes for MPAs need to account for these divergent attitudes toward science and advocacy if science-driven and participatory approaches are to be reconciled.     

Trade-Offs between Species Conservation and the Size of Marine Protected Areas

Abstract:  Moving from single-species- to ecosystem-based management requires an understanding of how community-level attributes such as diversity change with area. We used survey data from bottom trawls to examine spatial patterns of species richness in U.S. Pacific coastal fishes. Specifically, we generated and compared species–area relationships (SARs) for species classified into several groups on the basis of maximum body size, trophic level, diet, maximum depth, geographic affinity, and taxonomic order. Because SARs among groups were not parallel and z values varied significantly for several groups, groups of species were under- or overrepresented (depending on the size of the area) relative to their proportions in the entire community (i.e., entire U.S. Pacific coast). In this way, differences in SARs help demonstrate trade-offs between species representation and coastal area and suggest strategies (such as targeting the protection of habitats and locations where a particular species or groups of species are maximized) that may minimize the size of marine protected areas (MPAs) but protect diversity at the level of the community and functional group.     

Conservation Value of Multiple-Use Areas in East Africa

Abstract:  Despite wide agreement that strictly protected areas (World Conservation Union categories I–III) are the best strategy for conserving biodiversity, they are limited in extent and exclude many species of key conservation importance. In contrast, multiple-use management areas (categories IV–VI), comprising >60% of the world's protected-area network, are often considered of little value to biodiversity conservation, particularly in Africa, where they typically contain few charismatic large mammals. We sampled small mammals, amphibians, birds, butterflies, and trees at 41 sites along a four-step gradient of increasing human activity and decreasing conservation protection, from a well-protected Tanzanian national park to nonintensive agricultural land. Although preliminary, our results indicate that species richness of these five taxa did not decline along this gradient, but different management areas, occupying areas of largely similar habitat, hosted distinct communities of each taxon. Differences in species composition in the absence of manifest differences in species richness highlight the importance of developing landscape-scale conservation strategies and the danger of using either a limited suite of indicator taxa or umbrella species as surrogates for biodiversity. Although strictly protected areas perform a unique and vital conservation service in East Africa by protecting large mammals, areas that allow varied resource extraction activities still possess vital and complementary conservation value.     

Past and Present Effectiveness of Protected Areas for Conservation of Naturally and Anthropogenically Rare Plant Species

Abstract:  The Global Strategy of Plant Conservation states that at least 60% of threatened plant species should be within protected areas. This goal has been met in some regions with long traditions of plant protection. We used gap analysis to explore how particular groups of species of conservation interest, representing different types of natural or anthropogenic rarity, have been covered by protected areas on a national scale in Estonia during the last 100 years. Species-accumulation curves indicated that plant species that are naturally rare (restricted global or local distribution, always small populations, or very rare habitat requirements) needed almost twice as many protected areas to reach the 60% target as plant species that are rare owing to lack of suitable management (species depending on grassland management, moderate forest disturbances, extensive traditional agriculture, or species potentially threatened by collecting). Temporal analysis of the establishment of protected areas suggested that grouping plant species according to the predominant cause of rarity accurately reflected the history of conservation decision making. Species found in very rare habitats have previously received special conservation attention; species dependent on traditional extensive agriculture have been largely ignored until recently. Legislative initiative and new nature-protection schemes (e.g., Natura 2000, network of protected areas in the European Union) have had a positive influence on all species groups. Consequently, the species groups needing similar action for their conservation are sensitive indicators of the effectiveness of protected-area networks. Different species groups, however, may not be uniformly conserved within protected areas, and all species groups should fulfill the target of 60% coverage within protected areas.     

Economic Valuation of Biodiversity Conservation: the Meaning of Numbers

Abstract:  Recognition of the need to include economic criteria in the conservation policy decision-making process has encouraged the use of economic-valuation techniques. Nevertheless, whether it is possible to accurately assign economic values to biodiversity and if so what these values really represent is being debated. We reviewed 60 recent papers on economic valuation of biodiversity and carried out a meta-analysis of these studies to determine what factors affect willingness to pay for biodiversity conservation. We analyzed the internal variables of the contingent-valuation method (measure of benefits, vehicle of payment, elicitation format, or timing of payment) and anthropomorphic, anthropocentric and scientific factors. Funding allocation mostly favored the conservation of species with anthropomorphic and anthropocentric characteristics instead of considering scientific factors. We recommend researchers and policy makers contemplate economic valuations of biodiversity carefully, considering the inherent biases of the contingent-valuation method and the anthropomorphic and anthropocentric factors resulting from the public's attitude toward species. Because of the increasing trend of including economic considerations in conservation practices, we suggest that in the future interdisciplinary teams of ecologists, economists, and social scientists collaborate and conduct comparative analyses, such as we have done here. Use of the contingent-valuation method in biodiversity conservation policies can provide useful information about alternative conservation strategies if questionnaires are carefully constructed, respondents are sufficiently informed, and the underlying factors that influence willingness to pay are identified.     

Assessing Conservation Management's Evidence Base: a Survey of Management-Plan Compilers in the United Kingdom and Australia

Abstract:  Conservation management is becoming increasingly resource intensive as threats to biodiversity grow through habitat destruction, habitat disturbance, and overexploitation. To achieve successful conservation and sustainable use of natural resources, we need to scientifically evaluate the effectiveness of conservation interventions and provide an efficient framework through which scientific evidence can be used to support decision making in policy and practice. We conducted the first formal assessment of the extent to which scientific evidence is used in conservation management through a questionnaire survey and follow-up interviews of compilers of protected-area management plans from major conservation organizations within the United Kingdom and Australia. Our survey results show that scientific information is not being used systematically to support decision making largely because it is not easily accessible to decision makers. This, in combination with limited monitoring and evaluation of effectiveness of management interventions, results in the majority of decisions being based on experience rather than on evidence. To address this problem we propose using an evidence-based framework adapted from that used in the health services and explain how we are currently putting an equivalent framework into practice by establishing review and dissemination units to serve the conservation sector.     

Devising Appropriate Policies and Instruments in Support of Private Conservation Areas: Lessons Learned from the Klein Karoo,South Africa

Abstract: The amount of privately conserved land is increasing worldwide. The potential of these areas to contribute to the global conservation of biodiversity is significant, given that statutory protected areas alone will not suffice. Nevertheless, there is still inadequate support for private conservation areas, and further research on appropriate, flexible, and generally applicable incentive measures is necessary. We conducted 25 semistructured interviews with the owners of private conservation areas in the Little Karoo, South Africa, to examine landowner opinions of existing conservation policies and their relationships with the local conservation authority. We also assessed landowner preferences regarding conservation incentive measures. Landowners doubted the conservation authority's capacity to implement its stewardship program and were also discouraged by the bureaucracy of the program. The conservation authority was often viewed negatively, except where landowners had experienced personal contact from conservation staff or where strong social capital had formed among landowners. Landowners did not desire financial rewards for their conservation efforts, but sought recognition of their stewardship role and greater involvement from the conservation authority through personal contact. We conclude that conservation policies for private lands could benefit from the provision of extension services to landowners, promotion of formation of groups of landowners and other stakeholders, and public acknowledgment of the contributions private conservation areas make.     

Identifying Conservation Areas on the Basis of Alternative Distribution Data Sets

Abstract:  Distribution data on biodiversity features is a major component of conservation planning that are often inaccurate; thus, the true distribution of each feature is commonly over- or underrepresented. The selection of distribution data sets may therefore lead to variability in the spatial configuration and size of proposed reserve networks and uncertainty regarding the extent to which these networks actually contain the biodiversity features they were identified to protect. Our goals were to investigate the impact on reserve selection of choosing different distribution data sets and to propose novel methods to minimize uncertainty about target attainment within reserves. To do so, we used common prioritization methods (richness mapping, systematic reserve design, and a novel approach that integrates multiple types of distribution data) and three types of data on the distribution of mammals (predicted distribution models, occurrence records, and a novel combination of the two) to simulate the establishment of regional biodiversity reserves for the state of Arizona (U.S.A.). Using the results of these simulations, we explored variability in reserve placement and size as a function of the distribution data set. Spatial overlap of reserve networks identified with only predicted distribution data or only occurrence distribution data never exceeded 16%. In pairwise comparisons between reserves created with all three types of distribution data, overlap never achieved 50%. The reserve size required to meet conservation targets also varied with the type of distribution data used and the conservation goal; the largest reserve system was 10 times the smallest. Our results highlight the impact of employing different types of distribution data and identify novel tools for application to existing distribution data sets that can minimize uncertainty about target attainment.     

A Freshwater Classification Approach for Biodiversity Conservation Planning

Abstract:  Freshwater biodiversity is highly endangered and faces increasing threats worldwide. To be complete, regional plans that identify critical areas for conservation must capture representative components of freshwater biodiversity as well as rare and endangered species. We present a spatially hierarchical approach to classify freshwater systems to create a coarse filter to capture representative freshwater biodiversity in regional conservation plans. The classification framework has four levels that we described using abiotic factors within a zoogeographic context and mapped in a geographic information system. Methods to classify and map units are flexible and can be automated where high-quality spatial data exist, or can be manually developed where such data are not available. Products include a spatially comprehensive inventory of mapped and classified units that can be used remotely to characterize regional patterns of aquatic ecosystems. We provide examples of classification procedures in data-rich and data-poor regions from the Columbia River Basin in the Pacific Northwest of North America and the upper Paraguay River in central South America. The approach, which has been applied in North, Central, and South America, provides a relatively rapid and pragmatic way to account for representative freshwater biodiversity at scales appropriate to regional assessments.     

Science and Society: Marine Reserve Design for the California Channel Islands

Abstract:  We explored the interaction of science and society in attempts to restore impaired marine ecosystems in Channel Islands National Park and National Marine Sanctuary, California. Deteriorating resource conditions triggered a community's desire to change public policy. Channel Islands National Park, one of 40 marine protected areas in the U.S. National Park System, was proclaimed a national monument in 1938 and expanded substantially in 1980 by an act of Congress. Collapse of marine life populations and loss of 80% of the giant kelp (Macrocystis pyrifera) forests in the park between 1980 and 1998 showed that habitat and water quality protection alone had not secured sustainable ocean ecosystems or fisheries. The failed fishery management strategies and practices prompted formal community and agency requests in 1998 for a network of reserves protected from direct fishing impacts to serve as marine recovery areas. A 2-year attempt to build a community consensus based on science for a reserve network successfully identified recovery goals for fisheries, biodiversity, education, economics, and heritage values. Nevertheless, the community group failed to garner unanimous support for a specific reserve network to achieve those common goals. The group submitted a recommendation, supported by 14 of 16 members, to state and federal authorities in 2001 for action in their respective jurisdictions. California adopted the half of the network in state waters in 2003. This process exposed the socioeconomic factors involved in the design of marine protected areas that can be negotiated successfully among groups of people and factors determined by nature that cannot be negotiated. Understanding the differences among the factors was crucial in reaching consensus and changing public policy.