Agency–Community Partnership in Landcare: Lessons for State-Sponsored Citizen Resource Management

/ With over 2500 Australian Landcare groups, 65,000 volunteer members, and considerable evidence of program impact, Landcare is an important example of state-sponsored rural development in a developed nation. The agency-community partnership is a fundamental element of Landcare and getting the partnership right is vital to long-term program success. After reviewing the emergence of Landcare in the state of Victoria, the author reports research from a 1995 survey of Victorian Landcare groups. Survey information highlighted the extent of agency-group contact, the important roles agency staff played in many Landcare groups, and the positive impact of agency contact and government funding upon group activity. Large majorities of groups reported they were satisfied with their relationship with agency staff. However, a majority of groups reported money or materials provided to manage land and water degradation was inadequate. Recently proposed changes to the Landcare program will provide government funding of work on private property and may address this concern. A majority of groups also reported support for leadership and management training was inadequate and respondents emphasized the need to revise program guidelines that limit funding for group coordinators. This information highlighted the importance of articulating a practical model of community participation in Australia and adopting a systematic approach to providing agency support for Landcare groups. Reflecting upon the Landcare experience, the author suggests some of the key elements of a practical model of state-sponsored citizen resource management contributing to rural development.KEY WORDS: Landcare; Australia; Community participation; Rural development; Citizen resource management; Sustainable agriculture     

LANDCARE AND COMMUNITY-LED WATERSHED MANAGEMENT IN VICTORIA,AUSTRALIA1

ABSTRACT: Australia's ‘Landcare’ program is a community-based participatory program established by government to tackle the problem of land degradation. Landcare involves thousands of Australians working together in locally based groups, tackling problems of common concern. Government and community are now looking to ‘scale up’ the Landcare idea to a regional level. State and territory governments have moved to create regional (often watershed-based) frameworks for land management planning and resource conservation, in accordance with the concept of integrated watershed management. Growing out of the success of community involvement in Landcare, many of these approaches involve the community. However scaling up of the Landcare idea introduces problems of both time and space. There have been a number of problems experienced in the implementation of Landcare and integrated watershed management. These problems include the equitable delineation of membership on decision-making bodies; the raising of sufficient funds for program implementation; and the coordination of a diversity of governmental layers, planning processes and management programs. This paper reviews how the State of Victoria has responded to these challenges and suggests what challenges remain.     

SUSTAINING LOCAL WATERSHED INITIATIVES: LESSONS FROM LANDCARE AND WATERSHED COUNCILS1

ABSTRACT: In the last decade, watershed groups (WG) established through government initiatives have become an important part of the natural resource management landscape in developed economies. In this paper, the authors reflect upon their research and experience with Landcare in Victoria, and to a lesser extent with Watershed Councils in Oregon, to identify the principles that appear fundamental to sustaining effective WG. In the first instance, these groups must be established at a local scale using social as well as biophysical boundaries. It is also critical that WG are embedded within a supportive institutional framework that identifies realistic roles for private landowners, local organizations such as WG, and regional planning bodies. Without broad stakeholder representation, the perceived benefits of participation are quickly forfeited. It is simply unrealistic to expect an effective network of WG to be sustained without substantial investment by government to provide for program management, group coordination, and cost sharing for on‐ground work. There must also be the commitment and skills within a program to establish processes that build trust and competency amongst citizens and agencies. These principles should also provide a foundation for the critical evaluation of WG programs.     

Local and Regional Partnerships in Natural Resource Management: The Challenge of Bridging Institutional Levels

Although collaboration and multi-stakeholder partnerships have become a common feature in natural resource management throughout the world, various problems are associated with attempts to up-scale community-based natural resource management from the local to the regional level. To analyze the reasons behind these problems, this article reports on two examples of collaboratives in Australia: local Landcare groups, and regional natural resource management (NRM) bodies. Recent government-induced changes have shifted the focus from local Landcare group action to strategic planning and implementation by regional NRM bodies. Two typologies of collaboratives are applied to analyze the characteristics of both these groups. The study uses data from 52 qualitative interviews with key informants at the local and regional level in Victoria and Tasmania, participant observation, as well as literature and document analysis. The article illustrates how the groups’ distinct characteristics can cause conflicts when the different types of collaboratives operate in parallel. In addition, the article reports how stakeholders perceive the level of community participation in decision-making processes. The key message is that the benefits of community participation and collaboration that arise at the local level can be lost when these approaches are up-scaled to the regional level unless there is an intermediary or ‘mediating structure’ to facilitate communication and create the link between different types of collaboratives.     

Maintaining Volunteer Commitment to Local Watershed Initiatives

Australia's Landcare program is advanced as a successful international example of local watershed groups and governments working together to improve natural resource management. One of the aspects considered critical in the success of watershed groups is engaging widespread participation. This paper draws on two regional surveys that explored burnout, or loss of engagement, among Landcare participants in the state of Victoria using the Maslach Burnout Inventory. Survey findings indicated that a large proportion of respondents were experiencing high burnout in terms of low personal accomplishment and suggested that there was potential for burnout to increase. The authors suggest that the expectations of watershed groups must be based around a realistic assessment of the capacity for volunteer groups to deliver improved environmental and social outcomes.     

Whose landcare? Observations on the role of 'community' in the Australian landcare programme

Australia's 'Landcare' programme is a community-based, participatory programme established by government, to tackle the problem of land degradation. It has been hailed by some as the world's most imaginative sustainable development policy. In light of the agreements reached at the Rio Earth Summit, particularly Agenda 21, the experience of established programmes such as Landcare may be useful to those beginning to grapple with the call for greater community involvement. This paper explores briefly the presentation and enactment of ideas of 'community' and 'ownership' in the Landcare programme and finds that, contrary to the rhetoric, community 'ownership' of Landcare is, in practice, ambiguous.     

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.     

Understanding the role and influence of social norms: lessons for NRM

Much has been written about social norms in disciplines such as law and economics but they are less studied in the field of Natural Resource Management (NRM). Although norms are acknowledged to be an influence on decision–making, they are difficult to identify and measure in the field and their role is often implicit or not well understood or articulated. This paper addresses an important knowledge gap by combining social norms theory with the specifics of a particular case study. We examined the influence of social norms on landholder behaviour in a small rural community undergoing demographic change in Australia. Findings from interviews with landholders and government agency personnel indicate that established norms within the farming community are influencing incoming landholders; and that new norms and practices have also emerged as a result of government investment through the local Landcare group. We suggest that a better understanding of social norms in different contexts will give rise to strategies that make NRM interventions more effective.     

Community involvement in marine protected areas: the case of Puerto Morelos reef, México

The case of Puerto Morelos reef marine protected area (MPA) provides an example of a community-based marine conservation initiative to protect a coral reef ecosystem. The establishment and maintenance of this MPA had five stages: (a) identification of community leaders who would participate in the project; (b) generation of consensus on the need to protect the reef through discussions among local stakeholders, NGOs and reef scientists; (c) involvement of government agencies in establishing the status of a MPA; (d) take-over of decision-making by centralized governmental agencies; and (e) continuous problem-solving process between the government and stakeholders. Over a 9-year period, the control of the MPA was taken over by government and stakeholders' participation downgraded from a decision-making to an advice-giving role. Government shortcomings to manage this MPA could be circumvented via collaborative co-management. Given the small population size of the community and strong sense of ownership, there was a high level of participation in the decision-making processes and scientific advisors are present in the area.     

Engaging communities in municipal sustainability planning: the use of communication strategies and social networks in Alberta

In this paper we examine and compare communication processes aimed at building social networks and increasing citizen engagement in two communities participating in a municipal sustainability planning (MSP) pilot programme in Alberta, Canada, initiated by the Alberta Urban Municipalities Association (AUMA). Data were gathered through qualitative semi-structured interviews and documentary review. In soliciting citizen engagement, each community utilised a variety of communication methods, based on available resources and on-going evaluation of community responses. In both cases, citizens developed a shared vision of a preferred future for their community, aided by a reconfiguration of their internal and external social networks. In addition to drawing upon and strengthening bonding relationships within the community, bridging relationships with external actors and agencies promoted knowledge mobilisation that aided in planning and transitioning towards sustainability. Both communities faced challenges as well, which the authors discuss in relation to the sustainability of MSP planning.     

Valuing regional geoscientific data acquisition programmes: addressing issues of quantification,uncertainty and risk

Geological surveys worldwide are involved with research in support of sustainable mineral resource development.The socio-economic benefits to be derived from these activities, however, continue to raise organisational and government sector questions. Fundamental questions include whether or not the resources committed are appropriate and in economic balance with the total benefits to be derived. Another question concerns the degree to which such services should be funded by the community at large. These questions in turn raise important issues regarding the role and cost of geological surveys, the impact of their services, and how they should maximise community benefit from their activities and expertise. To assess the value of geoscientific information,standard valuation processes need to be modified. This paper reports on a methodology designed to quantify the 'worth' of programmes upgrading regional geoscientific infrastructure. An interdisciplinary approach is used to measure the impact of geoscientific information using quantitative resource assessment, computer-based mineral potential modelling, statistical analysis and risk quantification to model decision-processes and assess the impact of additional data. These modelling stages are used to address problems of complexity,uncertainty and credibility in the valuation of geoscientific data. A case study demonstrates the application of the methodology to generate a dollar value for current regional data upgrade programmes in the Geological Survey of Queensland. The results obtained are used for strategic planning of future data acquisition programmes aimed at supporting mineral resource management and stimulating effective exploration activity.     

Issues in natural resources management in developing countries

Recognizing the steady depletion of natural resources in developing countries, this study analyses its causes by focusing on the ownership of such resources. Resource degradation was found associated with an array of individual, socioeconomic, politicoeconomic and institutional factors. In the pursuit of sustainable regional resources management and conservation, it is necessary to analyse and incorporate these multifarious factors into the design of a comprehensive strategy. While local government should be responsible for devising management strategies, their implementation requires the interfacing of field agencies with local communities that are to be assisted in the short term and instructed in depth; their performance should be closely monitored over the long term.     

农村人居环境整治中的女性参与：实践形式与组织机制

如何有效激活农民主体性,激发人居环境整治中的群众参与是实现农村环境善治的重要议题。村庄调研发现,在当前国家资源向村庄密集输入的情况下,自上而下的单一环境供给方式既浪费资源,又难以满足居民诉求。动员村庄女性群体组织化参与是农村人居环境整治自下而上的群众动员和需求整合的有效方式。一方面,女性群体因其身份在村、关系在村,市场参与不足,成为村庄环境整治的潜在力量,与环境治理事务具有耦合性。另一方面,组织化参与为女性社会性身份的展演提供长效机制,利益吸纳成为激发女性参与的直接诱因。女性群体参与人居整治实践机制反映的是以农民为主体的农村环境治理需要抓住核心力量,对积极分子进行识别、激活和组织。     

Public Hearing or ‘Hearing Public’? An Evaluation of the Participation of Local Stakeholders in Environmental Impact Assessment of Ghana’s Jubilee Oil Fields

This article investigates the involvement of local stakeholders in the environmental impact assessment (EIA) processes of Ghana’s first off-shore oil fields (the Jubilee fields). Adopting key informants interviews and documentary reviews, the article argues that the public hearings and the other stakeholder engagement processes were cosmetic and rhetoric with the view to meeting legal requirements rather than a purposeful interest in eliciting inputs from local stakeholders. It further argues that the operators appear to lack the social legitimacy and social license that will make them acceptable in the project communities. A rigorous community engagement along with a commitment to actively involving local stakeholders in the corporate social responsibility (CSR) programmes of the partners may enhance the image of the partners and improve their social legitimacy. Local government agencies should be capacitated to actively engage project organisers; and government must mitigate the impact of the oil projects through well-structured social support programmes.     

以他国为例兼论数据促进我国环境部门资源整合与开发

文章介绍并论述了欧美及俄罗斯、日本等国家环境及其相关部门的职责及其工作。其部分工作体现了其综合性、前端性、支撑性、服务性。国情不同,相关事务自然不能一概而论。但他国以环境为资源,用数据科学的思想、方法对环境资源进行统筹、分析、挖掘,其实践思路和实践也许有借鉴的可能。并指出,我国在借鉴之中,或可加强政府部门之间、社会盈利与非盈利组织之间、政府部门与社会组织之间、以及个人之间的合作,通过数据公开、数据共享,从而降低成本,进行数据挖掘、利用,协力解决环境与人和谐共生问题,同时激发新的经济增长点。真正体现数据来源于自然、来源于人;同时形成数据资源这一新资源,保护并服务于自然与人。     

Community Responses to Government Defunding of Watershed Projects: A Comparative Study in India and the USA

When central governments decentralize natural resource management (NRM), they often retain an interest in the local efforts and provide funding for them. Such outside investments can serve an important role in moving community-based efforts forward. At the same time, they can represent risks to the community if government resources are not stable over time. Our focus in this article is on the effects of withdrawal of government resources from community-based NRM. A critical question is how to build institutional capacity to carry on when the government funding runs out. This study compares institutional survival and coping strategies used by community-based project organizations in two different contexts, India and the United States. Despite higher links to livelihoods, community participation, and private benefits, efforts in the Indian cases exhibited lower survival rates than did those in the U.S. cases. Successful coping strategies in the U.S. context often involved tapping into existing institutions and resources. In the Indian context, successful coping strategies often involved building broad community support for the projects and creatively finding additional funding sources. On the other hand, the lack of local community interest, due to the top-down development approach and sometimes narrow benefit distribution, often challenged organizational survival and project maintenance.     

Groundwater management by watershed agencies: an evaluation of the capacity of Ontario's conservation authorities

Watershed-based resource management organizations around the world are becoming more involved in groundwater management. This reflects, among other considerations, growing awareness of the critical role that these local agencies can and should play in the management of groundwater resources. Ontario's conservation authorities (CAs) are an important example. CAs are taking on new responsibilities for groundwater data collection, monitoring and planning. Unfortunately, not all local organizations are equally capable of participating effectively in groundwater management. This certainly is the case among Ontario's 38 CAs, which have highly variable levels of financial and staff resources. Local capacity for water management can be explored from the perspective of the institutional environment, the watershed community, and the financial, technical and staff resources of the organizations. This paper presents an evaluation of the groundwater management capacity of Ontario's conservation authorities, drawing on two detailed case studies (the Upper Thames River CA and the Ganaraska Region CA), and additional data gathered from all 38 CAs. Institutional issues, such as the clarity of management roles and senior government commitment to local management, as well as resourcing concerns, local working relationships, and public support, largely determine the capacity of CAs to expand their involvement in groundwater management. Strengthening the capacity of watershed-based agencies to participate in groundwater management is an important challenge in all jurisdictions, as these agencies are well placed to reinforce municipal groundwater management by identifying local needs and trends, facilitating communication and cooperation, and promoting best management practices.     

Drivers of illegal resource extraction: An analysis of Bardia National Park,Nepal

While park-people conflicts have received worldwide attention, the extent of illegal resource extraction and the relationship with communities’ livelihoods has gained little attention in the literature. Thus this paper investigates the impact of socio-economic factors involved in illegal fuel wood and fodder extraction at Bardia National Park in Nepal. Household questionnaires, key-informant interviews and focus groups were conducted to identify different plant species used by households and explore the causes and mode of resource extraction in three buffer zone villages in the park. Altogether 50 different plants were identified by villagers that were used regularly for different livelihood purposes. Almost half of the respondents met their needs by illegally and regularly extracting resources from the park. Incentive schemes in the form of development projects were important but not sufficient in meeting the basic needs of households’ especially for such daily items such as fuel wood and fodder. The results described in this paper showed that proximity and access to resources either in the national park, the buffer zone community forest or the government forest, and impact on the livelihoods significantly influenced the likelihood of illegal resource extraction activities. Villages that differed in terms of their location to the resource base, the provision of alternative resources and influence of these on their livelihoods showed significant differences in terms of their patterns of resource extraction and use of these resources. As resource use options, resource interest, and resource extraction patterns were different between villages and dependent on circumstances specific to villages, site-specific management strategies were necessary and more influential than the enforcement of ‘one-size fits all’ policies. It is suggested that park management plans should be flexible and adaptive enough to meet site-specific contexts and to endear wider support from local communities.     

基于结构方程模型的环境风险接受度影响因素分析

随着社会经济的发展和城市化进程的推进,我国环境风险事故频发。与此同时,公众对于美好环境的需求日益提升,公众与专家和政府之间的风险判断差异是不同规模的群体性事件发生的主要诱因。为识别公众环境风险接受度的影响因素,本研究基于结构方程模型分析了11种环境风险的客观风险水平和公众感知到的风险影响度、场域了解度、政府信任度、社会经济水平等因素对公众风险接受度的影响。研究结果显示,社会经济水平、风险影响度、场域了解度、政府信任度均直接影响公众的风险接受度;客观风险水平则通过风险影响度的中介作用间接影响风险接受度。因此,为在经济发展过程中降低公众风险感知偏差对生产生活的影响,我国除了通过更严格的风险管控手段降低风险事故发生概率和影响范围外,还需要通过信息公开、公众参与和生态科普等方式增强公众对风险场域的了解度和对政府的信任度以提升风险接受能力。