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     

Developing a spatial framework of common ecological regions for the conterminous United States

In 1996, nine federal agencies with mandates to inventory and manage the nation's land, water, and biological resources signed a memorandum of understanding entitled “Developing a Spatial Framework of Ecological Units of The United States.” This spatial framework is the basis for interagency coordination and collaboration in the development of ecosystem management strategies. One of the objectives in this memorandum is the development of a map of common ecological regions for the conterminous United States. The regions defined in the spatial framework will be areas within which biotic, abiotic, terrestrial, and aquatic capacities and potentials are similar. The agencies agreed to begin by exploring areas of agreement and disagreement in three federal natural-resource spatial frameworks—Major Land Resource Areas of the US Department of Agriculture (USDA) Natural Resources Conservation Service, National Hierarchy of Ecological Units of the USDA Forest Service, and Level III Ecoregions of the US Environmental Protection Agency. The explicit intention is that the framework will foster an ecological understanding of the landscape, rather than an understanding based on a single resource, single discipline, or single agency perspective. This paper describes the origin, capabilities, and limitations of three major federal agency frameworks and suggests why a common ecological framework is desirable. The scientific and programmatic benefits of common ecological regions are described, and a proposed process for development of the common framework is presented.     

The use of recreation planning tools in U.S. Forest Service NEPA assessments

U.S. Forest Service managers are required to incorporate social and biophysical science information in planning and environmental analysis. The use of science is mandated by the National Environmental Policy Act, the National Forest Management Act, and U.S. Forest Service planning rules. Despite the agency’s emphasis on ‘science-based’ decision-making, little is known about how science is actually used in recreation planning and management. This study investigated the perceptions of Forest Service interdisciplinary (ID) team leaders for 106 NEPA projects dealing with recreation and travel management between 2005 and 2008. Our survey data show how managers rate the importance of social and biophysical science compared to other potential ‘success factors’ in NEPA assessments. We also explore how team leaders value and use multi-disciplinary tools for recreation-related assessments. Results suggest that managers employ a variety of recreation planning tools in NEPA projects, but there appears to be no common understanding or approach for how or when these tools are incorporated. The Recreation Opportunity Spectrum (ROS) was the most frequently used planning tool, but the Visitor Experience and Resource Protection (VERP) framework was the most consistently valued tool by those who used it. We recommend further evaluation of the strengths and weaknesses of each planning tool and future development of procedures to select appropriate planning tools for use in recreation-related NEPA assessments.     

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.     

Giving Voice to Wildlands Visitors: Selecting Indicators to Protect and Sustain Experiences in the Eastern Arctic of Nunavut

Many public land management agencies are committed to understanding and protecting recreation visitor experiences. Parks Canada is deeply committed to that objective for visitors to Canada’s National Parks. This 2004 study, informed by a 2003 qualitative study of visitor experiences and influences on those experiences at Auyuittuq National Park in Nunavut, worked to bring 50 potential elements of visitor experiences down to five articulated dimensions of the experience that is currently being received at this remote eastern arctic park. A hypothesized set of 17 influences on experiences, also reduced to just two factors with similar response patterns, and with some items that did not flow into the two factors, were used in a regression analysis to understand the relationship between experiences and factors of influence. A sample of 61.8% (84) of the total recreation visitor population 16 years of age or older was surveyed during deregistration after the trip. Knowledge about the dimensions of the experiences currently received and factors of influence on those experiences can be used to guide selection of indicators for describing objectives and prescribing monitoring protocol.     

Building Trust in Natural Resource Management Within Local Communities: A Case Study of the Midewin National Tallgrass Prairie

Communities neighboring federally protected natural areas regularly weigh the costs and benefits of the administering agency’s programs and policies. While most agencies integrate public opinion into decision making, efforts to standardize and formalize public involvement have left many local communities feeling marginalized, spurring acrimony and opposition. A significant body of research has examined barriers to effective public participation as well as strategies for relationship building in planning processes; many of which point to trust as a key factor. Trust is especially tenuous in local communities. This paper explores perceptions of trust, expectations for management, as well as constraints to building trust. In-depth interviews were conducted with 21 community members and USDA Forest Service personnel at the Midewin National Tallgrass Prairie in northeastern Illinois. The interviews revealed that trust is perceived as important to effective management. Distinct expectations for management outcomes and processes emerged, including the values, knowledge, and capacity demonstrated in management decisions and actions and opportunities provided for communication, collaboration, and cooperation within the agency-community relationship. The case study identified several constraints to building trust, including competing values, knowledge gaps, limited community engagement, and staff turnover.     

Catalyzing Collaboration: Wisconsin’s Agency-Initiated Basin Partnerships

Experience with collaborative approaches to natural resource and environmental management has grown substantially over the past 20 years, and multi-interest, shared-resources initiatives have become prevalent in the United States and internationally. Although often viewed as “grass-roots” and locally initiated, governmental participants are crucial to the success of collaborative efforts, and important questions remain regarding their appropriate roles, including roles in partnership initiation. In the midst of growing governmental support for collaborative approaches in the mid-1990s, the primary natural resource and environmental management agency in Wisconsin (USA) attempted to generate a statewide system of self-sustaining, collaborative partnerships, organized around the state’s river basin boundaries. The agency expected the partnerships to enhance participation by stakeholders, leverage additional resources, and help move the agency toward more integrated and ecosystem-based resource management initiatives. Most of the basin partnerships did form and function, but ten years after this initiative, the agency has moved away from these partnerships and half have disbanded. Those that remain active have changed, but continue to work closely with agency staff. Those no longer functioning lacked clear focus, were dependent upon agency leadership, or could not overcome issues of scale. This article outlines the context for state support of collaborative initiatives and explores Wisconsin’s experience with basin partnerships by discussing their formation and reviewing governmental roles in partnerships’ emergence and change. Wisconsin’s experience suggests benefits from agency support and agency responsiveness to partnership opportunities, but cautions about expectations for initiating general-purpose partnerships.     

Wildfire Risk Management on a Landscape with Public and Private Ownership: Who Pays for Protection?

Wildfire, like many natural hazards, affects large landscapes with many landowners and the risk individual owners face depends on both individual and collective protective actions. In this study, we develop a spatially explicit game theoretic model to examine the strategic interaction between landowners’ hazard mitigation decisions on a landscape with public and private ownership. We find that in areas where ownership is mixed, the private landowner performs too little fuel treatment as they “free ride”—capture benefits without incurring the costs—on public protection, while areas with public land only are under-protected. Our central result is that this pattern of fuel treatment comes at a cost to society because public resources focus in areas with mixed ownership, where local residents capture the benefits, and are not available for publicly managed land areas that create benefits for society at large. We also find that policies that encourage public expenditures in areas with mixed ownership, such as the Healthy Forest Restoration Act of 2003 and public liability for private values, subsidize the residents who choose to locate in the high-risk areas at the cost of lost natural resource benefits for others.     

Applying knowledge-based methods to design and implement an air quality workshop

In response to protection needs in class I wilderness areas, forest land managers of the USDA Forest Service must provide input to regulatory agencies regarding air pollutant impacts on air quality-related values. Regional workshops have been convened for land managers and scientists to discuss the aspects and extent of wilderness protection needs. Previous experience with a national workshop indicated that a document summarizing workshop discussions will have little operational utility. An alternative is to create a knowledge-based analytical system, in addition to the document, to aid land managers in assessing effects of air pollutants on wilderness. Knowledge-based methods were used to design and conduct regional workshops in the western United States. Extracting knowledge from a large number of workshop participants required careful planning of workshop discussions. Knowledge elicitation methods helped with this task. This knowledge-based approach appears to be effective for focusing group discussions and collecting knowledge from large groups of specialists.     

Intensive Livestock Farming: Global Trends, Increased Environmental Concerns, and Ethical Solutions

By 2050, global livestock production is expected to double—growing faster than any other agricultural sub-sector—with most of this increase taking place in the developing world. As the United Nation’s four-hundred-page report, Livestock’s Long Shadow: Environmental Issues and Options, documents, livestock production is now one of three most significant contributors to environmental problems, leading to increased greenhouse gas emissions, land degradation, water pollution, and increased health problems. The paper draws on the UN report as well as a flurry of other recently published studies in order to demonstrate the effect of intensive livestock production on global warming and on people’s health. The paper’s goal is to outline the problems caused by intensive livestock farming and analyze a number of possible solutions, including legislative changes and stricter regulations, community mobilizing, and consumers choosing to decrease their demand for animal products.     

Forest Insect Pest Management and Forest Management in China: An Overview

According to the Seventh National Forest Inventory (2004–2008), China’s forests cover an area of 195.45 million ha, or 20.36% of the total land area. China has the most rapidly increasing forest resources in the world. However, China is also a country with serious forest pest problems. There are more than 8,000 species of potential forest pests in China, including insects, plant diseases, rodents and lagomorphs, and hazardous plants. Among them, 300 species are considered as economically or ecologically important, and half of these are serious pests, including 86 species of insects. Forest management and utilization have a considerable influence on the stability and sustainability of forest ecosystems. At the national level, forestry policies always play a major role in forest resource management and forest health protection. In this paper, we present a comprehensive overview of both achievements and challenges in forest management and insect pest control in China. First, we summarize the current status of forest resources and their pests in China. Second, we address the theories, policies, practices and major national actions on forestry and forest insect pest management, including the Engineering Pest Management of China, the National Key Forestry Programs, the Classified Forest Management system, and the Collective Forest Tenure Reform. We analyze and discuss three representative plantations—Eucalyptus, poplar and Masson pine plantations—with respect to their insect diversity, pest problems and pest management measures.     

The Coachella Valley Multiple Species Habitat Conservation Plan: A Decade of Delays

This article describes the history of the Coachella Valley Multiple Species Habitat Conservation Plan (CVMSHCP), in the Riverside County region of Southern California. When this collaborative biodiversity conservation planning process began, in 1994, local participants and supporters had numerous factors working in their favor. Yet, as of April 2007, nearly 13 years had passed without an approved plan. This is a common problem. Many multiple species habitat conservation plans now take more than a decade to complete, and the long duration of these processes often results in negative consequences. The CVMSHCP process became bogged down—despite strong scientific input and many political advantages—due to problematic relationships between the Plan’s local supporters, its municipal signatory parties, and officials from the state and federal wildlife agencies, particularly the regional office of the US Fish and Wildlife Service. This case study demonstrates the crucial importance of institutional structures and relationships, process management, and timeliness in habitat conservation planning. We conclude by offering several related recommendations for future HCP processes.     

The indicator performance estimate approach to determining acceptable wilderness conditions

Using data from a study conducted in the Cranberry Wilderness Area of West Virginia, United States, this paper describes how a modified importance—performance approach can be used to prioritize wilderness indicators and determine how much change from the pristine is acceptable. The approach uses two key types of information: (1) indicator importance, or visitor opinion as to which wilderness indicators have the greatest influence on their experience, and (2) management performance, or the extent to which actual indicator conditions exceed or are within visitor expectations. Performance was represented by calculating indicator performance estimates (IPEs), as defined by standardized differences between actual conditions and visitor preferences for each indicator. The results for each indicator are then presented graphically on a four-quadrant matrix for objective interpretation. Each quadrant represents a management response: keep up the good work, concentrate here, low priority, or possible overkill. The technique allows managers to more systematically and effectively utilize information routinely collected during the limits of acceptable change wilderness planning process. This paper is submitted with the approval of the Director of the West Virginia Agricultural and Forestry Experiment Station as Scientific Article No. 541. The study was funded in part, through a grant from the USDA Forest Service, Monongahela National Forest.     

Changes in Public Commons as a Consequence of Urbanization: The Agara Lake in Bangalore,India

The city of Bangalore in southern India is rapidly expanding, resulting in major transformations in land use, wetland management, and the distribution of green spaces. This paper examines how transformations in land use and governance consequent to urbanization can change people’s perceptions of and interactions with an urban ecological commons, using the case study of the Agara lake in the south Indian city of Bangalore. In less than four decades, the landscape surrounding the lake has altered from a fundamentally agricultural area, dependent on the lake for irrigation and drinking water, to a densely urbanized area where the lake is used predominantly for recreation. A change in governance from community management to state management has sidelined the fishers, fodder collectors and agricultural users who traditionally maintained this lake. The governmental agencies that are supposed to maintain the lake are unable to do so due to a complex governance structure, with overlapping jurisdictions, compounded by an ongoing litigation. Over the past decades, the lake has largely transitioned into an urban green space primarily used for recreation and nature watching. This case study provides us with a broader understanding of how changes in governance consequent to urbanization and city expansion can impact interactions between people and ecological commons in a rapidly growing Indian city.     

Information and research systems in the service of decision-making

Summary When people are in government, they are always involved in some type of information communication, but for more than five years now I have been involved with the Congressional Research Service, CRS, an institution which is totally committed to research and transfer of information to the United States Congress. The Congressional Research Service works exclusively for congress—for al the members and all the committees; and CRS’s scope—information, reference and research—covers all subject areas, including environmental issues, which are of congressional interest. The inquiries from members and staff—by phone, letter or in person—exceed 400 000 a year, and the number of requests has increased at an average rate of almost 9 percent each year over the past decade. Small wonder the service employs about 825 people, 550 of whom are professionals. Gilbert Gude is Director of the Congressional Research Service of the Library of Congress, appointed by Librarian Daniel J. Boorstin in January 1977. Mr Gude’s career in public service began in 1953 when he was elected to the Maryland House of Delegates; he served as a Member of the Maryland State Senate from 1962–1966, before being elected to the US House of Representatives for the 8th District of Maryland in 1967. During his 10-year career in the House he served as ranking member of the Subcommittee on Conservation, Energy and Natural Resources of the Government Operations Committee and ranking member of the Committee on the District of Columbia; he was also a member of the Select Committee on Aging. Mr Gude’s legislative work concentrated in the areas of urban and regional affairs and environmental issues. He was a key sponsor of the bill creating the C&O Canal National Historical Park and developed a number of legislative initiatives involving the Potomac River. Mr Gude is Vice Chairman of the Board of Trustees of The Catholic University of America and a member of the National Academy of Public Administration. He is a former member of Members of Congress for Peace Through Law and former chairman of the 1976 Anglo-American Conference on Africa. Mr Gude received a B.S. from Cornell University in 1948 and an M.A. in public administration from George Washington University in 1958.     

Can We Manage for Resilience? The Integration of Resilience Thinking into Natural Resource Management in the United States

The concept of resilience is now frequently invoked by natural resource agencies in the US. This reflects growing trends within ecology, conservation biology, and other disciplines acknowledging that social–ecological systems require management approaches recognizing their complexity. In this paper, we examine the concept of resilience and the manner in which some legal and regulatory frameworks governing federal natural resource agencies have difficulty accommodating it. We then use the U.S. Forest Service’s employment of resilience as an illustration of the challenges ahead.     

Representative Landscapes in the Forested Area of Canada

Canada is a large nation with forested ecosystems that occupy over 60% of the national land base, and knowledge of the patterns of Canada’s land cover is important to proper environmental management of this vast resource. To this end, a circa 2000 Landsat-derived land cover map of the forested ecosystems of Canada has created a new window into understanding the composition and configuration of land cover patterns in forested Canada. Strategies for summarizing such large expanses of land cover are increasingly important, as land managers work to study and preserve distinctive areas, as well as to identify representative examples of current land-cover and land-use assemblages. Meanwhile, the development of extremely efficient clustering algorithms has become increasingly important in the world of computer science, in which billions of pieces of information on the internet are continually sifted for meaning for a vast variety of applications. One recently developed clustering algorithm quickly groups large numbers of items of any type in a given data set while simultaneously selecting a representative—or “exemplar”—from each cluster. In this context, the availability of both advanced data processing methods and a nationally available set of landscape metrics presents an opportunity to identify sets of representative landscapes to better understand landscape pattern, variation, and distribution across the forested area of Canada. In this research, we first identify and provide context for a small, interpretable set of exemplar landscapes that objectively represent land cover in each of Canada’s ten forested ecozones. Then, we demonstrate how this approach can be used to identify flagship and satellite long-term study areas inside and outside protected areas in the province of Ontario. These applications aid our understanding of Canada’s forest while augmenting its management toolbox, and may signal a broad range of applications for this versatile approach.     

The Relationship of Ecosystem Management to NEPA and Its Goals

/ The National Environmental Policy Act of 1969 (NEPA) was intended to promote a systematic, comprehensive, interdisciplinary approach to planning and decisionmaking, including the integration of the natural and social sciences and the design arts. NEPA critics have cited three key shortcomings in its implementation: (1) a lack of engagement with the NEPA process early in the planning process through interdisciplinary collaboration; (2) a lack of rigorous science and the incorporation of ecological principles and techniques; and (3) a lack of emphasis on the Act's substantive goals and objectives. In recent years and independent of NEPA, a policy of ecosystem management has been developed, which represents a fundamental change from a fragmented, incremental planning and management approach to a holistic, comprehensive, interdisciplinary land and resource management effort. We postulate that by incorporating ecosystem management principles in their planning and decisionmaking, federal agencies can address the shortcomings in NEPA implementation and move closer to NEPA's intent. A case analysis of EISs prepared by the USDA Forest Service before and after adopting an ecosystem management approach supports our hypothesis.     

Improving the Integration of Recreation Management with Management of Other Natural Resources by Applying Concepts of Scale from Ecology

In this article, we examine how issues of scale affect the integration of recreation management with the management of other natural resources on public lands. We present two theories used to address scale issues in ecology and explore how they can improve the two most widely applied recreation-planning frameworks. The theory of patch dynamics and hierarchy theory are applied to the recreation opportunity spectrum (ROS) and the limits of acceptable change (LAC) recreation-planning frameworks. These frameworks have been widely adopted internationally, and improving their ability to integrate with other aspects of natural resource management has significant social and conservation implications. We propose that incorporating ecologic criteria and scale concepts into these recreation-planning frameworks will improve the foundation for integrated land management by resolving issues of incongruent boundaries, mismatched scales, and multiple-scale analysis. Specifically, we argue that whereas the spatially explicit process of the ROS facilitates integrated decision making, its lack of ecologic criteria, broad extent, and large patch size decrease its usefulness for integration at finer scales. The LAC provides explicit considerations for weighing competing values, but measurement of recreation disturbances within an LAC analysis is often done at too fine a grain and at too narrow an extent for integration with other recreation and resource concerns. We suggest that planners should perform analysis at multiple scales when making management decisions that involve trade-offs among competing values. The United States Forest Service is used as an example to discuss how resource-management agencies can improve this integration.