Does collaboration affect the duration of environmental permitting processes?

While collaborative governance has many benefits for environmental planning and management, those benefits are not politically feasible if they impact on process efficiency. This study assesses collaboration's effect on the duration of water permitting processes, specifically the United States’ Federal Energy Regulatory Commission's hydropower relicensing process. Collaboration was measured using a survey of participants in 24 recent hydropower relicensing processes. A Cox proportional hazards model with mixed effects assessed the relationship between collaboration, regulatory framework, hydropower facility characteristics, and relicensing process duration. Collaboration was not associated with time to license. Instead, process duration depended on the regulatory framework (especially the switch to the Integrated Licensing Process and presence of endangered species) and facility characteristics (generating capacity and facility type). The results suggest that agencies should consider engaging collaboratively during planning and permitting, given that collaboration's benefits to decision quality do not incur a cost on overall process time.     

Communicating About Bioenergy Sustainability

Defining and measuring sustainability of bioenergy systems are difficult because the systems are complex, the science is in early stages of development, and there is a need to generalize what are inherently context-specific enterprises. These challenges, and the fact that decisions are being made now, create a need for improved communications among scientists as well as between scientists and decision makers. In order for scientists to provide information that is useful to decision makers, they need to come to an agreement on how to measure and report potential risks and benefits of diverse energy alternatives in a way that allows decision makers to compare options. Scientists also need to develop approaches that contribute information about problems and opportunities relevant to policy and decision making. The need for clear communication is especially important at this time when there is a plethora of scientific papers and reports and it is difficult for the public or decision makers to assess the merits of each analysis. We propose three communication guidelines for scientists whose work can contribute to decision making: (1) relationships between the question and the analytical approach should be clearly defined and make common sense; (2) the information should be presented in a manner that non-scientists can understand; and (3) the implications of methods, assumptions, and limitations should be clear. The scientists’ job is to analyze information to build a better understanding of environmental, cultural, and socioeconomic aspects of the sustainability of energy alternatives. The scientific process requires transparency, debate, review, and collaboration across disciplines and time. This paper serves as an introduction to the papers in the special issue on “Sustainability of Bioenergy Systems: Cradle to Grave” because scientific communication is essential to developing more sustainable energy systems. Together these four papers provide a framework under which the effects of bioenergy can be assessed and compared to other energy alternatives to foster sustainability.     

STRATEGY FOR DYNAMIC REGIONAL WATER RESOURCES PLANNING AND IMPLEMENTATION1

ABSTRACT Water resources planning has emphasized the consideration of alternatives in the formulation of goals and objectives. With greater availability of data and projection models, optimization of plans is now much nearer to accomplishment. In contrast to these favorable aspects of planning, increased complexity of plans and large number of alternatives serving differing sets of goals have extended the time horizons from initial plan formulation to eventual implementation. In this paper a man-machine strategy is proposed to reduce the time required for decision making and conflict resolution. A panel of representatives of the decision makers, influentials and publics involved are selected and brought through a series of dynamic planning steps that simulate real time decision making. Computer interaction graphics is used to visualize the decision making process and to illustrate where and why conflict arises. A mechanism for resolution of conflict and retention of consistency in policy formulation using a cognograph is described.     

An Evaluation of Multiple Objective Decision Support Weighting Techniques in Natural Resource Management

Multiple objective decision support (MODS) is a structured framework for evaluating decision alternatives against multiple, and often conflicting, criteria. Its ability to handle complex trade-offs in a variety of quantitative and qualitative units gives it much potential in the field of natural resource management (NRM). A key component of MODS is the process used to obtain information from decision makers on the relative importance of evaluative criteria. Ranking algorithms then use this information to determine the relative value of each decision alternative. This paper explores how practising community based NRM decision makers respond to five generic methods for weighting the criteria. It presents a study in which 55 decision makers throughout five regions in Queensland, Australia, applied MODS to evaluate environmental projects seeking funding under the Australian Natural Heritage Trust. Weighting methods applied include fixed point scoring, rating, ordinal ranking, a graphical method and paired comparisons. Decision makers evaluated each weighting method in terms of ease of use and of how much it helped clarify the decision problem. Results show that decision makers felt uncomfortable applying fixed point scoring and generally preferred to express their preferences through ordinal ranking. This has implications for the types of ranking algorithms that can be applied to evaluate the decision alternatives.     

Maintaining quality focus with critical data

Total Quality Management measurement tools are often the very tools necessary to ensure compliance with the rapidly growing regulatory demand for data. At the same time, interest in the environment by average citizens, environmental groups, and regulatory agencies has put increasing pressure on environmental managers for “zero defects.” Violations and exceedances are actively pursued and are, at a minimum, made public to produce incentive for companies to comply. Even companies in compliance face pressure to further improve their performance. No business can afford the lost legal, operational, and public relations costs of noncompliance. There is no room for error. This article discusses the basic tools used at IBM Rochester to better manage and control some key environmental operations and shows how these basic control steps work in an actual wastewater treatment process at the facility.     

Trends and applications of multi-criteria decision analysis: use in government agencies

Government agencies are responsible for making complex, high-stake decisions, which require them to balance political, technical, and economic considerations. Pressure from stakeholders and administrative requirements necessitate a traceable and transparent method for decision making. Multi-criteria decision analysis (MCDA) methods are available to decision makers to facilitate systematic treatment of the information and factors necessary to make informed and effective decisions in complex circumstances. A survey of gray and academic literature was conducted to gauge the level of application and awareness of MCDA methods by US government agencies and determine if the tools’ benefits are being realized. Results show an increase in awareness and consideration of MCDA from 2000 to the present, and that agencies are especially considering and using tools to engage with stakeholders. Government agencies would benefit from extending the application of MCDA to strategic planning and congressional engagement, as well as by standardizing MCDA use to better enable inter-agency collaboration and communication.     

A PROCESS FOR FEDERAL WATER PLANNING AT THE FIELD LEVEL1

ABSTRACT: A process for planning at the field offices of Federal water resources agencies is described. The process involve s both planners and publics in the following four planning activities: problem definition, formulation of alternatives, impact analysis and evaluation (or plan ranking). Evaluative factors are defied as the goals, concerns, constraints, etc. that affected publics and other decision makers consider in ranking alternative actions. These factors serve to drive the entire process and glue the four planning activities together. In contrast to other “models” of the planning process, the four activities are considered to be carried out simultaneously and continually from the beginning of the process. As the planning process proceeds, each activity is repeated a number of times at increasing levels of detail. Various aspects of the process are illustrated by means of an example involving water resources development in Carmel Valley, California.     

SCIENCE AND POLICY IN INTEGRATED WATERSHED MANAGEMENT: A CASE STUDY1

ABSTRACT: Policy and management plans can be enhanced through effective communication between researchers and decision makers. Differences in understanding can come from differences in professional cultures. Scientists deal with facts, proof and incremental progress whereas the decision makers are often faced with perceptions, emotions and deadlines. A case study is presented illustrating the interaction between the political system and science on a water management issue. Irrigation projects in the western San Joaquin Valley of California lead to a situation requiring subsurface drainage and disposal of the drainage water. The original plan was to discharge the drainage water in the Suisun Bay east of the San Francisco Bay. Severe damage to birds associated with selenium in the water led to a reevaluation of irrigation and drainage management options. Federal and state agencies cooperated to establish a San Joaquin Valley Drainage Program (SJVDP) which was to develop plans for solving the problem. Discharge to the Bay was politically eliminated as an option for evaluation, an action criticized by a National Research Council Committee as not being scientifically based. The SJVDP published a Management Plan in 1990 which contained proposals viewed by the scientific community as not necessarily incorrect but not completely justified based on the scientific knowledge at the time. A segment of the Citizens Advisory Committee that was part of the SJVDP consisting of representatives from the interest groups viewed the Management Plan as a negotiated agreement between the environmental and agricultural interests. Presently, an Activity Plan exists, consisting of technical committees to evaluate the current technical and economic evaluation of the management options proposed in the Management Plan. This case study illustrates that factors other than scientific facts have bearing on decisions. Successful management plans must be technically sound, economically viable and socially acceptable. The scientific community needs to evaluate its role in the policy making arena and to focus research on questions of greatest value to decision makers, as well as to scientific peers.     

Structured Decision Making to Meet a National Water Quality Mandate

Water quality criteria are necessary to ensure protection of ecological and human health conditions, but compliance can require complex decisions. We use structured decision making to consider multiple stakeholder objectives in a water quality management process, with a case study in the Three Bays watershed on Cape Cod, Massachusetts. We set a goal to meet or exceed a nitrogen load reduction target for the watershed and four key objectives: minimizing economic costs of implementing management actions, minimizing the complexity of permitting management actions, maximizing stakeholder acceptability of the management actions, and maximizing the provision of ecosystem services (recreational opportunity, erosion and flood control, socio‐cultural amenity). We used multi‐objective optimization and sensitivity analysis to generate many possible solutions that implement different combinations of nitrogen‐removing management actions and reflect tradeoffs between the objectives. Results show technological advances in controlling household nitrogen sources could provide lower cost solutions and positive impacts to ecosystem services. Although this approach is demonstrated with Cape Cod data, the decision‐making process is not specific to any watershed and could be easily applied elsewhere.     

Building and managing new compliance delivery systems

Companies today are continuously improving their efforts to incorporate an environmental management system (EMS) in their everyday operations and work practices, with an emphasis on identifying and reducing risks. Risks may include the cost of enforcement penalties, potential workplace dangers to employees, or cleanup liabilities due to past or present practices. Environmental auditing is an effective tool commonly used to enhance an EMS. Typically, there are two levels of auditing: (1) a review of management systems and (2) a review of compliance with regulatory requirements. There is yet another intermediate level of auditing that is more focused than management systems or compliance audits—compliance delivery systems (CDS) audits. This article examines the elements making up these systems for improving compliance performance and provides a ?ready to use”? checklist of items for managers to begin implementation.     

Where Did the Agricultural Nonpoint Source Trades Go? Lessons from Virginia Water Quality Trading Programs

Governmental agencies, nongovernmental organizations, and agricultural organizations promote water quality trading programs as an innovative policy to engage agricultural producers in conservation activities. Cost analyses suggest regulated sources can reduce compliance costs by purchasing agricultural nonpoint source credits. Yet, such “point‐nonpoint” trades are rare. This article assesses the demand for agricultural nonpoint sources in well‐developed nutrient trading programs in Virginia for industrial and municipal wastewater treatment plants, municipal stormwater programs, and land developers. Evidence suggests nutrient trading programs in Virginia will not stimulate investments in pollutant reduction practices on working agricultural lands. The lack of demand for agricultural nonpoint source credits can be attributed to a substantial degree to the design features and incentives present in multiple overlapping regulatory programs. The legal setting that dampens regulated source demand for nonpoint source credits in Virginia is broadly representative of conditions found elsewhere in the United States.     

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.     

Distributed travel time savings of a multiscale transportation access management program

Access management in transportation planning can save travel time, reduce crashes, and increase route capacities. The planning literature suggests a need for performance metrics and a decision-aiding framework to guide access management programs across large corridor networks and diverse time horizons. This paper describes a quantitative framework to support access management programs, applying multicriteria analysis and cost-benefit analysis with parameter uncertainties. The metrics used to assess relative priorities at existing access points include the following: travel time delay index, traffic exposure, value of time, and costs of typical access management activities. Uncertain parameters that influence the estimates of the potential benefits and costs are identified and treated via a numerical interval analysis. The framework is demonstrated at several geographic scales and locations including 7,000 km of highway arterials of a 110,000 square-kilometer region and several sub-regions. The results assist decision makers to identify route segments that should be addressed sooner by eliciting additional information, reserving right-of-way, closing access points, planning new alignments, facilitating development proffers, etc. The approach is transferable to other topics involving resource allocation for preservation and improvement of multiscale infrastructure systems.     

The Peconic River: Concerns associated with different risk evaluations for fish consumption

Risk evaluation and assessment have been used as tools to regulate and manage the risks to consumers of eating self-caught fish that have high levels of contaminants. Armed with these risk assessments, health agencies issue consumption advisories, and in some cases, close some waters to fishing. Recently, regulatory agencies have used contaminant levels in fish as a benchmark for remedial action on contaminated sites, using human health risk assessment as the justification. The US Environmental Protection Agency's new surface water criterion for mercury is based on mercury levels in fish tissue. When multiple regulatory agencies have jurisdiction over the same waters or remediation site there is the potential for differing risk evaluations. Using the Peconic River on Long Island, New York as a case study, the paper examines how and why county, state, and federal health risk evaluations for fish contaminated with mercury differed. While the same risk methodology was applied by all agencies, the assessments were conducted for different purposes, applied different consumption and fish biomass assumptions, and arrived at different conclusions. The risk evaluations invoked to design fish consumption advisories use mercury levels currently in fish, and are designed to prevent current exposure. However, the risk assessments that provide a basis for remediation consider many different pathways of exposure (not just ingestion), and deal with long-term exposure. The risk evaluations, and recommendations promulgated by those agencies, differ because they have different goals, use different assumptions, and often fail to communicate among agencies. It is suggested that it is valuable to have these different levels of risk evaluations to adequately address health issues. However, there are policy implications, which include making the distinctions between the types of risk assessments, their methods and assumptions, and the rationale for these assumptions. Further, assessors and managers should involve all interested stakeholders (including regulators and state health officials) in discussions about the use of risk, the assumptions of risk assessment, and the goals of those evaluations. The difficulties in the case of the Peconic were not due to differences in the original data, but rather in the goals and type of risk assessments performed. If all deliberations had been transparent during all phases of the decision-making and management process, the conflicts within the minds of the public, regulators and other agencies might have been avoided. This case study suggests that more reliability, circumspection and transparency should be built into the process where multiple agencies and multiple objectives are involved.     

DEVELOPING AND IMPLEMENTING DECISION SUPPORT SYSTEMS: A CRITIQUE AND A CHALLENGE1

ABSTRACT: Computer-based models together with their interactive interfaces are typically called decision support systems. DSSs are interactive computer-based information providers. The common objective of all DSSs, regardless of the frameworks, methodologies, or techniques used, is to provide timely information that supports human decision makers - at whatever level of decision making. The informational needs of the decision making process are the key considerations that motivate the development of DSSs. The growth of DSS development and use has been substantial. In spite of this impressive growth, computer-aided decision support systems can still be improved and made more useful to those they are intended to support. Researchers and practitioners, and indeed the computer industry, continue to identify ways of doing this. This paper reviews some of these needs and opportunities by focusing on the process of successful DDS development and implementation. The paper outlines an approach and some guidelines for developing DSSs. The approach emphasizes and requires considerable interaction between the DSS developers (analysts) and the DSS users (decision makers). This interaction and feedback is required throughout the entire DSS building, testing and evaluation (debugging), and implementation processes. The paper concludes by identifying some research needs and opportunities affecting DSS development and effective use.     

Pitfalls of CITES Implementation in Nepal: A Policy Gap Analysis

Implementation of policy involves multiple agencies operating at multiple levels in facilitating processes and actions to accomplish desired results. The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) was developed and implemented to regulate and control international wildlife trade, but violations of the agreement are widespread and growing worldwide, including in Nepal. This study attempts to understand how domestic CITES policies are translated into action and what effect actions and processes have on compliance. In doing so, this study provides insights into the implementation and enforcement pitfalls of national legislation that explain CITES violations in Nepal. Primarily, we used 26 key informants interviews to learn opinions of experts, and the grounded theory approach for further qualitative data analysis. In addition, we used Najman's (1995) policy implementation analysis framework to explain gaps. Many interrelated variables in the content of the policy, commitment and capacity of the agencies, the roles of clients and coalitions and contextual issues were observed. Variables that emerged suggest pitfalls in the regulatory policy represented by low probability of detection, arrest and punishment. Moreover, redistributive policies in buffer zones of protected areas are needed into perpetuity to benefit locals. Also, conservation organizations' support for building public and political salience is imperative.     

Local voices on renewable energy projects: the performative role of the regulatory process for major offshore infrastructure in England and Wales

There is currently a considerable emphasis on delivering major renewable energy infrastructure projects. Such projects will have impacts on local communities; some impacts may be perceived as positive but others will be viewed more negatively. Any just regulatory process for considering and permitting such infrastructure will need to heed the concerns that local communities voice. But what counts as a local voice? In this paper it is argued that the regulatory process plays a performative role, constructing what counts as a local voice. Furthermore, this has consequences for how regulatory deliberations proceed and the outcomes of regulatory processes. The empirical basis for this argument is a study of major offshore renewable energy infrastructure in England and Wales and the way that it is regulated through a specific regime – the Nationally Significant Infrastructure Projects (NSIPs) regime established by the Planning Act 2008. Through a detailed study of eight projects that have passed through the regime, the analysis unfolds the way that the voices of local residents, local businesses, local NGOs and local authorities are constructed in the key boundary object of the Examining Authority’s report; it then draws out the implications for the mitigation measures that are negotiated. The research suggests that what counts as a local voice is constrained by how the performative role of the NSIPs regulatory regime differentiates between interests and suggests that new ways of giving voice to local people are required.     

Climate change policies and capital vintage effects: the cases of US pulp and paper, iron and steel, and ethylene

Changes in material use, energy use and emissions profiles of industry are the result of complex interrelationships among a multitude of technological and economic drivers. To better understand and guide such changes requires that attention is paid to the time-varying consequences that technology and economic influences have on an industry's choice of inputs and its associated (desired and undesired) outputs. This paper lays out an approach to improving our understanding of the dynamics of large industrial systems. The approach combines engineering and econometric analysis with a detailed representation of an industry's capital stock structure. A transparent dynamic computer modeling approach is chosen to integrate information from these analyses in ways that foster participation of stakeholders from industry and government agencies in all stages of the modeling process-from problem definition and determination of system boundaries to generation of scenarios and interpretation of results. Three case studies of industrial energy use in the USA are presented-one each for the iron and steel, pulp and paper, and ethylene industry. Dynamic models of these industries are described and then used to investigate alternative carbon emissions and investment-led policies. A comparison of results clearly points towards two key issues: the need for industry specific policy approaches in order to effectively influence industrial energy use, fuel mix and carbon emissions, and the need for longer time horizons than have typically been chosen for the analysis of industrial responses to climate change policies.     

Public and Private Compromises in Agricultural Water Management

Agricultural water management is a complex decision-making problem involving multiple criteria of different nature as well as multiple decision agents with different interests. To handle this multiplicity of objectives and interests a pragmatic approach based on compromise programming is proposed in this paper. The methodology is applied to an agricultural water management problem in Tauste, Spain. Public, environmentalist and private decision makers are considered. The approach proposed reveals itself as a pragmatic alternative to other approaches based on aggregate utility functions with very sound theoretical underpinnings but with few possibilities of actually being put into practice.     

Establishment of permit limits for mill effluent

Various governmental regulatory agencies are responsible for establishing regulations on the discharge of chlorinated organic compounds from pulp and paper mills. The procedures for setting permit limits are the basic topic of this article. Different methods of determining permit limits are set forth and discussed in a number of references, including documents of the Environmental Protection Agency. This paper discusses in detail the application of one particular methodology—the lognormal model approach. In this paper we utilize a real data set and include the necessary calculations required to set up permit limits. The basic tenets of the permit process are such that if limits are set too low, operators who are in full regulatory compliance will still be frequently cited, and if limits are set too high, operators who are not in compliance will seldom if ever be cited. Thus there is a great need for these effluent limits to be determined with great care, both to protect the environment receiving the wastewater and the industry producing the wastewater.