Contemporary Public Involvement: Toward a strategic approach

Many planning agencies and stakeholder groups experimented with innovative forms of public involvement in the 1990s. British Columbia is one such jurisdiction which embraced the concept of public involvement in a broad range of land and resource management planning scales - to the degree of collaborative planning with communities, using consensus. The purpose of this paper is to present lessons for planners, supported by literature and by research in British Columbia, Canada from 1995-97, on these public involvement processes. Building on earlier 'typologies' for public involvement in planning, it proposes a strategic approach for identifying and analysing stakeholders, for setting objectives and for subsequently choosing the most appropriate level of public involvement.     

"What Works Well; What Needs Improvement": lessons in public consultation from British Columbia's resource planning processes

Resource planning and management in British Columbia, Canada, has been steadily moving towards more active public participation. While government agencies have long been required to consult the general public during the course of land or resource use planning, the 1990s brought in a period of more intense public involvement. In terms of resource planning, this led to the creation of several new planning processes. Given that there is now considerable experience with the Commission on Resources and Environment (CORE) and the Land and Resource Management Plan (LRMP) processes, it is time for an appraisal. In particular, the paper examines the public's perceptions of these processes with respect to 'what works well' and 'what needs improvement'. The results highlight a number of areas to which process designers and managers should direct attention. There are three key items of note. First, there are generally low levels of awareness by respondents of public consultation processes in their community. Second, there is a need for access to timely, relevant and readable information throughout the course of the process in order to keep participants and the public as up-to-date as possible. Finally, there must be greater clarity about the process itself, including mandates, participants and decision-making powers.     

"What Works Well; What Needs Improvement": Lessons in public consultation from British Columbia's resource planning processes

Resource planning and management in British Columbia, Canada, has been steadily moving towards more active public participation. While government agencies have long been required to consult the general public during the course of land or resource use planning, the 1990s brought in a period of more intense public involvement. In terms of resource planning, this led to the creation of several new planning processes. Given that there is now considerable experience with the Commission on Resources and Environment (CORE) and the Land and Resource Management Plan (LRMP) processes, it is time for an appraisal. In particular, the paper examines the public's perceptions of these processes with respect to 'what works well' and 'what needs improvement'. The results highlight a number of areas to which process designers and managers should direct attention. There are three key items of note. First, there are generally low levels of awareness by respondents of public consultation processes in their community. Second, there is a need for access to timely, relevant and readable information throughout the course of the process in order to keep participants and the public as up-to-date as possible. Finally, there must be greater clarity about the process itself, including mandates, participants and decision-making powers.     

Local government policies toward environmentally sensitive areas in British Columbia,Canada; Washington and Oregon,USA

While there has been sustained debate on the issue of provincial and state versus local government environmental planning, maintaining privately owned natural resources in the public interest is increasingly viewed as beyond the scope of local governments alone. This paper describes and compares province- and state-level mandates and options for local governments (i.e., city, county, or district) to regulate land uses of environmentally sensitive areas (ESAs) in British Columbia in Canada and in Washington and Oregon in the United States. We define ESAs as landscape elements or places that are vital to the long-term maintenance of biological diversity, soil, water, and other natural resources, especially as they relate to human health, safety, and welfare, both on-site and in a regional context. Underlying similarities are that all three jurisdictions legally express the need for land-use planning by local governments in managing ESAs. Although all three jurisdictions exhibit similar problems in their attempt to accomplish this, ESA planning by local governments is an optional process in British Columbia and Washington but mandatory in Oregon. Furthermore, actual processes prescribed by each of the three jurisdictions are quite different. The information base upon which local regulation of privately held ESAs depends is variable, both within and between the province- and statelevel jurisdictions. Other than for some specific water-related resources, standard definitions and inventory methods for ESAs are lacking, as is coordination among local governments or among the province- and state-level governments. This study concludes that there is a need for a regional environmental information system in the Pacific Northwest based upon an integrated and scientific approach toward ESA structures and functions.     

Assessing alternative energy technologies for developing countries: Technology assessment groups and software

Summary This paper compares two forms of public participation in the assessment of appropriate energy technologies: a centralised top- down approach, and an approach based on grass roots empowerment. The example chosen to demonstrate the former is the Community Based Technology Assessment Program in the United States, and examples of the latter are drawn from efforts at assessing biogas technologies in Korea, Thailand and Papua New Guinea. The analysis includes the assessment of each case study in terms of conditions for public participation derived from the literature. Findings point to the need for empowered technology assessment groups and institutional support for program implementation, or "software", for future efforts at diffusing alternative energy technologies to rural settlements in developing countries. In addition, a role for women in technology assessment is recommended.Mr Subbakrishna has been involved with rural development processes in Nigeria, Kenya and India. With a background in the Earth Sciences from the Indian Institute of Technology, Kharagpur, his current specialisation is in natural resource management and energy policy. He is currently engaged in doctoral work at the Energy Center, University of Pennsylvania, USA.Julia Gardner teaches Environmental Management in the School of Community and Regional Planning at the University of British Columbia. She holds a PhD in Geography from the University of Canterbury, New Zealand. Her current research is in the areas of sustainable development and citizen involvement in natural resource management, based at the Westwater Research Center, University of British Columbia.     

Planning for agricultural lands in British Columbia — Progress and problems

Summary With the passage of the Land Commission Act in April 1974, the province of British Columbia emerged as one of the leading innovators in agricultural land protection in North America. The British Columbia programme is unique, in that it encompasses a variety of incentives and disincentives to restrict the development of agricultural resources. While evidence suggests that the program has been quite successful, administrative weaknesses could endanger long-term viability. Regardless of the potential problems, British Columbia's experiences provide valuable lessons for other North American governments.Owen J. Furuseth is an Assistant Professor of Geography & Earth Sciences at the University of North Carolina at Charlotte. He received his A.B. degree (1971) in geography and urban planning from East Carolina University and an MA (1973) from the same institution in geography. His Ph.D. (1978) was earned in geography at Oregon State University.Prior to his current academic appointment he was an Associate Planner with the Jacksonville Area Planning Board in Jacksonville, Florida. His responsibilities with the agency included land use and environmental planning.His primary research interests are in the areas of agricultural land alienation, and policies to reduce these losses. During 1980–1981, Furuseth was a NATO Postdoctoral Fellow affiliated with the graduate program in Natural Resources Management at Simon Fraser University, British Columbia, Canada. The research reported in this paper was carried out and completed while he was in Canada.     

The role of collaboration in environmental management: an evaluation of land and resource planning in British Columbia

Recent literature on land-use planning proposes the use of innovative collaborative planning (CP) models to resolve planning disputes. This paper uses a participant survey based on 25 evaluative criteria to evaluate an application of CP to land-use planning in British Columbia, Canada. The results show that CP is an effective means of resolving environmental conflict and produces significant additional benefits such as improved stakeholder relations, skills, and knowledge. The case study evaluation also identifies the keys to successful CP management including factors related to process design and external circumstances.     

Taming B.C. Hydro: Site C and the implementation of the B.C. Utilities Commission Act

Public policy making in resources management is greatly influenced by the institutional arrangements that arise out of the legal powers, administrative structures, and financial provisions of the decision system. In British Columbia, the institutional arrangements for energy planning in the province have been greatly altered by the passage of the Utilities Commission Act in 1980. This act redefines the policy implementation process for energy in British Columbia and provides for the regulation of the province's power utility, B.C. Hydro. This is the first time that the hitherto autonomous utility has been subject to regulation and the Utilities Commission Act represents a major reform in the institutional arrangements for energy planning in the province. The article evaluates the effectiveness of the 1980 B.C. Utilities Commission Act and assesses the impact of the legislation upon the institutional arrangements for energy planning in the province. Data for the article were derived from written sources and a series of personal interviews with key participants involved with energy planning in B.C.It is shown that the act represented a major departure in the management of energy resources in B.C. Moreover the implementation of the act's provisions, particularly in regard to B.C. Hydro, had a dramatic impact on the development of new energy projects in the province. It is suggested that while the political and economic climate during the period also favored restraint, the major influence on taming the utility was passage of the Utilities Commission Act. The article concludes by exploring the implications of policy changes that have occurred as a consequence of the act's impact on B.C. Hydro.     

Integrated resource assessment and sustainable land use

Decision makers and planners in resource sectors recognize, at least in theory, the multiple uses of land, reflecting possible choices and options for society, and the need to evaluate the economic, social, and environmental implications of these choices. As such, the need for integrated resource management is now widely accepted in resource planning. This article contributes to the understanding of sustainable resource development through a specific case study. An integrated analytical system is developed and applied to the Peace River Region, British Columbia, Canada, to examine the impacts of a wide range of land-use options and policies upon the achievement of multiple resource use goals. The results indicate that an integrated approach in land resource analysis is not only possible but a necessary step in the move to develop procedures for assisting public decision makers in integrating the diverse functions of the land resource base and to revise demands or develop alternative strategies in order to move society closer to sustainable outcomes.     

Prediction Intervals for Estimates of Site Index Based on Ecosystem Type

/ British Columbia has an ecosystem classification system that classifies sites into site series. Foresters commonly measure the productivity of these sites by their site index. In British Columbia, site index is defined as the height of a stand at breast height age 50 and is usually estimated from height-age models. Biogeoclimatic site series/site index relationships are an increasingly popular method of estimating site index in British Columbia for stands where site index cannot be reliably estimated with height-age models. The precision of the predicted site index from these relationships can be evaluated with prediction intervals. This is done for the predicted site index of a single site, a group of sites, or the areally weighted site index of a group of sites. The methodology is also useful in determining the number of sites required to meet a specified precision. These prediction intervals will assist foresters in making sound forest management decisions.KEY WORDS: Biogeoclimatic Ecosystem Classification; Precision; Prediction interval; Site index; Site series     

Implementation of resource management plans: identifying keys to success

One of the primary challenges in resource and environmental planning is successful implementation of plans. Plan implementation is a complex process influenced by many factors. This study identifies 19 criteria affecting implementation success and tests the impact of these criteria through a case study of collaborative plan implementation in British Columbia, Canada. The significance of criteria and degree to which they are met is assessed by a survey of senior officials responsible for plan implementation. An implementation evaluation index (IEI) is constructed to assess the quality of plan implementation systems and best practices for effective implementation are identified.     

Canadian Innovations in Siting Hazardous Waste Management Facilities

/ Siting hazardous waste facilities is an extremely complex and difficult endeavor. Public aversion to the construction of these facilities in or near their community often results in concerted opposition, referred to as the NIMBY syndrome. For the most part, siting processes do not fail because of inadequate environmental or technical considerations, but because of the adversarial decision-making strategies employed by the proponents. Innovative siting processes used in the provinces of Alberta and Manitoba offer tangible evidence of the successful application of an innovative siting approach based on the principles of decentralization of decision-making authority and full and meaningful public involvement. The purpose of this paper is to evaluate four Canadian siting processes from the perspective of public participation and access to decision-making authority. Examples of siting processes related to hazardous waste management facilities are provided from the provinces of Alberta, Manitoba, British Columbia, and Ontario. Siting has evolved from approaches dominated by top-down decision making to increasing decentralized and pluralistic approaches. Focusing on social and political concerns of potentially affected communities and on the process of decision making itself are fundamental to achieving siting success. In Alberta initially, and later in Manitoba, this new "open approach" to siting has resulted in the construction of the first two comprehensive hazardous waste treatment facilities in Canada.KEY WORDS: Hazardous waste facilities; Siting methodologies; Public participation     

A comparative analysis of the psychosocial impacts of waste disposal facilities

This paper reports the results of a comparative analysis of the psychosocial impacts of municipal solid waste disposal facilities (both landfills and incinerators) in six communities in the provinces of Ontario and British Columbia, Canada. Telephone surveys were administered to random samples of residents living around each facility between 1990 and 1995 (total n=1203). The results of logistic regression analyses show that type of facility was the strongest predictor of residents' awareness, concern, and actions taken in response to site concerns. Essentially, residents living in close proximity to a landfill had a higher probability of reporting awareness, concern or actions than residents living around an incinerator site. There was little evidence of differences in reactions between Ontario and British Columbia (BC) residents, despite variations in provincial policies on waste disposal. The effects of other predictors, with the exception of involvement in the local community, were not consistent, supporting previous findings that the determinants of facility impacts are outcome‐specific. It is essential that environmental managers take this constellation of factors into account in the operation of existing, or siting of new, facilities.     

The role of agency goals and local context in Great Lakes water resources public involvement programs

As complex social phenomena, public involvement processes are influenced by contextual factors. This study examined agency goals for public involvement and assessed the importance of local context in remedial action planning, a community-based water resources program aimed at the cleanup of the 42 most polluted locations in the Great Lakes Basin. Agency goals for public involvement in remedial action plans (RAPs) were agency-oriented and focused on public acceptance of the plan, support for implementation, and positive agency-public relations. Corresponding to these goals, citizen advisory committees were created in 75% of the RAP sites as a primary means for public input into the planning process. Factors that influenced the implementation of public involvement programs in remedial action planning included public orientation toward the remediation issue, local economic conditions, the interaction of diverse interests in the process, agency and process credibility, experience of local leadership, and jurisdictional complexity. A formative assessment of “community readiness” appeared critical to appropriate public involvement program design. Careful program design may also include citizen education and training components, thoughtful management of ongoing agency-public relations and conflict among disparate interests in the process, overcoming logistical difficulties that threaten program continuity, using local expertise and communication channels, and circumventing interjurisdictional complexities.     

Forest Renewal British Columbia: An Experiment in the Recycling of Revenue-raising Environmental Taxation

Forest Renewal British Columbia (FRBC) was created in 1994 to deliver programmes of sustainable development within the leading economic sector of the province, serving as a key element of the radical new natural resource management agenda being promoted by an interventionist provincial administration. Its funding consisted solely of the hypothecated revenues of a 'super' stumpage on timber harvesting. This paper considers the role FRBC played in helping to gain agreement to changes in provincial land use planning and forest strategy, and evaluates its effectiveness as an eco-tax recycling mechanism.     

Meeting the climate change challenge: a scan of greenhouse gas emissions in BC communities

The Canadian province of British Columbia (BC) is taking significant steps towards climate change mitigation, including a carbon tax on fossil fuels and legislation that mandates greenhouse gas (GHG) reductions within public sector organisations and GHG reduction targets for municipalities. This paper carries out a preliminary scan of the GHG emissions of BC communities using the provincially mandated Community Energy and Emissions Inventory reports. We map trends in energy consumption and emissions per capita while uncovering correlations between these variables and land-use planning, geographic, and demographic variables. These data have shown that: (1) energy consumption in BC is an adequate proxy for GHG emissions; (2) transportation, more than buildings, is a strong driver of overall GHG emissions; (3) building emissions are not likely to be strongly influenced by dwelling type, but density of buildings is crucial; (4) geographic location influences emissions; and (5) population size and age do not appear to influence per capita emissions. These findings are particularly important as they suggest that the potentially intransigent factors of income and population size need not be barriers to achieving significant GHG reductions. The policy onus thus falls squarely on transportation planning, land-use, energy conservation, and fuel switching. This in turn highlights the importance of deeper underlying sociocultural and political preferences, which shape the behaviours that have a strong bearing on emissions profiles.     

ANALYSIS OF NEW TECHNIQUES FOR PUBLIC INVOLVEMENT IN WATER PLANNING1

ABSTRACT: The growing demands by the public for a more active role in planning have recently generated considerable interest among researchers and planners in the subject of public involvement techniques. Numerous surveys have found that standard public participation techniques (e.g., public hearings) by themselves are considered inadequate. Several techniques that have potential for overcoming some of the limitations of standard public involvement techniques have recently been developed. This paper describes several of these new techniques and analyzes each of them in terms of their potential utility in water resources planning.     

Beyond the Requirements: Improving Public Participation in EIA

Virtually every environmental planner at some time deals with environmental impact assessment (EIA). Public participation is required in most environmental impact assessment programmesaround the world. However, citizen involvement is often reduced to a procedural exercise instead of a substantive process to include the public in environmental decision making. This paper examines public participation in EIA and provides ways to improve its effectiveness. We first examine the rationales for public involvement and its institutionalization through EIA. Next, we analyse the shortcomings and strengths of common approaches to public involvement. Our analysis, supported by two case studies, suggests that going beyond the minimum requirements can benefit the public, the project proponent and the final plan. We conclude with practical steps to improve public participation programmes in environmental planning and decision making.     

Contrasting Landscape Influences on Sediment Supply and Stream Restoration Priorities in Northern Fennoscandia (Sweden and Finland) and Coastal British Columbia

Sediment size and supply exert a dominant control on channel structure. We review the role of sediment supply in channel structure, and how regional differences in sediment supply and landuse affect stream restoration priorities. We show how stream restoration goals are best understood within a common fluvial geomorphology framework defined by sediment supply, storage, and transport. Landuse impacts in geologically young landscapes with high sediment yields (e.g., coastal British Columbia) typically result in loss of instream wood and accelerated sediment inputs from bank erosion, logging roads, hillslopes and gullies. In contrast, northern Sweden and Finland are landscapes with naturally low sediment yields caused by low relief, resistant bedrock, and abundant mainstem lakes that act as sediment traps. Landuse impacts involved extensive channel narrowing, removal of obstructions, and bank armouring with boulders to facilitate timber floating, thereby reducing sediment supply from bank erosion while increasing export through higher channel velocities. These contrasting landuse impacts have pushed stream channels in opposite directions (aggradation versus degradation) within a phase-space defined by sediment transport and supply. Restoration in coastal British Columbia has focused on reducing sediment supply (through bank and hillslope stabilization) and restoring wood inputs. In contrast, restoration in northern Fennoscandia (Sweden and Finland) has focused on channel widening and removal of bank-armouring boulders to increase sediment supply and retention. These contrasting restoration priorities illustrate the consequences of divergent regional landuse impacts on sediment supply, and the utility of planning restoration activities within a mechanistic sediment supply-transport framework.     

Applying Integrated Resource and Environmental Management to Transmission Right-of-way Maintenance

The concept of a substantive integrator is introduced as a method for integrated resource and environmental management as a means to assimilate different resource values at the operational or field level. A substantive integrator is a strategic management tool for integrating multiple uses into corporate management regimes that traditionally manage for single values. Wildlife habitat management is presented as a substantive integrator for managing vegetation on electric utility power line corridors. A case study from northern British Columbia provides an example of wildlife habitat management as a means to integrate other resource values such as aesthetics, access and subsistence along British Columbia Hydro and Power Authority's transmission rights-of-way.