Participation, Process Quality, and Performance of Marine Protected Areas in the Wider Caribbean

Throughout the wider Caribbean, marine protected areas (MPAs) are rapidly gaining momentum as a conservation tool, but management performance of existing MPAs is considered low. To enhance MPA management performance, stakeholders are increasingly being invited to discuss, debate, and develop rules about how people should interact with marine ecosystems. Using social and ecological data from a rapid assessment of 31 MPAs and their associated communities in the wider Caribbean, this study investigates stakeholder participation in MPA planning and management, and how participants' views of process quality relate to MPA performance. Findings indicate that (1) participants tended to be male, resource users, participate in community organizations, and have lived fewer years in the community associated with an MPA than non-participants; (2) simply participating was not associated with perceptions of the social and ecological performance of MPAs, however, perceptions of process quality were positively related to views of performance; and (3) resource users' perceptions of an MPA's ecological performance were likely shaped by a variety of factors. Conservation practitioners should be aware that participatory MPA processes are complex and require careful planning if they are to contribute positively to marine conservation efforts.     

Optimizing voluntary compliance in marine protected areas: a comparison of recreational fisher and enforcement officer perspectives using multi-criteria analysis

A comprehensive list of planning criteria for optimizing compliance in Marine Protected Areas (MPAs) was compiled and used to compare the views of recreational fishers and compliance officers for facilitating voluntary compliance in the Port Stephens - Great Lakes Marine Park (PSGLMP). Expert working groups were tasked separately with: 1) criteria identification and weighting; 2) scoring of no-take zones; 3) prioritizing and determining uncertainty; and 4) analysis of results and sensitivity testing. Multi-Criteria Analysis (MCA) revealed that both groups had similar perspectives and recommendations, despite weighting the individual planning criteria differently. Significantly, "manageability" scores for no-take zones from MCA appeared to correlate well with past numbers of enforcement actions recorded for each zone. This provides empirical evidence that adopting manageability criteria during the planning of MPAs could lead to a marked increase in voluntary compliance. As a result, greater consideration to compliance planning during MPA design and zoning is recommended in order to optimize voluntary compliance. Whilst the majority of no-take zones in the PSGLMP case study were evaluated as being relatively effective in terms of optimizing voluntary compliance, there remains considerable potential to improve design, management and use of the poorer performing zones. Finally, the study highlighted the value of recreational fisher engagement in MPA planning processes to maximize voluntary compliance and manageability.     

Climate Change, Coral Reef Ecosystems, and Management Options for Marine Protected Areas

Marine protected areas (MPAs) provide place-based management of marine ecosystems through various degrees and types of protective actions. Habitats such as coral reefs are especially susceptible to degradation resulting from climate change, as evidenced by mass bleaching events over the past two decades. Marine ecosystems are being altered by direct effects of climate change including ocean warming, ocean acidification, rising sea level, changing circulation patterns, increasing severity of storms, and changing freshwater influxes. As impacts of climate change strengthen they may exacerbate effects of existing stressors and require new or modified management approaches; MPA networks are generally accepted as an improvement over individual MPAs to address multiple threats to the marine environment. While MPA networks are considered a potentially effective management approach for conserving marine biodiversity, they should be established in conjunction with other management strategies, such as fisheries regulations and reductions of nutrients and other forms of land-based pollution. Information about interactions between climate change and more “traditional” stressors is limited. MPA managers are faced with high levels of uncertainty about likely outcomes of management actions because climate change impacts have strong interactions with existing stressors, such as land-based sources of pollution, overfishing and destructive fishing practices, invasive species, and diseases. Management options include ameliorating existing stressors, protecting potentially resilient areas, developing networks of MPAs, and integrating climate change into MPA planning, management, and evaluation.     

Social Contexts and Customary Fisheries: Marine Protected Areas and Indigenous Use,Australia

Worldwide, the implementation of marine protected areas (MPAs) offers opportunities for delivering fisheries and biodiversity management objectives. In Australia however, the primary function of an MPA is that of biodiversity conservation. Nonetheless, the management of Indigenous customary fisheries is one area where fisheries and biodiversity issues converge. This article examines the relationship between biodiversity and customary fisheries in an MPA context by investigation of the role and importance of Indigenous social contexts. Using case study examples from Australia, I explore the role of Indigenous social contexts in two dimensions: (i) management of traditional fisheries and (ii) Indigenous contribution to fisheries within an MPA. Findings demonstrate two narratives concerning social contexts, one of recognition and the other concerning Indigenous involvement in management. I conclude with a survey of Indigenous management initiatives within MPAs. The article ends with a discussion of the utility of understanding social contexts in any marine management endeavour, specifically other social contexts within an MPA.     

Environmental capital: an information core to public participation in strategic and operational decisions—the example of river ‘Best Practice’ projects

Sustainable development and solutions to existing environmental problems depend heavily on information and its translation into usable knowledge. Increasingly, affected communities are being drawn into environmental decision‐making, both in the development of strategy (plans) and in the delivery of plans through management and operations. Variants of the ‘natural capital’ theme are popular amongst those who see an effective dialogue between the sciences of ecology and economics as the most promising interdisciplinary context for environmental decision making by empowered communities. A decision‐making framework is vital in practical, community‐based schemes (wider than ‘stakeholder platforms’) which have become popular for promoting ‘best practice’ in managing river basin units. The EU Water Framework Directive renders use of interdisciplinary techniques within a participatory framework a statutory requirement. A final practical need for communities and professionals involved with such schemes is the creation of a system of adaptive (rather than reactive) management, supported by ongoing research and monitoring to detect, and adjust to, ever‐changing physical and social contexts for both strategies and operations.

This paper describes the authors' experience in applying the ‘Environmental Capital’ (also known as ‘Quality of Life Capital’ (QoLC)) approach to information management in two headwater catchments in northern England: the Wharfe and the Coquet. In the case of the Upper Wharfedale Best Practice Project (UWBPP) the components of basic environmental survey, consultation, strategy formulation and the use of the strategy are illustrated to guide immediate and longer‐term actions. In contrast, the Coquet application of the technique, whilst socially more pervasive, was less successful for a number of reasons: geographical, institutional, project and participatory.

As a proposed development of the methodology based on the authors' experiences, extending public participation through monitoring activity, together with formal application of environmental economics to the perceived elements of ‘natural’ and ‘human’ capital in the two catchments would appear desirable. Conclusions are also drawn regarding the demands of the EU Water Framework Directive for ecological, economic and participatory approaches to river basin planning and management.     

A Global Evaluation of Coral Reef Management Performance: Are MPAs Producing Conservation and Socio-Economic Improvements?

There is a consensus that Marine Protected Area (MPA) performance needs regular evaluation against clear criteria, incorporating counterfactual comparisons of ecological and socio-economic performance. However, these evaluations are scarce at the global level. We compiled self-reports from managers and researchers of 78 coral reef-based MPAs world-wide, on the conservation and welfare improvements that their MPAs provide. We developed a suite of performance measures including fulfilment of design and management criteria, achievement of aims, the cessation of banned or destructive activities, change in threats, and measurable ecological and socio-economic changes in outcomes, which we evaluated with respect to the MPA’s age, geographical location and main aims. The sample was found to be broadly representative of MPAs generally, and suggests that many MPAs do not achieve certain fundamental aims including improvements in coral cover over time (in 25% of MPAs), and conflict reduction (in 25%). However, the large majority demonstrated improvements in terms of slowing coral loss, reducing destructive uses and increasing tourism and local employment, despite many being small, underfunded and facing multiple large scale threats beyond the control of managers. However spatial comparisons suggest that in some regions MPAs are simply mirroring outside changes, with demonstrates the importance of testing for additionality. MPA benefits do not appear to increase linearly over time. In combination with other management efforts and regulations, especially those relating to large scale threat reduction and targeted fisheries and conflict resolution instruments, MPAs are an important tool to achieve coral reef conservation globally. Given greater resources and changes which incorporate best available science, such as larger MPAs and no-take areas, networks and reduced user pressure, it is likely that performance could further be enhanced. Performance evaluation should test for the generation of additional ecological and socio-economic improvements over time and compared to unmanaged areas as part of an adaptive management regime.     

Marine Protected Areas in Sri Lanka: A Review

Despite the popularity of marine protected areas (MPAs) as a management tool, increasing evidence shows that many fail to achieve conservation objectives. Although several MPAs exist in Sri Lanka, most are not managed, and resource extraction and habitat degradation continue unabated. At present, the declaration and management of MPAs is carried out without adequate consideration of the ecology, socioeconomic realities, or long-term management sustainability. Managers have focused more toward the creation of new legislation and protected areas rather than ensuring the implementation of existing regulations and management of existing protected areas. Poor coordination and a lack of serious political will have also hindered successful resource management. As in other developing countries, MPA managers have to contend with coastal communities that are directly dependant on marine resources for their subsistence. This often makes it unfeasible to exclude resource users, and MPAs have failed to attract necessary government support because many politicians are partial toward the immediate needs of local communities for both economic and political reasons. A more integrated approach, and decisions based on the analysis of all relevant criteria combined with a concerted and genuine effort toward implementing strategies and achieving predetermined targets, is needed for effective management of MPAs and the sustainable use of marine resources in Sri Lanka.     

Linking carbon sequestration science with local sustainability: an integrated assessment approach

This paper introduces an integrated assessment (IA) approach for a Canada-China joint research project that linked forest carbon sequestration, forest resource management, and local sustainability enhancement. The purpose of the IA was to improve the measurement of carbon in different land uses and vegetation covers, as well as to direct decision makers to those land uses or options as an CO₂ emission reduction strategy while supporting rural sustainable development. In this connection, three questions are addressed in this paper:

1)

How will forestry carbon sequestration land use policies affect regional sustainability prospects in rural China?     

High seas marine protected area policy development: Macro-goals or micro-actions?

The notion of creating marine protected areas (MPAs) in the high seas has been hailed as “an idea whose time has come”, and advocates are calling for them to be part of a global representative system to be established by 2012. It is argued in this paper that embedding the high seas MPA concept in the macro-goal of a global representative system subsumes more pragmatic and politically acceptable “micro-actions”. Development of politically contentious policy proposals such as high seas MPAs may have a better chance of success if they proceed by increments and are negotiated outside the limelight of a full scale, temporally defined global project. The following paper critically analyses the salience of international environmental agreements in the context of high seas MPAs and suggests a prototype MPA established by means of a negotiated agreement between a small number of countries which share political will and technological capacity to make a difference. Modelled on the recently implemented Titanic Accord, the prototypical high seas MPA would allow parties to develop a collaborative, rules-based regime which could be used to manage the actions of citizens involved in activities that may have a negative impact on the specified area.     

Feature Extraction Techniques for Measuring Piñon and Juniper Tree Cover and Density,and Comparison with Field-Based Management Surveys

Western North America is experiencing a dramatic expansion of piñon (Pinus spp.) and juniper (Juniperus spp.) (P-J) trees into shrub-steppe communities. Feature extracted data acquired from remotely sensed imagery can help managers rapidly and accurately assess this land cover change in order to manage rangeland ecosystems at a landscape-scale. The objectives of this study were to: (1) develop an effective and efficient method for accurately quantifying P-J tree canopy cover and density directly from high resolution photographs and (2) compare feature-extracted data to typical in-situ datasets used by land managers. Tree cover was extracted from aerial-photography using Feature Analyst^®. Tree density was calculated as the sum of the total number of individual polygons (trees) within the tree cover output file after isolation using a negative buffer post-processing technique. Feature-extracted data were compared to ground reference measurements from Utah’s Division of Wildlife Resources Range Trend Project (DWR-RTP). We found that the proposed feature-extraction techniques used for measuring cover and density were highly correlated to ground reference and DWR-RTP datasets. Feature-extracted measurements of cover generally showed a near 1:1 relationship to these data, while tree density was underestimated; however, after calibration for juvenile trees, a near 1:1 relationship was realized. Feature-extraction techniques used in this study provide an efficient method for assessing important rangeland indicators, including: density, cover, and extent of P-J tree encroachment. Correlations found between field and feature-extracted data provide evidence to support extrapolation between the two approaches when assessing woodland encroachment.     

Marine Protected Dramas: The Flaws of the Brazilian National System of Marine Protected Areas

This article discusses the current problems and issues associated with the implementation of a National System of Marine Protected Areas in Brazil. MPA managers and higher governmental level authorities were interviewed about their perceptions of the implementation of a national MPA strategy and the recent changes in the institutional arrangement of government marine conservation agencies. Interviewees’ narratives were generally pessimistic and the National System was perceived as weak, with few recognizable marine conservation outcomes on the ground. The following major flaws were identified: poor inter-institutional coordination of coastal and ocean governance; institutional crisis faced by the national government marine conservation agency; poor management within individual MPAs; problems with regional networks of marine protected areas; an overly bureaucratic management and administrative system; financial shortages creating structural problems and a disconnect between MPA policy and its delivery. Furthermore, a lack of professional motivation and a pessimistic atmosphere was encountered during many interviews, a malaise which we believe affects how the entire system is able to respond to crises. Our findings highlight the need for a better understanding of the role of ‘leadership’ in the performance of socio-ecological systems (such as MPA networks), more effective official evaluation mechanisms, more localized audits of (and reforms if necessary to) Brazil’s federal biodiversity conservation agency (ICMBio), and the need for political measures to promote state leadership and support. Continuing to focus on the designation of more MPAs whilst not fully addressing these issues will achieve little beyond fulfilling, on paper, Brazil’s international marine biodiversity commitments.     

Incorporating Recreational Users into Marine Protected Area Planning: A Study of Recreational Boating in British Columbia, Canada

Marine protected areas (MPAs) and zoning plans require an understanding of stakeholders if they are to be successful at achieving social and biological objectives. This study examines recreational boaters in a proposed MPA in British Columbia, Canada, using the recreation opportunity spectrum (ROS) and models of recreation conflict as a basis for investigation. Boaters (n = 543) visiting the region during the summer completed face-to-face surveys. Results show variability in boater setting preferences, supporting an ROS-based approach to MPA planning and zoning. While boaters as a whole placed the greatest importance on natural settings, sailboat operators expressed stronger preferences for natural and quiet settings relative to motorboats, and motorboat operators expressed stronger preferences for settings characterized by built facilities and extractive activities relative to sailboats. Several marine activities emerged as sources of perceived conflict for boaters, including personal watercraft, commercial whale watching vessels, and shellfish aquaculture. Our analysis indicates that while some of these may be addressed through zoning, others are better addressed through education and communication. Recommendations for both MPA management and future research are made.     

The rhetoric of participation re-examined: The state,NGOs and water users at Varanasi,Uttar Pradesh,India

Summary People's participation is usually regarded as a sine qua non for the success and sustainability of development projects. Yet in practice, it raises a number of questions. Who are the people? Why is their participation sought, and how or at what level, is such participation desired? This paper seeks to examine the rhetoric of participation in the implementation of the Ganga Action Plan (GAP) at Varanasi, in the north-eastern State of Uttar Pradesh, India. Launched in 1985, the GAP is the first major attempt to systematically control and monitor the pollution of a significant river in the country. In addition, it claimed to be a people's programme because of the powerful and deep-seated cultural and religious meaning associated with the Ganga. Varanasi, however, is indicative of its failure to deliver this promise — the GAP is only acceptable to authority because it does not challenge the existing institutional order, and its participatory content is symbolic rather than substantive. Non-govemental organisations, traditionally viewed as intermediary actors between the micro and macro levels, work within the socio-political framework of the city. In the process, water-user groups such as the washermen who derive an economic livelihood from washing clothes in the Ganga, are literally excluded from the definition and process of participation.She obtained her PhD, the basis of the current research, at the University of Cambridge, UK.     

An Ecology of Prestige in New York City: Examining the Relationships Among Population Density,Socio-economic Status,Group Identity,and Residential Canopy Cover

Several social theories have been proposed to explain the uneven distribution of vegetation in urban residential areas: population density, social stratification, luxury effect, and ecology of prestige. We evaluate these theories using a combination of demographic and socio-economic predictors of vegetative cover on all residential lands in New York City. We use diverse data sources including the City’s property database, time-series demographic and socio-economic data from the US Census, and land cover data from the University of Vermont’s Spatial Analysis Lab (SAL). These data are analyzed using a multi-model inferential, spatial econometrics approach. We also examine the distribution of vegetation within distinct market categories using Claritas’ Potential Rating Index for Zipcode Markets (PRIZM?) database. These categories can be disaggregated, corresponding to the four social theories. We compare the econometric and categorical results for validation. Models associated with ecology of prestige theory are more effective for predicting the distribution of vegetation. This suggests that private, residential patterns of vegetation, reflecting the consumption of environmentally relevant goods and services, are associated with different lifestyles and lifestages. Further, our spatial and temporal analyses suggest that there are significant spatial and temporal dependencies that have theoretical and methodological implications for understanding urban ecological systems. These findings may have policy implications. Decision makers may need to consider how to most effectively reach different social groups in terms of messages and messengers in order to advance land management practices and achieve urban sustainability.     

Reflexive governance: exploring the concept and assessing its critical potential for sustainable development. Introduction to the special issue

ABSTRACT

Elaborated in publications on transition management, sustainability governance and deliberative environmental governance, ‘reflexive governance’ addresses concerns about social-ecological vulnerabilities, flawed conceptualisations of human-nature relations fragmented governance regimes and conditions for a sustainability transition. Key barriers to reflexive government include unavoidable politics; the influence of broader discursive systems that shape actors’ strategic interests; and structural and deliberate limitations to the range of admitted epistemological understandings, normative perspectives and material practices. Against this background, the contributions to the special issue provide novel conceptual linkages between reflexive governance and boundary objects, intercultural dialogue, conflict management heuristics, discourse linguistics, theories of the policy cycle and reflexive law, network and learning theories, and Lasswell’s ‘developmental constructs’. Based on the contributions, we identify five inherent conceptual tensions of reflexive governance: between the openness of horizontal learning processes and the desired direction towards sustainable development; between reflexive governance as a normative or procedural concept; between expected learning orientations and other, strategic orientations; between governance as a precondition for reflexivity and reflexive learning as a precondition for reorganized governance structures; and between reflexivity as an open-ended, evolutionary process and the need to strategically defend the space for reflexivity against powerful groups with an interest in the status quo.     

A question of ‘fit’: local perspectives on top-down flood mitigation policies in Vermont

Despite consensus on the need to adapt to climate change, who should adapt, and how, remain open questions. While local-level actions are essential to adaptation, state and federal governments can play a substantial role in adaptation. In this paper, we investigate local perspectives on state-level flood mitigation policies in Vermont as a means of analysing what leads top-down adaptations to be effective in mobilizing local action. Drawing on interviews with town officials, we delineate local-level perspectives on Vermont's top-down policies and use those perspectives to develop a conceptual framework that presents the ‘fit’ between top-down policies and the local-level context as comprised of three components: Receptivity, Ease of Participation, and Design. We explain how these components and their interactions influence local-level action. This analysis points to how careful consideration of the components of ‘fit’ may lead to greater local-level uptake of top-down adaptation policies.     

Some community socio-economic benefits of watershed councils: A case study from Oregon

One of the most significant junctures in natural resource planning and management in recent years has been the emergence of community-based natural resource management (CBNRM). The central focus of CBNRM is the environment, of course. However, it explicitly considers the local economy and community as well. It is a highly participatory approach to local, place-based projects, programs and policies aimed simultaneously at environmental and community health. This paper is an attempt to shed light on what happens in the local economy and community as a result of pursuing a CBNRM strategy. Oregon has been in the vanguard in putting CBNRM into operation. A key example is the state's experience with local watershed councils and the state agency that supports them, the Oregon Watershed Enhancement Board (OWEB). Drawing from a larger study of Oregon's watershed councils, we ask and answer the questions: ‘What direct contribution do watershed councils make to the local economies of Oregon?’; ‘Do watershed councils contribute to ‘civic engagement’ in Oregon?’ and ‘Do they enhance individuals' and communities’ capacity to engage in public issues beyond watershed council activities?’     

Breathtaking Clarity,Delicious Ambiguity

Abstract

A new institutional architecture is emerging in Wales to govern sustainable development. The National Assembly for Wales (hereafter referred to as the ‘Welsh Assembly’)1 ¹The National Assembly for Wales is the legal entity and title given to the devolved body in Wales. ‘Welsh Assembly Government’ is the term used by the current administration. has a statutory duty to promote sustainable development in the exercise of all its functions; its response has been to design a set of political and organizational arrangements to manage this policy area, and to prepare a Scheme that sets out how it proposes to discharge this duty. Devolved government in Wales has also been the catalyst for the emergence of collaborative relationships and partnerships between different sectors and interests. The Welsh Assembly and the Welsh Local Government Association have published a Compact jointly committing them to promote sustainable development; national non-governmental organizations such as Oxfam and the World Wide Fund for Nature have set up Welsh agencies; local government sustainable development coordinators have formed a national network; a national Sustainable Development Forum has been created; and the Welsh Assembly has taken the lead in establishing a European network of countries interested in sharing best practice on sustainable development. A new Wales-specific structure and system is materializing and the test now is how far this will be effective in delivering sustainable development policies and solutions at local and national levels. This paper examines the challenges in managing sustainable development, and the potential for success of this new governance system, drawing on recent research undertaken by the author on behalf of the Joseph Rowntree Foundation. The examination is set in the context of different theories of governance, and sustainable development is conceptualized as a ‘wicked issue’—one that cannot be resolved by organizations and agencies acting autonomously, but rather needs concerted focus and action across all sectors.     

The importance of the will to improve: how ‘sustainability’ sidelined local livelihoods in a carbon-forestry investment in Uganda

This paper describes a ‘win–win’ discourse on local sustainable development and global climate change mitigation regarding Kachung, a Swedish–Norwegian climate forestry investment in Uganda certified under the Clean Development Mechanism (CDM). In many ways, this investment is a typical example of how private interests and capital accumulation are prioritised over local concerns in natural resource management under neoliberalism. This study, however, indicated that investors had genuine intentions of creating mutual benefits for the global environment and local people. Drawing on Li (2007), we show that this ‘will to improve’ was nevertheless constructed in ways that resulted in prioritisation of global climate change mitigation over local context-specific concerns.

We identify three core factors making the win–win discourse around Kachung plantation especially resilient: (i) the perceived urgency of climate change mitigation, (ii) the apolitical framing of ‘sustainability’ as an environmental issue that can be fixed through external technical interventions and (iii) the devaluation of local and context-specific knowledge. We end by suggesting that research on the neoliberalisation of nature focus more on analysing the rationales behind specific interventions. This would leave us better equipped to suggest how such interventions should be modified to produce true wins for local contexts.     

Australian Local Government Attempts to Deliver Beneficial Environmental Outcomes

Abstract

This paper presents the results of a national project investigating Australian local government (LG) attempts to deliver beneficial environmental outcomes. It briefly describes the extensive environmental planning, management and protection roles played by Australian LGs. It notes that these roles are poorly documented within the academic literature, and makes a case for fundamental research to better understand LGs and their work from the inside. It describes this project's use of grounded theory methods in gathering and analysing 34 case studies of Australian LG environmental initiatives. The inside perspectives represented by the papers show that Australian LG environmental work:

• extends beyond its statutory requirements;

• is novel and creative;

• endures by balancing ecological, social and economic values;

• demonstrates different patterns depending on its planning, management or protection focus; and

• usually involves environmental strategists with long-term, passionate commitments to local environmental values.