Adaptive management: Promises and pitfalls

Proponents of the scientific adaptive management approach argue that it increases knowledge acquisition rates, enhances information flow among policy actors, and provides opportunities for creating shared understandings. However, evidence from efforts to implement the approach in New Brunswick, British Columbia, Canada, and the Columbia River Basin indicates that these promises have not been met. The data show that scientific adaptive management relies excessively on the use of linear systems models, discounts nonscientific forms of knowledge, and pays inadequate attention to policy processes that promote the development of shared understandings among diverse stakeholders. To be effective, new adaptive management efforts will need to incorporate knowledge from multiple sources, make use of multiple systems models, and support new forms of cooperation among stakeholders.     

Balancing Endangered Species and Ecosystems: A Case Study of Adaptive Management in Grand Canyon

/ Adaptive ecosystem management seeks to sustain ecosystems while extracting or using natural resources. The goal of endangered species management under the Endangered Species Act is limited to the protection and recovery of designated species, and the act takes precedence over other policies and regulations guiding ecosystem management. We present an example of conflict between endangered species and ecosystem management during the first planned flood on the Colorado River in Grand Canyon in 1996. We discuss the resolution of the conflict and the circumstances that allowed a solution to be reached. We recommend that adaptive management be implemented extensively and early in ecosystem management so that information and working relationships will be available to address conflicts as they arise. Though adaptive management is not a panacea, it offers the best opportunity for balanced solutions to competing management goals.     

Role of Adaptive Management for Watershed Councils

Recent findings in the Umpqua River Basin in southwestern Oregon illustrate a tension in the rise of both community-based and watershed-based approaches to aquatic resource management. While community-based institutions such as watershed councils offer relief from the government control landowners dislike, community-based approaches impinge on landowners' strong belief in independence and private property rights. Watershed councils do offer the local control landowners advocate; however, institutional success hinges on watershed councils' ability to reduce bureaucracy, foster productive discussion and understanding among stakeholders, and provide financial, technical, and coordination support. Yet, to accomplish these tasks current watershed councils rely on the fiscal and technical capital of the very governmental entities that landowners distrust. Adaptive management provides a basis for addressing the apparent tension by incorporating landowners' belief in environmental resilience and acceptance of experimentation that rejects “one size fits all solutions.” Therefore community-based adaptive watershed management provides watershed councils a framework that balances landowners' independence and fear of government intrusion, acknowledges the benefits of community cooperation through watershed councils, and enables ecological assessment of landowner-preferred practices. Community-based adaptive management integrates social and ecological suitability to achieve conservation outcomes by providing landowners the flexibility to use a diverse set of conservation practices to achieve desired ecological outcomes, instead of imposing regulations or specific practices.     

Post-Project Appraisals in Adaptive Management of River Channel Restoration

Post-project appraisals (PPAs) can evaluate river restoration schemes in relation to their compliance with design, their short-term performance attainment, and their longer-term geomorphological compatibility with the catchment hydrology and sediment transport processes. PPAs provide the basis for communicating the results of one restoration scheme to another, thereby improving future restoration designs. They also supply essential performance feedback needed for adaptive management, in which management actions are treated as experiments. PPAs allow river restoration success to be defined both in terms of the scheme attaining its performance objectives and in providing a significant learning experience. Different levels of investment in PPA, in terms of pre-project data and follow-up information, bring with them different degrees of understanding and thus different abilities to gauge both types of success. We present four case studies to illustrate how the commitment to PPA has determined the understanding achieved in each case. In Moore's Gulch (California, USA), understanding was severely constrained by the lack of pre-project data and post-implementation monitoring. Pre-project data existed for the Kitswell Brook (Hertfordshire, UK), but the monitoring consisted only of one site visit and thus the understanding achieved is related primarily to design compliance issues. The monitoring undertaken for Deep Run (Maryland, USA) and the River Idle (Nottinghamshire, UK) enabled some understanding of the short-term performance of each scheme. The transferable understanding gained from each case study is used to develop an illustrative five-fold classification of geomorphological PPAs (full, medium-term, short-term, one-shot, and remains) according to their potential as learning experiences. The learning experience is central to adaptive management but rarely articulated in the literature. Here, we gauge the potential via superimposition onto a previous schematic representation of the adaptive management process by Haney and Power (1996). Using PPAs wisely can lead to cutting-edge, complex solutions to river restoration challenges.     

Information Network Topologies for Enhanced Local Adaptive Management

We examined the principal effects of different information network topologies for local adaptive management of natural resources. We used computerized agents with adaptive decision algorithms with the following three fundamental constraints: (1) Complete understanding of the processes maintaining the natural resource can never be achieved, (2) agents can only learn by experimentation and information sharing, and (3) memory is limited. The agents were given the task to manage a system that had two states: one that provided high utility returns (desired) and one that provided low returns (undesired). In addition, the threshold between the states was close to the optimal return of the desired state. We found that networks of low to moderate link densities significantly increased the resilience of the utility returns. Networks of high link densities contributed to highly synchronized behavior among the agents, which caused occasional large-scale ecological crises between periods of stable and high utility returns. A constructed network involving a small set of experimenting agents was capable of combining high utility returns with high resilience, conforming to theories underlying the concept of adaptive comanagement. We conclude that (1) the ability to manage for resilience (i.e., to stay clear of the threshold leading to the undesired state as well as the ability to re-enter the desired state following a collapse) resides in the network structure and (2) in a coupled social–ecological system, the systemwide state transition occurs not because the ecological system flips into the undesired state, but because managers lose their capacity to reorganize back to the desired state. An erratum to this article can be found at .     

Threshold-Based Resource Management: A Framework for Comprehensive Ecosystem Management

The problems posed by adaptive management for improved ecosystem health are reviewed. Other kinds of science-informed ecosystem management are needed for those regions of conflict between rapid human population growth, increased resource extraction, and the rising demand for better environmental amenities, where large-scale experiments are not feasible. One new framework is threshold-based resource management. Threshold-based resource management guides management choices among four major science and engineering approaches to achieve healthier ecosystems: self-sustaining ecosystem management, adaptive management, case-by-case resource management, and high-reliability management. As resource conflicts increase over a landscape (i.e., as the ecosystems in the landscape move through different thresholds), management options change for the environmental decision-maker in terms of what can and cannot be attained by way of ecosystem health. The major policy and management implication of the framework is that the exclusive use or recommendation of any one management regime, be it self-sustaining, adaptive, case-by-case, or high-reliability management, across all categories of ecosystems within a heterogeneous landscape that is variably populated and extractively used is not only inappropriate, it is fatal to the goals of improved ecosystem health. The article concludes with detailed proposals for environmental decision-makers to undertake “bandwidth management” in ways that blend the best of adaptive management and high-reliability management for improved ecosystem health while at the same time maintaining highly reliable flows of ecosystem services, such as water.     

Policy Windows, Policy Change, and Organizational Learning: Watersheds in the Evolution of Watershed Management

Employing in-depth, elite interviews, this empirical research contributes to understanding the dynamics among policy windows, policy change, and organizational learning. First, although much of the research on agenda setting—how issues attract enough attention that action is taken to address them—has been conducted at the national scale, this work explores the subnational, regional scale. With decentralization, regional-scale environmental decision-making has become increasingly important. Second, this research highlights the role of policy windows and instances of related organizational learning identified by natural resources managers. Having practitioners identify focusing events contrasts with the more typical approach of the researcher identifying a particular focusing event or events to investigate. A focusing event is a sudden, exceptional experience that, because of how it leads to harm or exposes the prospect for great devastation, is perceived as the impetus for policy change.     

Beneath the Straw: In Defense of Participatory Adaptive Management

Our recent paper advocating adaptive management of invasive nonnative species (INS) in Kings Bay, Florida received detailed responses from both Daniel Simberloff, a prominent invasion biologist, and Mark Sagoff, a prominent critic of invasion biology. Simberloff offers several significant lines of criticism that compel detailed rebuttals, and, as such, most of this reply is dedicated to this purpose. Ultimately, we find it quite significant that Simberloff, despite his other stated objections to our paper, apparently agrees with our argument that proposals for alternative management of established INS (i.e., alternatives to minimization/eradication) should not be rejected on an a␣priori basis. We argue that more specific development and application of adaptive approaches toward INS management, whether in Kings Bay or other appropriate case studies, would be facilitated if ecosystem managers and invasion biologists follow Simberloff’s lead on this key point. While Sagoff largely shares (and, indeed, served as a primary source for developing) our general arguments that challenge common moral and scientific assumptions associated with invasion biology, he does question our suggestion that participatory adaptive management provides an appropriate framework for approaching environmental problems in which science and politics are inherently entangled. We attempt to answer this criticism through a brief sketch of what participatory adaptive management might look like for Kings Bay and how such an approach would differ from past management approaches.     

Collaborative Watershed Groups in Three Pacific Northwest States: A Regional Evaluation of Group Metrics and Perceived Success1

Chaffin, B.C., R.L. Mahler, J.D. Wulfhorst, and B. Shafii, 2011. Collaborative Watershed Groups in Three Pacific Northwest States: A Regional Evaluation of Group Metrics and Perceived Success. Journal of the American Water Resources Association (JAWRA) 48(1): 113‐122. DOI: 10.1111/j.1752‐1688.2011.00599.x Abstract: Watershed management through collaborative groups has become important throughout the United States over the past two decades. Although several studies of Oregon and Washington watershed groups exist, a definitive regional analysis of Pacific Northwest (PNW) watershed groups’ success is lacking. This paper uses data collected from a single survey instrument to determine the status, structure, and success of watershed groups in Idaho, Oregon, and Washington, respectively. Results indicate that watershed group member satisfaction with elements of group structure correlates with levels of perceived group success. Strong leadership within a group and a clear mission statement also indicate higher levels of perceived success. Contrasting realized successes among PNW watershed groups with metrics of perceived success constructed from survey data define watershed groups’ missions and goals and is validated by analysis of the Washington State planning groups’ responses. Overall, PNW watershed groups identified themselves as largely successful. Therefore, the structure, function, and operation identified as characteristic of PNW watershed groups could be used as a model for developing watershed group programming in regions with similar conditions.     

Stakeholder Analysis of a Collaborative Watershed Management Process: A Florida Case Study1

Borisova, Tatiana, Laila Racevskis, and Jennison Kipp, 2012. Stakeholder Analysis of a Collaborative Watershed Management Process: A Florida Case Study. Journal of the American Water Resources Association (JAWRA) 48(2): 277‐296. DOI: 10.1111/j.1752-1688.2011.00615.x Abstract: This study focuses on a Florida watershed where development of a total maximum daily load (TMDL) and its implementation plan resulted in conflicts among stakeholders. The overall goal is to build a better understanding of stakeholder perceptions of water quality problems, water policy processes and decisions, and water management plan development in a region where these issues have become contentious. Findings are based on a stakeholder analysis using qualitative data collected through focus groups with agricultural producers, local governments, and environmental groups, and supplemented with additional qualitative data on the watershed management process. Stakeholder conflicts in this case study are associated with perceived flaws in the structural and procedural characteristics of the stakeholder involvement process: (1) suboptimal watershed stakeholder representation on the TMDL executive committee, (2) an inappropriate voting procedure for making TMDL decisions, (3) limitations in information sharing between regulatory agencies and watershed stakeholders, and (4) stakeholders’ doubts about whether tradeoffs associated with achieving the water quality targets were assessed adequately throughout the TMDL planning and implementation process. This study contributes to the literature on collaborative watershed management by analyzing stakeholder involvement given Florida’s unique institutional settings, where implementation of TMDL pollution abatement is mandatory.     

Why ecosystem management can't work without Social science: An example from the California northern spotted owl controversy

It is increasingly obvious that social science, while not a sufficient condition for making ecosystem management effective, is a necessary condition. A social science typology of ecosystems is developed, applied, and shown to have substantial and unexpected implications for the practice of ecosystem management. Ecologists and environmental scientists, in particular, will find some conclusions uncomfortable. The application involves a case material from the California northern spotted owl controversy.     

Toward Adaptive Management: The Impacts of Different Management Strategies on Fish Stocks and Fisheries in a Large Regulated Lake

We applied the adaptive management approach to analyze the demand and feasibility of adaptive management of fish stocks in a large regulated lake, Oulujärvi, in northern Finland. The process consisted of four phases: (1) analysis of the current state of the fisheries system (fishers, related markets and industry, fisheries researches and authorities, related organizations, etc.); (2) analysis of the objectives of different stakeholders; (3) the composition of alternative management strategies and assessment of their impacts; and (4) recommendations for future management. We used catch statistics from the period 1973–1995 to analyze fish stocks and fishing. Fish species involved were brown trout (Salmo trutta L.), whitefish [Coregonus lavaretus (L.) sl.], vendace (Coregonus albula L.); and pikeperch (Stizostedion lucioperca L.). Questionnaires and interviews were applied to ascertain the opinions of different groups of fishermen. Several models and cost–benefit analysis were used to assess the ecological, economic, and social impacts of three alternative management strategies. The results emphasize that when determining stocking levels and fishing regulations, the system should be considered as a whole, and impacts on major fish species and different groups of fishermen should be assessed. The stocking policy and fishing regulations should also be flexible to accommodate changing biotic and societal conditions. The key questions in applying the adaptive management process in Oulujärvi fisheries are how to determine clear objectives for fisheries management, find a fisheries management structure that provides workable interactions between different stakeholders, and arrange cost-effective monitoring. The lessons learned from the Oulujärvi experience and recommendations for fisheries management are relevant to other lakes with conflicting objectives of different stakeholders.     

Uneven Environmental Management: A Canadian Perspective

Advocates of community-based approaches to environmental management argue that by respecting local circumstances, skills, and concerns we may improve the prospects of achieving environmental sustainability; yet, within nation states such as Canada, environmental conditions, management and enforcement costs and capabilities, and power differentials within and among civic and public sectors may result in a highly differentiated capacity for environmental management across different localities and regions. This article draws on insights of political ecology to 1) create a conceptual framework that identifies key elements shaping regional environmental management regimes and to 2) undertake a comparative analysis to assess how elements interact to generate uneven management outcomes. I compare experiences of two Canadian biosphere reserves designated in 2000: Clayoquot Sound, BC; and Redberry Lake, SK. Analysis reveals that differences in governance and institutional capacities in the biosphere reserves are key to explaining uneven local outcomes. Where the public and civic sectors are strong, a robust and publicly vetted form of management will emerge. Where these sectors are weak and land is held as private property, environmental nongovernmental organizations can set the type and level of management, to the exclusion of effective civic and state involvement. This result may improve environmental sustainability but hinder social sustainability of a management regime and raises questions about the efficacy of community-based management.     

Safety Assurance of Foods: Risk Management Depends on Good Science but it is not a Scientific Activity

We make many decisions in our livesand we weigh the benefits against thedrawbacks. Our decisions are based on whatbenefits are most important to us and whatdrawbacks we are willing to accept. Decisionsabout what we eat are made in the same way; butwhen it comes to safety, our decisions areusually made more carefully. Food containsnatural chemicals and it can come into contactwith many natural and artificial substancesduring harvest, production, processing, andpreparation. They include microorganisms,chemicals, either naturally present or producedby cooking, environmental contaminants, andpesticides. Since the chance of being harmed bythese potential hazards is called risk, riskanalysis might be better termed as the scienceof safety, because risk management is anessential part of it. It would, however, bedifficult and shortsighted to maintain thatquestions about risk and safety can have nomoral dimension. Risk and safety become mattersof moral concern when they raise furtherquestions about responsibility, accountability,and justifiability. The question of risk cannotbe ignored in any ethical investigation ofgenetic engineering, novel foods, animalwelfare, and individual choices. However, foodis more than metabolic fuel. It hasphysiological, psychological, social, cultural,and aesthetic associations that merge to form agestalt that people endanger and maintain. Thecontribution of any food towards anindividual's well being is as complex as theindividual himself. In this context, thebenefits of consuming food that containshazards may outweigh the risk.     

Targeted Application of Seasonal Load Duration Curves Using Multivariate Analysis in Two Watersheds Flowing Into Lake Houston1

Teague, Aarin, Philip B. Bedient, and Birnur Guven, 2011. Targeted Application of Seasonal Load Duration Curves Using Multivariate Analysis in Two Watersheds Flowing Into Lake Houston. Journal of the American Water Resources Association (JAWRA) 47(3):620‐634. DOI: 10.1111/j.1752‐1688.2011.00529.x Abstract: Water quality is a problem in Lake Houston, the primary source of drinking water for the City of Houston, Texas, due to pollutant loads coming from the influent watersheds, including Spring Creek and Cypress Creek. Statistical analysis of the historic water quality data was developed to understand the source characterization and seasonality of the watershed. Multivariate analysis including principal component, cluster, and discriminant analysis provided a custom seasonal assessment of the watersheds so that loading curves may be targeted for season specific pollutant source characterization. The load duration curves have been analyzed using data collected by the U.S. Geologic Survey with corresponding City of Houston water quality data at the sites to characterize the behavior of the pollutant sources and watersheds. Custom seasons were determined for Spring Creek and Cypress Creek watersheds and pollutant source characterization compared between the seasons and watersheds.     

Moving Beyond Strawmen and Artificial Dichotomies: Adaptive Management When an Endangered Species Uses an Invasive One

Evans et al. (Journal of Agricultural and Environmental Ethics, 2008) have attempted to enmesh me in their dispute with the Florida Bureau of Invasive Plant Management about a specific system, Kings Bay/Crystal River. In so doing, they repeatedly mischaracterize my positions in order to depict, incorrectly, invasion biology as monolithic and me as a representative of one extreme of a false dichotomy about management of introduced species. In addition, they introduce an issue irrelevant in this case (extinctions) and cite incorrect data. Proposing to manage people, manatees, introduced plants, and cyanobacteria in Kings Bay by participative adaptive management, they ignore the fact that living organisms can both disperse autonomously and hitchhike. Finally, they present few details on any aspect of their management proposal and do not address the myriad problems that have beset previous attempts at scientific adaptive management, especially at large scales. Until such a management approach is fleshed out and implemented, it is impossible to assess its validity for Kings Bay, and it is very premature to suggest it as a general model for dealing with invasive species disputes.     

The Greater Yellowstone Ecosystem: Challenges for Regional Ecosystem Management

An adaptive management approach is necessary but not sufficient to address the long-term challenges of the Greater Yellowstone Ecosystem (GYE). Adaptive management, in turn, has its own particular challenges, of which we focus on two: science input, and stakeholder engagement. In order to frame our discussion and subsequent recommendations, we place the current management difficulties into their historical context, with special emphasis on the 1990 Vision document, which attempted a broad synthesis of management goals for the ecosystem. After examining these two key challenges in the context of the GYE, we make several recommendations that would allow for more effective ecosystem management in the long term. First, we recommend adoption of the GYE as a site for long-term science research and monitoring with an emphasis on integrative research, long-term federal funding, and public dissemination of data. Second, we conclude that a clearer prioritization of legislative mandates would allow for more flexible ecosystem management in the GYE, a region where conflicting mandates have historically led to litigation antithetical to effective ecosystem management. Finally, we recommend a renewed attempt at an updated Vision for the Future that engages stakeholders (including local landholders) substantively from the outset.     

A Soft Systems Approach to Watershed Management: A Road Salt Case Study

Watershed management requires integration of social and ecological understanding. Participatory approaches to planning and management incorporate stakeholder knowledge and understanding. An action research strategy using focus groups with Michigan State University operations units helped generate a soft systems model of watershed impacts of organizational decision-making regarding road de-icing. The results reveal tensions and inconsistencies between the mission and operation of the institution. These tensions are exacerbated by inadequate communication among various elements of the campus watershed management system. The action research approach facilitated the researchers understanding of the complex institutional system and helped identify possible areas for making improvements. Specifically, the researchers were able to facilitate improvement in some linkages between scientists developing campus watershed models and the operations staff responsible for handling many of the inputs being modeled.