Managing water through change and uncertainty: comparing lessons from the adaptive co-management literature to recent policy developments in England

Water management is set to become increasingly variable and unpredictable, in particular because of climate change. This paper investigates the extent to which water policy in England provides an enabling environment for ‘adaptive co-management’, which its proponents claim can achieve the dual objective of ecosystem protection and livelihood sustainability under conditions of change and uncertainty. Five policy categories are derived from a literature review, and are used to conduct a directed content analysis of seven key water policy documents. The findings reveal that although, in part, English water policy serves as an enabling environment for adaptive co-management, there is a level of discrepancy between substantive aspects of the five policy categories and water policy in England. Addressing these discrepancies will be important if English water policy is to allow for the emergence of processes, like adaptive co-management, that are capable of coping with the challenges that lie ahead.     

Editorial The Good,the Bad and the Bubbly

Biodiversity planners increasingly recognise the need for delivering action on a ‘wider countryside’, rather than on a purely site‐centred, basis. Ecological processes often take place at the ‘landscape scale’ and are not sufficiently accommodated within reserves, and a failure to reflect this in biodiversity planning has been one of the contributors to species and habitat decline. However, there are generally few powers to enforce compliance with spatial rural land‐use strategies, and biodiversity plans at the landscape scale must rely heavily on incentives, advice and goodwill. Not surprisingly, this results in a substantial gap between policy and implementation. One way of analysing the causes of, and potential solutions to, implementation failure is to examine the barriers to plan uptake. This paper addresses barriers to biodiversity action in three case‐study areas in terms of ‘force fields’, depicting the nature and strength of negative and positive influences on land managers and conservation staff. It is concluded that a clearer understanding of the nature of ‘barriers’ can lead to improved targeting on potential ‘bridges’ to a better future.     

Inventories and maps: cognitive ways of framing the nature policies in Europe

Since the Earth Summit in Rio, declining biodiversity has become a subject of general concern for many countries. To counter these negative trends, government nature policies in Europe at least are now thought out primarily in terms of networks. They concern new areas outside nature reserves, new players and new management strategies. Consequently, these policies should themselves become the subject of new public debate. Our study concerns the analysis of the forms used to collect the data required to set up the European Union's Natura 2000 network and maps drawn as part of the Council of Europe's Pan-European Ecological Network strategy. The aim of this article, which takes the perspective developed by the sociology of science, will be to show how the forms and maps used in these new nature policies produce knowledge that precedes policy discussions to search for the best possible socio-political compromises. In other words, the knowledge that is collected in and by means of these documents, forms and maps offers a cognitive way of ‘framing’ the subsequent public debates. Copyright © 2002 John Wiley & Sons, Ltd.     

The role of public involvement in environmental impact assessment in Vietnam: towards a more culturally sensitive approach

This paper explores the extent to which Western approaches to public involvement in environmental impact assessment (EIA) have been transferred to Vietnam, constraints on their use, and their appropriateness for the Vietnamese context. The research is based on an analysis of the public involvement content found in 26 EIA reports from development banks and interviews with 26 key informants. The study found that public involvement in Vietnam is generally technocratic, expert-driven and non-transparent, similar to the early days of EIA in the West and emerging economies. Public involvement usually occurs through authorised state channels such as commune leaders, mass organisations and professional organisations. The lack of a participatory culture for EIA, the nascent nature of grassroots democracy in the country, and Vietnamese cultural norms regarding respect for authority provide a challenging context for involving the public in EIA. The paper concludes by offering a number of suggestions for culturally appropriate public involvement at a time when Vietnam has just introduced mandatory public consultation for EIAs.     

Filling the gap: A comparative analysis of stormwater utility fees and stormwater program budgets in the Puget Sound watershed

Stormwater utility fees (SUFs) are one way to fill the growing gap between stormwater management needs and available funding. However, there is a lack of data on the overall role they play in stormwater program budgets. This paper presents an evaluation of SUFs across multiple jurisdictions to understand their contributions to overall revenue, the uses of revenue, and the extent to which ratemaking is equitable within and between jurisdictions. We compiled data on SUFs for 124 jurisdictions and program budgets for 80 jurisdictions to describe the composition of revenues and influence of municipal stormwater permit status. We also calculated SUFs applied to individual parcels in 11 jurisdictions to assess two equity outcomes: proportionality and affordability. Results indicate that SUF revenue contributed 91% of the $537.7 million in total 2019 stormwater program operational revenue. There was enormous variation among jurisdictions in annual SUF revenue per capita ($17–328), per housing unit ($42–1007), and on an area-normalized basis (<$0.01–2.70 per ft² impervious surface). SUFs in some cities were large enough to burden low-income households, and the way they are billed may preclude assistance for renters. In the context of escalating costs driven in part by new regulatory requirements, these results illustrate the tension between achieving full cost recovery for stormwater services and ensuring prices are affordable for ratepayers.     

Finding Space for Participation: Fisherfolk Mobility and Co-Management of Lake Victoria Fisheries

The literature on fisheries co-management is almost silent on the issue of the movement of fisherfolk within fisheries, although such movement must have implications for the effectiveness of co-management. The introduction of co-management often involves the formation of new structures that should enable the participation of key stakeholder groups in decision-making and management, but such participation is challenging for migrating fishers. The article reports on a study on Lake Victoria, East Africa, which investigated the extent of movement around the lake and the implications of movement for how fishers participate and are represented in co-management, and the implications of the extent and nature of movement for co-management structures and processes. The analysis draws on the concept of space from the literature on participation in development and on a framework of representation in fisheries co-management in addressing these questions. The created space is on an 'invited' rather than open basis, reflecting the top-down nature of implementation and the desire to secure participation of different occupational groups, as well as women in a male-dominated sector. The more powerful boat owners dominate positions of power within the co-management system, particularly as the levels of co-management, from sub-district to national, are traversed. The limited power and resources of boat crew are exacerbated by the degree and nature of movement around the lake, making effective participation in co-management decision-making a challenge.     

The Financial Impact of Different Stormwater Fee Types: A Case Study of Two Municipalities in Virginia

Eight stormwater user fees (SUFs) were applied to the City of Roanoke and the Town of Blacksburg, Virginia, to determine the effect each has on how land use type impacts the sources of revenue. Roanoke is larger and includes more industrial areas, but less multifamily impervious areas than Blacksburg, which translates differently in the SUFs. Residential parcels comprise the highest percentage of the revenue in all eight SUFs in Blacksburg and four in Roanoke. For both municipalities, two specific SUFs consistently comprised the highest percentage burden for residential homeowners while three other SUFs demonstrated the highest burden for commercial parcels. Open space parcels contain little impervious area, yet account for up to 27% of the revenue in the Blacksburg Area fee structure. Industrial parcels comprise more revenue in Roanoke, averaging 10.1‐4.5% in Blacksburg. Fee types that are easier to administer (e.g., Flat fees) may not fully represent the stormwater contribution from the parcels. SUF types that more accurately represent the stormwater burden on the municipality are also more administratively intensive and are more variable with fee factors.     

Attitudes towards current and alternative management of the Sundarbans Mangrove Forest,Bangladesh to achieve sustainability

This paper examines the challenges of achieving sustainable management of the world's largest mangrove forest, the Sundarbans (SMF) in Bangladesh. During the past two decades, conflicts between mangrove maintenance and the pressure to provide economic livelihoods to forest-dependent communities (FDCs) have emerged and persisted. The SMF is currently managed by the Bangladesh Forest Department (BFD) under a state property rights regime. This study explores an alternative property rights regime which includes participatory approaches and co-management with FDCs to achieve sustainability, both economically and environmentally. Focus group discussions and a survey were the methods used to assess the prospects. The study finds that the absence of a management partnership between the BFD and FDCs is mainly responsible for the policy failures to achieve sustainable management of the SMF. However, evidence is presented that a ‘co-management’ property rights regime cannot be established until FDC capacity is enhanced through the formation of community level institutions.     

Challenges to the Future Development of Iran’s Protected Areas System

Since the 1950s, there has been a continuous increase in the number and coverage of protected areas (PAs) in Iran, and in total 253 PAs have been declared that cover 10.12?% of the country's area. This paper reviews literature addressing Iran's PAs, examines what is known about them, highlights the challenges and lessons learned, and identifies areas where more research is needed. The PA system in Iran is criticized because of (1) shortages of manpower, equipment, and financial resources; (2) de jure PAs that are often implemented as de facto reserves; (3) lack of national biodiversity indicators and objective monitoring processes; and (4) limited public participation and conflict between people over PAs. To improve, Iran's PAs system needs to be realistically supported by policies and planning instruments. In addition, the implementation of active management to restore habitat, increase education and awareness, shift practices towards the guidelines of international organizations, build capacity, and improve management and co-management by local communities needs to occur.     

Co-management: concepts and methodological implications

Co-management, or the joint management of the commons, is often formulated in terms of some arrangement of power sharing between the State and a community of resource users. In reality, there often are multiple local interests and multiple government agencies at play, and co-management can hardly be understood as the interaction of a unitary State and a homogeneous community. An approach focusing on the legal aspects of co-management, and emphasizing the formal structure of arrangements (how governance is configured) runs the risk of neglecting the functional side of co-management. An alternative approach is to start from the assumption that co-management is a continuous problem-solving process, rather than a fixed state, involving extensive deliberation, negotiation and joint learning within problem-solving networks. This presumption implies that co-management research should preferably focus on how different management tasks are organized and distributed concentrating on the function, rather than the structure, of the system. Such an approach has the effect of highlighting that power sharing is the result, and not the starting point, of the process. This kind of research approach might employ the steps of (1) defining the social-ecological system under focus; (2) mapping the essential management tasks and problems to be solved; (3) clarifying the participants in the problem-solving processes; (4) analyzing linkages in the system, in particular across levels of organization and across geographical space; (5) evaluating capacity-building needs for enhancing the skills and capabilities of people and institutions at various levels; and (6) prescribing ways to improve policy making and problem-solving.     

Exploring co-management theory: prospects for sociobiology and reciprocal altruism

Co-management has gained prominence due to the sustained interest in participatory forms of natural resource management. While theoretical development posed an initial challenge, it has become an integral part of the co-management literature. This paper comprehensively explores co-management theory. It begins with an investigation of theory itself. The major elements of theory (concepts, variables and relational propositions) are described and a typology of theoretical statements (formats) is conceptualized. Co-management theory is subsequently charted according to the four schemes (modelling, propositional, analytical and meta-theoretical) which make up the typology. Given the maturing nature of the co-management literature and the absence of any meta-theoretical schemes, we examine the central and underlying assumption of co-operation through the science of sociobiology. Reciprocal altruism is pursued to explain why non-kin co-operate, and is adapted to elucidate the potentials and pitfalls of co-management. This meta-theory enriches understanding of co-management, provides guidance to the other theoretical schemes, and offers a foundational basis upon which construction of subtle predications is possible.     

Building Co-Management as a Process: Problem Solving Through Partnerships in Aboriginal Country, Australia

Collaborative problem solving has increasingly become important in the face of the complexities in the management of resources, including protected areas. The strategy undertaken by Girringun Aboriginal Corporation in north tropical Queensland, Australia, for developing co-management demonstrates the potential for a problem solving approach involving sequential initiatives, as an alternative to the more familiar negotiated agreements for co-management. Our longitudinal case study focuses on the development of indigenous ranger units as a strategic mechanism for the involvement of traditional owners in managing their country in collaboration with government and other interested parties. This was followed by Australia's first traditional use of marine resources agreement, and development of a multi-jurisdictional, land to sea, indigenous protected area. In using a relationship building approach to develop regional scale co-management, Girringun has been strengthening its capabilities as collaborator and regional service provider, thus, bringing customary decision-making structures into play to 'care for country'. From this evolving process we have identified the key components of a relationship building strategy, 'the pillars of co-management'. This approach includes learning-by-doing, the building of respect and rapport, sorting out responsibilities, practical engagement, and capacity-building.     

Building partnership capacity for the collaborative management of marine protected areas in the UK: a preliminary analysis

This paper reports the findings of a preliminary analysis of 15 case studies of inshore marine protected areas in the UK. It draws on the common-pool resource (CPR) literature and is premised on the thesis that building partnership capacity amongst relevant authorities and resource users provides a critical basis for overcoming collective action problems (CAPs), through the development of incentive structures and social capital, in order to achieve strategic objectives. Particular attention is paid to the influence of statutory marine biodiversity conservation obligations to the European Commission for marine special areas of conservation (MSACs), as these are an important external contextual factor. The risks of imposition and parochialism are outlined and the challenges of taking a balanced approach are discussed. The challenges posed by the attributes of the marine environment are considered, as are those posed by the policy framework for MSACs. The findings are discussed in relation to three questions: (i) which partnership models appear to have the potential to overcome the CAPs posed by inshore MSACs? (ii) what CAPs had to be addressed during the early phase of development of the MSAC co-management regimes? (iii) what are the likely future CAPs for the collaborative management of MSACs that each partnership will need to address? These preliminary findings will form the basis for future studies to analyse the outcomes of these 15 initiatives, in order to assess the strengths, in various contexts, of different approaches for building resilient and balanced, thereby effective, institutions for the co-management of MSACs in the UK.     

Spatial Patterns of Land Use Changes Across a Mediterranean Metropolitan Landscape: Implications for Biodiversity Management

Land use and land cover change (LUCC) is an acknowledged cause of the current biodiversity crisis, but the link between LUCC and biodiversity conservation remains largely unknown at the regional scale, especially due to the traditional lack of consistent biodiversity data. We provide a methodological approach for assessing this link through defining a set of major pressures on biodiversity from LUCC and evaluating their extent, distribution, and association with a set of physical factors. The study was performed in the Metropolitan Region of Barcelona (MRB, NE of Spain) between 1956 and 2000. We generated a LUCC map for the time period, which was reclassified into a set of pressures on biodiversity (forestation, deforestation, crop abandonment, and urbanization). We then explored the association of these pressures with a set of physical factors using redundancy analysis (RDA). Pressures encompassed 38.8 % of the MRB area. Urbanization and forestation were the dominating pressures, followed by crop abandonment and deforestation. RDA showed a significant distribution gradient of these pressures in relation to the studied physical factors: while forestation and deforestation are concentrated in remote mountain areas, urbanization mainly occurs in lowlands and especially on the coast, and close to previous urban centers and roads. Unchanged areas are concentrated in rainy and relatively remote mountain areas. Results also showed a dramatic loss of open habitats and of the traditional land use gradient, both featuring Mediterranean landscapes and extremely important for their biodiversity conservation. Implications of these results for biodiversity management are finally discussed.     

Environmental attitudes of stakeholders and their perceptions regarding protected area-community conflicts: A case study in China

Large numbers of people living in and around protected areas are highly dependent on the natural resources. However, simply excluding them from the area management has always inevitably resulted in conflicts. We conducted a case study of the Protected Area of Jinyun Mountain (PJM) in China to evaluate social context variables, environmental attitudes, and perceptions regarding protected area-community conflicts. Data were collected through questionnaire surveys administered to four stakeholder groups (i.e. local farmers, government staff, business persons, and tourists). A total of 112 questionnaires were completed in December 2008, after the Sichuan Earthquake. The questionnaire consisted of three parts, social context (gender, race, age, income, and education level), protected area-community conflicts, and environmental attitudes. The New Ecological Paradigm (NEP) scores, which were employed to evaluate environmental attitudes, differed significantly among the stakeholder groups (P < 0.01). Specifically, government staff reported the highest and business persons did the lowest. Among the five items evaluated, anti-exemptionalism received the lowest score, while nature’s balance did the highest. Evaluation of the protected area-community relationship indicated that harmony and conflict both exist in the PJM, but have different forms among different stakeholders, and seem to be opposite between government staff and local farmers. Among the indexes, tourism primarily contributed to the harmonious aspect, while collection of NTFPs did to the conflicting one. Conflict scores were positively related to age and negatively related to education level. Respondents with higher NEP scores were more partial to the park management. Besides, the respondents with higher annual incomes tended to support the policy of harmonizing the relationship and lessening the harm of local communities to the area. To promote proenvironmental attitudes and alleviate the protected area-community conflicts, we recommend improving environmental education, establishing community co-management, and launching substitute sources of cash for traditional cultivation.     

Black and Smelly Waters: how citizen-generated transparency is addressing gaps in China’s environmental management

ABSTRACT

Information communication technologies (ICTs) generate new forums for transparency via governance-by-disclosure initiatives designed to improve environmental management and policy. Data generated by these programs are a means to empower citizens, narrowing the accountability gap between governments and people and enhancing public service. There is little empirical evidence, however, that supports the theory that citizen-generated data can be used to improve the accountability of local government officials. Citizen-led transparency efforts are emerging in China, as the country undergoes an information revolution that has brought ICTs to near ubiquity. We evaluate the transformative potential of a new ICT initiative, the ‘Black and Smelly Waters’ program, which China’s government launched to help enforce local government water remediation efforts. Many examples of citizen-generated transparency are grassroots initiatives, yet the Black and Smelly Waters program is distinct in its top-down structure. An empirical evaluation of preliminary data illuminates Black and Smelly Waters’s early successes and challenges as a means to generate transparency and accountability. We discuss these findings and propose a broad application of this new type of disclosure to reshape environmental management in China.     

Are national biodiversity strategies and action plans appropriate for building responsibilities for mainstreaming biodiversity across policy sectors? The case of Finland

The Convention on Biological Diversity's national biodiversity strategies and action plans (NBSAPs) are major mechanisms for mainstreaming biodiversity into national policies. This article examines whether and how the NBSAPs contribute to mainstreaming biodiversity across policy sectors in Finland in order to halt biodiversity loss. We have developed an innovative analytical framework where the concept of responsibility addresses how motivations for mainstreaming can be built, and the concept of social learning outcomes addresses the extent of institutional changes for biodiversity. The Finnish NBSAP processes have been able to build diverse forms of responsibility (liability, accountability, responsiveness and care) in different policy sectors by providing new knowledge, careful process design and developing institutional linkages. Despite pro-biodiversity outcomes in the targeted policy sectors, the responsibilities do not diffuse from the environmental administration to other policy sectors to a sufficient extent. Closing this ‘responsibility gap’ is a key challenge for building effective environmental policies.     

Generating Co-Management at Kasha Katuwe Tent Rocks National Monument,New Mexico

Collaborative planning theory and co-management paradigms promise conflict prevention and the incorporation of indigenous knowledge into plans. Critics argue that without devolved power to culturally legitimate institutions, indigenous perspectives are marginalized. Co-management practice in North America is largely limited to treaty-protected fish and wildlife because federal agencies cannot devolve land management authority. This paper explores why the Pueblo de Cochiti, a federally recognized American Indian Tribe, and the U.S. Bureau of Land Management sustained an rare joint management agreement for the Kasha-Katuwe Tent Rocks National Monument in New Mexico despite a history of conflict over federal control of customary tribal lands that discouraged the Pueblo from working with federal agencies. Based on the participant interviews and documents, the case suggests that clear agreements, management attitudes, and the direct representation of indigenous forms of government helped achieve presumed co-management benefits. However, parties enter these agreements strategically. We should study, not assume, participant goals in collaborative processes and co-management institutions and pay special attention to the opportunities and constraints of federal laws and institutional culture for collaborative resource management with tribal and local communities.     

Digging Deeper: A Case Study of Farmer Conceptualization of Ecosystem Services in the American South

The interest in improved environmental sustainability of agriculture via biodiversity provides an opportunity for placed-based research on the conceptualization and articulation of ecosystem services. Yet, few studies have explored how farmers conceptualize the relationship between their farm and nature and by extension ecosystem services. Examining how farmers in the Southern Piedmont of South Carolina discuss and explain the role of nature on their farm, we create a detail-rich picture of how they perceive ecosystem services and their contributions to the agroeconomy. Using 34 semi-structured interviews, we developed a detail-rich qualitative portrait of these farmers’ conceptualizations of ecosystem services. Farmers’ conceptualization of four ecosystem services: provisioning, supporting, regulating, and cultural are discussed, as well as articulation of disservices. Results of interviews show that most interviewees expressed a basic understanding of the relationship between nature and agriculture and many articulated benefits provided by nature to their farm. Farmers referred indirectly to most services, though they did not attribute services to biodiversity or ecological function. While farmers have a general understanding and appreciation of nature, they lack knowledge on specific ways biodiversity benefits their farm. This lack of knowledge may ultimately limit farmer decision-making and land management to utilize ecosystem services for environmental and economic benefits. These results suggest that additional communication with farmers about ecosystem services is needed as our understanding of these benefits increases. This change may require collaboration between conservation biology professionals and extension and agriculture professionals to extended successful biomass provisioning services to other ecosystem services.     

Contesting governance of indigenous forests in New Zealand: The case of the West Coast Forest Accord

This paper uses the concept of ‘governance’ and the related notion of ‘multi-layered’ forest management decision making as an overarching framework for analysis of conflict between different stakeholder groups with contrasting perceptions about ‘appropriate’ use of indigenous forests in a New Zealand case study. In New Zealand, recent institutional reforms inspired by neo-liberal policy agendas have led to substantial conflicts between segments of society over the ‘appropriate’ governance of remnant indigenous forests. This study focuses on the West Coast Forest Accord (WCFA) as an illustration of the attempt to change governance structures of indigenous forest management by re-regulating the indigenous forest industry. It is argued that by seeking to accommodate multiple stakeholder interests, in particular industry, community and environmental groups, the WCFA was doomed to fail, as multiple, and often conflicting, stakeholder agendas focused on the goal of ‘sustainable management’ of indigenous forests could no longer be reconciled. Notwithstanding the shift in emphasis from government towards governance in the recent literature, the study findings confirm a continuing strong role by the state as an actor in the forestry sector in New Zealand.