"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.     

An evaluation of public participation information for land use decisions: public comment,surveys, and participatory mapping

ABSTRACT

Public participation in the form of public meetings and written submissions has been criticised as a democratic ritual that fails to give citizens a real voice in government decisions. Participatory mapping and community surveys are alternative public participation (PP) methods that can augment legally required processes for land use planning. To date, there has been little evaluation research comparing the information content generated by required PP processes and alternative PP sources with respect to local land use decisions. Using multiple development projects from a case study community, we analysed and compared information generated from three different sources of public participation: (1) formal public comment (written submissions), (2) responses to community survey questions, and (3) land use preferences generated from participatory mapping. We found public comment strongly supported development while results from survey questions and participatory mapping methods revealed community ambivalence. The differences in public opinion are attributed to two key factors: the representativeness of participants in the PP process and the specific methods used for measuring public opinion. Community surveys and participatory mapping generated more accurate and representative community information compared to the formal PP process which was characterised by lower participation and vulnerability to special interest manipulation. For local government decision makers, the political risk of broadening PP information appears high relative to the risk of inaccurately assessing public opinion thus limiting adoption of alternative PP methods such as participatory mapping.     

STATE WATER PLANNING: A FORUM FOR PROACTWELY RESOLVING WATER POLICY DISPUTES1

ABSTRACT: In the arid West, the development and implementation of water policy often results in disputes among water users, resource managers, and policy makers. Although significant attempts have been made to improve public involvement and dispute resolution in water resources planning, the traditional planning process has not historically played this role for a variety of reasons. Water resources planning can become a forum for proactively resolving water policy disputes by employing the principles of environmental dispute resolution. The purpose of this article is to explore the role of collaborative, consensus-building planning processes in resolving water policy disputes. The Montana State Water Plan is evaluated as an example of such a process, and a model state water planning process is outlined.     

WATER RESOURCES AND SOCIAL CHOICES1

ABSTRACT The problem of water resources management can be viewed as one requiring the existence and application of some type of “collective decision” mechanism. Currently, the general water resource decision problem is solved using an “individual decision” format without explicit consideration of the dominant social decision system. This paper demonstrates the need for blending technical planning activities with organized societal processes and then proposes a specific public decision framework to satisfy this requirement. The key element in this planning framework is a generalized “bargaining arena” which serves to link technical activities with the social system. Using this bargaining device we can (1) specify policy at a local level, (2) incorporate “social decision” rules into the planning process, and (3) provide local access to the decision process. A simple case of regional water quality management is used to describe the application of this planning procedure and to offer encouragement for successful use in more complex real-world cases.     

Clarifying relationships between participatory approaches,issues, processes,and results,through crosscutting case analysis in Japan’s environmental,energy, and food policy areas

Participatory public engagement approaches such as Consensus Conferences, Deliberative Polling^®, and Planning Cells have been used to try and resolve environmental disputes in Japan; however, the strengths and weaknesses of these approaches have not been analyzed adequately or comprehensively. This paper evaluates practical applications of each of the above participatory approaches and conducts a crosscutting analysis of these applications to evaluate how effectively each approach provides scientific information to participants and to consider how the quality of deliberations that occur during these processes affect their outputs. Based on existing classification of participatory processes, and methodology for public involvement in US environmental decision-making, this study compares and contrasts the processes and outcomes of 25 participatory planning case studies in Japan. After compiling a case inventory of participatory approaches, the features of one approach are documented using qualitative analysis, and the aspects of four other approaches are confirmed using crosscutting analysis. In so doing, the likely strengths and weaknesses of each approach are suggested as follows. When discussions require an understanding of scientific knowledge, the Consensus Conference tends to be more suitable than the DP approach. If the consensus of participants is expected, the Consensus Conference is also thought to be suitable. But through a DP process or Simplified Planning Cells approach, we can know the quantitative portion of each opinion through results of ballots. In sum, new participatory approach that incorporates strengths of the Consensus Conference and the Simplified Planning Cells into Local Environmental Planning is needed. Thus, the quality of consensus building could be improved.     

The Use of an Ecologic Classification to Improve Water Resource Planning in New Zealand

The Resource Management Act (RMA) legislates the management of most natural resources in New Zealand. The RMA invokes ecosystem-based management by requiring that regulation be based on managing the effects of resource according to “the life supporting capacity” of the environment. The management of water resources under the RMA is carried out at the regional level by regional councils. Regional councils can develop regional water plans to establish objectives and criteria for water management. Regional water planning under the RMA has been problematic, and regional plan objectives developed under the RMA have been criticized as too broad and not sufficiently quantified. As a consequence, many resource users are unconvinced of the need for the regulatory criteria promulgated by plans, whereas other groups are concerned that the environment is inadequately protected. This article proposes that a lack of ecologically relevant management units has prevented regional water plans from fulfilling their intended function under the RMA. Then it introduces the use of River Environment Classification as a means of defining units for assessment and management, and provides three case studies that demonstrate its potential to support regional water management planning. The discussion shows that the specificity of regional assessments can be increased if ecologic variation is stratified into distinctive units (i.e., units within which variation in the characteristics of interest is reduced) as part of the assessment process. The increased specificity of the assessments increases the possibility that regional objectives and criteria for water management can be derived that are quantitative and justifiable and that provide certainty for stakeholders. The authors conclude that greater choice and meaning can be generated in regional planning processes if regional variation in ecologic characteristics is stratified using a classification, and if classes are used as units for assessment and management.     

Evaluation and valuation of wildlife resources

Issues of resource conservation and development are essentially about choice between alternative uses of land. Resource evaluation in rural planning has usually been based on assessments of land quality or capability in relation to a variety of alternative uses. In the case of wildlife, choices have to be made as to whether the wildlife resource is worth conserving at all and if so, which sites should be used. Considerable efforts have been made to rationalise, improve and make explicit the way in which choices are made, and this paper reviews the current position and draws attention to issues and developments which could lead to improvements in current practice.     

ASSEMBLY OF MAP‐BASED STREAM NARRATIVES TO FACILITATE STAKEHOLDER INVOLVEMENT IN WATERSHED MANAGEMENT1

ABSTRACT: Watershed stewardship activities throughout North America have evolved into a process that requires more involvement in planning and decision making by community stakeholders. Active involvement of all stakeholders in the process of watershed stewardship is dependent on effective exchange of information among participants, and active involvement of a wide range of stakeholders from “communities of place” as well as those from “communities of interest.” We developed a map‐based stream narrative tool as a means to: (a) assemble a wealth of incompletely documented, “traditional” ecological or natural history observations for rivers or streams; and (b) promote a higher level of active involvement by community stakeholders in contributing to information‐based, watershed management. Creation of stream narratives is intended for use as a tool to actively engage local stakeholders in the development of a more comprehensive information system to improve management for multiple stewardship objectives in watersheds. Completion of map‐based stream narrative atlases provides a valuable supplement to other independent efforts to assemble observations and knowledge about land‐based natural resources covering entire watersheds. We are confident that completion of stream narrative projects will make a valuable addition to the information and decision making tools that are currently available to the public and resource agencies interested in advancing the cause of community‐based approaches to watershed and ecosystem management.     

What Is a Good Public Participation Process? Five Perspectives from the Public

It is now widely accepted that members of the public should be involved in environmental decision-making. This has inspired many to search for principles that characterize good public participation processes. In this paper we report on a study that identifies discourses about what defines a good process. Our case study was a forest planning process in northern New England and New York. We employed Q methodology to learn how participants characterize a good process differently, by selecting, defining, and privileging different principles. Five discourses, or perspectives, about good process emerged from our study. One perspective emphasizes that a good process acquires and maintains popular legitimacy. A second sees a good process as one that facilitates an ideological discussion. A third focuses on the fairness of the process. A fourth perspective conceptualizes participatory processes as a power struggle—in this instance a power play between local landowning interests and outsiders. A fifth perspective highlights the need for leadership and compromise. Dramatic differences among these views suggest an important challenge for those responsible for designing and carrying out public participation processes. Conflicts may emerge about process designs because people disagree about what is good in specific contexts.     

Learning for sustainability through CIDA's “Community-based pest management in Central American agriculture” project: a deliberative,experiential and iterative process

Community-based approaches to environmental management provide opportunities for public engagement in local decision-making processes. This qualitative case study examines learning as resulted from participation in CIDA's “Community-based pest management in Central American agriculture” project. Outcomes include learning about alternative farming practices, human and natural environments, and safer pesticide use. Many participants learnt how to work more effectively with rural communities. For some, this changed their perspective about life and their role in society. Activities that fostered learning outcomes, including sustainability-related outcomes, were: planning and implementing project activities, experimenting on farm demonstration plots, participating in outreach workshops, and students doing rural practica. The learning process, involving international university collaborators and rural participants, is analyzed particularly as it relates to cultural context, collective action, and sustainability. Findings affirm that how the public participates in environmental management decisions influences the breadth and depth of learning outcomes; practical and policy implications are discussed.     

SOCIAL FEASIBILITY AS AN ALTERNATIVE APPROACH TO WATER RESOURCE PLANNING1

ABSTRACT: Research suggests that conflict over public participation in water resource planning is due, in part, to confusion over the nature of the policies involved. This article examines the roadblocks to citizen involvement in water resource planning in terms of two policy models: (1) the Social Feasibility Model and (2) the Political Feasibility Model. Each model posits a different role for public participation. Although the Political Feasibility Model has been widely accepted in water resource planning, changes in the nature of the policies involved in water resource management have weakened its appropriateness. Currently, social and redistributive policies involving value conflicts often dominate water planning and these policies are best chosen through the Social Feasibility Model. The article discusses the nature of the social feasibility model, the new types of policy decisions facing water resource managers, and how the social feasibility model can help overcome the roadblocks to increased public participation in water resource policy making.     

New Zealand's Planning Revolution Five Years On: A Preliminary Assessment

It is now five years since New Zealand radically changed its environmental planning regime by introducing the Resource ManagementAct 1991 (RMA). The RMA swept away the entire tradition of town and country planning which New Zealand had inherited from Britain, replacing this with an integrated framework for resource management that attempts to emphasize efficiency, sustainability and public participation in the new system of development control. These new emphases of the RMA reflect the agendasof New Zealand'sgreen and New Right lobbies which gained political influence during the 1980s.However,the green and neo-liberal agendaswhich the RMA attempts to embrace are potentially contradictory. In this paper we investigate this potential contradiction through a preliminary assessment of the first five year's of the new legislation's implementation.In particular, we focus on the operational success, or otherwise, of three 'efficiency' innovations of the RMA, and consider the consequences of these for the environmental and public participation ideals of the legislation.     

Regional electricity transmission planning and SEA: The case of the electricity company ScottishPower

Since 21 July 2004, formal strategic environmental assessment (SEA) requirements are in place for certain plans and programmes in European Union member states. Many public plans and programmes have been identified to fall under these requirements, and there has been a range of research activities particularly in land use and transport planning. However, the way in which SEA is to be applied in the private sector has remained largely unclear. Furthermore, to date there has been comparatively little reported private sector experience and the concrete benefits that SEA may deliver to private companies have not yet been discussed to any large extent. In order to address this shortcoming, the paper looks at SEA application in electricity transmission planning, taking the specific case of the privatized company ScottishPower as an example. Based on the evidence obtained, it is suggested that a structured SEA process can strengthen the environmental component and improve private sector decision-making processes. Corporate governance can be improved, if SEA is applied in a tiered system, addressing different issues and tasks at distinct stages in a clearly defined decision making hierarchy.     

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.     

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.     

Progress with Implementing the Environmental Assessment Requirements of the Resource Management Act in New Zealand

The Resource Management Act 1991 (RMA) has introduced environmental impact assessment (EIA) into the operations of territorial authorities at the regional and district level in New Zealand. The system established by the RMA is not only devolved in administrative terms, it is also comprehensive in its application. This paper reports the findings of an interview-based survey of key personnel in selected regional and district councils, along with others from government departments, planning consultancies and law firms. The purpose is to assess the success of the councils in developing appropriate and workable procedures, and to identify the main problems likely to inhibit the development of an effective EIA system in New Zealand. Overall, the task of implementing the EIA requirements has been tackled positively by councils, but there are signs of major differences emerging in the EIA procedures they are developing. Key issues that need to be considered by councils include: the need for explanatory documentation for, and verbal advice to, resource consents applicants at the earliest stage possible; the lack of public involvement in the EIA activities and the need for council staff to encourage and facilitate such participation; and problems with ensuring the adequacy of EIA information in such a devolved and comprehensive EIA system.     

Creating and sustaining community capacity for ecosystem-based management: Is local government the key?

Recently, collaborative approaches to natural resource management have been widely promoted as ways to broaden participation and community involvement in furthering the goals of ecosystem management. The language of collaboration has even been incorporated into controversial legislation, such as the US Healthy Forests Restoration Act of 2003. This research examines collaboration and sharing management responsibility for federal public land with local communities through a case study of the Ashland Municipal Watershed in southern Oregon. A policy sciences approach is used to analyze community participation and institutional relationships between the US Department of Agriculture, Forest Service, and local city government in the planning processes of five land management actions occurring over a 7-year period. The knowledge gained from examining differing approaches to planning and decision making in the Ashland watershed is used to suggest future planning processes to develop and sustain the community capacity necessary to support implementation of community-based ecosystem management.     

Analysis of Lower Green Bay and Fox River,Collingwood Harbour,Spanish Harbour,and the Metro Toronto and Region remedial action plan (RAP) processes

This article presents a model of remedial action planning, which includes four key variables that determine progress in plan development and implementation and explain the differing level of achievement in individual sites. The model is illustrated by the characteristics and developments of four remedial action plan (RAP) processes (Lower Green Bay and Fox River, Collingwood Harbour, Spanish Harbour, and the Metro Toronto and Region RAPs). Differences in the local context of the plans have, to a significant degree, predisposed individual planning and implementation experiences. Local context includes three variables, namely geographical—technical and sociopolitical aspects and the previous history of water pollution management in the area. RAP precursors are a necessary precondition for progress in planning and substantive achievements. While there is a tendency that most geographically focused RAPs in administratively simple areas accomplish most, the motivation and political clout of RAP participants are strongly intervening factors. Resource input from upper levels of government, in particular financial commitment for plan implementation, is the fourth necessary ingredient for progress due to the RAPs' weak regulatory and institutional framework. Unfortunately, upper levels of government have shown widespread reluctance to lead in remedial action planning. This was only in part offset by local commitment and support for RAP and its cause.     

FORUM: The Converging Dynamics of Interest Representation in Resources Management

/ The role of the public in resource management has undergone aprofound transformation over the past two decades. Public input has evolvedfrom the enthusiasm for the widespread emergence public participation in theearly 1970s, through the realization of the relative effectiveness and costsof lobbying activities in the 1980s, to the emergence of environmentaldispute resolution (EDR) as a promising new alternative for the 1990s.Throughout this changing dynamic, there has been little attention tofundamental conception. This paper addresses this lack of conceptualization.A model of convergence is proposed to explain this transformation and as thebasis for an improved understanding of effective interest representationstrategies. The defining characteristics of lobbying, public participation,and environmental dispute resolution in resources management are outlinedrelative to the publics they involve, interest activity, organization,influence on policy, participatory features, and empowerment. Knowledge ofthese aspects will further aid in the identification and implementation ofeffective strategies to interest representation on a context-specific basis.KEY WORDS: Interest representation; Public participation; Disputeresolution; Lobbying; Resource management     

Regional resource management techniques: The case of Colorado oil shale development

Regions under stress from rapid development require comprehensive planning and management tools, capable of identifying the pace, location and magnitude of growth and assessing social, economic and environmental impacts. Northwest Colorado, endowed with massive rich deposits of oil shale, went through a boom-bust cycle of growth during the early 1980s as US interest in synthetic fuels peaked and then rapidly declined. An innovative resource information system has been developed which has assisted the region in anticipating growth and modifying its consequences. This article reviews the organization and development of the Colorado Resource Information System (CRIS) and evaluates its role and impact in the decisionmaking process. Experience shows that regions which develop and maintain planning and information tools can have significant influence on economic development.