Decision‐Making Triggers in Adaptive Management

We analyzed whether decision‐making triggers increase accountability of adaptive‐management plans. Triggers are prenegotiated commitments in an adaptive‐management plan that specify what actions are to be taken and when on the basis of information obtained from monitoring. Triggers improve certainty that particular actions will be taken by agencies in the future. We conducted an in‐depth, qualitative review of the political and legal contexts of adaptive management and its application by U.S. federal agencies. Agencies must satisfy the judiciary that adaptive‐management plans meet substantive legal standards and comply with the U.S. National Environmental Policy Act. We examined 3 cases in which triggers were used in adaptive‐management plans: salmon (Oncorhynchus spp.) in the Columbia River, oil and gas development by the Bureau of Land Management, and a habitat conservation plan under the U.S. Endangered Species Act. In all the cases, key aspects of adaptive management, including controls and preidentified feedback loops, were not incorporated in the plans. Monitoring and triggered mitigation actions were limited in their enforceability, which was contingent on several factors, including which laws applied in each case and the degree of specificity in how triggers were written into plans. Other controversial aspects of these plans revolved around who designed, conducted, interpreted, and funded monitoring programs. Additional contentious issues were the level of precaution associated with trigger mechanisms and the definition of ecological baselines used as points of comparison. Despite these challenges, triggers can be used to increase accountability, by predefining points at which an adaptive management plan will be revisited and reevaluated, and thus improve the application of adaptive management in its complicated political and legal context. Detonadores de la Toma de Decisiones en el Manejo Adaptativo     

Orchestrating Ecosystem Management: Challenges and Lessons from Sequoia National Forest

Abstract: Numerous agencies and organizations have adopted the concept of ecosystem management as a guiding principle in natural resource management. Despite this widespread interest, no single definition of ecosystem management has been accepted, and there are no specific guidelines or standards by which to apply the concept. I examined how one federal agency, the U.S. Forest Service, is applying the principles of ecosystem management at a local level. I present a case study examining management of giant sequoia (   Sequoiadendron giganteum ) in Sequoia National Forest, California, to illuminate the challenges of practicing ecosystem management by associating on-the-ground management activities with ecosystem management themes, characteristics, and mechanisms identified in academic, industry, and agency literature. Experience at Sequoia National Forest suggests that the application of ecosystem management is compromised by poor relations between managers and stakeholders, multifarious policy requirements, budgetary uncertainty, and limited ecological research on which to base management decisions. To facilitate successful application of ecosystem management in the future, I recommend that managers (1) build confidence and trust in the process, (2) acknowledge bias, (3) reconcile policy and funding constraints with long-term planning, (4) invest in scientific research, data collection, and monitoring capacity, and (5) explore the relationship between values and science. These recommendations, although based on the U.S. Forest Service experience, are relevant to natural resource management in general.     

Evaluating Areas of High Conservation Value in Western Oregon with a Decision‐Support Model

Abstract: The Northwest Forest Plan was implemented in 1994 to protect habitat for species associated with old‐growth forests, including Northern Spotted Owls (Strix occidentailis caurina) in Washington, Oregon, and northern California (U.S.A.). Nevertheless, 10‐year monitoring data indicate mixed success in meeting the ecological goals of the plan. We used the ecosystem management decision‐support model to evaluate terrestrial and aquatic habitats across the landscape on the basis of ecological objectives of the Northwest Forest Plan, which included maintenance of late‐successional and old‐growth forest, recovery, and maintenance of Pacific salmon (Oncorhynchus spp.), and viability of Northern Spotted Owls. Areas of the landscape that contained habitat characteristics that supported these objectives were considered of high conservation value. We used the model to evaluate ecological condition of each of the 36, 180 township and range sections of the study area. Eighteen percent of the study area was identified as habitat of high conservation value. These areas were mostly on public lands. Many of the sections that contained habitat of exceptional conservation value were on Bureau of Land Management land that has been considered for management‐plan revisions to increase timber harvests. The results of our model can be used to guide future land management in the Northwest Forest Plan area, and illustrate how decision‐support models can help land managers develop strategies to better meet their goals.     

The Northwest Forest Plan as a Model for Broad-Scale Ecosystem Management: a Social Perspective

Abstract:  I evaluated the Northwest Forest Plan as a model for ecosystem management to achieve social and economic goals in communities located around federal forests in the U.S. Pacific Northwest. My assessment is based on the results of socioeconomic monitoring conducted to evaluate progress in achieving the plan's goals during its first 10 years. The assessment criteria I used related to economic development and social justice. The Northwest Forest Plan incorporated economic development and social justice goals in its design. Socioeconomic monitoring results indicate that plan implementation to achieve those goals met with mixed success, however. I hypothesize there are two important reasons the plan's socioeconomic goals were not fully met: some of the key assumptions underlying the implementation strategies were flawed and agency institutional capacity to achieve the goals was limited. To improve broad-scale ecosystem management in the future, decision makers should ensure that natural-resource management policies are socially acceptable; land-management agencies have the institutional capacity to achieve their management goals; and social and economic management goals (and the strategies for implementing them) are based on accurate assumptions about the relations between the resources being managed and well-being in local communities. One of the difficulties of incorporating economic development and social justice goals in conservation initiatives is finding ways to link conservation behavior and development activities. From a social perspective, the Northwest Forest Plan as a model for ecosystem management is perhaps most valuable in its attempt to link the biophysical and socioeconomic goals of forest management by creating high-quality jobs for residents of forest communities in forest stewardship and ecosystem management work, thereby contributing to conservation.     

Achieving Integrative, Collaborative Ecosystem Management

Abstract:  Although numerous principles have been identified as being important for successfully integrating social and ecological factors in collaborative management, few authors have illustrated how these principles are used and why they are effective. On the basis of a review of the ecosystem management and collaboration literature, we identified eight factors important for integrative, collaborative ecosystem management—integrated and balanced goals, inclusive public involvement, stakeholder influence, consensus group approach, collaborative stewardship, monitoring and adaptive management, multidisciplinary data, and economic incentives.We examined four cases of successful ecosystem management to illustrate how the factors were incorporated and discuss the role they played in each case's success. The cases illustrate that balancing social and ecosystem sustainability goals is possible. Collaborative efforts resulted in part from factors aimed at making plans economically feasible and from meaningful stakeholder participation in ongoing management. It also required participation in monitoring programs to ensure stakeholder interests were protected and management efforts were focused on agreed-upon goals. Data collection efforts were not all-inclusive and systematic; rather, they addressed the ecological, economic, and social aspects of key issues as they emerged over time. Economic considerations appear to be broader than simply providing economic incentives; stakeholders seem willing to trade some economic value for recreational or environmental benefits. The cases demonstrate that it is not idealistic to believe integrative, collaborative ecosystem management is possible in field applications.     

Dances with Horses: Lessons from the Environmental Fringe

When environmental activists disregard or show contempt for facts and the rules of evidence, their intrusion into environmental issues may be perversely counterproductive. Using field and telephone interview data and unpublished and published documents, including court briefs, I show that certain activists misrepresented the Nevada Bureau of Land Management in its custodial role for the nation's wild horses. The core of the misrepresentation was an independent census of Nevada's wild horses conducted by the Public Lands Resource Council, an ad hoc association. These census data differ dramatically from those produced by the Bureau of Land Management. The latter data were confirmed, in part, by Bureau of Land Management roundups in northcentral Nevada. The Animal Rights Law Clinic at the Rutger's School of Law joined forces with the Public Lands Resource Council and used the council's questionable census results in an attack on the Bureau of Land Management's horse program. A careful probing of environmentalist agendas and data is at least as important as careful scientific design, execution, and display of results. Saving species and ecosystems is, then, as much an exercise in human psychology and the politics and sociology of advocacy groups as it is in conservation biology.     

Using a social–ecological framework to inform the implementation of conservation plans

One of the key determinants of success in biodiversity conservation is how well conservation planning decisions account for the social system in which actions are to be implemented. Understanding elements of how the social and ecological systems interact can help identify opportunities for implementation. Utilizing data from a large‐scale conservation initiative in southwestern of Australia, we explored how a social–ecological system framework can be applied to identify how social and ecological factors interact to influence the opportunities for conservation. Using data from semistructured interviews, an online survey, and publicly available data, we developed a conceptual model of the social–ecological system associated with the conservation of the Fitz‐Stirling region. We used this model to identify the relevant variables (remnants of vegetation, stakeholder presence, collaboration between stakeholders, and their scale of management) that affect the implementation of conservation actions in the region. We combined measures for these variables to ascertain how areas associated with different levels of ecological importance coincided with areas associated with different levels of stakeholder presence, stakeholder collaboration, and scales of management. We identified areas that could benefit from different implementation strategies, from those suitable for immediate conservation action to areas requiring implementation over the long term to increase on‐the‐ground capacity and identify mechanisms to incentivize implementation. The application of a social–ecological framework can help conservation planners and practitioners facilitate the integration of ecological and social data to inform the translation of priorities for action into implementation strategies that account for the complexities of conservation problems in a focused way.     

Critique of the Evolutionarily Significant Unit as a Definition for "Distinct Population Segments" under the U.S. Endangered Species Act

The U.S. Endangered Species Act grants protection to species, subspecies, and "distinct population segments" of vertebrate species. Historically, Congress included distinct population segments into endangered species legislation to enable the U.S. Fish and Wildlife Service to implement a flexible and pragmatic approach in listing populations of vertebrate species. Recently, the U.S. Fish and Wildlife Service and the National Marine Fisheries Service have proposed a policy that would narrowly define distinct population segments as evolutionarily significant units based on morphological and genetic distinctiveness between populations. Historically, the power to list species or populations as distinct population segments has been used to tailor management practices to unique circumstances; grant varied levels of protection in different parts of a species' range; protect species from extinction in significant portions of their ranges as well as to protect populations that are unique evolutionary entities. A strict redefinition of distinct population segments as evolutionarily significant units will compromise management efforts because the role of demographic and behavioral data will be reduced. Furthermore, strictly cultural, economic, or geographic justifications for listing populations as threatened or endangered will be greatly curtailed.     

Postfire Management on Forested Public Lands of the Western United States

Abstract:  Forest ecosystems in the western United States evolved over many millennia in response to disturbances such as wildfires. Land use and management practices have altered these ecosystems, however, including fire regimes in some areas. Forest ecosystems are especially vulnerable to postfire management practices because such practices may influence forest dynamics and aquatic systems for decades to centuries. Thus, there is an increasing need to evaluate the effect of postfire treatments from the perspective of ecosystem recovery. We examined, via the published literature and our collective experience, the ecological effects of some common postfire treatments. Based on this examination, promising postfire restoration measures include retention of large trees, rehabilitation of firelines and roads, and, in some cases, planting of native species. The following practices are generally inconsistent with efforts to restore ecosystem functions after fire: seeding exotic species, livestock grazing, placement of physical structures in and near stream channels, ground-based postfire logging, removal of large trees, and road construction. Practices that adversely affect soil integrity, persistence or recovery of native species, riparian functions, or water quality generally impede ecological recovery after fire. Although research provides a basis for evaluating the efficacy of postfire treatments, there is a continuing need to increase our understanding of the effects of such treatments within the context of societal and ecological goals for forested public lands of the western United States.     

Bayesian Networks and Adaptive Management of Wildlife Habitat

Abstract: Adaptive management is an iterative process of gathering new knowledge regarding a system's behavior and monitoring the ecological consequences of management actions to improve management decisions. Although the concept originated in the 1970s, it is rarely actively incorporated into ecological restoration. Bayesian networks (BNs) are emerging as efficient ecological decision‐support tools well suited to adaptive management, but examples of their application in this capacity are few. We developed a BN within an adaptive‐management framework that focuses on managing the effects of feral grazing and prescribed burning regimes on avian diversity within woodlands of subtropical eastern Australia. We constructed the BN with baseline data to predict bird abundance as a function of habitat structure, grazing pressure, and prescribed burning. Results of sensitivity analyses suggested that grazing pressure increased the abundance of aggressive honeyeaters, which in turn had a strong negative effect on small passerines. Management interventions to reduce pressure of feral grazing and prescribed burning were then conducted, after which we collected a second set of field data to test the response of small passerines to these measures. We used these data, which incorporated ecological changes that may have resulted from the management interventions, to validate and update the BN. The network predictions of small passerine abundance under the new habitat and management conditions were very accurate. The updated BN concluded the first iteration of adaptive management and will be used in planning the next round of management interventions. The unique belief‐updating feature of BNs provides land managers with the flexibility to predict outcomes and evaluate the effectiveness of management interventions.     

Public sector perspectives and policy implications for the Pitons Management Area World Heritage Site,St. Lucia

St. Lucia faces numerous challenges associated with striking a balance between its economic and conservation goals with respect to the Pitons Management Area (PMA) World Heritage Site. Among the various stakeholders, the public sector, which largely constitutes the administrative authorities representing the general public, plays an instrumental role in site management. They are primarily responsible for policy formulation as well as the provision of fiscal incentives and funds to assist in the maintenance of the site. Based on a qualitative inquiry approach, this study explored the perspectives of key persons among pertinent public and non-profit organizations. Semi-structured interviews were conducted among local and national representatives from the public sector. Results revealed that the designation of the PMA as a World Heritage Site has presented both opportunities and challenges to the management of the site. Findings strongly indicate that the integrity and sustainability of the site is at stake due to a lack of commitment, coordination and political will in the public sector.     

The Biopolitics of the Mt. Graham Red Squirrel (Tamiasciuris hudsonicus grahamensis)

This essay presents (1) a short status summary on the population biology of the Mt. Graham red squirrel on the Pinaleño Mountains, Arizona; (2) a biopolitical history of the controversy surrounding the Mt. Graham red squirrel, the Endangered Species Act (ESA), and the astronomical consortium that has constructed two telescopes within the squirrel's critical habitat; and (3) a discussion of specific biopolitical issues related to the squirrel's taxonomy, minimal viable habitat, critical habitat, population viability analysis, risk management, and Congressional actions to by-pass its own laws. The biopolitical history shows how specific administrative actions within the U.S. Forest Service and the U.S. Fish and Wildlife Service and special interest politics by the Arizona Congressional delegation and the University of Arizona prevented an accurate assessment of the status of the Mt. Graham red squirrel and implementation of alternatives to insure its survival and recovery. Conservation biology can influence management decisions when not overridden by special-favor politics. To improve the influence of the science of conservation biology, I recommend that the ESA language protecting isolated populations (Section 3) remain intact and that the ESA make a legal distinction (Section 4) between minimal viable habitat and critical habitat. To improve the application of the ESA, I recommend that Congress require committee hearings before it can exempt a project from federal environmental laws; that fraudulent Biological Opinions automatically trigger a complete review of long-term viability; that conservation biologists prepare a handbook for the Fish and Wildlife Service on risk assessment techniques; that all data and analyses within the Biological Opinion include a ranking by their statistical and biological certainty as well as a worst-case scenario; and that each Biological Opinion be certified as risk averse.     

Practical implementation of cumulative-effects management of marine ecosystems in western North America

Globally, ecosystem structure and function have been degraded by the cumulative effects (CE) of multiple stressors. To maintain ecosystem resilience, there is an urgent need to better account for CE in management decision-making at various scales. Current laws and regulations are supported by a multitude of frameworks and strategies that vary in application and terminology use across management agencies and geopolitical boundaries. We synthesized management frameworks that accounted for CE in marine ecosystems at the regional and national levels across western North America (Canada, United States, Mexico) to identify similarities and shared challenges to successful implementation. We examined examples of solutions to the identified challenges (e.g., interagency and cross-border partnerships to overcome challenges of managing for ecologically relevant spatial scales). Management frameworks in general consisted of 3 phases: scoping and structuring the system; characterizing relationships; and evaluating management options. Challenges in the robust implementation of these phases included lack of interagency coordination, minimal incorporation of diverse perspectives, and data deficiencies. Cases that provided solutions to these challenges encouraged coordination at ecological rather than jurisdictional scales, enhanced involvement of stakeholders and Indigenous groups, and used nontraditional data sources for decision-making. Broader implementation of these approaches, combined with increased interagency and international coordination and collaboration, should facilitate the rapid advancement of more effective CE assessment and ecosystem management in North America and elsewhere.     

Potential Effects of a Forest Management Plan on Bachman's Sparrows (Aimophila aestivalis): Linking a Spatially Explicit Model with GIS

By combining a spatially explicit, individual-based population simulation model with a geographic information system, we have simulated the potential effects of a U.S. Forest Service management plan on the population dynamics of Bachman's Sparrow ( Aimophila aestivalis ) at the Savannah River Site, a U.S. Department of Energy facility in South Carolina. Although the Forest Service's management plan explicitly sets management goals for many species, most of the prescribed management strategy deals with the endangered Red-cockaded Woodpecker ( Picoides borealis ) because of legal requirements. We explored how a species (the sparrow) that is not the target of specific management strategies but that shares some habitat requirements with the woodpecker, would fare under the management plan. We found that the major components of the proposed management plan may allow the sparrow population to reach and exceed the minimum management goal set for this species, but only after a substantial initial decline in sparrow numbers and a prolonged transition period. In the model, the sparrow population dynamics were most sensitive to demographic variables such as adult and juvenile survivorship and to landscape variables such as the suitability of young clearcuts and mature pine stands. Using various assumptions about habitat suitability, we estimated that the 50-year probability of population extinction is at least 5% or may be much higher if juvenile survivorship is low. We believe, however, that modest changes in the management plan might greatly increase the sparrow population and presumably decrease the probability of extinction. Our results suggest that management plans focusing on one or a few endangered species may potentially threaten other species of management concern. Spatially explicit population models are a useful tool in designing modifications of management plans that can reduce the impact on nontarget species of management concern.     

Conservation of the Northern Spotted Owl under the Northwest Forest Plan

Abstract:  Development of the Northwest Forest Plan (NWFP) was motivated by concerns about the overharvest of late-seral forests and the effects of intensive forest management on the long-term viability of the Northern Spotted Owl ( Strix occidentalis caurina ). Following several years of intense political and legal debates, the final NWFP was approved in 1994. Even though the plan evolved with a broad ecosystem perspective, it remained anchored in the Spotted Owl reserve design proposed in 1990. Based on a criterion of stable or increasing populations, a decade later it remains unclear whether the enactment of the NWFP has improved the conservation status of Spotted Owls. The results of intensive monitoring of several Spotted Owl populations for over a decade suggest a continuing range-wide decline even though rates of timber harvest have declined dramatically on federal lands. The cause of the decline is difficult to determine because the research needed to establish cause and effect relations has not been done. One plausible hypothesis is that the owl's life history greatly constrains its rate of population growth even when habitat is no longer limiting. Since enactment of the NWFP, new threats have arisen, including the movement of Barred Owls ( S. varia ) into the range of the Spotted Owl, political pressure to increase levels of timber harvest, and recent changes to forest laws that eliminate the requirement to assess the viability of wildlife populations on U.S. Department of Agriculture Forest Service lands. At this time is appears that Spotted Owl conservation rests critically on continued implementation of the protections afforded by the NWFP and the U.S. Endangered Species Act.     

Conservation Science and Forest Service Policy for Roadless Areas

Abstract:  Questions persist regarding whether the science of conservation biology can successfully affect environmental decision making. One of the most prominent fields of intersection between conservation science and environmental policy is public-lands debates in the United States. I reviewed the role of conservation science in the roadless-area policies of the U.S. Forest Service. Since 1971, the Forest Service has systematically evaluated roadless areas on national forests three times, most recently during the Clinton administration's Roadless Area Conservation Review (1998–2000) ( U.S. Department of Agriculture Forest Service 2000b ). Drawing on the agency's environmental impact statements and supporting documents and the internal records of conservation organizations, I examined the changing goals, methodology, and outcome of roadless-area advocacy and policy. Since the 1970s, conservation science has successfully informed public and administrative concern for roadless-area protection. Conservation science has transformed public discourse regarding roadless areas and has changed the scope and rationale of national conservation organizations' goals for roadless-area policy from protecting some to protecting all remaining national forest roadless areas. The Forest Service has increasingly drawn on the lessons of conservation biology to justify its methodology and its administrative recommendations to protect roadless areas. The 2000 Roadless Area Conservation Review resulted in a recommendation to protect all remaining national forest roadless areas, up from 22% of roadless areas in the first roadless review. Despite the scientific merits of recent roadless-area advocacy and policy, however, such initiatives have faced political difficulties. The emphasis on large-scale, top-down, national approaches to conservation policy has rendered such policies politically problematic.     

Human–wildlife coexistence in a changing world

Human–wildlife conflict (HWC) is a key topic in conservation and agricultural research. Decision makers need evidence-based information to design sustainable management plans and policy instruments. However, providing objective decision support can be challenging because realities and perceptions of human–wildlife interactions vary widely between and within rural, urban, and peri-urban areas. Land users who incur costs through wildlife argue that wildlife-related losses should be compensated and that prevention should be subsidized. Supporters of human–wildlife coexistence policies, such as urban-dwelling people, may not face threats to their livelihoods from wildlife. Such spatial heterogeneity in the cost and benefits of living with wildlife is germane in most contemporary societies. This Special Section features contributions on wildlife-induced damages that range from human perspectives (land use, psychology, governance, local attitudes and perceptions, costs and benefits, and HWC and coexistence theory) to ecological perspectives (animal behavior). Building on current literature and articles in this section, we developed a conceptual model to help frame HWC and coexistence dimensions. The framework can be used to determine damage prevention implementation levels and approaches to HWC resolution. Our synthesis revealed that inter- and transdisciplinary approaches and multilevel governance approaches can help stakeholders and institutions implement sustainable management strategies that promote human–wildlife coexistence.     

Ecological-Economic Modeling for Biodiversity Management: Potential, Pitfalls, and Prospects

Abstract:  Ecologists and economists both use models to help develop strategies for biodiversity management. The practical use of disciplinary models, however, can be limited because ecological models tend not to address the socioeconomic dimension of biodiversity management, whereas economic models tend to neglect the ecological dimension. Given these shortcomings of disciplinary models, there is a necessity to combine ecological and economic knowledge into ecological-economic models. It is insufficient if scientists work separately in their own disciplines and combine their knowledge only when it comes to formulating management recommendations. Such an approach does not capture feedback loops between the ecological and the socioeconomic systems. Furthermore, each discipline poses the management problem in its own way and comes up with its own most appropriate solution. These disciplinary solutions, however, are likely to be so different that a combined solution considering aspects of both disciplines cannot be found. Preconditions for a successful model-based integration of ecology and economics include (1) an in-depth knowledge of the two disciplines, (2) the adequate identification and framing of the problem to be investigated, and (3) a common understanding between economists and ecologists of modeling and scale. To further advance ecological-economic modeling the development of common benchmarks, quality controls, and refereeing standards for ecological-economic models is desirable.     

Reflections on "What is Ecosystem Management?"

I review 10 dominant themes of ecosystem management described in the paper "What is Ecosystem Management?" (Grumbine 1994a) based on feedback received from managers actively implementing ecosystem management projects in the field. My emphasis is on practical advice from working professionals for working professionals. Key points include the importance of managing for ecological integrity, the need for social as well as scientific data, suggestions for implementing cooperation strategies and conservation partnerships, a pragmatic definition of adaptive management, and first steps toward changing the structure of natural resource organizations. As ecosystem management evolves, the pressure for change within traditional resource management agencies appears to be reaching a critical point.