Handling uncertainty through adaptiveness in planning approaches: comparing adaptive delta management and the water diplomacy framework

Planners and water managers seek to be adaptive to handle uncertainty through the use of planning approaches. In this paper, we study what type of adaptiveness is proposed and how this may be operationalized in planning approaches to adequately handle different uncertainties. We took a comparative case study approach to study two planning approaches: the water diplomacy framework (WDF) and adaptive delta management (ADM). We found that the approaches differ in their conceptualization of uncertainty and show that different types of adaptiveness are used in the approaches. While WDF builds on collaborative adaptive management as a set of ongoing adjustments and continuous learning to handle uncertainty, ADM deliberately attempts to anticipate future adaptations through a set of tools which allows for seizing opportunities and avoiding lock-in and lock-out mechanisms. We conclude that neither of the approaches is fully able to account for different uncertainties. Both approaches may benefit from specific insights in what uncertainty and adaptiveness entail for the development of water management plans.     

Importance of scientific uncertainty in decision making

Uncertainty in environmental decision making should not be thought of as a problem that is best ignored. In fact, as is illustrated in a simple example, we often informally make use of awareness of uncertainty by hedging decisions away from large losses. This hedging can be made explicit and formalized using the methods of decision analysis. While scientific uncertainty is undesirable, it can still be useful in environmental management as it provides a basis for the need to fund additional monitoring, experimentation, or information acquisition to improve the scientific basis for decisions.     

Biotechnology and naturalness in the genomics era: plotting a timetable for the biotechnology debate

Debates on the role of biotechnology in food production are beset with notorious ambiguities. This already applies to the term “biotechnology” itself. Does it refer to the use and modification of living organisms in general, or rather to a specific set of technologies developed quite recently in the form of bioengineering and genetic modification? No less ambiguous are discussions concerning the question to what extent biotechnology must be regarded as “unnatural.” In this article it will be argued that, in order to disentangle some of the ambiguities involved, we have to broaden the temporal horizon of the debate. Ideas about biotechniques and naturalness have evolved in various socio-historical contexts and their historical origins will determine to a considerable extent their actual meaning and use in contemporary deliberations. For this purpose, a comprehensive timetable is developed, beginning with the Neolithic revolution ~10,000 years ago (resulting in the emergence of agriculture and the Common Human Pattern) up to the biotech revolution as it has evolved from the 1970s onwards—sometimes referred to as a second “Genesis.” The concept of nature that emerged in the context of the “Common Human Pattern” differs considerably from traditional philosophical concepts of nature (such as coined by Aristotle), as well as from the scientific view of nature conveyed by the contemporary life sciences. A clarification of these different historical backdrops will allow us to understand and elucidate the conceptual ambiguities that are at work in contemporary debates on biotechnology and the place of human beings in nature.     

Adaptive management of natural resources--framework and issues

Adaptive management, an approach for simultaneously managing and learning about natural resources, has been around for several decades. Interest in adaptive decision making has grown steadily over that time, and by now many in natural resources conservation claim that adaptive management is the approach they use in meeting their resource management responsibilities. Yet there remains considerable ambiguity about what adaptive management actually is, and how it is to be implemented by practitioners. The objective of this paper is to present a framework and conditions for adaptive decision making, and discuss some important challenges in its application. Adaptive management is described as a two-phase process of deliberative and iterative phases, which are implemented sequentially over the timeframe of an application. Key elements, processes, and issues in adaptive decision making are highlighted in terms of this framework. Special emphasis is given to the question of geographic scale, the difficulties presented by non-stationarity, and organizational challenges in implementing adaptive management.     

Adaptive management for a turbulent future

The challenges that face humanity today differ from the past because as the scale of human influence has increased, our biggest challenges have become global in nature, and formerly local problems that could be addressed by shifting populations or switching resources, now aggregate (i.e., "scale up") limiting potential management options. Adaptive management is an approach to natural resource management that emphasizes learning through management based on the philosophy that knowledge is incomplete and much of what we think we know is actually wrong. Adaptive management has explicit structure, including careful elucidation of goals, identification of alternative management objectives and hypotheses of causation, and procedures for the collection of data followed by evaluation and reiteration. It is evident that adaptive management has matured, but it has also reached a crossroads. Practitioners and scientists have developed adaptive management and structured decision making techniques, and mathematicians have developed methods to reduce the uncertainties encountered in resource management, yet there continues to be misapplication of the method and misunderstanding of its purpose. Ironically, the confusion over the term "adaptive management" may stem from the flexibility inherent in the approach, which has resulted in multiple interpretations of "adaptive management" that fall along a continuum of complexity and a priori design. Adaptive management is not a panacea for the navigation of 'wicked problems' as it does not produce easy answers, and is only appropriate in a subset of natural resource management problems where both uncertainty and controllability are high. Nonetheless, the conceptual underpinnings of adaptive management are simple; there will always be inherent uncertainty and unpredictability in the dynamics and behavior of complex social-ecological systems, but management decisions must still be made, and whenever possible, we should incorporate learning into management.     

Adaptive Management of Stream Channel Maintenance at Bridge Crossings in the Northern Tier Region,Pennsylvania1

Abstract: An adaptive management framework is applied to the problem of identifying mitigation measures for sediment deposition near bridge crossings in small streams in the Northern Tier region of northern Pennsylvania. The presence of the rigid bridge infrastructure introduces a challenge for applying adaptive management practices, because the integrity of the bridge structure itself has to be maintained regardless of the mitigation practices used in the stream channel near the bridge. In an effort to overcome the unacceptable risk that field‐scale adaptive management experiments present to rigid bridge infrastructure, an adaptive management approach for laboratory‐scale experimentation of mitigation methods at bridge crossings in the Northern Tier region is presented as a way to decrease the level of uncertainty about channel response to mitigation measures and increase the rate of learning about the effectiveness of these measures. Four cycles of adaptive management experiments are discussed to demonstrate that this approach results in fast and efficient learning about channel response to mitigation methods for the given conditions. The value of monitoring and of assessment of monitored data in the overall efficiency of the adaptive management approach is highlighted. Assessment of what was learned in the adaptive management experiment cycles presented here leads to new directions to continually improve management policies and practices in stream channels at bridge crossings in the Northern Tier region. The adaptive management process, rather than continuing with a normally risk‐averse management approach, results in opportunities for learning new information about a system’s response.     

Making framing of uncertainty in water management practice explicit by using a participant-structured approach

By now, the need for addressing uncertainty in the management of water resources is widely recognized, yet there is little expertise and experience how to effectively deal with uncertainty in practice. Uncertainties in water management practice so far are mostly dealt with intuitively or based on experience. That way decisions can be quickly taken but analytic processes of deliberate reasoning are bypassed. To meet the desire of practitioners for better guidance and tools how to deal with uncertainty more practice-oriented systematic approaches are needed. For that purpose we consider it important to understand how practitioners frame uncertainties. In this paper we present an approach where water managers developed criteria of relevance to understand and address uncertainties. The empirical research took place in the Doñana region of the Guadalquivir estuary in southern Spain making use of the method of card sorting. Through the card sorting exercise a broad range of criteria to make sense of and describe uncertainties was produced by different subgroups, which were then merged into a shared list of criteria. That way framing differences were made explicit and communication on uncertainty and on framing differences was enhanced. In that, the present approach constitutes a first step to enabling reframing and overcoming framing differences, which are important features on the way to robust decision-making. Moreover, the elaborated criteria build a basis for the development of more structured approaches to deal with uncertainties in water management practice.     

Dealing with uncertainty in collaborative planning: developing adaptive strategies for the IJsselmeer

Adaptive strategies to deal with uncertainty in water management are often collaboratively developed. So far, however, little attention has been paid to the influence of collaboration on handling uncertainty through adaptive planning. In this paper, we study how collaboration has influenced the handling of uncertainty through adaptive planning for water management strategies for the IJsselmeer area in the Netherlands. We show how a fixation on certainty, different perspectives among actors and unclear responsibilities between arenas affect the handling of uncertainty, and found that it is adversely affected by collaboration. The use of adaptive planning challenged current water uses and system functions, creating resistance from actors. We conclude that developing a shared problem perception, creating a common understanding of uncertainties and ensuring a clear demarcation between the water system, its societal functions and water usage, are necessary to make adaptive planning successful in handling uncertainty.     

Scarcity and conflict,key problems in water management: a Mexican case study

Water scarcity has become a key issue in water management. There are two contrasting positions regarding scarcity as a source of conflict or cooperation. Accordingly, it is worth exploring what exactly are the conditions that make water scarcity a source of conflict or cooperation. The history of water conflicts has shown that people are more likely to kill around a water hole than when conflicts grow into national or international issues. This suggests that there may be an inverse relationship between the level of violence and the scale at which the water conflict takes place. A common problem in environmental management has been the lack of effective mechanisms to handle conflict. In the majority of these cases, the main shortcoming was an inability of the parties to identify their differences. Therefore, this research explores the idea that understanding the causes of conflict from the outset, followed by an evaluation, at the local scale, of the conditions, is a necessary precondition to finding appropriate and sustainable solutions. With this background in mind, the objective of this paper is to employ a conflict assessment process in order to explore to the extent to which a collaborative dialogue among stakeholders can be an appropriate approach to conflict resolution. A case study in Mexico is employed as a testing ground.     

Private Participation Going Public? Interpreting the Nexus Between Design,Frames, Roles,and Context of the Fracking ‘InfoDialog’ in Germany

At an early stage of the rising fracking controversy in Germany, ExxonMobil initiated a rather large and costly company dialogue to defuse public concerns over fracking. To shed light on the public implications of private participation, this study analyses how this so-called InfoDialog attempted to reach this goal, and what the consequences were. For this purpose, an interpretive analytical perspective that employs concepts of conflict and participation analysis is adopted. Following this perspective, several design features of the InfoDialog and their implications for the framing of the fracking issue are reconstructed. This provides the ground for analysing the roles that the InfoDialog could play in coping with the fracking controversy. Finally, the dialogue's embeddedness in the context of the emerging fracking debate in Germany is examined. The analysis suggests that the InfoDialog could not defuse the public controversy over fracking by scientization. However, as a forerunner in the emerging politics of expertise, it has supported a particular framing of the public controversy. These insights provoke further critical questions about the implications of privately organized participation arrangements regarding public controversies.     

Dealing with uncertainty: a case study of controlling insect populations in natural ecosystems

This paper analyses the political process for handling an outbreak of an insect causing human allergic reactions. In the southern part of the Swedish island Gotland in the Baltic Sea, an outbreak of the northern pine processionary moth, Thaumetopoea pinivora, has occurred. With regard to the human nuisance and long-term effects on the tourist industry, demands have been raised for intervention to reduce and control the insect population. At the same time, there have been warnings against treating the insect population because there are knowledge gaps concerning the wider ecological consequences, including effects on biodiversity. This paper analyses the political process and its problem-solving efforts. Of particular interest is how it dealt with the issue of uncertainty. It was found that the uncertainty associated with the issue hindered the development of a shared understanding of the problem and a possible solution. There seems to be a growing need in society to develop the institutional capacity to handle complex issues that cross different sectors, regulatory frameworks and policy targets.     

Confronting socially generated uncertainty in adaptive management

As more and more organizations with responsibility for natural resource management adopt adaptive management as the rubric in which they wish to operate, it becomes increasingly important to consider the sources of uncertainty inherent in their endeavors. Without recognizing that uncertainty originates both in the natural world and in human undertakings, efforts to manage adaptively at the least will prove frustrating and at the worst will prove damaging to the very natural resources that are the management targets. There will be more surprises and those surprises potentially may prove at the very least unwanted and at the worst devastating. We illustrate how acknowledging uncertainty associated with the natural world is necessary but not sufficient to avoid surprise using case studies of efforts to manage three wildlife species; Hector's Dolphins, American Alligators and Pallid Sturgeon. Three characteristics of indeterminism are salient to all of them; non-stationarity, irreducibility and an inability to define objective probabilities. As an antidote, we recommend employing a holistic treatment of indeterminism, that includes recognizing that uncertainty originates in ecological systems and in how people perceive, interact and decide about the natural world of which they are integral players.     

Can you tell a green field from a cold steel rail? Examining the “green” of Green Infrastructure development

The rapid development of Green Infrastructure as an approach to planning has enabled landscape practitioners to implement a range of projects utilising its principles. Discussions though exist examining what Green Infrastructure is, how it should be planned, and whether it can be identified as only those elements of the landscape that are green. A further element of this argument examines the use of water within this process. Therefore, as planners, we can ask: can we tell a green field from a cold steel rail? Both may have a green or sustainable function with only the visual appearance differing. Debates, however, focus on practitioner selectivity of the interpretation of “green” infrastructure planning exploring whether physical landscape characteristics or the function of an investment is the main focus of discussion. Using the grey–green continuum developed by Davies et al. [2006. Green infrastructure planning guide project: Final report. Annfield Plain: NECF], this paper examines whether geographical differences exist in the application of the Green Infrastructure and examine how practitioners use the ambiguity of Green Infrastructure planning to guide investment. Drawing on academic and practitioner literature provides this paper with a balance of conceptual and process-based assessments evaluations of global Green Infrastructure focusing on the design and implementation of terrestrial and marine resources. This paper also examines whether the dominant landscape planning framework in each region could be considered contradictory to the wider application of Green Infrastructure principles.     

Learning,participation, and adaptation: exploring agri-environmental programmes

This paper explores the perceptions of policy makers and rural agricultural producers in respect of policy framing and adaptation to climate change, social learning and stakeholder input (participation) surrounding two successful agri-environmental programmes in Saskatchewan, Canada. Given the record of success of these two programmes in reducing vulnerability to climate change, this study provides an opportunity to explore certain attributes of adaptive management, including: what attributes make policy and programmes responsive; how government can frame programmes facilitating adaptation to climate change; what types of mechanisms can or should be used to engage with producers; and perhaps most importantly, what producers expect of government, government policies and programmes in relation to adaptation to climate change.     

Framing Dynamics and Political Gridlock: The Curious Case of Hydraulic Fracturing in New York

‘Fracking’ was on New York's agenda since 2008, yet no decision was made about it until late 2014. The gridlock is an intriguing puzzle given that the Marcellus shale is considered a ‘world class’ energy supply, and development has been aggressive in other US states. While policy scholars typically conceptualize gridlock as policy stability, this paper examines it as a dynamic process by which competing discourse coalitions engage in interactive framing processes that (re)structure the discussion. This suggests that the interaction between contending coalitions influences gridlock. Yet, we lack knowledge about interactive framing between competing coalitions during policy controversies. Our main finding is that a central mechanism of gridlock is the production of conflict through interactive framing dynamics that deny a shared discursive space capable of ushering in a consensus, or reasoned agreement. In New York, this contest evolved from a policy consensus about the economic benefits of fracking to policy negotiation that incorporated environmental threats, and to prolonged policy controversy in which competing discourse coalitions contested notions of fracking in relation to energy production, environmental protection, public health, economic development, and governance. While a ban has been instituted, the failure to bridge discourse coalitions suggests that controversy will persist unless meaning disputes are resolved.     

Environmental audit: III. Improving the management of environmental information for toxic substances

Environmental programs have been commonly driven by a preoccupation with the collection of data in the mistaken belief thatdata is synonymous withinformation. The distinction between data (that is, the quantified and qualitative attributes of a particular environment) and information (specifically, data processed so as to focus upon a particular environmental problem) will become far more important to environmental managers. They will increasingly manage their information through use of what has become known as information resource management (IRM) and the attendant use of critical success factors methodology. Environmental managers will thereby move away from concerns about data and specific EDP hardware and applications toward managing information as a valuable agency resource. In applying IRM, they will find it helpful to include a number of planning elements and to resolve early a number of issues critical to its successful use.     

Risk-based evaluation of wastewater treatment projects: A case study in Niasar city,Iran

For sustainable wastewater management, it is essential to consider social, environmental, geological and technical features as well as economic feature in the decision-making process. A limitation of many of the earlier works on wastewater management is that they take into account only financial criteria to make a decision for a given problem. Moreover, the decision-makers’ (DMs) attitude to risk, or optimism degree, when faced with uncertainty is not considered. In this paper, we study the application of risk-based multi-attribute decision-making (RB-MADM) methods to achieve sustainable wastewater management. Consideration of uncertainty, value tradeoffs, and different risk attitudes of decision makers are the important features of the developed methodology. A case study on the Iranian city of Niasar is presented to illustrate how this methodology can be applied to select the most preferred alternative for wastewater management among a set of options. The most preferred option is selected with respect to nine attributes under different optimism/pessimism degrees, using six different MADM methods. The results show that the ranking of options is sensitive to the optimism degree of the DMs. The proposed approach may help policy makers to achieve sustainable wastewater management.     

Pathology and failure in the design and implementation of adaptive management

The conceptual underpinnings for adaptive management are simple; there will always be inherent uncertainty and unpredictability in the dynamics and behavior of complex ecological systems as a result non-linear interactions among components and emergence, yet management decisions must still be made. The strength of adaptive management is in the recognition and confrontation of such uncertainty. Rather than ignore uncertainty, or use it to preclude management actions, adaptive management can foster resilience and flexibility to cope with an uncertain future, and develop safe to fail management approaches that acknowledge inevitable changes and surprises. Since its initial introduction, adaptive management has been hailed as a solution to endless trial and error approaches to complex natural resource management challenges. However, its implementation has failed more often than not. It does not produce easy answers, and it is appropriate in only a subset of natural resource management problems. Clearly adaptive management has great potential when applied appropriately. Just as clearly adaptive management has seemingly failed to live up to its high expectations. Why? We outline nine pathologies and challenges that can lead to failure in adaptive management programs. We focus on general sources of failures in adaptive management, so that others can avoid these pitfalls in the future. Adaptive management can be a powerful and beneficial tool when applied correctly to appropriate management problems; the challenge is to keep the concept of adaptive management from being hijacked for inappropriate use.     

ADAPTIVE MANAGEMENT OF LARGE RIVERS WITH SPECIAL REFERENCE TO THE MISSOURI RIVER1

ABSTRACT: The technocratic approach for managing the Missouri River and other large rivers is not effective in resolving conflicts among competing uses of water and dealing with uncertainty about how river ecosystems respond to alternative management actions. Adaptive management offers an alternative way to address these and other issues. It has the potential to alleviate management gridlock and provide lasting solutions to management of the Missouri River and other large river ecosystems. In passive adaptive management, simulation models and expert judgment are combined to select a preferred management action. While passive adaptive management is relatively simple and inexpensive to use, it does not necessarily provide reliable information for making management decisions. Active adaptive management uses statistically designed experiments to test assumptions or hypotheses about ecosystem responses to management actions. It is best carried out by a collaborative working group. Active adaptive management has several advantages, but the inability to satisfy certain prerequisites for successful application makes it more difficult to implement in large river ecosystems. A second‐best approach is proposed here to select, implement, monitor, and evaluate a preferred management action and retain that action provided ecological conditions improve and socioeconomic indicators do not fall below established acceptability limits.     

Land Management in the American Southwest: A State-and-Transition Approach to Ecosystem Complexity

State-and-transition models are increasingly being used to guide rangeland management. These models provide a relatively simple, management-oriented way to classify land condition (state) and to describe the factors that might cause a shift to another state (a transition). There are many formulations of state-and-transition models in the literature. The version we endorse does not adhere to any particular generalities about ecosystem dynamics, but it includes consideration of several kinds of dynamics and management response to them. In contrast to previous uses of state-and-transition models, we propose that models can, at present, be most effectively used to specify and qualitatively compare the relative benefits and potential risks of different management actions (e.g., fire and grazing) and other factors (e.g., invasive species and climate change) on specified areas of land. High spatial and temporal variability and complex interactions preclude the meaningful use of general quantitative models. Forecasts can be made on a case-by-case basis by interpreting qualitative and quantitative indicators, historical data, and spatially structured monitoring data based on conceptual models. We illustrate how science- based conceptual models are created using several rangeland examples that vary in complexity. In doing so, we illustrate the implications of designating plant communities and states in models, accounting for varying scales of pattern in vegetation and soils, interpreting the presence of plant communities on different soils and dealing with our uncertainty about how those communities were assembled and how they will change in the future. We conclude with observations about how models have helped to improve management decision-making.