Role of Adaptive Management for Watershed Councils

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

Information Network Topologies for Enhanced Local Adaptive Management

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

Adaptive management: Promises and pitfalls

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

Adaptive Management and Watersheds: A Social Science Perspective1

Abstract:  Adaptive management is often proposed as the most effective way to manage complex watersheds. However, our experience suggests that social and institutional factors constrain the search for, and integration of, the genuine learning that defines adaptive management. Drawing on our work as social scientists, and on a guided panel discussion at a recent AWRA conference, we suggest that watershed‐scale adaptive management must be recognized as a radical departure from established ways of managing natural resources if it is to achieve its promise. Successful implementation will require new ways of thinking about management, new organizational structures and new implementation processes and tools. Adaptive management encourages scrutiny of prevailing social and organizational norms and this is unlikely to occur without a change in the culture of natural resource management and research. Planners and managers require educational, administrative, and political support as they seek to understand and implement adaptive management. Learning and reflection must be valued and rewarded, and fora established where learning through adaptive management can be shared and explored. The creation of new institutions, including educational curricula, organizational policies and practices, and professional norms and beliefs, will require support from within bureaucracies and from politicians. For adaptive management to be effective researchers and managers alike must work together at the watershed‐scale to bridge the gaps between theory and practice, and between social and technical understandings of watersheds and the people who occupy and use them.     

Watershed Management and Organizational Dynamics: Nationwide Findings and Regional Variation

Recent attention has focused on resource management initiatives at the watershed scale with emphasis on collaborative, locally driven, and decentralized institutional arrangements. Existing literature on limited selections of well-established watershed-based organizations has provided valuable insights. The current research extends this focus by including a broad survey of watershed organizations from across the United States as a means to estimate a national portrait. Organizational characteristics include year of formation, membership size and composition, budget, guiding principles, and mechanisms of decision-making. These characteristics and the issue concerns of organizations are expected to vary with respect to location. Because this research focuses on organizations that are place based and stakeholder driven, the forces driving them are expected to differ across regions of the country. On this basis of location, we suggest basic elements for a regional assessment of watershed organizations to channel future research and to better approximate the organizational dynamics, issue concerns, and information needs unique to organizations across the country. At the broadest level, the identification of regional patterns or organizational similarities may facilitate the linkage among organizations to coordinate their actions at the much broader river basin or ecosystem scale.     

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

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

Post-Project Appraisals in Adaptive Management of River Channel Restoration

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

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

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

Making Collaborative Watershed Management Work: The Confluence of State and Regional Initiatives

Initiatives in the Neponset, Ipswich, and Sudbury-Assabet-Concord watersheds highlight how watershed-scale innovation in engaging nongovernment participants is influenced, but not dominated, by the statewide program, the Massachusetts Watershed Initiative. The presence or absence of three elements—external support, process, and issue—and the order in which they occur, shape the viability of collaborative watershed-scale management initiatives. External support includes providing personnel or funding from outside an initiative. Process is the interaction among individuals undertaking watershed-wide policy development and/or implementation. An issue is an attention-requiring concern, vital to a watershed, that can most effectively be addressed by a coordinated strategy among different parties. A process generated by an issue is sustainable and amenable to enhancement through external support. The contribution of external support is most apparent when outside assistance is provided after an issue has crystallized into clear problem needs that can be addressed through specific research projects or implementation activities. Process is central in shaping issues, utilizing external support, and generating management results. The outcomes of voluntary processes in the three watershed initiatives highlight how the evolution of the Massachusetts Watershed Initiative leads to, and depends upon, the development of watershed-scale initiatives.     

Beneath the Straw: In Defense of Participatory Adaptive Management

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

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

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

The Greater Yellowstone Ecosystem: Challenges for Regional Ecosystem Management

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

Ecological Success in Stream Restoration: Case Studies from the Midwestern United States

Despite rapid growth in river restoration, few projects receive the necessary evaluation and reporting to determine their success or failure and to learn from experience. As part of the National River Restoration Science Synthesis, we interviewed 39 project contacts from a database of 1,345 restoration projects in Michigan, Wisconsin, and Ohio to (1) verify project information; (2) gather data on project design, implementation, and coordination; (3) assess the extent of monitoring; and (4) evaluate success and the factors that may influence it. Projects were selected randomly within the four most common project goals from a national database: in-stream habitat improvement, channel reconfiguration, riparian management, and water-quality improvement. Roughly half of the projects were implemented as part of a watershed management plan and had some advisory group. Monitoring occurred in 79% of projects but often was minimal and seldom documented biological improvements. Baseline data for evaluation often relied on previous data obtained under regional monitoring programs using state protocols. Although 89% of project contacts reported success, only 11% of the projects were considered successful because of the response of a specific ecological indicator, and monitoring data were underused in project assessment. Estimates of ecological success, using three criteria from Palmer and others (2005), indicated that half or fewer of the projects were ecologically successful, markedly below the success level that project contacts self-reported, and sent a strong signal of the need for well-designed evaluation programs that can document ecological success.     

Aquatic biodiversity and the electric utility industry

Results from a 1995 survey of utility company biologists indicate that aquatic biodiversity is an emerging and poorly understood issue. As a result, there is some confusion about what aquatic biodiversity actually is, and how we can best conserve it. Only one fourth (24%) of the respondents said their company has a stated environmental policy that addresses biodiversity. Many respondents indicate that over the years they have not specifically managed for biodiversity, but have been doing that through their efforts to assure balanced indigenous populations. While regulations are still the major driver for biological work, an increasing number of companies are involved in voluntary partnerships in managing water resources. Of these voluntary partnerships, 70% have biodiversity as a goal. Biodiversity is becoming an increasingly common subject of study, and a vast majority (75%) of the respondents suggested it should be a goal for utility resource management. Conservation of aquatic biodiversity is a complex task, and to date most aquatic efforts have been directed toward fish and macroinvertebrates. Ecological research and technological development performed by the utility industry have resulted in a number of successful biopreservation and biorestoration success stories. A common theme to preserving or enhancing aquatic biodiversity is preserving aquatic habitat. Increasingly, ecosystem management is touted as the most likely approach to achieve success in preserving aquatic biodiversity. Several utilities are conducting progressive work in implementing ecosystem management. This paper presents the potential interactions between power plants and biodiversity, an overview of aquatic biodiversity preservation efforts within the electric utility industry, more detail on the results of the survey, and recent initiatives in ecosystem management.     

Establishing a Regional Monitoring Strategy: The Pacific Northwest Forest Plan

adaptive monitoring design. Adaptive monitoring design is an iterative process that refines the specifications for monitoring over time as a result of experience in implementing a monitoring program, assessing results, and interacting with users. An adaptive design therefore facilitates ecosystem management. We also discuss lessons of temporal and spatial scales raised by the consideration of a design for ecosystem management. Three additional issues—integration of information from different sources, institutional infrastructure, and the roles of individuals working in an interagency setting—are also identified, but not developed in detail.     

Evolving Water Management Institutions in the Red River Basin

Institutions are the rules and norms that guide societal behavior. As societies evolve—with more diverse economies, increased populations and incomes, and more water scarcity—new and more complex water management institutions need to be developed. This evolution of water management institutions may also be observed across different constituencies, with different societal needs, in the same time period. The Red River of the North basin is particularly well suited for research on water management issues. A key feature of water management in the Red River Basin is the presence of three completely different sets of water law. Minnesota’s water law is based upon riparian rights. North Dakota’s water law is based upon prior appropriation. Manitoba has a system of water allocation that features provincial control. Because the basin is fairly homogeneous in terms of land use and geographic features, its institutional diversity makes this an excellent case study for the analysis of local water institutions. This article reviews the local water management institutions in the Red River Basin and assesses the ongoing institutional evolution of local water management.     

Interaction Between Scientists and Nonscientists in Community-Based Watershed Management: Emergence of the Concept of Stream Naturalization

The authors' personal experience in watershed planning and decision making in the agricultural Midwest is described to illustrate how: (1) formalization of the process of community-based management is not sufficient to guarantee that local people will meaningfully consider scientific information and opinion when making decisions about watersheds, and (2) genuine social interaction between scientists and nonscientists requires a considerable investment of time and energy on the part of the scientist to develop personal relationships with nonscientists based on trust and mutual exchange of information. This experience provides the basis for developing a general conceptual model of the interaction between scientists and nonscientists in community-based watershed management in the agricultural Midwest. An important aspect of integrating science effectively into community-based decision making is the need to revise existing concepts to accommodate place-based contexts. Stream naturalization is introduced as an alternative to stream restoration and rehabilitation, which are viewed as inappropriate management strategies in human-dominated environments. Stream naturalization seeks to establish sustainable, morphologically and hydraulically varied, yet dynamically stable fluvial systems that are capable of supporting healthy, biologically diverse aquatic ecosystems. This general goal is consistent with the types of stream-management practices emerging from community-based decision making in human-dominated, agricultural landscapes. Further research on the linkages between geomorphological and ecological dynamics of human-modified agricultural streams over multiple spatial and temporal scales is needed to provide a sound scientific framework for stream naturalization.     

Demonstration of GIS Capabilities for Fisheries Management Decisions: Analysis of Acquisition Potential Within the Meramec River Basin

/ Geographic information systems (GIS) allow users to explore possible spatial relations that may exist within their data. At the Missouri Department of Conservation (MDC), GIS data is being used to help make management decisions. Thirteen geographic data layers of the Meramec River Basin, Missouri, were used to help demonstrate the usefulness of GIS for making fisheries management decisions. The data were used to help identify potential acquisition areas within the Meramec River Basin. The basin was separated into 22 strata based on ecoregion boundaries, watershed boundaries, and stream order. Suitability for acquisition was determined for each stratum based on species richness, habitat characteristics, percent of public land, and number of human impacts, such as gravel and ore mining. Eleven strata scored high enough to be recommended as potential acquisition areas. After further evaluation of the 11 strata, three were chosen as areas where available land and willing sellers should be considered. Four strata needed more sampling before land within them should be considered for acquisition. The final four were considered low priority because there was already a considerable amount of public land present in the strata. The analysis was helpful in allowing managers to focus in on a smaller area for acquisition consideration; 91% of the area was eliminated from the analysis. Instead of having to survey every parcel of land that becomes available, parcels that don't fall within the recommended strata can be eliminated without further investigation.