Decentralized Natural Resource Management: From State to Co-management in India

In India, as in many parts of the developing world, the dominant view has been that local people are causing natural resource degradation. New thinking in the natural resource management domain is gradually replacing the older views blaming local people for decline of natural resources. The new approach advocates decentralization of natural resource management. This is discussed in this paper in relation to the ongoing decentralization reforms in India. The centralized approach dominated natural resource management in India during the colonial period. The government after independence conveniently adopted the same approach, excluding local people from forests. Recent research and resistance from grassroot movements led to a paradigm shift towards decentralization at the policy level in natural resource management. It is not clear whether the new Joint Forest Management (JFM) policy in India is an attempt to institutionalize state dominance, or if it will lead to real decentralization. The data from several villages adjacent to the Sariska Tiger Reserve (STR), Rajasthan, India show that state dominance is still prevalent, despite constraints. The real challenge lies in providing flexibility within the JFM policy to adapt to local conditions in natural resource management.     

STATE WATER LAW REFORM: IDENTIFYING LEGAL AND MANAGERIAL ISSUES AND OPTIONS1

ABSTRACT: Statutory and case law at the state level provide critical legal frameworks for water management. As many state governments struggle to improve efficiency in water management and resolve conflicts over water usage, they must continually assess the efficacy of their state water law. Most states have water laws that are disconnected and overlapping. This article presents a methodology to assess state water law and take first steps toward a comprehensive state water resources act. The methodology is driven by issues and conflicts in water management. It synthesizes management and legal analyses into a process that incorporates the diverse perspectives of state water stakeholders. The results of the analysis are identification of management issues, profiles of state water law, and explorations of legal options that are available to the state government. Illinois is provided as a case study for this methodology.     

Politics of Co-Optation: Community Forest Management Versus Joint Forest Management in Orissa,India

The article considers the impact of introducing government co-management policy in the form of Joint Forest Management (JFM) in an area with a five-decade-old self-organized community forest management system in Orissa, India. We ask a question that appears not to have been previously examined: What happens when JFM replaces an already existing community forest management arrangement? Our comparison of the JFM arrangement with the self-organized community forest management regime (pre- and post-2002 in a selected village) provides three conclusions: (1) The level of villager participation in forest management has declined, along with the erosion of the bundle of common rights held by them; (2) multiple institutional linkages between the village and outside agencies, and reciprocal relations with neighboring villages have been abandoned in favor of a close relationship with the Forestry Department; and (3) the administration of the forestry resource has become politicized. We conclude that the “one-size-fits-all” approach of the JFM, with its pre-packaged objectives and its narrow scope of forest management, is likely to limit experimentation, learning, and institutional innovation that characterizes community forest management.     

From Forest Regulation to Participatory Facilitation: Forest Employee Perspectives on Organizational Change and Transformation in India

Despite the critical role of government agencies in decentralizing natural resource governance, little work to date has focused on the organizational aspects of the responsible government bureaucracies. Based on a qualitative investigation of the perspectives of Forest Department employees involved in India's Joint Forest Management (JFM) program, this paper aims to provide an understanding of these internal dynamics. Elaborating on why bureaucracies with a learning orientation are essential if participatory natural resource management is to succeed, the paper underlines the constraints to transforming forest agencies' hierarchical work cultures. Foresters describe JFM as a radical departure from traditional forest governance, but suggest that corresponding transformation within the Forest Department has not occurred. Foresters cite as reasons: (1) a target-based incentive system that leaves little room for establishing the relationships with local people needed for collaborative management; (2) rigid rules and regulations that prevent the flexibility needed for adaptive, site-specific problem-solving; (3) a hierarchical, top-down style of communication that prevents the upper administration from learning what is happening on the ground and stifles initiative by field staff; (4) the need for a committed leadership to reverse this hierarchical culture. They point to the few such team-oriented leaders as the key to transforming the Forest Department and enabling participatory forest management to succeed. The authors also recommend accompanying changes in training and reward systems.     

A travel cost study to estimate recreational value for a bird refuge at Lake Manyas, Turkey

This paper investigates the recreational economic value of bird watching in the Ku?cenneti National Park (KNP) at Lake Manyas, one of the Ramsar sites of Turkey and an important endangered species habitat. The lake and KNP provide considerable benefits for the region, although they have faced many environmental conflicts due to diverse stakeholders’ needs. An economic valuation for the benefits provided by the KNP is important data for stakeholders and local authorities. The travel cost method is used to estimate recreational demand for the KNP. The recreational value of the KNP is 103,320,074 USD annually. Results shed light on important policy issues and help to resolve conflicts among stakeholders. This calculated value is considerably higher than the annual investment and operation expenditures of the KNP. Sustainability of the important species around the lake could be achieved if the region's inhabitants are compensated by KNP visitors.     

Local people's perceptions of planning and management issues in Prespes Lakes National Park, Greece

Local people's perceptions of planning and management issues were investigated in Prespes Lakes National Park in north-western Greece, 24 years after designation. Ensued conflicts due to lack of local community participation in the designation procedure and in the decision-making process thereafter necessitated this research. Knowledge of the park and its aims, source of information about aims, necessity for works and facilities, attitudes toward certain policies, and effectiveness of administration and management scheme, were studied by means of a questionnaire survey. Respondents were contacted by systematic sampling, which resulted in 201 cases for analysis. Poor knowledge of aims associated with education of people was revealed and the managing authority (the Forest Service) as source of information was mentioned in only one case. Forest recreation facilities and improvement of accessibility were considered of high priority, as means of possible tourism development of the area. A policy of non-intensive agriculture with compensation for loss of income, if the wetlands of the park were in danger, seems acceptable, younger ages accepting it more easily. The need for a new administration and management scheme with the participation of local communities in the decision-making process was revealed, supported mainly by the younger age groups. Finally, the results indicated that the information derived from such research could help managers of protected areas to resolve arising conflicts.     

Sweet for the sour: Incentives in environmental mediation

The siting of facilities with undesirable environmental characteristics often leads to public conflict. Efforts to resolve the conflict and make siting decisions frequently exacerbate the problem. Environmental mediation, the process of negotiating an agreeable settlement, is an accepted approach to resolving conflict. This paper explores the use of incentive systems as a means of achieving equity in environmental mediation. Obnoxious and noxious characteristics of facilities are discussed as the basis of conflicts. Four types of incentives—mitigation, compensation, reward, and participation—are discussed. The paper concludes with a discussion of the utility and application of incentives for solving environmental conflicts.     

Cooperation or conflict? Interagency relationships and the future of biodiversity for US parks and forests

Cooperation between the United States Department of Agriculture (USDA) Forest Service and the United States Department of Interior (USDI) National Park Service is most often advocated to protect biological diversity on national forests and parks, but the agencies, so far, have done little to implement the biodiversity mandates of such laws as the Endangered Species Act and the National Forest Management Act. The ideological and political history of the Forest Service and Park Service is explored to determine the roots of interagency conflicts. Several recent models of cooperative reform are also critiqued and found to be insufficient to stimulate better working relationships. To protect biodiversity, cooperation must be framed within conservation biology and must place primary emphasis on ecosystem patterns and processes as well as on individual species. Increased education of agency managers, ecosystem-level research, local and regional public participation, scientific oversight committees, new legislation, and enlightened leadership also play important roles. Ultimately, management policies must be reframed within a context of ecocentric values.     

Water farms and transfer conflicts in Arizona,USA: A proposed resolution process

Water is a relatively scarce resource in Arizona, especially since the recent urban growth booms of Phoenix and Tucson. Arizona's 1980 Groundwater Management Act was the precursor to current water-transfer conflicts between urban buyers, rural farmers, and third parties. Water farms are bought with the intention to transfer their appurtenant groundwater to the two major metropolitan areas. As water markets have emerged, differing values and public interest issues have become apparent, while the state legislature attempts to resolve inequities. Site-specific transfer disputes, as well as policy-making conflicts, offer suitable situations for a mediation process. Equity- and efficiency-based criteria are suggested as the basis for resolving water-transfer conflicts, and a mediation process is proposed. However, third parties must develop an agenda, and a balance of power should be attained before mediation can effectively forge an agreement on water-transfer policies. The attainment of statewide policies generated through a mediated process has the potential to expand long-range regional water planning and management.     

Measuring forest ecosystem sustainability: A resource accounting approach

A new environmental paradigm has emerged, reflecting a change in the public's understanding of resource sustainability. Forest policy makers need to be better informed about such changes to achieve economic, social, and environmental objectives in a manner that balances human needs and aspirations with ecosystem constraints. As an aid to this task, a forest resource accounting system based on the key concept of natural capital could help reshape forest policies to provide an even wider spectrum of benefits for both present and future generations by maintaining and enhancing the productive capacity of forest capital. Such a resource accounting system would provide a tool for integrating multidimensional information requirements in measuring the health of both forest ecosystems and economic systems. This paper outlines some of the features of this accounting system and proposes and framework that would integrate economic and ecological characteristics of natural resources. Forest resource accounting is urgently needed to achieve the sustainability goals of ecosystem management.     

Environmental Values and Popular Conflict over Environmental Management: A Comparative Analysis of Public Comments on the Clinton Forest Plan

/ Public participation in environmental management decisions has frequently led to conflict. This paper examines the role of environmental values in fueling these conflicts, based on a data base and sample content analysis of written public comments solicited in 1994 regarding the highly contentious Clinton Forest Plan (also known as Option 9) proposed for management of federal forests in the US Pacific Northwest. The analysis considered whether those respondents favoring more versus less environmental protection than was offered in Option 9 held entirely different values, identifying which antagonistic values appeared to be most fundamental and where (if at all) values consensus occurred. It also compared values emanating from respondents within and outside the affected region, although few major differences were detected in this regard. Results suggest that strong values differences did exist among those preferring greater versus less environmental protection, in particular as concerned the extent, form, and spatial and temporal scope of justification of their positions, their ideas of forests, and the appropriate role of people in forest management. Disagreement concerned far more than purely environmental values: a major point of difference involved human benefits and harms of the proposed forest plan. Indeed, both sides' positions were overridingly anthropocentric and consequentialist-a values orientation that almost inevitably spells conflict in light of the commonly differentiated social impacts of environmental management decisions. Although public involvement in environmental management thus cannot be expected to lead to a clear and consensual social directive, the Pacific Northwest case suggests that viable environmental management solutions that take this range of values into account can still be crafted.KEY WORDS: Environmental values; Public participation; Clinton Forest Plan; Pacific Northwest     

THE SOUTHEAST FLORIDA EXPERIENCE IN RESOLVING DEVELOPMENT AND ENVIRONMENT CONFLICTS1

ABSTRACT: Land development projects that are presumed to have regional impact according to the Florida Land and Water Management Act of 1972 are forced to minimize adverse environmental impact through a detailed procedure called Application for Development Approval (ADA). In Southeast Florida, as part of this review process, the water-supply and flooding conflicts must be resolved with the regional water management agency, Central and South Florida Flood Control District (FCD). This paper discusses the efforts to resolve these two conflicts for a large proposed residential development in Broward County, Florida. The project, as envisioned by Leadership Housing, Inc., places 25,000 dwelling units on the 3,960-acre site. The project is located in a flood prone area of the Hillsboro Canal Basin and is at the northwest edge of the Biscayne Aquifer. Significant land modification is required to flood-proof the project. The water-supply conflict was resolved only when the FCD was assured that the ultimate water demand for the project was balanced by the natural recharge to the site. Significant water-resources studies were required to produce these conflict resolutions.     

Environmental problem-solving and land-use management: A proposed structure for Australia

A three-tiered structure of land-use and environmental management is here proposed for Australia. The structure is based on the idea that environment means the environment of people, and that environmental problems arise when a change in the interaction between people and their environment leads to conflicts about the use of land and resources. The heterogeneity of society means that a range of human aspirations and value systems must be satisfied by environmental managers. Existing methods of environmental management fail to achieve these objectives, due to inadequate perception of environmental problems by decision-makers, and the inability of currently available impact assessment techniques to resolve human conflicts associated with the use of land and resources. The main work of planning and managing land use and the environment would be carried out by regional authorities, supported by federal and state policy. Examples are given of moves towards regional administration in England and Wales, Western Australia, Australia and New Zealand. Community participation in the decision-making process is essential and can be achieved by electoral representation to the authoritative bodies and through procedures that ensure informed public comment on planning proposals.     

Resolving Conflict and Building Cooperation in the National Estuary Program

Since its beginning in 1987, researchers and policymakers have touted the US Environmental Protection Agency National Estuary program (NEP) as one of the leading examples of collaborative institutions designed to resolve conflict and build cooperation at the watershed level. Using the NEP as an example, I summarize the advantages and disadvantages of collaborative institutions. Using data gathered from focused surveys of policy elites in 22 estuaries, I estimate statistical models that show the NEP does a better job of resolving conflict and building project-level cooperation than similar estuaries without the NEP. I also describe the activities of the NEP mentioned by respondents as contributing to this outcome.     

Recreation conflict potential and management implications in the northern/central Black Forest Nature Park

This study explores conflict in recreational use of the Black Forest Nature Park (BFNP) by six different nature sports groups as a function of infrastructure, forest management and other users. A multi-step, methodological triangulation conflict model from US recreation management was applied and tested in the Park. Results from two groups, hikers and mountain bikers, are analysed in depth. The main conflict potentials were due to infrastructure and value conflicts. These were influenced by various visitor characteristics such as resource attachment, experiences, activity-style, expectations and motives. Results of quantitative data analysis were further interpreted by interviews with agency and group leaders. This methodological combination reveals a robust understanding of recreation conflict and management in the BFNP.     

The environmental audit. II. Application to stream network design

The planning and execution of water quality management programs requires careful collection and analysis of data coupled with a systematic review and analysis of programmatic success. The environmental audit is a tool which facilitates improved water quality planning and management. This article demonstrates the utility of the environmental audit by reviewing portions of a comprehensive review of the water quality management program for the state of Idaho. The audit is a tool which forces careful design of a sampling program before data are collected. In the audit approach, program objectives are clearly stated prior to initiation of sampling. Stated objectives are also evaluated regularly to identify tension points, that is, conflicts between expectations and reality. In the example taken from Idaho, a management review team followed a directive to redesign the water quality monitoring program. We present a summary of the redesign as proposed by that team, to illustrate the results of a typical review of monitoring programs. That summary is followed by an example of how the proposed program would differ if the audit approach had been used. The two approaches offered both coincident and conflicting recommendations. Management review team and audit recommendations for lake sampling programs were similar even though a different process was used to develop the recommendations. The most striking contrast between the two results lies in the review team's approach to the problem. The directives followed, and the team's responses, concentrate on tools, such as increasing biological monitoring or reliance on monthly BWMP stations. In contrast, the audit results stress addressing management questions for which clear objectives have been stated, depending on specific tools only as needed to meet stated objectives. Although the audit does integrate externalities in its structure, it is little affected by economic or political influences. A major strength of the audit approach is its ability to provide defensible data for management decision making.     

Public opinion and interest group positions on open-space issues in Albuquerque,New Mexico,USA: Implications for resource management

The purpose of this research was to elicit and compare the open-space preferences of citizens and openspace experts in Albuquerque, New Mexico, USA. A randomly selected sample of 492 citizens and 35 open-space experts participated in a telephone survey during May 5–18, 1986. The following hypothesis was tested and used as a guideline for the study:HO1: There is no significant difference between respondents' status and preference for open space in Albuquerque, New Mexico.The hypothesis was rejected. Findings confirmed respondents' status affected preference for open space. Of the eight issues on which the citizen and expert groups were compared, five recorded significant differences in response profiles. The open-space expert group was significantly more supportive of using open space to accommodate offroad vehicle facilities, wildlife preserves, a citywide recreational trail, and a trail system along the arroyos and city ditches. The citizen sample was significantly more supportive of using open space to accommodate overnight camping facilities. Both groups equally supported using open space to accommodate an outdoor amphitheater, outdoor education facilities, and rafting, kayaking, and canoeing facilities.The finding indicated that expert preferences did not represent an aggregate of citizen preferences for managing open-space resources. Understanding both expert and citizen positions will facilitate decision-making processes and help resolve environmental disputes.     

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.     

INSTITUTIONS AND TECHNOLOGY: KEYS TO BETTER WATER MANAGEMENT1

Seven considerations which bear upon the achievement of better water management are discussed. First, separation of judgments of fact from judgements of value is helpful in deciding upon what actions to take. Second, separation of social values from matters of individual or group interest is crucial to institutional design. Third, achieving economically efficient water management may create a surplus of benefits which can be divided among the parties in order to resolve conflicts. Fourth, surpluses also can be used inappropriately, whether to reward undesirable behavior or to penalize unjustly. Fifth, avoidance of external costs is best achieved through restructuring of rewards and penalties. Sixth, technological solutions are too easily selected in place of less costly institutional change. Seventh, water management technology is too often selected in place of more cost-effective, water-related technology. Selected examples of each of these considerations are offered. However, better water management is not easy to define. The social process criterion adopted in this paper is discussed briefly.     

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

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