PLANNERS AS A PUBLIC IN WATER RESOURCES PUBLIC PARTICIPATION PROGRAMS1

This paper suggests a number of benefits in identifying urban and regional planners as a public in public participation programs of water resources planning studies. A perspective on public participation is presented. Recent trends and developing concepts are identified: emphasis on the need to coordinate urban and regional planning activities with water resources planning, increasing system complexity, the goals and objectives orientation of planning, planning for multi-objectives, the evaluation of a broader range of alternatives, and the consideration of water alternatives as only one set of measures to further society's aspirations. One way to assist in capitalizing on these trends is to seek out participation of those in other planning efforts who are involved in planning but on a different level. Because of their intimate knowledge of an areas history, growth and development, political climate, local perceptions of needs and desires, and major problems and issues they are able to contribute a great deal of insight in making the water resources planning effort more responsive at the local level. The paper describes one of the first major efforts at working-level public-planner contact which was carried out as part of the Susquehanna River Basin Study. A regional survey team comprised of an engineer and an economist from a federal agency and a state water resources planner met informally with planners, city managers, and local planning commissions to discuss issues related to water resources and the growth and development of local areas. This effort while only part of the overall public participation program yielded a number of benefits and if expanded and refined would be a very useful experience in other studies.     

RIVER BASIN WATER PLANNING ORGANIZATIONS IN THE 60's1

ABSTRACT: The 15 federal-state interagency river basin studies (designated as Type 2 or Level B in the planning program of the Water Resources Council) of the 1960's brought together in each of the study regions, in many cases for the fist time, state and federal water resources agencies, and afforded an opportunity for coordination. Examination of the studies, however, reveals that many organizational problems remain to be solved in preparing truly comprehensive plans that effectively integrate and balance the diverse values held by study participants and concerned citizens. Burgeoning changes in state and federal laws, in planning concepts, and in public attitudes influenced the studies. Increased interest in the environment and greater emphasis on a multiple objective approach to planning for example, had significant effect. The type of organization used for carrying out these studies was a coordinating committee with one of the agencies - in most cases, the Corps of Engineers, - serving as lead agency. Some of the observed weaknesses of this arrangement were the lack of an effective mechanism for screening individual agency project proposals; unbalanced participation of agencies - for example, construction vs. non-construction, state vs. federal; agency representatives without sufficient delegated authority; insufficient control of the planning organization over individual agency participation and punctuality; and lack of emphasis on plan formulation and public participation. Suggested improvements, some of which are already being implemented in more recent studies include centralized planning staff and funding, formalized work agreements, a dynamic and continuous planning process with mechanisms for monitoring technological and social changes and evaluating planning effectiveness, planning guidelines and evaluative criteria, and a formalized training program for planners.     

Evaluation model for developing,implementing, and assessing conservation education programs: Examples from Belize and Costa Rica

Evaluation of conservation education programs can: (1) provide accountability in demonstrating a program's worth, (2) offer an opportunity for receiving feedback and improving programs, (3) further our understanding of the process of program development, and (4) promote conservation education by substantiating claims about its benefits. The Planning-Process-Product systems evaluation model provides feedback needed for making decisions about the development, implementation, and outcome of a program. Planning evaluation was useful in assessing the needs, goals, opportunities, and constraints of a number of programs in Costa Rica and Belize, such as a forestry education project and a zoo outreach program. It provided a basis for making planning decisions incorporating specific objectives, such as the reforestation of a region or a change in knowledge and attitudes in program participants. Process evaluation provided a Costa Rican sustainable development program with feedback during its implementation and enabled it to modify and improve its newsletter for local farmers and its ecology classes for school children. Product evaluation assessed project accomplishments, such as the $700,000 raised by the Children's Rainforest group and the 20 miles of riparian land under conservation management as part of the Belize Community Baboon Sanctuary project. Outcomes are compared with the programs original monetary or land management objectives to determine the success of the programs and to provide feedback for improvement.     

NEW FEDERAL SUPPORT FOR PRIORITY WATERSHED MANAGEMENT NEEDS1

ABSTRACT: In the past five years, USDA and EPA programs became major players in implementing watershed programs. The 1996 Farm Bill for the first time required that USDA assistance for farmers address priority environmental needs on a site‐specific, or watershed, basis. USDA involves farmers and other players in locally run watershed programs and focuses cost share and incentive payments on nutrient planning, riparian protection, and other practices prioritized to most efficiently achieve watershed goals. As a result, USDA has become a funding source for environmental initiatives targeted to watersheds, as well as a technical resource that attempts to support more efficient use of federal and state environmental expenditures. Analysis identifies institutional and technical barriers to targeting the very limited, new assistance and suggests how those barriers are being addressed by some innovative programs. Since Total Maximum Daily Load (TMDL) and other state run programs face many of the same challenges of ranking watersheds, setting goals, and finding cost effective remedies, this paper identifies a very close fit between the new federal programs and other watershed programs.     

DAD IS OUT,POP IS IN1

ABSTRACT: Two major challenges face today's water professionals. The first is finding solutions to increasingly complicated water resources problems. The second challenge is nontechnical. It is effective interaction with the public recognizing both the public's increasingly elevated goals relative to water and the public's growing understanding of water science and technology. The traditional DAD approach, that is, decide-announce-defend, is no longer appropriate. The much more progressive, and inclusive POP approach, that is, public owns project, is more likely to be effective given the changing nature of the public's expectations and knowledge. A water resources planning or design effort that fails to include a public interaction program plans to fail. Described in this paper are three suggested objectives of the POP approach, namely demonstrating awareness, gathering supplemental data and information, and building a base of support. Having established specific objectives for a particular water resources project, appropriate public interaction programs and events must be selected, scheduled, and implemented. Many and varied programs and events are described in the paper.     

Soil conservation policy in the United States

Soil conservation has been a matter of federal natural resource policy for over a half century in the United States. A variety of federal programs have been undertaken to encourage soil conservation. There are goals which are essential to these programs, and there are related ancillary programs with different goals which often have had an impact on the extent to which the central soil conservation objectives have been effectively implemented. This article analyzes four aspects of federal soil conservation goals and programs: the evolution of the constellation of soil conservation goals, the problems with goal implementation, implementation effectiveness, and the appropriateness of the implementation and administration of federal goals.     

The role of agency goals and local context in Great Lakes water resources public involvement programs

As complex social phenomena, public involvement processes are influenced by contextual factors. This study examined agency goals for public involvement and assessed the importance of local context in remedial action planning, a community-based water resources program aimed at the cleanup of the 42 most polluted locations in the Great Lakes Basin. Agency goals for public involvement in remedial action plans (RAPs) were agency-oriented and focused on public acceptance of the plan, support for implementation, and positive agency-public relations. Corresponding to these goals, citizen advisory committees were created in 75% of the RAP sites as a primary means for public input into the planning process. Factors that influenced the implementation of public involvement programs in remedial action planning included public orientation toward the remediation issue, local economic conditions, the interaction of diverse interests in the process, agency and process credibility, experience of local leadership, and jurisdictional complexity. A formative assessment of “community readiness” appeared critical to appropriate public involvement program design. Careful program design may also include citizen education and training components, thoughtful management of ongoing agency-public relations and conflict among disparate interests in the process, overcoming logistical difficulties that threaten program continuity, using local expertise and communication channels, and circumventing interjurisdictional complexities.     

Can Local Voluntary Environmental Programs “Work”? An Examination of Fort Collins’ (Colorado) Climate Wise Program

Previous research on voluntary environmental programs (VEPs) frequently assesses the effectiveness of federal, state, and third party programs and why organizations seek to join such programs. Yet, research has yet to evaluate the effectiveness or firm motivation relative to local VEPs. Recognizing this gap, our paper examines the structure and organization of Fort Collins’ Climate Wise program, a local VEP. Using a variety of sources, we find that the program has successfully met both short- and long-term goals by persistently self-evaluating and seeking outside financial support. Findings from this analysis can aid in understanding and developing local VEPs elsewhere. Specifically, this initial research suggests that local VEPs need to consider local context and available resources when implementing such programs. Furthermore, it is possible for local VEPs to attract a diverse variety of participating firms by avoiding one-size-fits-all participation levels and by establishing a sense of ownership among partners.     

Evaluating public participation in environmental decision-making: EPA's superfund community involvement program

This article discusses an 8-year, ongoing project that evaluates the Environmental Protection Agency's Superfund community involvement program. The project originated as a response to the Government Performance and Results Act, which requires federal agencies to articulate program goals, and evaluate and report their progress in meeting those goals. The evaluation project assesses how effective the Superfund community involvement program is in promoting public participation in decisions about how to clean up hazardous wastes at Superfund sites. We do three things in the article: (1) share our experience with evaluating an Agency public participation program, including lessons learned about methods of evaluation; (2) report evaluation results; and (3) address a number of issues pertaining to the evaluation of public participation in environmental decision-making. Our goal is to encourage more environmental managers to incorporate evaluation into their public participation programs as a tool for improving them. We found that written mail surveys were an effective and economical tool for obtaining feedback on EPA's community involvement program at Superfund sites. The evaluation focused on four criteria: citizen satisfaction with EPA information about the Superfund site, citizen understanding of environmental and human health risks associated with the site, citizen satisfaction with opportunities provided by EPA for community input, and citizen satisfaction with EPA's response to community input. While the evaluation results were mixed, in general, community members who were most informed about and involved in the cleanup process at Superfund sites generally were also the most satisfied with the community involvement process, and the job that EPA was doing cleaning up the site. We conclude that systematic evaluation provides meaningful and useful information that agencies can use to improve their public participation programs. However, there need to be institutionalized processes that ensure evaluation results are used to develop and implement strategies for improvement.     

Planning for Water Quality: Implementation of the NPDES Phase II Stormwater Program in California and Kansas

In the United States, the federal government is increasingly relying on local governments to implement policies that address the nation's lingering environmental problems. Yet, little is known about the factors that influence local level implementation of a federal mandate. This paper explores local government response to the NPDES Phase II Stormwater Program in California and Kansas by investigating local conditions, perceptions of the federal program, and implementer characteristics. The study found that fiscal resources, a well-educated public, positive perceptions of the federal policy, and co-operative planning efforts lead to better compliance with the mandate and a higher quality response.     

WATER RESOURCE MANAGEMENT-PLANNING FOR ACTION1

ABSTRACT: Proper planning of water resource management programs is the essential ingredient for effective decision-making. Increasing demands on our finite water resources make it more vital that programs get off the shelf and are acted upon. There is a gap between our intentions for and OUI results from the planning process. We should examine our failures, identify causes, and learn from them. One of the primary causes is failure to identify the potentials of the implementing agencies early in the planning process. These agencies constitute a hierarchy of governmental units at national, state, regional and local levels. Each of these levels has its own interests, point of view, capabilities and constraints. A plan which is technically and functionally sound can fail as a program if these conflicting interests are not accounted for. The implementation mechanisms must be identified as an initial phase of the planning process. All levels of the governmental hierarchy must be involved throughout the planning process. The successful plan must also provide for suitable assignment of responsibilities which are accepted by the executing agency and monitored for satisfactory fulfillment. Consistency and continuity of the advocate agency are further essential elements to the success of the plan. Experience in water resource management planning has shown that these strategies will produce programs which are accepted, implemented and accomplish the goals and objectives of the planning process.     

A MATHEMATICAL MODEL FOR EVALUATING THE POTENTIAL OF DESALTING1

ABSTRACT The Office of Saline Water, which has federal responsibility for developing low-cost, saline sources of fresh water, has recognized the need for an improved method of forecasting the future potential of desalting in this country. The magnitude of the role of desalting will influence the plans of federal, state, and local water resource agencies and the research and development programs of manufacturers. A dynamic simulation model has been developed by Arthur D. Little, Inc. under contract by OSW to translate relevant factors of water supply and demand into a forecast of desalting potential. The model projects the needs for desalting in 20 hydrologic regions of the U.S. Model performance has thus far been demonstrated by the development of a forecast and a battery of related sensitivity tests. Current results indicate the following potential desalting capacities: 225 MGD in 1980; 2,250 MGD in 2000; and 7,000 MGD in 2020. Significant improvements in desalting economics promise to increase these potentials by a factor of four or five by 2000-2020. Model inputs and results are continuing to be refined. When completed, OSW will have a dynamic tool with which to guide its R&D program.     

Multiple Species Habitat Conservation Planning: Goals and Strategies of Local Governments

Drawing from experiences gained from the development and implementation of four approved habitat conservation plans (HCPs), I describe the goals and strategies used by the nine local government members of the Riverside County Habitat Conservation Agency (RCHCA) to reconcile conflicts among a rapidly growing population and the need to conserve the habitat of a number of declining wildlife species in western Riverside County, California. Several important goals have been pursued by RCHCA member governments in their sponsorship of multiple-species habitat conservation plans (MSHCPs), including (1) establishing certainty and control over future uses of land; (2) eliminating project-by-project negotiations with federal and state wildlife agencies; (3) coordinating mitigation obligations under the Endangered Species Act, Clean Water Act, California Environmental Quality Act, and other federal and state laws; (4) reducing conflict and litigation resulting from land development activities; and (5) ensuring that wildlife conservation activities are conducted in a manner that permits local governments to perform those functions necessary to maintain public health, safety, and welfare. I also describe the emergence of strategies by local governments to achieve MSHCP goals, including (1) use of an inclusive planning process that seeks to build consensus among affected interests; (2) extensive involvement of federal and state wildlife agencies in the preparation of MSHCP documents; (3) management of public lands to support MSHCP conservation objectives; (4) encouragement of voluntary conservation by private property owners through incentive programs; and (5) active solicitation of federal and state funding for MSHCP implementation activities.     

DESIGN AND IMPLEMENTATION OF A COOPERATIVE WATER QUALITY MONITORING PROGRAM IN COLORADO'S BIG THOMPSON WATERSHED1

ABSTRACT: In 1996, the Big Thompson Watershed Forum (BTWF) was formed “to assess and protect the quality of water” in the Big Thompson Watershed in northern Colorado. However, until 1999, water quality monitoring in the watershed was performed by many state, local, and federal agencies with no coordination among programs and with few efforts toward efficiency, data comparability, or information exchange. To better meet the needs of its stakeholders, the BTWF since 1999 has been actively pursuing the design and implementation of a cooperative water quality monitoring program. The program design involved consensus building among the funding participants, primarily drinking water providers. The final design included 38 parameters to be sampled 15 times per year at 24 stream and canal locations plus two reservoirs. Although the collaborative consensus based approach has been successful for the BTWF, this approach has its drawbacks; most notable among these are the time and labor this approach requires. Also, the BTWF struggled with achieving equal representation of all interests, since those agencies that provided funding had the greatest voice in the final product. While a collaborative approach may not always be best for monitoring program design, it should be appropriate for many watershed organizations that face the common problem of severe financial constraints.     

A SYSTEMS RESOURCES APPROACH TO CITIZEN PARTICIPATION: THE CASE OF THE CORPS OF ENGINEERS1

ABSTRACT: The thesis of this paper is that the citizen participation process provides necessary, but not sufficient conditions to affect substantive change in federal water resource management agencies' planning and decisionmaking. That is, in its present form, the citizen participation process has been observed to occur outside of the normal decision arenas of federal resource management agencies. The paper reviews concepts of citizen participation and defines some theoretical problems inherent with them. Then, a strategy for the structuring of a citizen participation process is proposed. This strategy is based upon the notion that citizen support for federally sponsored programs are essential if such projects are to be implemented. Therefore, an approach which integrates citizen valves with those held by other institutions and the agency is suggested. In conclusion, the relevancy of actively developing and including citizen input to the water resource planning process is illustrated by a discussion of three cases of the Corps of Engineers and Urban Studies planning process, in different metropolitan regions.     

UNIVERSITY STUDENTS IMPLEMENT PUBLIC POLICY RURAL COMMUNITY ACTION WITH A WATER DEVELOPMENT PROJECT1

ABSTRACT: This report summarizes the findings of a ten week study made by the eight member Urban and Environmental Studies Program student staff of the Rock Creek Area Community Projects Board to assist the Village in its search for funds to improve its inadequate water and sewage systems. The ten year history of the Village of Rock Creek in its previous attempts to secure funding from outside sources is summarized. An analysis of federal funding programs’criteria is developed. Recommendations and a step by step analysis of how to precure these funds by the Village Council is presented. This report highlights the ten week activity which successfully produced earmarked federal funds for the Village's water project.     

INTEGRATED WATERSHED MANAGEMENT ON THE TRUCKEE RWER IN NEVADA1

ABSTRACT: The Truckee River is a vitally important water source for eastern California and western Nevada. It runs 100 miles from Lake Tahoe to Pyramid Lake in the Nevada desert and serves urban populations in greater Reno-Sparks and agricultural users in three Nevada counties. In the 1980s and 1990s, a number of state and local groups initiated projects which, taken collectively, have accomplished much to improve watershed management on the Truckee River. However, the task of writing a management plan for the entire watershed has not yet been undertaken. Key players in state, federal and local government agencies have instead chosen to focus specific improvement efforts on more manageable, achievable goals. The projects currently underway include a new agreement on reservoir operation, restoration of high priority sub-watersheds, public education and involvement, water conservation education, and water resource planning for the major urban population centers. The approach which has been adopted on the Truckee River continues to evolve as more and more people take an interest in the river's future. The many positive projects underway on the watershed are evaluated in terms of how well they meet the definition of the ambitious water resources strategy, “integrated watershed management.”     

USE OF DELPHI METHODOLOGY TO ASSESS GOALS AND SOCIAL IMPACTS OF A WATERSHED PROJECT1

ABSTRACT: The major objective is to report the way the Delphi methodology was employed in an environmental study aimed at identifying and ranking goals and social impacts of Cooper Dam and Reservoir Project located in the East Texas area. The Delphi procedures were modified to accommodate the nature of social field under study. Data were collected through personal interviews from twenty-seven respondents representing the government agency responsible for planning the Project and three communities geographically contiguous to the project. The respondents were provided an initial list of the Project's goals and social impacts and were asked to rank them in terms of degree of importance and to add to the list other goals and impacts that they would consider necessary. Respondents were interviewed in two successive rounds. Data show that on the whole the Delphi procedures were helpful in action analysis of the Project by identifying and ranking its goals and social impacts in terms of selected criteria.     

Scale and Scope in Municipal Energy Planning in Sweden

The present course of municipal energy planning in Sweden is to focus on problems at the local level, adopting a systems view and targeting sustainability. Aims should be set so that they can be covered by available financial resources. The setting of goals and their realization demand co-operation between different municipal administrations as well as the involvement of others in the region. This approach is attractive from a rational perspective but involves the usual planning quandaries as illustrated by Uppsala's recent plan. The weaknesses of the present course include breaking down national goals into local problems, integrating responsibilities and weighing alternatives against one another. A general strength of planning appears to be its capacity to generate alternatives. However, this capacity depends on the order in which technological, economic and ecological aspects are handled. Starting by considering environmental aspects gives a clear direction but risks narrowing the number of options prematurely.     

NEW REQUIREMENTS FOR LOCAL UNITS OF GOVERNMENT IN WATER RESOURCES PLANNING: INSIGHTS FOR IMPLEMENTATION FROM RECENT WATER RESOURCES PLANNING RESEARCH1

ABSTRACT: Recent Federal and some State legislation has enlarged the scope of permitted or required actions of local units of government in water resources management and protection. Much of the legislation encourages local units of government to introduce water resources planning measures which will be preventive instead of corrective. Extensive public works measures, environmental destruction and the threat to human life can thus be eliminated or reduced. Research has developed and tested a method for identifying the elements of a water resources protection program for small urbanizing watersheds which was technically adequate and socially acceptable to the communities implementing such programs. Research results suggest that deliberate efforts will be necessary to inform and educate local units of government as to the usefulness of the legislation; and that the program must reflect local natural resource conditions and local preferences for the method of accomplishing the protection. Successful implementation could be restrained by inertia of local units of government, a lack of tradition in such programs, and hostile existing agencies.