The use of recreation planning tools in U.S. Forest Service NEPA assessments

U.S. Forest Service managers are required to incorporate social and biophysical science information in planning and environmental analysis. The use of science is mandated by the National Environmental Policy Act, the National Forest Management Act, and U.S. Forest Service planning rules. Despite the agency’s emphasis on ‘science-based’ decision-making, little is known about how science is actually used in recreation planning and management. This study investigated the perceptions of Forest Service interdisciplinary (ID) team leaders for 106 NEPA projects dealing with recreation and travel management between 2005 and 2008. Our survey data show how managers rate the importance of social and biophysical science compared to other potential ‘success factors’ in NEPA assessments. We also explore how team leaders value and use multi-disciplinary tools for recreation-related assessments. Results suggest that managers employ a variety of recreation planning tools in NEPA projects, but there appears to be no common understanding or approach for how or when these tools are incorporated. The Recreation Opportunity Spectrum (ROS) was the most frequently used planning tool, but the Visitor Experience and Resource Protection (VERP) framework was the most consistently valued tool by those who used it. We recommend further evaluation of the strengths and weaknesses of each planning tool and future development of procedures to select appropriate planning tools for use in recreation-related NEPA assessments.     

The meaning of the National Environmental Policy Act within the U.S. Forest Service

We conducted a survey of 3321 Forest Service employees involved in compliance with the National Environmental Policy Act (NEPA) followed by five focus groups to investigate agency views of the purpose of agency NEPA processes and their appropriate measures of success. Results suggest the lack of a unified critical task for Forest Service NEPA processes and that employees' functions relevant to NEPA influence their views of its meaning. Compared to other agency personnel, members of interdisciplinary teams who carry out most day-to-day NEPA-related tasks placed greater emphasis on minimizing negative environmental and social impacts, satisfying multiple stakeholders and avoiding litigation and appeals. Line officers, who typically serve as the decision makers following NEPA processes, placed greatest emphasis on efficient implementation and least emphasis on minimizing impacts. Advisory personnel placed greatest emphasis on effective disclosure of analyses and decision-making. We discuss the structural origins of these differences as well as their implications.     

Guidelines and Techniques for Improving the NEPA Process

/ The Council on Environmental Quality's (CEQ's) principal aims in implementing the National Environmental Policy Act (NEPA) are (1) to reduce paperwork, (2) to avoid delay, and most importantly (3) to produce better decisions that protect, restore, and enhance the environment. This paper presents four strategies for improving the NEPA process along with tools that can be used to implement each strategy. The tools include guidelines for project management and problem definition, tips for acquiring existing information and identifying issues of public concern, worksheets on how to identify and analyze potential impacts on resources, ideas for enhancing NEPA documents, and a NEPA process checklist. The tools can be used at various stages of the NEPA process and provide a toolbox of guidelines and techniques to improve implementation of the NEPA process by focusing the pertinent information for decisionmakers and stakeholders. KEY WORDS: National Environmental Policy Act; NEPA; Environmental impact assessment; Ecosystem management     

Forest service experience with interdisciplinary teams developing integrated resource management plans

The National Forest Management Act and National Environmental Policy Act require the use of an interdisciplinary team (ID team) to do integrated resource planning for the National Forests and the concurrent environmental analysis. A survey sent to all National Forest planning officers (82% response) reveals the composition of the ID teams used in integrated resource and land management planning. More than half the National Forests ID teams met NEPA and NFMA compositional requirements. National Forest planners recount their experiences with these ID teams. Despite frustrations with many aspects of the ID teams, the planners strongly support the idea that ID teams are an important part of the land-use planning process and think that their use leads to better National Forest integrated resource plans.     

Implementing Ecosystem-basedManagement: Lessons from the Great Lakes

Under the US-Canada Great Lakes Water Quality Agreement, a Remedial Action Plan (RAP) Program was formalized to identify and implement actions needed to restore beneficial uses in the most polluted areas of the Great Lakes (i.e. Areas of Concern). It was further required that individual RAPs embody a systematic and comprehensive ecosystem approach (i.e. an approach which accounts for interrelationships among land, air, water and all living things, including humans, and involves user groups in comprehensive management). Careful review and analysis of the RAP Program offers an opportunity to gain a better understanding of ecosystem-based management for other watersheds, and to identify important principles and elements which contribute to effective implementation. Principles which are considered essential for effective implementation of ecosystem-based management include: (1) broad-based stakeholder involvement; (2) commitment of top leaders; (3) agreement on information needs and interpretation; (4) action planning within a strategic framework; (5) human resource development; (6) results and indicators to measure progress; (7) systematic review and feedback; and (8) stakeholder satisfaction. The Great Lakes RAP experience with ecosystem-based management also demonstrates the need for a transition from a traditional,command-and-control,regulatory approach of governmentalagencies toward a more co-operative,value-added,support-basedrole. Review of RAPs in all 42 Areas of Concern provides compelling evidence that successful application of ecosystem-based management is dependent on broad-based stakeholder involvement in decision making, along with strong partnerships which encourage collaboration, co-operation and adaptability in management actions.     

Managing stormwater for urban sustainability: an evaluation of local comprehensive plans in the Chesapeake Bay watershed region

This study uses a developed plan coding protocol in evaluating the quality of 76 comprehensive plans to examine whether local comprehensive plans have adequately integrated the concepts of sustainable stormwater management. The Chesapeake Bay watershed was chosen for the investigation because degraded stormwater runoff from nearby urban and suburban jurisdictions have critically polluted the watershed. The findings indicate that the majority of local governments have not sufficiently incorporated the sustainable stormwater management principles into their comprehensive plans. Five plan components (factual basis, goals and objectives, inter-organizational cooperation, policies, tools and strategies, and implementation) appear weak in realizing the concepts. The current study concludes by providing policy implications and recommendations to increase awareness and understanding of sustainable stormwater management concepts and to produce better implementation plans that integrate stormwater, ecosystem, and environmental planning comprehensively.     

Sustainable coastal resources management: principles and practice

Coastal zones are currently experiencing intense and sustained environmental pressures from a range of driving forces. Responsible agencies around the globe are seeking ways of better managing the causes and consequences of the environmental change process in coastal areas. This article discusses the basic principles underpinning a more integrated approach to coastal management, as well as the obstacles to its implementation in both developed and developing countries. The fulfilment of the goal of sustainable utilisation of coastal resources via integrated management is likely to prove to be difficult. Any successful strategy will have to encompass all the elements of management from planning and design through financing and implementation. An interdisciplinary analytical and operational approach is also required, combined with a more flexible and participatory institutional structure and emphasis to account for multiple stakeholders and resource demands. As historical and institutional perspectives as well as socio-economic and cultural contexts are also important, two case studies (based on UK and Vietnamese experiences) are presented in order to identify arguments and examine these aspects in more detail.     

‘Learning by doing’: adaptive planning as a strategy to address uncertainty in planning

Adaptive management, an established method in natural resource and ecosystem management, has not been widely applied to landscape planning due to the lack of an operational method that addresses the role of uncertainty and standardized monitoring protocols and methods. A review of adaptive management literature and practices reveals several key concepts and principles for adaptive planning: (1) management actions are best understood and practiced as experiments; (2) several plans/experiments can be implemented simultaneously; (3) monitoring of management actions are key; and (4) adaptive management can be understood as ‘learning by doing’. The paper identifies various uncertainties in landscape planning as the major obstacles for the adoption of an adaptive approach. To address the uncertainty in landscape planning, an adaptive planning method is proposed where monitoring plays an integral role to reduce uncertainty. The proposed method is then applied to a conceptual test in water resource planning addressing abiotic-biotic-cultural resources. To operationalize adaptive planning, it is argued that professionals, stakeholders and researchers need to function in a genuinely transdisciplinary mode where all contribute to, and benefit from, decision making and the continuous generation of new knowledge.     

A strategy for integrating NEPA with EMS and ISO 14000

It is vital that federal managers consider new approaches for enhancing environmental protection while reducing redundancies and cost. Faced with increasing environmental issues, compliance requirements, competing resources, and tightened budget constraints, agencies must seek innovative approaches for doing more with less. The diverse array of confusing and sometimes inappropriate or conflicting regulatory requirements compounds compliance complexities and increases the need to seek resourceful solutions. At a time when NEPA is coming under closer congressional scrutiny, an integrated NEPA/EMS paradigm provides a key for increasing the effectiveness and uniformity of implementing NEPA at the early planning stage, while reducing cost, delays, and redundancies. Effectively integrated, NEPA satisfies one of the five, and perhaps most important, principles of an EMS-environmental planning. NEPA's regulatory requirements not only are consistent with the objective of an EMS, but actually enhance the effectiveness of an EMS. An integrated approach provides the added benefit of increased environmental coordination and heightened communications that translates into further cost reduction and fewer delays. The strategy described in this article is designed to balance the rigors of an international standard with the need to efficiently implement an integrated NEPA/EMS system, given a diverse set of challenging circumstances and constraints.     

Integrated Resource Management: Moving from Rhetoric to Practice in Australian Agriculture

/ Implementing the concept of sustainability through integrated approaches to natural resource management poses enormous challenges for both the rural communities and government agencies concerned. This paper reviews the underlying rhetoric of sustainable agricultural systems and the integrated resource management paradigm and identifies some of the challenges being experienced in translating this rhetoric into practice. A relatively recently implemented community-based integrated catchment management (ICM) process in a rural community in northeast Australia is examined in terms of some of the lessons learned that may be relevant to other similar integrated resource management (IRM) processes. It reveals a pragmatic, opportunistic, and evolving implementation process based on adaptive learning rather than a more traditional "rational" planning approach. Some essential characteristics of a community-based IRM process are identified, including fostering communication; providing a structure that fosters cooperation and facilities coordination among community, industry, and government agencies; the integration of IRM principles into local government planning schemes; and an emergent strategic approach to IRM program implementation. We conclude by identifying some essential characteristics of an IRM process that can assist a community to adapt to, and manage change for, sustainable resource use.     

Risk Tradeoffs in Adaptive Ecosystem Management: The Case of the U.S. Forest Service

Natural resource planning processes on public lands in the United States are driven in large part by the requirements of the National Environmental Policy Act (NEPA), which dictates general processes for analyzing and disclosing the likely impacts of proposed actions. The outcomes of these processes are the result of multiple factors, many related to the manifold smaller incremental decisions made by agency personnel directing the processes. Through interviews with decision makers, team leaders, and team members on five NEPA processes within the U.S. Forest Service, this study examines those incremental decisions. Risk, in particular external relationship risk, emerged as a dominant lens through which agency personnel weigh and make process-related decisions. We discuss the tradeoffs associated with agency actors’ emphasis on this form of risk and their potential implications for adaptive ecosystem management and organizational performance.     

From the office to the field: Areas of tension and consensus in the implementation of the National Environmental Policy Act within the US Forest Service

We conducted an online survey (n = 3321) followed by five focus groups with Forest Service employees involved in compliance with the National Environmental Policy Act (NEPA) to explore agency views of how NEPA should be implemented within the agency. We filter these perceptions through the lenses of different functional groups within the agency, each with its own role in agency compliance with NEPA and its own suite of perceived accountabilities. In doing so, we uncover areas of consensus regarding valued practices as well as tensions between employees with different roles in NEPA compliance. General consensus exists regarding the importance of the effective functioning of interdisciplinary teams, but opinions about what constitutes an effective team vary. Findings suggest that NEPA serves as a playing field for competing accountabilities felt by line officers, disciplinary specialists, and advisory personnel within the agency, as each attempts to exert influence over NEPA processes and their outcomes.     

Environmental Impact Assessment Under the National Environmental Policy Act and the Protocol on Environmental Protection to the Antarctic Treaty

US government actions undertaken in Antarctica are subject to the requirements of both the Protocol and the US National Environmental Policy Act (NEPA). There are differences in the scope and intent of the Protocol and NEPA; however, both require environmental impact assessment (EIA) as part of the planning process for proposed actions that have the potential for environmental impacts. In this paper we describe the two instruments and highlight key similarities and differences with particular attention to EIA. Through this comparison of the EIA requirements of NEPA and the Protocol, we show how the requirements of each can be used in concert to provide enhanced environmental protection for the antarctic environment. NEPA applies only to actions of the US government; therefore, because NEPA includes certain desirable attributes that have been refined and clarified through numerous court cases, and because the Protocol is just entering implementation internationally, some recommendations are made for strengthening the procedural requirements of the Protocol for activities undertaken by all Parties in Antarctica. The Protocol gives clear and strong guidance for protection of specific, valued antarctic environmental resources including intrinsic wilderness and aesthetic values, and the value of Antarctica as an area for scientific research. That guidance requires a higher standard of environmental protection for Antarctica than is required in other parts of the world. This paper shows that taken together NEPA and the Protocol call for closer examination of proposed actions and a more rigorous consideration of environmental impacts than either would alone. Three areas are identified where the EIA provisions of the Protocol could be strengthened to improve its effectiveness. First, the thresholds defined by the Protocol need to be clarified. Specifically, the meanings of the terms “minor” and “transitory” are not clear in the context of the Protocol. The use of “or” in the phrase “minor or transitory” further confuses the meaning. Second, cumulative impact assessment is called for by the Protocol but is not defined. A clear definition could reduce the chance that cumulative impacts would be given inadequate consideration. Finally, the public has limited opportunities to comment on or influence the preparation of initial or comprehensive environmental evaluations. Experience has shown that public input to environmental documents has a considerable influence on agency decision making and the quality of EIA that agencies perform.     

NEW APPROACHES TO COMPREHENSIVE PLANNING IN CANADA1

ABSTRACT. In 1970, the Canadian Federal Government passed the Canada Water Act which provides for a co-operative federal-provincial approach to water resource management. The purpose of this paper is to outline our definition of comprehensive planning and the approach being taken under the new legislation. Two basic premises underly the definition. They are that resource management consists of an array of problems and that the prime function of planning is to provide information for decision making. The definition of comprehensive planning is embodied in a general statement and a set of principles. The principles define the approach that should be taken to provide adequate information for decision making in today's complex environment. A brief resume of the jurisdictions for water management in Canada leads to a discussion of a joint federal-provincial comprehensive study of the Qu'Appelle River Basin in Southern Saskatchewan. The basin and the study are described briefly. This is followed by an outline of the economic and social considerations which are being incorporated into the comprehensive planning study for the basin.     

Development and application of an ecosystem management approach for protected natural areas

Preservation of small natural areas is not in itself a sufficient measure to maintain the integrity of the ecosystems for which they were initially set aside. Intense pressure from recreational use is just one of the many human-caused stresses that may degrade natural areas. Therefore, land-use planning and management from an ecological perspective is necessary to assess, ensure, and in some cases increase, the ecological integrity of protected natural areas. An ecosystem management approach for small protected natural areas with high recreational use is presented, based on three interrelated components: an ecological evaluation procedure of ecosystems, the implementation of management interventions on ecosystems, and the development of a monitoring scheme of ecosystem components. The ecological evaluation procedure combines two concepts: the biotic value of vegetation and wildlife and the abiotic fragility of the soils. This combined evaluation process results in the creation of a sensitivity map that can be used as a management tool for planners and managers. Management interventions, the second component of the management approach, are derived from concepts of ecological succession. Intentional human interventions are used to maintain the ecological integrity of ecosystems or in some cases to restore degraded sites. For the third component, only the basic principles of the monitoring program will be discussed. A pilot project in one of the Montreal urban community protected areas is presented to illustrate aspects of the proposed ecosystem management approach.     

Forest Management Systems Evaluation: Using ISO14000

Sustainable forest management (SFM) or ecosystem management is now the stated goal of forest managers in most countries. SFM takes a longer-term, broader perspective on forest values than timber production or the narrow multiple use regimes of the past. As a result of international activities including the International Tropical Timber Organization, the Ministerial Council on Protection of Forests in Europe and the Montreal Process for temperate and boreal forests outside Europe, there are now sufficiently specific and agreed principles, criteria and indicators (C&I) to guide policy makers towards SFM. To achieve SFM requires holistic assessments of forest management systems in terms of these C&I to ensure the delivery of sustainable outcomes across forest regions. This paper focuses on the implementation of SFM as defined by the C&I, and, in particular, how to identify needed reforms in forest management systems. The paper explains and evaluates the International Standards Organization's (ISO's) environmental management systems (EMS) ISO14000/EMS approach adopted for this purpose in Australia to assess the adequacy of forest management systems. The approach was applied as a key element in the regional forest agreements prepared to meet the Australian National Forest Policy Statement. The ISO14000/EMS, in conjunction with the SFM criteria, provides a systematic approach to assessing forest management systems to reveal the adequacy of the legislative, planning, implementation, monitoring and review of all-tenure forest management as required by SFM.     

Developing green infrastructure ‘thinking’: devising and applying an interactive group-based methodology for practitioners

Recent years have witnessed a wave of interest in the concept of green infrastructure (GI) as a means of applying an ecosystem approach to spatial planning practice; however, more limited attention has been paid to decision-making processes or tools to enhance GI within spatial plans and guidance. We address this deficit by reporting on the development and application of an interactive group-based methodology to enhance GI ‘thinking’ and interdisciplinary collaboration, drawing on the literature on the sociology of interactions. Our findings suggest that a game-based approach to GI problem-solving was successful in breaking down professional barriers by creating an informal learning arena, providing an enabling opportunity for participants to solve problems in an iterative, non-linear style to develop principles for action with transferability to ongoing plan formation. This style of problem-solving was characterised by shifting norms and routines of interaction, leading to problem re-framing and a search for alternative solutions.     

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.     

Coupling ecosystem science with management: A Great Lakes perspective from Green Bay,Lake Michigan,USA

Continued resource degradation in various areas of the Great Lakes has led to doubts of the adequacy of conventional science and management approaches. The need for a more holistic approach, identified as an ecosystem approach, appears now to be more widely accepted although progress with implementation is slow. We argue here that ecosystem science is an integral part of an ecosystem approach and is a prerequisite to effective management planning.One of the problems of implementing an ecosystem approach is forging the link between ecosystem based research and management. For Green Bay, Wisconsin, USA, certain structural and functional qualities of the ecosystem have been used to define operational guides and to formulate management objectives. These objectives are being utilized in the development of a remedial action plan for Green Bay.Deceased 5 February 1986.     

An evaluation paradigm for cumulative impact analysis

Cumulative impact analysis is examined from a conceptual decision-making perspective, focusing on its implicit and explicit purposes as suggested within the policy and procedures for environmental impact analysis of the National Environmental Policy Act of 1969 (NEPA) and its implementing regulations. In this article it is also linked to different evaluation and decision-making conventions, contrasting a regulatory context with a comprehensive planning framework. The specific problems that make the application of cumulative impact analysis a virtually intractable evaluation requirement are discussed in connection with the federal regulation of wetlands uses. The relatively familiar US Army Corps of Engineers' (the Corps) permit program, in conjunction with the Environmental Protection Agency's (EPA) responsibilities in managing its share of the Section 404 regulatory program requirements, is used throughout as the realistic context for highlighting certain pragmatic evaluation aspects of cumulative impact assessment.To understand the purposes of cumulative impact analysis (CIA), a key distinction must be made between the implied comprehensive and multiobjective evaluation purposes of CIA, promoted through the principles and policies contained in NEPA, and the more commonly conducted and limited assessment of cumulative effects (ACE), which focuses largely on the ecological effects of human actions. Based on current evaluation practices within the Corps' and EPA's permit programs, it is shown that the commonly used screening approach to regulating wetlands uses is not compatible with the purposes of CIA, nor is the environmental impact statement (EIS) an appropriate vehicle for evaluating the variety of objectives and trade-offs needed as part of CIA. A heuristic model that incorporates the basic elements of CIA is developed, including the idea of trade-offs among social, economic, and environmental protection goals carried out within the context of environmental carrying capacity.