Governing Change: Land-Use Change and the Prevention of Nonpoint Source Pollution in the North Coastal Basin of California

Many rural areas in the United States and throughout much of the postindustrial world are undergoing significant ecological, socioeconomic, and political transformations. The migration of urban and suburban dwellers into rural areas has led to the subdivision of large tracts of land into smaller parcels, which can complicate efforts to govern human–environmental problems. Non-point source (NPS) pollution from private rural lands is a particularly pressing human–environmental challenge that may be aggravated by changing land tenure. In this article, I report on a study of the governance and management of sediment (a common NPS pollutant) in the North Coastal basin of California, a region undergoing a transition from traditional extractive and agricultural land uses to rural residential and other alternative land uses. I focus on the differences in the governance and management across private timber, ranch, residential, vacation, and other lands in the region. I find that (1) the stringency and strength of sediment regulations differ by land use, (2) nonregulatory programs tend to target working landscapes, and (3) rural residential landowners have less knowledge of sediment control and report using fewer sediment-control techniques than landowners using their land for timber production or ranching. I conclude with an exploration of the consequences of these differences on an evolving rural landscape.     

Tasmanian landowner preferences for conservation incentive programs: a latent class approach

An empirical model of landowners' conservation incentive program choice is developed in which information about landowners' socio-economic and property characteristics and their attitudes, is combined with incentive program attributes. In a Choice survey landowners were presented with the choice of two incentive programs modelled as 'bundles of attributes' mimicking a voluntary choice scenario. Landowner behaviour and decision and the type of conditions and regulations they preferred were analyzed. Based on choice survey data, landowner heterogeneity was accounted for using a latent class approach to estimate the preference parameters. Three latent classes of landowners with different attitudes to the role and outcome of establishing conservation reserves on private land were identified: multi-objective owners; environment owners; and production owners. Only a small proportion of landowners, mostly environment owners, would voluntarily join a program. Although compensation funding contributed to voluntary program choice for multi-objective owners and environment owners, welfare losses were around 4000 AUD per hectare, which is less than the average agricultural land value in Tasmania. Landowners for whom compensation funding contributed to voluntary program choice were also most likely to set aside land for conservation without payment. This raises the possibility that the government's compensation expenditure could potentially be either reduced or re-allocated to landowners who will not voluntarily take conservation action. Increasing participation in conservation incentive programs and minimizing the welfare losses associated with meeting conservation targets may be best achieved by offering programs that allow flexibility in terms of legal arrangements and other program attributes.     

Resource Selection Probability Functions for Gopher Tortoise: Providing a Management Tool Applicable Across the Species’ Range

The gopher tortoise (Gopherus polyphemus) is protected by conservation policy throughout its range. Efforts to protect the species from further decline demand detailed understanding of its habitat requirements, which have not yet been rigorously defined. Current methods of identifying gopher tortoise habitat typically rely on coarse soil and vegetation classifications, and are prone to over-prediction of suitable habitat. We used a logistic resource selection probability function in an information-theoretic framework to understand the relative importance of various environmental factors to gopher tortoise habitat selection, drawing on nationwide environmental datasets, and an existing tortoise survey of the Ft. Benning military base. We applied the normalized difference vegetation index (NDVI) as an index of vegetation density, and found that NDVI was strongly negatively associated with active burrow locations. Our results showed that the most parsimonious model included variables from all candidate model types (landscape features, topography, soil, vegetation), and the model groups describing soil or vegetation alone performed poorly. These results demonstrate with a rigorous quantitative approach that although soil and vegetation are important to the gopher tortoise, they are not sufficient to describe suitable habitat. More widely, our results highlight the feasibility of constructing highly accurate habitat suitability models from data that are widely available throughout the species’ range. Our study shows that the widespread availability of national environmental datasets describing important components of gopher tortoise habitat, combined with existing tortoise surveys on public lands, can be leveraged to inform knowledge of habitat suitability and target recovery efforts range-wide.     

The geography of conflict between elk and agricultural values in the Cypress Hills, Canada

Complex ecological issues like depredation and its management are determined by multiple factors acting at more than one scale and are interlinked with complex human social and economic behaviour. Depredation by wild herbivores can be a major obstacle to agricultural community support for wildlife conservation. For three decades, crop and fence damage, competition with livestock for native rangeland and tame pasture, and depredation of stored feed by elk (Cervus elaphus canadensis) have been the cause of conflict with agricultural producers in the Cypress Hills, Alberta and Saskatchewan. Tolerance of elk presence on private lands is low because few benefits accrue to private landowners; rather they largely perceive elk as a public resource produced at their expense. Government management actions have focused on abatement inputs (e.g., population reduction; fencing) and compensation, but incentives to alter land use patterns (crop choice and location) in response to damages have not been considered. Nor has there been information on spatial structure of the elk population that would allow targeted management actions instead of attempting to manage the entire population. In this study we analysed the spatial structure of the Cypress Hills elk population, the distribution of the elk harvest in relation to agricultural conflicts, developed models of the spatial patterns of conflict fields, and evaluated compensation patterns for damage by wild herbivores. We propose modifications to current abatement and compensation programs and discuss alternative approaches involving changes to agricultural land use patterns that may reduce the intensity of conflicts with elk, and increase the acceptance capacity of landowners.     

Economic Incentives to Conserve Wildlife on Private Lands: Analysis and Policy

Some believe that provision of private property rights in wildlife on private land provides a powerful economic incentive for nature conservation because it enables property owners to market such wildlife or its attributes. If such marketing is profitable, private landholders will conserve the wildlife concerned and its required habitat. But land is not always most profitably used for exploitation of wildlife, and many economic values of wildlife (such as non-use economic values) cannot be marketed. The mobility of some wildlife adds to the limitations of the private-property approach. While some species may be conserved by this approach, it is suboptimal as a single policy approach to nature conservation. Nevertheless, it is being experimented with, in the Northern Territory of Australia where landholders had a possibility of harvesting on their properties a quota of eggs and chicks of red-tailed black cockatoos for commercial sale. This scheme was expected to provide an incentive to private landholders to retain hollow trees essential for the nesting of these birds but failed. This case and others are analysed. Despite private-property failures, the long-term survival of some wildlife species depends on their ability to use private lands without severe harassment, either for their migration or to supplement their available resources, for example, the Asian elephant. Nature conservation on private land is often a useful, if not essential, supplement to conservation on public lands. Community and public incentives for such conservation are outlined.     

Comanagement of wildlife corridors: the case for citizen participation in the Algonquin to Adirondack proposal

The debate between top-down and bottom-up planning has recently re-emerged in environmental management. Many commentators agree on the merits of comanagement, in which affected citizens and professional managers share responsibility for planning. Nevertheless, the manifold advantages of comanagement have not always been fully appreciated in environmental planning. For example, a group representing NGOs and academic institutions recently proposed an ecological corridor linking Algonquin Provincial Park in southern Ontario to the Adirondack Park in northern New York. This corridor, known as A2A, was designed to encourage the migration of wolves and other wildlife between the parks. Much of the land in A2A is private property. A survey of households, randomly scattered throughout the United States portion of the corridor, revealed that affected landowners had little knowledge of the proposal and no contact with its advocates. Many respondents were farmers who utilized land for livelihood. Other landowners enjoyed property for a variety of recreational purposes. Regardless of use, survey participants placed high value on the importance of conserving biological diversity. They also expressed great distrust toward restrictions that might be placed on their activities. In general, respondents felt very unsure about A2A, and they were uncertain about personal involvement in the planning process. Certain landowners indicated a willingness to have their land be included in an ecological corridor, despite not knowing about it before the survey was administered. These results suggest that A2A proponents have little to lose and much to gain by disseminating information locally and by embracing comanagement for further formulation of this plan.     

Prairie dog poisoning in northern Great Plains: An analysis of programs and policies

This paper describes the programs and policies regarding prairie dog control in the northern Great Plains states of Montana, South Dakota, and Wyoming. The poisoning programs of federal and state agencies are described, along with the statutes and legal mandates that shape agency management of prairie dogs. Current policies on National Grasslands and other federal lands typically limit prairie dogs to small percentages of available potential habitat, to the detriment of prairie dogs and associated species. State programs to assist landowners in prairie dog control differ greatly, employing cost-share incentives (Wyoming) and regulatory fines (South Dakota) to encourage the poisoning of prairie dogs. Prairie dog control is not actively funded or practiced by state or county agencies in Montana. We document federal and state involvement in more than 1 million acres of prairie dog poisoning in the study area during 1978–1992. In combination with undocumented poisoning by private landowners, plague, and shooting, prairie dogs may be experiencing net regional declines, contributing to the disintegration of the prairie dog ecosystem. We recommend that Animal Damage Control operations concerning prairie dogs be terminated, on the basis that they duplicate state programs and are at cross purposes with federal wildlife management programs that seek to perpetuate and/or recover wildlife species that depend on the prairie dog ecosystem. We further recommend that federal range improvement funds be offered as subsidies for the integration of prairie dogs in range management, as opposed to funding prairie dog eradication programs.     

The Maine Vernal Pool Mapping and Assessment Program: Engaging Municipal Officials and Private Landowners in Community-Based Citizen Science

The Vernal Pool Mapping and Assessment Program (VPMAP) was initiated in 2007 to create a vernal pool database as a planning tool to foster local compliance with new state vernal pool regulations. In the northeastern United States, vernal pools are seasonal wetlands that provide critical breeding habitat for a number of amphibians and invertebrates and provide important resting and foraging habitat for some rare and endangered state-listed species. Using participant observation, interviews, and focus groups, we examined the engagement of municipal officials and private landowners in VPMAP. Important outcomes of municipal and landowner engagement included mobilization of town support for proactive planning, improved awareness and understanding of vernal pools, and increased interactions between program coordinators, municipal officials, and private landowners. Challenges to municipal and landowner engagement included an inconsistency in expectations between coordinators and municipal officials and a lack of time and sufficient information for follow-up with landowners participating in VPMAP. Our study highlights the importance of developing relationships among coordinators, municipal officials, and private landowners in facilitating positive outcomes for all stakeholders and for effective resource management. We suggest an expanded citizen science model that focuses on improving two-way communication among project coordinators, municipal officials, and local citizens and places communication with private landowners on par with volunteer citizen scientist recruitment and field training. Lessons learned from this research can inform the design and implementation of citizen science projects on private land.     

Factors affecting private forest landowner interest in ecosystem management: linking spatial and survey data

Many factors influence forest landowner management decisions. This study examines landowner decisions regarding participation in ecosystem management activities, such as a landscape corridor cutting across their private lands. Landscape corridors are recognized worldwide as an important tool in biodiversity conservation. For ecosystem management activities to occur in areas dominated by a multitude of small private forest landholdings, landowner participation and cooperation is necessary. Data from a survey of landowners combined with an analysis of their land's spatial attributes is used to assess their interest in ecosystem management. Results suggest that spatial attributes are not good predictors of an owner's interest in ecosystem management. Other factors such as attitudes and opinions about the environment are more effective in explaining landowner interest. The results have implications for any land manager using GIS data and implementing ecosystem management activities on private forestland.     

Perceptions and attitudes of land managers in multi-tenure reserve networks and the implications for conservation

Multi-tenure reserve networks aim to connect areas managed for biodiversity conservation across public and private land and address the impacts of fragmentation on both biotic and social systems. The operation and function of Australian multi-tenure reserve networks as perceived by their land managers was investigated. Overall, the conservation of natural assets was the most frequently reported primary reason for involvement in a network. The perceived aims of the respective networks largely reflected the response identified for involvement and management. Over 88% of managers considered their involvement in multi-tenure reserve networks to be a positive or very positive experience. A lack of resources and time for management were considered major limitations of these networks. The majority (80%) of private land managers within networks were willing to be included in a national reserve system of conservation lands. As the Australian National Reserve System currently incorporates mostly public land, these findings have important and potentially positive implications for a greater role for protected private land.     

Managing a Subsidized Predator Population: Reducing Common Raven Predation on Desert Tortoises

Human communities often are an inadvertent source of food, water, and other resources to native species of wildlife. Because these resources are more stable and predictable than those in a natural environment, animals that subsist on them are able to increase in numbers and expand their range, much to the detriment of their competitors and species they prey upon. In the Mojave Desert, common ravens (Corvus corax) have benefited from human-provided resources to increase in population size precipitously in recent years. This trend has caused concern because ravens prey on juvenile desert tortoises (Gopherus agassizii), a federally threatened species. In this paper, I discuss management strategies to reduce raven predation on desert tortoises. The recommendations fall into three categories: (1) managing raven populations by reducing access to anthropogenic resources; (2) removing offending ravens or other birds in specially targeted tortoise management zones; and (3) continuing research on raven ecology, raven behavior, and methods of reducing raven predation on tortoises. I also recommend approaching the problem within an adaptive management framework: management efforts should first be employed as scientific experiments—with replicates and controls—to yield an unbiased assessment of their effectiveness. Furthermore, these strategies should be implemented in concert with actions that reduce other causes of desert tortoise mortality to aid the long-term recovery of their populations. Overall, the approaches outlined in this paper are widely applicable to the management of subsidized predators, particularly where they present a threat to a declining species of prey.     

Carrots and Sticks: New Brunswick and Maine Forest Landowner Perceptions Toward Incentives and Regulations

The governments of countries that allow private land ownership have two main tools to motivate landowner behavior: regulations and incentives. This research examines landowner preferences toward these policy tools and asks specifically: Do private forest landowners in New Brunswick and Maine believe that regulations and/or incentives are effective means to motivate responsible stewardship? Can landowners identify explicit regulations and policies that restrict property rights? Also, we were interested to see if any discernible differences existed between these adjacent jurisdictions from different countries, but that share similar forests and a similar settlement history. We identified and interviewed diverse landowners, recorded and transcribed our discussions, and analyzed the results using a grounded theory approach. Findings suggest that both New Brunswick and Maine participants are fairly comfortable with most regulations and many agreed that a combination of incentives and regulations are in fact useful. Furthermore, landowners in New Brunswick discussed non-monetary incentives as a mechanism to reward “good” stewardship; while Maine respondents articulated a degree of responsible stewardship that transcends a need to incentivize landowners. This study demonstrates that diverse landowners may be more comfortable with environmental regulations than previously understood and may be interested in non-monetary incentives.     

Projecting Large-Scale Area Changes in Land Use and Land Cover for Terrestrial Carbon Analyses

One of the largest changes in US forest type areas over the last half-century has involved pine types in the South. The area of planted pine has increased more than 10-fold since 1950, mostly on private lands. Private landowners have responded to market incentives and government programs, including subsidized afforestation on marginal agricultural land. Timber harvest is a crucial disturbance affecting planted pine area, as other forest types are converted to planted pine after harvest. Conversely, however, many harvested pine plantations revert to other forest types, mainly due to passive regeneration behavior on nonindustrial private timberlands. We model land use and land cover changes as a basis for projecting future changes in planted pine area, to aid policy analysts concerned with mitigation activities for global climate change. Projections are prepared in two stages. Projected land use changes include deforestation due to pressures to develop rural land as the human population expands, which is a larger area than that converted from other rural lands (e.g., agriculture) to forestry. In the second stage, transitions among forest types are projected on land allocated to forestry. We consider reforestation, influences of timber harvest, and natural succession and disturbance processes. Baseline projections indicate a net increase of about 5.6 million ha in planted pine area in the South over the next 50 years, with a notable increase in sequestered carbon. Additional opportunities to expand pine plantation area warrant study of landowner behavior to aid in designing more effective incentives for inducing land use and land cover changes to help mitigate climate change and attain other goals.     

Relationships Between Major Ownerships, Forest Aboveground Biomass Distributions, and Landscape Dynamics in the New England Region of USA

This study utilizes remote sensing derived forest aboveground biomass (AGB) estimates and ownership information obtained from the Protected Areas Database (PAD), combining landscape analyses and GIS techniques to demonstrate how different ownerships (public, regulated private, and other private) relate to the spatial distribution of AGB in New England states of the USA. “Regulated private” lands were dominated by lands in Maine covered by a Land Use Regulatory Commission. The AGB means between all pairs of the identified ownership categories were significantly different (P < 0.05). Mean AGB observed in public lands (156 Mg/ha) was 43% higher than that in regulated private lands (109 Mg/ha), or 30% higher than that of private lands as a whole. Seventy-seven percent of the regional forests (or about 9,300 km²) with AGB >200 Mg/ha were located outside the area designated in the PAD and concentrated in western MA, southern VT, southwestern NH, and northwestern CT. While relatively unfragmented and high-AGB forests (>200 Mg/ha) accounted for about 8% of total forested land, they were unevenly proportioned among the three major ownership groups across the region: 19.6% of the public land, 0.8% of the regulated private land, and 11.0% of the other private land. Mean disturbance rates (in absolute value) between 1992 and 2001 were 16, 66, and 19 percent, respectively, on public, regulated private, and other private land. This indicates that management practices from different ownerships have a strong impact on dynamic changes of landscape structures and AGB distributions. Our results may provide insight information for policy makers on issues regarding forest carbon management, conservation biology, and biodiversity studies at regional level.     

Prognostic framing of stakeholders' subjectivities: a case of all-terrain vehicle management on state public lands

Management of all-terrain vehicle (ATV) use on Minnesota state forest lands has a contentious history and land managers are caught between ATV riders, non-motorized recreationists, private landowners, and environmental advocates. In this paper, we demonstrate the usefulness of framing distinct perspectives about ATV management on Minnesota state public forests, understand the structure of these management perspectives, identify areas of consensus and disagreement, specify which stakeholders hold the various perspectives, clarify stakeholder perceptions of other stakeholders, and explore the implications for ATV planning and management. Using Q methodology, three distinct perspectives about how we should or should not manage ATVs resulted from our analysis, labeled Expert Management, Multiple Use, and Enforcement and Balance. A surprising degree of unanimity among the three management perspectives was found. Although some of the areas of agreement would be difficult to implement, others would be relatively simple to put into place. We suggest that land managers focus on widely accepted management actions to ameliorate commonly recognized problems, which may ease tensions between stakeholders and make tackling the tougher issues easier.     

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.     

A Method for assessing protected area allocations using a typology of landscape values

Traditional park and reserve selection techniques that rely exclusively on expert assessment can marginalize local knowledge and values in the review process. Using survey data from the Otways region of Victoria, Australia, we present a method that differentiates between public and private lands using locally perceived landscape values. The results are used to assess prospective national park expansion areas. Two data models of mapped landscape values—vector and raster—were analysed using discriminant analysis to classify and predict land status. Results indicate survey respondents hold more indirect and less tangible values for national parks and reserves, and more direct use values for private lands. There was moderate agreement between public and expert-derived national park boundaries. The mapping of local landscape values appears useful in planning and reviewing public land classifications, and when combined with biological assessments, can strengthen protected areas planning and management in Australia and elsewhere.     

Managing the Commons Texas Style: Wildlife Management and Ground‐Water Associations on Private Lands1

Abstract: As nearly all of Texas’ rural lands are privately owned, landowner associations for the management of white‐tailed deer and ground‐water have become increasingly popular. Deer are a common‐pool resource with transboundary characteristics, requiring landowner cooperation for effective management. Ground‐water reserves are economically important to landowners, but are governed by the “rule of capture” whereby property rights are not defined. One ground‐water association and four wildlife management associations (WMAs) were surveyed to characterize their member demographics, land use priorities, attitudes, and social capital. Members of the ground‐water cooperative were part of a much larger, more heterogeneous, and more recently formed group than members of WMAs. They also placed greater importance on utilitarian aspects of their properties, as opposed to land stewardship for conservation as practiced by members of WMAs. If ground‐water association members could be more locally organized with more frequent meetings, social capital and information sharing may be enhanced and lead to land stewardship practices for improved hydrologic functions and sustained ground‐water supply. This, coupled with pumping rules assigned by the local ground‐water district, could yield an effective strategy that is ecologically and hydrologicaly sound, and that allows rural provision of water supply to urban consumers.     

Food production in the city: (re)negotiating land,food and property

This paper addresses issues of access to land for food production in Toronto by offering fresh perspectives on urban agriculture in the neo-liberal city of the global north. It examines attempts to scale up urban agriculture that emphasise changing the relationships between land access, property and new collaborative relationships among different stakeholders. These initiatives involve renegotiating access to land for growing food between private property owners and landless growers, concomitant shifts in control over valued resources and commercialisation. These shifts are often based on relations of trust within a sharing economy rather than public battles over political decisions to develop urban agriculture lands. Growing food on private lands in the city is political in challenging taken-for-granted ideas and practices of property and urban agriculture. New approaches offer options for training and income, as well as expanding the land base for urban agriculture. Small-scale farming projects are affirmative political manoeuvres. They challenge urban residents to consider land for food production across the categories of public and private property. We document three approaches that challenge current property relations: temporary use of a development site through “soft” squatting; redesignating suburban backyards for farmer training and community-based and private food production; and garden sharing of private home backyards for urban food production and commercial growing. Such initiatives articulate alternative visions of sustainability and food security that rely on principles of collaboration and a sharing economy that challenge prevailing notions of property ownership and food security.     

Managing an Endangered Asian Bovid in an Australian National Park: The Role and Limitations of Ecological-Economic Models in Decision-Making

Should north Australia’s extensive populations of feral animals be eradicated for conservation, or exploited as a rare opportunity for Indigenous enterprise in remote regions? We examine options for a herd of banteng, a cattle species endangered in its native Asian range but abundant in Garig Gunak Barlu National Park, an Aboriginal land managed jointly by traditional owners and a conservation agency in the Northern Territory of Australia. We reflect on the paradoxes that arise when trying to deal effectively with such complex and contested issues in natural resource management using decision-support tools (ecological-economic models), by identifying the trade-offs inherent in protecting values whilst also providing incomes for Indigenous landowners.