INTEGRATING SOCIAL ANALYSIS INTO WATER RESOURCES PLANNING: SOME EMERGING TRENDS IN THE CORPS OF ENGINEERS1

ABSTRACT: While federal water resources laws and regulations require social analysis, no one workable formula exists for integrating it into water resources planning. Two primary problems in integrating social analysis into planning are examined; making trade-offs between policy acceptability and theoretical competence, and managing social analysis in planning. For illustration, the article builds on emerging trends within the U.S. Army Corps of Engineers. It concludes by observing that creative application of social theory to policy problems along with innovative data gathering techniques are the primary routes to managing these problems.     

Environmental issue area and game theory

The impact of international cultural, political, social, military, scientific, environmental and economic events has never been more vividly felt than today and the ‘challenge of global change’ has been created. Today there are many pressing regional and global problems. The planet is under stress and so are various scientific paradigms. To solve the new problems, international multilateral action is needed and increasingly sought. Mutual and not sporadic cooperation is the most prudent policy, the most effective means to attain set environmental goals such as clean air, clean water and clean soil. As to cooperation, national actions taken by state authorities cannot abolish any of these problems, but regional or preferably global, international multilateral action must be taken to meet the new demands. Responsibility for future generations is the key. Which is preferred: growth at any cost with widespread ecological destruction or sustainable development with cleaner water, air and environment? What is prudent policy? Cooperation or competition? Do we need long-term planning instead of short-term planning and gains? These are the key questions which this paper seeks to answer.     

A Decision Support Framework for Environmental Planning in Developing Countries

This paper presents a decision support framework for environmental planning in developing countries. The interest in protecting the natural environment from pollution gained increased importance in the 1990s with a push by world communities for sustainable development. Developing countries as well as the industrialized nations are expected to cut down on pollution and control the use of non-renewable natural resources. Although the concept of sustainable development sounds plausible, it is difficult to implement in many countries due to their conflicting goals. The world-wide targets on emissions, use of fossil fuels, reduction in water and atmospheric pollution require the participation of every nation. These goals are not easily achievable by some of the poorer developing countries partly because of their economic dependence on natural resources and partly because of their inability to afford more modern and efficient technologies. Thus, environmental planning goals are often in conflict with the development,social and economic needs of a country. In this paper, we develop a decision support framework that utilizes multicriteria and optimization models to address environmental planning problems. This framework is based on identifying the priorities of conflicting goals by working through and reducing the conflicts. A strategic planning framework is introduced into the decision support system since national planning is a strategic issue and these goals can only be achieved by adopting a systemic view.     

DESIRED AND ACHIEVED OUTCOMES IN FEDERAL WATER RESOURCES PLANNING1

ABSTRACT Local or project level planning occurs within most federal water resources programs. Such planning involves both federal and local participants, and commonly involves a range of interest groups. It is necessary to know what goals these participants believe the planning process ought to achieve in order to design planning procedures which will meet their expectations. Social judgment analysis was used to elicit those goals for respondents who had participated in one of five different federal water resources programs, in one of five different roles. Respondents also evaluated the extent to which the planning activities in a recent project in which they had participated had actually attained the posited goals. The respondents believed that responsiveness to local problems was significantly more important than resolving conflicts or increasing public understanding. A fourth goal, achieving national objectives, was believed to be less important than the other three. No significant differences in these goal evaluations were associated with the type of program in which the respondents had participated. However, there were significant differences associated with the respondent's role in the planning process. Respondents' ratings of the effectiveness of actual planning projects varied by both program and respondent role.     

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.     

Forecasting environmental equity: air quality responses to road user charging in Leeds, UK

Sustainable development requires that the goals of economic development, environmental protection and social justice are considered collectively when formulating development strategies. In the context of planning sustainable transport systems, trade-offs between the economy and the environment, and between the economy and social justice have received considerable attention. In contrast, much less attention has been paid to environmental equity, the trade-off between environmental and social justice goals, a significant omission given the growing attention to environmental justice by policy makers in the EU and elsewhere. In many countries, considerable effort has been made to develop clean transport systems by using, for example, technical, economic and planning instruments. However, little effort has been made to understand the distributive and environmental justice implications of these measures. This paper investigates the relationship between urban air quality (as NO2) and social deprivation for the city of Leeds, UK. Through application of a series of linked dynamic models of traffic simulation and assignment, vehicle emission, and pollutant dispersion, the environmental equity implications of a series of urban transport strategies, including road user cordon and distance-based charging, road network development, and emission control are assessed. Results indicate a significant degree of environmental inequity exists in Leeds. Analysis of the transport strategies indicates that this inequity will be reduced through natural fleet renewal, and, perhaps contrary to expectations, road user charging is also capable of promoting environmental equity. The environmental equity response is, however, sensitive to road pricing scheme design.     

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.     

Scenario-based stakeholder engagement: incorporating stakeholders preferences into coastal planning for climate change

Climate change poses many challenges for ecosystem and resource management. In particular, coastal planners are struggling to find ways to prepare for the potential impacts of future climate change while dealing with immediate pressures. Decisions on how to respond to future risks are complicated by the long time horizons and the uncertainty associated with the distribution of impacts. Existing coastal zone management approaches in the UK either do not adequately incorporate changing stakeholder preferences, or effectively ensure that stakeholders are aware of the trade-offs inherent in any coastal management decision. Using a novel method, scenario-based stakeholder engagement, which brings together stakeholder analysis, climate change management scenarios and deliberative techniques, the necessary trade-offs associated with long term coastal planning are explored. The method is applied to two case studies of coastal planning in Christchurch Bay on the south coast of England and the Orkney Islands off the north coast of Scotland. A range of conflicting preferences exist on the ideal governance structure to manage the coast under different climate change scenarios. In addition, the results show that public understanding of the trade-offs that have to be made is critical in gaining some degree of public support for long term coastal decision-making. We conclude that scenario-based stakeholder engagement is a useful tool to facilitate coastal management planning that takes into account the complexities and challenges of climate change, and could be used in conjunction with existing approaches such as the Shoreline Management Planning process.     

Multiobjective Assessment of Multipurpose Water Resources Projects for Developing Countries

Multiobjective assessments of water resource projects are useful for widening the range of impacts that are considered during the process of project planning and selection. Some of the principles and problems associated with multiobjective analyses are reviewed, as are several relatively simple information display techniques and approaches found applicable to conditions in many developing countries. These techniques can be used where data and technical expertise are limited, and where it is not possible to identify and quantify all economic, environmental or social objectives and their trade-offs during the search for the best compromise decision.     

Effective Planning and Implementation of Ecological Rehabilitation Projects: A Case Study of the Regional Municipality of Waterloo (Ontario, Canada)

The literature guides environmental planning and, specifically, how to use ecological rehabilitation projects to achieve long-term planning goals and landscape-scale environmental sustainability. There is, however, a perceived gap between principles in the literature and the use of them by practitioners involved in smaller-scale ecological rehabilitation projects. Using interviews with practitioners involved in 11 projects within the Regional Municipality of Waterloo, Ontario, Canada, we tested whether practitioners used five principles for effective planning and implementation of ecological rehabilitation that we derived from the literature. These five principles were: establishing political and ecological context, using ecologically appropriate objectives and practices, using comparative multidisciplinary and cross-scale approaches, using adaptive planning and implementation, and establishing good communication within and external to projects. Few projects followed all five principles, and practitioners indicated that they used three more project-specific principles: obtaining political/social support, promoting projects and changing attitudes about projects, and securing sufficient and persistent funding to maintain a project's life. While the literature emphasizes that ecological rehabilitation is only effective if projects are coordinated on a watershed basis, most practitioners focused solely on the goals of their specific project. The gap between literature and practice may arise because most practitioners are new to the field of ecological rehabilitation and still are focused on the methods involved. Time pressures force practitioners to obviate the literature and get projects started quickly, lest support evaporate. Complicating these difficulties is decreased support from federal and provincial governments for large-scale environmental planning. It is unclear whether ecological rehabilitation projects in Waterloo Region (at least) will ever become effective at promoting landscape-scale ecological goals or remain smaller-scale stop-gaps.     

Sustainability and the primary extraction industries: theories and practice

This paper reflects on how sustainability is being interpreted both theoretically and in practice for the primary extraction industries. Two contrasting perspectives can be adopted: one states that continued extraction of non-renewable resources is a necessary part of sustainable development, whilst the other states that extraction of these resources must be greatly reduced or even eliminated. It is shown that these different approaches can be traced back to underlying, often unarticulated, assumptions about the acceptability of trade-offs between different societal goals; attitudes towards uncertainties in scientific analysis and the reliability of management systems; and the perceived appropriateness of system boundaries at different conceptual scales. These assumptions are founded in the self-perception of organisations and individuals about their roles in society, and the cultural context within which these organisations and individuals define their raison d'être.     

Sustainable roofing technology under multiple constraints: a decision-analytical approach

Recent efforts in the private and public sectors to move toward enhanced sustainability in the built environment have prompted the need to quantify and assess trade-offs among relevant sustainability metrics. Within the US military, for instance, many technological improvements are available to facilitate the achievement of net-zero goals for installations. These technologies must be assessed based on numerous performance criteria, and these technology selection decisions are difficult to make unaided. This paper seeks to demonstrate the use of decision-analytical techniques in which sustainable roofing technology alternatives (reflective, vegetated, or solar roofs) can be properly framed and assessed while evaluating the trade-offs between multiple performance criteria. Multi-criteria decision analysis methods are used to assess the impact of technology alternatives on sustainability framed within the popular concept of the triple bottom line (economic, societal, and environmental concerns). The framework developed in this paper can be applied to other sustainability technologies (energy, water, waste) or portfolios of numerous technologies.     

Coupling a settlement growth model with an agro-economic land allocation model for securing ecosystem services provision

Mountain landscapes are undergoing rapid land-use changes. Settlement expansion, the intensification of agricultural land-use practices, and farmland abandonment result in a decline of natural and semi-natural habitats and the related ecosystem services (ES). In this context, spatial planning has emerged as a key instrument for the management of ES provision. To better understand trade-offs and interactions between settlement growth and ES provision in a spatially explicit manner, we present a new modeling framework coupling an agent-based, agro-economic optimization model and a cellular-automata-based settlement growth model. The framework is applied in an inner alpine valley in the Valais, Switzerland, which experienced rapid settlement growth in recent years. Results demonstrate how the model framework allows support of local planning processes. Particularly cooperation among municipalities and an explicit consideration of ES can inform spatially explicit ES trade-off decisions under increasing demand for land. We conclude that better informed spatial planning processes support ES provision.     

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.     

Government response to climate change in China: a study of provincial and municipal plans

In this paper, we provide an overview of local and regional climate change plans in China by scrutinizing planning documents from 16 cities, four autonomous regions, and 22 provinces. We develop and apply an evaluation protocol to understand goals, process, and strategies in these plans. We also conduct interviews with government officials to provide a context for subnational climate change planning. The results indicate that current climate change planning in China is characterized by the ‘top-down’ approach, in which the central governmental incentives play a vital role in shaping provincial and municipal plans. In addition, most plans have the following issues: vague definition of what characterizes a low-carbon city/region; deficiency in the quality of greenhouse gas inventory and reduction targets; insufficient strategies provided to respond to climate change; inadequate stakeholder engagement; and weak horizontal coordination. Finally, we offer recommendations to improve climate change planning in China.     

Juggling Land Retirement Objectives on an Agricultural Landscape: Coordination, Conflict, or Compromise?

Strategic land retirement in agricultural settings has been used as one way to achieve a combination of social objectives, which include ameliorating water quality problems and enhancing existing systems of wildlife habitat. This study uses a simulation model operating on a virtual landscape, along with the compromise programming method, to illustrate the implications of alternative weighting schemes for the long-term performance of the landscape toward various objectives. The analysis suggests that particular spatial patterns may be related to how various objectives are weighted. The analysis also illustrates the inevitable trade-offs among objectives, although it may be tempting to present retirement strategies as “win-win.”     

Using Land-use Planning to Manage Transport Demand: a survey of Scottish experience

Recent concerns surrounding the growth of mobility and associated increases in journey length and number of motorised journeys for an increasingly diverse pattern of trips have placed demands on the planning system in terms of the need to consider the land use-transport interaction. This paper first provides a review of relevant national planning policy in Scotland in particular. It then goes on to report findings from a recent survey which highlights the attitudes held by Scottish planning professionals to managing transport demand through land-use planning. The paper outlines the trade-offs encountered in practice between competing policy objectives. In Scotland there is no planning guidance equivalent to Planning Policy Guidance Note 13, which applies to England and Wales, around which there has been much debate on its impact on development control decisions and planning strategy. Draft guidance for Scotland was produced in 1996 for consultation and again in 1998, but at the time of writing has yet to be finalised. The findings from this study are timely in that they enable an assessment of the extent to which the planning system is being used to manage transport demand. Recent local government reorganisation in Scotland has resulted in significant changes to ways in which strategic planning and development control policy are likely to proceed. The paper focuses on the extent to which local authority policy emphasises the need to reduce travel through planning.     

Environmental justice for the governance of aquatic environments

Environmental justice sheds light on the distributive and procedural aspects of planning and decision-making. We examined the challenges arising from the perspective of environmental justice on multi-level and participatory environmental governance by exploring the governance of aquatic environments in the Helsinki Metropolitan Area. We found three main challenges and potential responses to them. First, even though most of Helsinki’s shoreline is free and/or accessible by road and accordingly used actively by people for recreational purposes, many parts of the shoreline are perceived as inaccessible, reflecting a need to combine factual and perceived accessibility of aquatic environments in detail during the planning processes and to discuss reasons for possible discrepancies between these two. Second, there was a remarkable seasonal variation in the use of aquatic environments, so more attention should be paid to social-demographic factors explaining the distribution of the use of urban nature. Third, it seems to be difficult to capture the variety of perceptions of people and to integrate them into planning and decision-making processes even on a local scale, and this challenge is likely even more pronounced on higher levels of planning and governance. Thus, better integration of regional and local-scale planning procedures should be encouraged. Building on these observations, we conclude that integration of procedural and distributive environmental justice into the practices of the governance of aquatic environments could remarkably decrease unwanted trade-offs and potential conflicts in their use and management.     

A model for improving endangered species recovery programs

This paper discusses common organizational problems that cause inadequate planning and implementation processes of endangered species recovery across biologically dissimilar species. If these problems occur, even proven biological conservation techniques are jeopardized. We propose a solution that requires accountability in all phases of the restoration process and is based on cooperative input among government agencies, nongovernmental conservation organizations, and the academic community. The first step is formation of a task-oriented recovery team that integrates the best expertise into the planning process. This interdisciplinary team should be composed of people whose skills directly address issues critical for recovery. Once goals and procedures are established, the responsible agency (for example, in the United States, the US Fish and Wildlife Service) could divest some or all of its obligation for implementing the plan, yet still maintain oversight by holding implementing entities contractually accountable. Regular, periodic outside review and public documentation of the recovery team, lead agency, and the accomplishments of implementing bodies would permit evaluation necessary to improve performance. Increased cooperation among agency and nongovernmental organizations provided by this model promises a more efficient use of limited resources toward the conservation of biodiversity.     

Procedural Integration in Support of Environmental Policy Objectives: Implementing Sustainability

Translating sustainability policy goals into concrete action has proven to be a complex challenge for government agencies, municipalities and businesses. Existing planning and decision-making methods, such as Comprehensive Planning, Environmental Impact Assessment and Environmental Management Systems, are being used to address this focus on sustainability. United States Army policy requires the use of these three procedures by installation planners and managers, providing a unique opportunity for innovation. This paper examines the applicability of these procedures for implementing the Army's sustainable operations policy goals, and explores how the current independent and disconnected implementation can be improved through integration. Included in this analysis is a review of organizational barriers to integrated planning and management. The analysis is applicable outside the Army as these three decision-making procedures are used in many contexts, and installation management shares many characteristics with local government land use planning, federal land management, and corporate business operations.