Tracking collaboration: forest planning and local participation on the San Juan National Forest,Colorado

The proliferation of community-based collaborative approaches to public land management and planning has spawned many questions regarding issues of community representation and the effects of participation for local residents. This paper presents a longitudinal assessment of local resident participation in collaborative forest planning on local community–forest relations in southwestern Colorado. Using survey data of participants involved in the San Juan National Forest's forest plan revision community study groups from 1998 to 2003, we assess participation in terms of community representation and the effects of community-based collaboration upon individuals' forest uses, forest values, and the level and form of involvement in forest management and planning activities. Results show that community representation remains slanted towards existing active stakeholders, and that while forest values, uses, and frequencies of involvement change little, participants cite positive effects in terms of the development of new knowledge, personal relationships, and greater confidence to engage in forest management affairs.     

INTEGRATING HUMANS IN ECOSYSTEM MANAGEMENT USING MULTI‐CRITERIA DECISION MAKING1

ABSTRACT: The Ecosystem Management (EM) process belongs to the category of Multi‐Criteria Decision Making (MCDM) problems. It requires appropriate decision support systems (DSS) where “all interested people” would be involved in the decision making process. Environmental values critical to EM, such as the biological diversity, health, productivity and sustainability, have to be studied, and play an important role in modeling the ecosystem functions; human values and preferences also influence decision making. Public participation in decision and policy making is one of the elements that differentiate EM from the traditional methods of management. Here, a methodology is presented on how to quantify human preferences in EM decision making. The case study of the National Park of River Nestos Delta and Lakes Vistonida and Ismarida in Greece, presented as an application of this methodology, shows that the direct involvement of the public, the quantification of its preferences and the decision maker's attitude provide a strong tool to the EM decision making process. Public preferences have been given certain weights and three MCDM methods, namely, the Expected Utility Method, Compromise Programming and the Analytic Hierarchy Process, have been used to select alternative management solutions that lead to the best configuration of the ecosystem and are also socially acceptable.     

公众参与市容环境规划与管理的方法设计--以南京市的实践为例

市容环境是与公众生活联系最为紧密的领域,也是公众参与最容易进行的领域。南京的城市建设要实现“经济发达、环境优美、融古都特色和现代文明于一体的现代化江滨城市”的目标,公众参与市容环境的规划与管理是关键内容之一。论文以“南京市市容环境卫生发展规划”项目工作为基础,分析和阐述公众参与的内涵,提出公众参与市容环境的五大步骤,并针对南京市容环境方面的具体案例,设计出符合南京特色的公众参与市容环境规划与管理的方法框架模型,包括决策模式、制度框架的共管体系。     

Creating and sustaining community capacity for ecosystem-based management: Is local government the key?

Recently, collaborative approaches to natural resource management have been widely promoted as ways to broaden participation and community involvement in furthering the goals of ecosystem management. The language of collaboration has even been incorporated into controversial legislation, such as the US Healthy Forests Restoration Act of 2003. This research examines collaboration and sharing management responsibility for federal public land with local communities through a case study of the Ashland Municipal Watershed in southern Oregon. A policy sciences approach is used to analyze community participation and institutional relationships between the US Department of Agriculture, Forest Service, and local city government in the planning processes of five land management actions occurring over a 7-year period. The knowledge gained from examining differing approaches to planning and decision making in the Ashland watershed is used to suggest future planning processes to develop and sustain the community capacity necessary to support implementation of community-based ecosystem management.     

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.     

土地利用总体规划修编重点与难点问题探讨

土地利用总体规划是国民经济和社会发展规划的重要组成部分,是统筹城乡建设、加强土地管理的基础,是实现世界上最严格的耕地保护制度的基本手段。在新一轮土地利用总体规划修编之际,对上轮规划存在的主要问题从宏观层面上进行了分析与探讨,有助于新一轮规划的科学编制和有效实施。简要介绍了规划修编的背景,并对本轮规划修编的网上调查结果进行了分析。通过回顾和分析上一轮土地利用总体规划实施过程中存在的主要问题,提出本轮规划修编应以统筹城乡发展、加强部门协调、促进节约集约、合理增加弹性、提高公众参与等为理念,并就本轮规划的重点与难点方面提出了建设性的意见和建议。     

MAKING SMARTER ENVIRONMENTAL MANAGEMENT DECISIONS1

ABSTRACT: This paper outlines a sound, practical approach for making more informed decisions about environmental policy choices. It emphasizes the importance of using a structured decision process to specify and organize values, use these values to create alternatives, and assess tradeoffs to help achieve a desired balance across key objectives. Although these decision making steps are based on common sense, they are often neglected or poorly carried out as part of the complex evaluations of natural resource options. We discuss several reasons for this frequent neglect of decision making principles and provide examples from recent water use planning projects to demonstrate some of the benefits of using a structured, decision focused approach: new and better solutions, increased and more productive participation by stakeholders, and greater defensibility and acceptance of the resource management evaluation process and its conclusions.     

A MULTIOBJECTIVE,DISCRETE SYSTEM REPRESENTATION OF RANGELAND WATERSHEDS1

ABSTRACT: Resource utilization as practiced by humans is identified as the main cause of the degradation of rangeland watersheds, a process referred to as desertification. This paper introduces a multi-objective decision making methodology for the selection of a plan which if implemented should limit the desertification process. The evaluation objectives are measured by quantitative and qualitative criteria. The quantitative criteria provide the performance level for production and sediment yield, while the qualitative criteria give such information as public acceptance of a particular alternative or worth of an appropriate wildlife habitat. A system model is applied to describe the dynamics of a range site in response to climatic and human inputs. As such it provides the information required by the quantitative criteria as well as a range condition index that identifies the productivity of a given range site. A multiobjective selection procedure is presented that will lead to the appropriate technique from an available set, in this case ESAP, Environmental Sensitivity Analysis Package. Four individuals with diverse backgrounds in natural resource management participated as decision makers and decided on their preferred alternatives. Finally, ranked alternatives in agreement with all of the decision makers were obtained.     

Beyond the Requirements: Improving Public Participation in EIA

Virtually every environmental planner at some time deals with environmental impact assessment (EIA). Public participation is required in most environmental impact assessment programmesaround the world. However, citizen involvement is often reduced to a procedural exercise instead of a substantive process to include the public in environmental decision making. This paper examines public participation in EIA and provides ways to improve its effectiveness. We first examine the rationales for public involvement and its institutionalization through EIA. Next, we analyse the shortcomings and strengths of common approaches to public involvement. Our analysis, supported by two case studies, suggests that going beyond the minimum requirements can benefit the public, the project proponent and the final plan. We conclude with practical steps to improve public participation programmes in environmental planning and decision making.     

Public Participation in Natural Hazard Mitigation Policy Formation: Challenges for Comprehensive Planning

Democratic theory holds that active participation in governmental planning and decision making is critical to furthering the public interest. As a result, public participation in urban planning in the US is arguably the most extensive and intensive in the world. Required by federal, state and local laws, citizen involvement is a staple of local plan making. However, as this paper shows, citizen interest in participating in the formulation of hazard mitigation policies in comprehensive plans is low, despite mounting evidence of perils to life and property from floods, hurricanes and earthquakes. Using evidence from case studies in Florida and Washington, the causes of disinterest are dissected and ways to increase public input to hazard mitigation policies in local comprehensive plans are recommended.     

Harnessing Ecosystem Models and Multi-Criteria Decision Analysis for the Support of Forest Management

The decision-making environment in forest management (FM) has changed drastically during the last decades. Forest management planning is facing increasing complexity due to a widening portfolio of forest goods and services, a societal demand for a rational, transparent decision process and rising uncertainties concerning future environmental conditions (e.g., climate change). Methodological responses to these challenges include an intensified use of ecosystem models to provide an enriched, quantitative information base for FM planning. Furthermore, multi-criteria methods are increasingly used to amalgamate information, preferences, expert judgments and value expressions, in support of the participatory and communicative dimensions of modern forestry. Although the potential of combining these two approaches has been demonstrated in a number of studies, methodological aspects in interfacing forest ecosystem models (FEM) and multi-criteria decision analysis (MCDA) are scarcely addressed explicitly. In this contribution we review the state of the art in FEM and MCDA in the context of FM planning and highlight some of the crucial issues when combining ecosystem and preference modeling. We discuss issues and requirements in selecting approaches suitable for supporting FM planning problems from the growing body of FEM and MCDA concepts. We furthermore identify two major challenges in a harmonized application of FEM-MCDA: (i) the design and implementation of an indicator-based analysis framework capturing ecological and social aspects and their interactions relevant for the decision process, and (ii) holistic information management that supports consistent use of different information sources, provides meta-information as well as information on uncertainties throughout the planning process.     

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

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

Environmental capital: an information core to public participation in strategic and operational decisions—the example of river ‘Best Practice’ projects

Sustainable development and solutions to existing environmental problems depend heavily on information and its translation into usable knowledge. Increasingly, affected communities are being drawn into environmental decision‐making, both in the development of strategy (plans) and in the delivery of plans through management and operations. Variants of the ‘natural capital’ theme are popular amongst those who see an effective dialogue between the sciences of ecology and economics as the most promising interdisciplinary context for environmental decision making by empowered communities. A decision‐making framework is vital in practical, community‐based schemes (wider than ‘stakeholder platforms’) which have become popular for promoting ‘best practice’ in managing river basin units. The EU Water Framework Directive renders use of interdisciplinary techniques within a participatory framework a statutory requirement. A final practical need for communities and professionals involved with such schemes is the creation of a system of adaptive (rather than reactive) management, supported by ongoing research and monitoring to detect, and adjust to, ever‐changing physical and social contexts for both strategies and operations.

This paper describes the authors' experience in applying the ‘Environmental Capital’ (also known as ‘Quality of Life Capital’ (QoLC)) approach to information management in two headwater catchments in northern England: the Wharfe and the Coquet. In the case of the Upper Wharfedale Best Practice Project (UWBPP) the components of basic environmental survey, consultation, strategy formulation and the use of the strategy are illustrated to guide immediate and longer‐term actions. In contrast, the Coquet application of the technique, whilst socially more pervasive, was less successful for a number of reasons: geographical, institutional, project and participatory.

As a proposed development of the methodology based on the authors' experiences, extending public participation through monitoring activity, together with formal application of environmental economics to the perceived elements of ‘natural’ and ‘human’ capital in the two catchments would appear desirable. Conclusions are also drawn regarding the demands of the EU Water Framework Directive for ecological, economic and participatory approaches to river basin planning and management.     

Australian natural resources policy: Water and land

This paper reviews the significance of water/soils management problems as they are perceived, identified or acted upon by a range of institutions in Australian society. Reference is made to state/Commonwealth perspectives or land degradation, the fragmented responsibility in institutional arrangements and the political aspects of current land use planning issues. There is a lack of broad consensus on environmental problems and how to solve them. Emergent issues in water planning include the increasing importance of environmental river flows, urban water demand management, and the sunderstanding of the changing mechanisms of water allocation. The importance of scientific knowledge in natural resource agency decision making is found contentious in view of the varying roles of technical experts in organizations and the base line of political expediency. Requirements of effective policy making and monitoring of implementation highlight some of the ‘intractable’ problems in water and land management.     

Social and Environmental Justice in South African Cities: Including ‘Invisible Stakeholders’ in Environmental Assessment Procedures

In South Africa an intensive reform process to democratize policy, legislation and related institutions in the country commenced after the first democratic elections in 1994. While environmental law reform includes active public participation and equity principles, it is proposed in this paper that ecological modernization dominates current environmental assessment practice. This paper presents a Social Impact Assessment (SIA) of a proposed landfill on the periphery of Durban, where large informal settlements and peri-urban areas exist as a relic of apartheid planning. The methodology of the SIA was explicitly designed within a framework of social justice to include poor and marginalized people, who remain excluded from environmental decision making despite the promise of democratic equality. The study claims to deepen democratic practice by demonstrating that alternative methodologies can be designed to include the interests of ‘invisible stakeholders’ in environmental assessments despite the dominance of ecological modernization in the implementation of environmental law and policy.     

A quantitative method for accounting human opinion,preferences and perceptions in ecosystem management

Ecosystem management (EM) is a holistic approach, in which public participation in decision-making, and incorporation of human preferences, needs and perceptions in management plans is a main element. The decision-making from human opinion method (DeMHO), presented here, can be used in EM in selecting the more suitable and socially acceptable management plan, in order to protect or restore an ecosystem. The method focuses on the quantification of the human opinion, preferences and perceptions, which are investigated after research on the local population of the ecosystem. The results of this research are the inputs of the method; multi-criteria decision-making procedures, such as the analytic hierarchy process (AHP), the expected utility method (EUM) and compromise programming (CP) are used to assign the appropriate weights and rank according to their importance the interest groups, the issues to be studied, and the alternative management plans. The alternatives are also evaluated by assessing their sustainable character. The paper presents DeMHO and its application in the National Park of Eastern Macedonia and Thrace in Greece, after a research through a questionnaire on the local population.     

Collaborative environmental planning in river management: an application of multicriteria decision analysis in the White River Watershed in Vermont

Multicriteria decision analysis (MCDA) provides a well-established family of decision tools to aid stakeholder groups in arriving at collective decisions. MCDA can also function as a framework for the social learning process, serving as an educational aid in decision problems characterized by a high level of public participation. In this paper, the framework and results of a structured decision process using the outranking MCDA methodology preference ranking organization method of enrichment evaluation (PROMETHEE) are presented. PROMETHEE is used to frame multi-stakeholder discussions of river management alternatives for the Upper White River of Central Vermont, in the northeastern United States. Stakeholders met over 10 months to create a shared vision of an ideal river and its services to communities, develop a list of criteria by which to evaluate river management alternatives, and elicit preferences to rank and compare individual and group preferences. The MCDA procedure helped to frame a group process that made stakeholder preferences explicit and substantive discussions about long-term river management possible.     

Public engagement and climate adaptation: insights from three local governments in Australia

Public participation in decision making is a central component of the planning process; however, implementing effective engagement initiatives to resolve complex planning and policy problems, such as climate change, is challenging for planners. These challenges are particularly acute in coastal communities throughout Australia, where many settlements are at risk of future climate perturbations. Using the International Association for Public Participation framework for public participation, we analyse three local government led public participation initiatives in New South Wales, Victoria and Tasmania, Australia. Our analysis suggests there are three critical factors that can influence the level of public participation in the context of climate change adaptation: the technocratic approach to decision making; absent high order government support; and the lack of evaluation mechanisms for public participation.     

‘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.     

Contesting governance of indigenous forests in New Zealand: The case of the West Coast Forest Accord

This paper uses the concept of ‘governance’ and the related notion of ‘multi-layered’ forest management decision making as an overarching framework for analysis of conflict between different stakeholder groups with contrasting perceptions about ‘appropriate’ use of indigenous forests in a New Zealand case study. In New Zealand, recent institutional reforms inspired by neo-liberal policy agendas have led to substantial conflicts between segments of society over the ‘appropriate’ governance of remnant indigenous forests. This study focuses on the West Coast Forest Accord (WCFA) as an illustration of the attempt to change governance structures of indigenous forest management by re-regulating the indigenous forest industry. It is argued that by seeking to accommodate multiple stakeholder interests, in particular industry, community and environmental groups, the WCFA was doomed to fail, as multiple, and often conflicting, stakeholder agendas focused on the goal of ‘sustainable management’ of indigenous forests could no longer be reconciled. Notwithstanding the shift in emphasis from government towards governance in the recent literature, the study findings confirm a continuing strong role by the state as an actor in the forestry sector in New Zealand.