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.     

Boundary spanners as trust ambassadors in collaborative natural resource management

Collaboration is a growing trend in agency-led natural resource management in the USA, carrying the promise of defusing conflict and incorporating a broader range of stakeholder ideas. However, concerns exist that confrontational or litigious groups may use collaborative forums to their organization's own advantage. We conducted case studies on three collaboratives to understand how these efforts have influenced the behavior of environmental groups who were previously at odds with the managing agency, the US Forest Service. Results suggest that trust between boundary spanners from historically adversarial groups can support a realignment of the accountabilities they feel. As rational, affinitive, and procedural trust developed, boundary spanners began to advocate, within their home organizations, for the collaborative's goals. Key activities driving these realignments included the development of fair and transparent procedures governing the collaborative group, structured interaction designed to build consensus, and planned informal interactions that revealed shared values among collaborative participants.     

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.     

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.     

Managing Public Forests: Understanding the Role of Collaborative Planning

/ As federal land management agencies such as the USDA Forest Service increasingly choose to implement collaborative methods of public participation, research is needed to evaluate the strengths and weaknesses of the technique, to identify barriers to effective implementation of collaborative processes, and to provide recommendations for increasing its effectiveness. This paper reports on the findings of two studies focused on the experiences of Forest Service employees and their external partners as they work to implement collaborative planning processes in national forest management. The studies show both similarities and differences between agency employees and their partners in terms of how they evaluate their collaborative experiences. The studies reveal that both Forest Service employees and external partners are supportive of collaborative planning and expect it to continue in the future, both see the trust and relationships built during the process as being its greatest benefit, and both see the Forest Service's organizational culture as the biggest barrier to effective collaborative efforts. The groups differed in terms of evaluating each other's motivation for participating in the process and in whether the process was a good use of time and resources, with external partners seeing it as too drawn out and expensive. The paper concludes with a discussion of the policy implications and changes necessary to increase the effectiveness of collaborative efforts within the Forest Service and other federal land management agencies.KEY WORDS: Public land management; Collaborative planning; National forests; Public participation     

Integrating a life-cycle assessment with NEPA: Does it make sense?

The National Environmental Policy Act (NEPA) of 1969 provides the basic national charter for protection of the environment in the United States. Today NEPA provides an environmental policy model, emulated by nations around the world. Recently, questions have been raised regarding the appropriateness and under what conditions it makes sense to combine the preparation of a NEPA analysis with the International Organization for Standardization (ISO) ISO 14000 standards for Life-Cycle Assessment (LCA). This article advances a decision-making tool consisting of six discrete factors for use in determining when it is appropriate to perform an integrated NEPA/LCA analysis. Properly applied, this tool should reduce the risk that an LCA may be inappropriately prepared and integrated with a NEPA analysis.© 1999 John Wiley & Sons, Inc.     

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.     

Effectiveness of self-identified and self-reported environmental regulations for industry: The case of stormwater runoff in the US

US environmental controls for industry include numerous regulations that rely on the regulated community to self-identify, monitor, report, or complete other requirements on their own recognizance. These include state- and federal-issued general permits for stormwater discharges associated with industrial activities, effective in 1992, with known incomplete compliance by 2004. Results demonstrate highly incomplete compliance with variation in effectiveness among studied states and urbanized regions. Texas and Oklahoma, administered by US EPA during the research period, have attained higher compliance rates than California, administered by a state agency, or Florida, also administered by US EPA. Specific program designs and implementation strategies employed by states are evaluated for impacts on states' compliance effectiveness.     

The eclipse of NEPA as Environmental Policy

Previous evaluations of the National Environmental Policy Act (NEPA) have focused on the effectiveness of its procedural requirements in improving the quality of decision making with respect to environmental matters. Subsequent growth of other environmental regulation and the changing role of Environmental Impact Statements in the decision-making process should also be considered. The many federal and state environmental laws passed in the 1970s have, by defining the nature and acceptability of environmental impact and prohibiting unacceptable impacts, superseded the substantive role of NEPA in environmental protection. Although the EIS continues to serve as a focus for public debate regarding proposed government actions, such debates usually center around social or economic rather than environmental issues. NEPA has thus been superseded by other environmental laws, and its role in the decision-making process today has little relation to its earlier environmental significance.     

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 Perceived Implications of an Outsourcing Model on Governance within British Columbia Provincial Parks in Canada: A Quantitative Study

Good governance is of paramount importance to the success of parks and protected areas. This research utilized a questionnaire for 10 principles of governance to evaluate the outsourcing model used by British Columbia Provincial Parks, where profit-making corporations provide all front country visitor services. A total of 246 respondents representing five stakeholder groups evaluated the model according to each principle, using an online survey. Principal component analysis resulted in two of the 10 principles (equity and effectiveness) each being split into two categories, leading to 12 governance principles. Five of the 12 criteria received scores towards good governance: effectiveness outcome; equity general; strategic vision; responsiveness; and effectiveness process. One criterion, public participation, was on the neutral point. Six criteria received scores below neutral, more towards weak governance: transparency; rule of law; accountability; efficiency; consensus orientation; and, equity finance. The five stakeholder groups differed significantly on 10 of the 12 principles (P < .05). The 2 exceptions were for efficiency and effectiveness process. Seven of the 12 criteria followed a pattern wherein government employees and contractors reported positive scores, visitors and representatives of NGOs reported more negative scores, and nearby residents reported mid-range scores. Three criteria had government employees and contractors reporting the most positive scores, residents and visitors the most negative scores, and NGO respondents reporting mid-range scores. This research found evidence that perceptions of governance related to this outsourcing model differed significantly amongst various constituent groups.     

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     

Regulatory requirements and tools for environmental assessment of hazardous wastes: Understanding tribal and stakeholder concerns using Department of Energy sites

Many US governmental and Tribal Nation agencies, as well as state and local entities, deal with hazardous wastes within regulatory frameworks that require specific environmental assessments. In this paper we use Department of Energy (DOE) sites as examples to examine the relationship between regulatory requirements and environmental assessments for hazardous waste sites and give special attention to how assessment tools differ. We consider federal laws associated with environmental protection include the National Environmental Policy Act (NEPA), the Resource Conservation and Recovery Act (RCRA), the Comprehensive Environmental Response Compensation and Liability Act (CERCLA), as well as regulations promulgated by the Nuclear Regulatory Commission, Tribal Nations and state agencies. These regulatory regimes require different types of environmental assessments and remedial investigations, dose assessments and contaminant pathways. The DOE case studies illustrate the following points: 1) there is often understandable confusion about what regulatory requirements apply to the site resources, and what environmental assessments are required by each, 2) the messages sent on site safety issued by different regulatory agencies are sometimes contradictory or confusing (e.g. Oak Ridge Reservation), 3) the regulatory frameworks being used to examine the same question can be different, leading to different conclusions (e.g. Brookhaven National Laboratory), 4) computer models used in support of groundwater models or risk assessments are not necessarily successful in convincing Native Americans and others that there is no possibility of risk from contaminants (e.g. Amchitka Island), 5) when given the opportunity to choose between relying on a screening risk assessments or waiting for a full site-specific analysis of contaminants in biota, the screening risk assessment option is rarely selected (e.g. Amchitka, Hanford Site), and finally, 6) there needs to be agreement on whether there has been adequate characterization to support the risk assessment (e.g. Hanford). The assessments need to be transparent and to accommodate different opinions about the relationship between characterizations and risk assessments. This paper illustrates how many of the problems at DOE sites, and potentially at other sites in the U.S. and elsewhere, derive from a lack of either understanding of, or consensus about, the regulatory process, including the timing and types of required characterizations and data in support of site characterizations and risk assessments.     

Evaluating the Illinois Stream Valley Segment Model as an Effective Management Tool

Stream habitat assessments are conducted to evaluate biological potential, determine anthropogenic impacts, and guide restoration projects. Utilizing these procedures, managers must first select a representative stream reach, which is typically selected based on several criteria. To develop a consistent and unbiased procedure for choosing sampling locations, the Illinois Department of Natural Resources and the Illinois Natural History Survey have proposed a technique by which watersheds are divided into homogeneous stream segments called valley segments. Valley segments are determined by GIS parameters including surficial geology, predicted flow, slope, and drainage area. To date, no research has been conducted to determine if the stream habitat within a valley segment is homogeneous and if different valley segments have varying habitat variables. Two abutting valley segments were randomly selected within 13 streams in the Embarras River watershed, located in east-central Illinois. One hundred meter reaches were randomly selected within each valley segment, and a transect method was used to quantify habitat characteristics of the stream channel. Habitat variables for each stream were combined through a principal components analysis (PCA) to measure environmental variation between abutting valley segments. A multivariate analysis of variance (MANOVA) was performed on PCA axes 1–3. The majority of abutting valley segments were significantly different from each other indicating that habitat variability within each valley segment was less than variability between valley segments (5.37 ≤ F ≤ 245.13; P ≤ 0.002). This comparison supports the use of the valley segment model as an effective management tool for identifying representative sampling locations and extrapolating reach-specific information.     

Wetland Mitigation Compliance in the Western Upper Peninsula of Michigan

The Army Corps of Engineers (ACE) is generally responsible for the implementation of federal Clean Water Act wetland regulations. It therefore plays an important role in the protection of wetlands within the United States. Unfortunately, past evaluators of ACEs implementation of these regulations found low rates of regulatory compliance. However, the fact that two states have taken responsibility for the implementation of these regulations within their boundaries provided the opportunity to assess whether one of these states might be doing a better job of enforcement. This paper reports on compliance with some of these regulations within one Michigan region. We evaluated permittee compliance with paperwork filing requirements related to wetland mitigation projects. Sixty-seven percent of county road commission permittees were out of compliance with at least one filing requirement. Forty percent of private and non-county government permittees were out of compliance. Our results therefore suggest that serious problems exist with Michigans implementation of wetland regulations. They do not suggest that compliance in this state is significantly better than in states under ACE administration. We believe that increased agency monitoring and enforcement would improve compliance.     

The Relationship of Ecosystem Management to NEPA and Its Goals

/ The National Environmental Policy Act of 1969 (NEPA) was intended to promote a systematic, comprehensive, interdisciplinary approach to planning and decisionmaking, including the integration of the natural and social sciences and the design arts. NEPA critics have cited three key shortcomings in its implementation: (1) a lack of engagement with the NEPA process early in the planning process through interdisciplinary collaboration; (2) a lack of rigorous science and the incorporation of ecological principles and techniques; and (3) a lack of emphasis on the Act's substantive goals and objectives. In recent years and independent of NEPA, a policy of ecosystem management has been developed, which represents a fundamental change from a fragmented, incremental planning and management approach to a holistic, comprehensive, interdisciplinary land and resource management effort. We postulate that by incorporating ecosystem management principles in their planning and decisionmaking, federal agencies can address the shortcomings in NEPA implementation and move closer to NEPA's intent. A case analysis of EISs prepared by the USDA Forest Service before and after adopting an ecosystem management approach supports our hypothesis.     

Who’s in Charge: Role Clarity in a Midwestern Watershed Group

Studies of collaborative watershed groups show that effective leadership is an important factor for success. This research uses data from in-depth interviews and meeting observation to qualitatively examine leadership in a Midwestern collaborative watershed group operating with government funding. One major finding was a lack of role definition for volunteer steering-committee members. Lack of role clarity and decision-making processes led to confusion regarding project management authority among the group, paid project staff members, and agency personnel. Given the important role of government grants for funding projects to protect water quality, this study offers insight into leadership issues that groups with Clean Water Act Section 319 (h) funds may face and suggestions on how to resolve them.     

Effects of soil physical characteristics and biotic interferences on the herbaceous community composition and species diversity on the campus of Banaras Hindu University,India

Soil, water and species diversity relationships are central components of the vegetation ecology. In this connection, the present study was performed on the three sites within the campus of Banaras Hindu University of India, to relate herbaceous species diversity to soil physical characteristic and the intensity of biotic interferences. At each site, three, 10 m × 10 m plots were randomly established and within each plot, four quadrats each 50 cm × 50 cm were randomly placed for sampling. For each quadrat, number of individuals and their herbage cover were recorded by species. Soil physical characteristics (soil moisture, water-holding capacity, soil porosity and bulk density), elements of biotic interferences and α-diversity and its components were determined for each plot. The plots were ordinated by Non-metric Multidimensional Scaling (NMS) using Importance Value Indices of the component species. Results showed that the selected locations differed in terms of soil moisture and species diversity parameters due to differences in biotic interferences. NMS ordination yielded three groups corresponding to the three communities experiencing different intensity of land use. NMS axes were substantially related to the soil and herbaceous diversity parameters and suggested that the elements of soil physical characteristics, intensity of biotic interferences and regional herbaceous species pool had profound effect on the organization and determination of herbaceous floristic composition. Further, the sample locations exhibiting greater soil moisture, water-holding capacity, soil porosity and lesser soil bulk density harboured greater herbaceous diversity. A negative relationship between indices of species diversity and soil bulk density revealed that the dry and compact soils due to greater biotic pressure contributed to the loss of species diversity. Reduction in livestock numbers, grazing pressure and soil bulk density could be helpful in the promotion of soil quality and species diversity.     

Cross-Boundary Cooperation in a Watershed Context: The Sentiments of Private Forest Landowners

Ecosystem management and sustainable forestry on mixed ownership landscapes will require some level of cross-boundary coordination or management. Oregon's experiment with local, voluntary, collaborative forums, called watershed councils, is one mechanism to foster cross-boundary management. Fifty qualitative, in-depth interviews in three study areas were conducted with nonindustrial private forest (NIPF) landowners, watershed council members, and agency employees to learn how and why landowners participate (or not) on watershed councils. Study areas were located in three different areas of the state to reflect different ecological and organizational settings. Our case study identified three themes—stewardship ethic, property rights amid uncertainty, and action orientation—that were most salient among landowners when deciding to participate in their local watershed council. Other factors related to competing opportunities were also identified. Our results relate to the social psychological antecedents to cooperation of perceived consensus, group identity, and legitimacy of authority as well as to applied situations where cross-boundary coordination and management are goals.