Adaptive Management and Watersheds: A Social Science Perspective1

Abstract:  Adaptive management is often proposed as the most effective way to manage complex watersheds. However, our experience suggests that social and institutional factors constrain the search for, and integration of, the genuine learning that defines adaptive management. Drawing on our work as social scientists, and on a guided panel discussion at a recent AWRA conference, we suggest that watershed‐scale adaptive management must be recognized as a radical departure from established ways of managing natural resources if it is to achieve its promise. Successful implementation will require new ways of thinking about management, new organizational structures and new implementation processes and tools. Adaptive management encourages scrutiny of prevailing social and organizational norms and this is unlikely to occur without a change in the culture of natural resource management and research. Planners and managers require educational, administrative, and political support as they seek to understand and implement adaptive management. Learning and reflection must be valued and rewarded, and fora established where learning through adaptive management can be shared and explored. The creation of new institutions, including educational curricula, organizational policies and practices, and professional norms and beliefs, will require support from within bureaucracies and from politicians. For adaptive management to be effective researchers and managers alike must work together at the watershed‐scale to bridge the gaps between theory and practice, and between social and technical understandings of watersheds and the people who occupy and use them.     

Passive and active adaptive management: approaches and an example

Adaptive management is a framework for resource conservation that promotes iterative learning-based decision making. Yet there remains considerable confusion about what adaptive management entails, and how to actually make resource decisions adaptively. A key but somewhat ambiguous distinction in adaptive management is between active and passive forms of adaptive decision making. The objective of this paper is to illustrate some approaches to active and passive adaptive management with a simple example involving the drawdown of water impoundments on a wildlife refuge. The approaches are illustrated for the drawdown example, and contrasted in terms of objectives, costs, and potential learning rates. Some key challenges to the actual practice of AM are discussed, and tradeoffs between implementation costs and long-term benefits are highlighted.     

Adaptive management of natural resources--framework and issues

Adaptive management, an approach for simultaneously managing and learning about natural resources, has been around for several decades. Interest in adaptive decision making has grown steadily over that time, and by now many in natural resources conservation claim that adaptive management is the approach they use in meeting their resource management responsibilities. Yet there remains considerable ambiguity about what adaptive management actually is, and how it is to be implemented by practitioners. The objective of this paper is to present a framework and conditions for adaptive decision making, and discuss some important challenges in its application. Adaptive management is described as a two-phase process of deliberative and iterative phases, which are implemented sequentially over the timeframe of an application. Key elements, processes, and issues in adaptive decision making are highlighted in terms of this framework. Special emphasis is given to the question of geographic scale, the difficulties presented by non-stationarity, and organizational challenges in implementing adaptive management.     

Adaptive management for a turbulent future

The challenges that face humanity today differ from the past because as the scale of human influence has increased, our biggest challenges have become global in nature, and formerly local problems that could be addressed by shifting populations or switching resources, now aggregate (i.e., "scale up") limiting potential management options. Adaptive management is an approach to natural resource management that emphasizes learning through management based on the philosophy that knowledge is incomplete and much of what we think we know is actually wrong. Adaptive management has explicit structure, including careful elucidation of goals, identification of alternative management objectives and hypotheses of causation, and procedures for the collection of data followed by evaluation and reiteration. It is evident that adaptive management has matured, but it has also reached a crossroads. Practitioners and scientists have developed adaptive management and structured decision making techniques, and mathematicians have developed methods to reduce the uncertainties encountered in resource management, yet there continues to be misapplication of the method and misunderstanding of its purpose. Ironically, the confusion over the term "adaptive management" may stem from the flexibility inherent in the approach, which has resulted in multiple interpretations of "adaptive management" that fall along a continuum of complexity and a priori design. Adaptive management is not a panacea for the navigation of 'wicked problems' as it does not produce easy answers, and is only appropriate in a subset of natural resource management problems where both uncertainty and controllability are high. Nonetheless, the conceptual underpinnings of adaptive management are simple; there will always be inherent uncertainty and unpredictability in the dynamics and behavior of complex social-ecological systems, but management decisions must still be made, and whenever possible, we should incorporate learning into management.     

Adaptive management for sound ecosystem management

Sound ecosystem management meshes socioeconomic attitudes and values with sustainable natural resource practices. Adaptive management is a model for guiding natural resource managers in this process. Ecosystems and the societies that use them are continually evolving. Therefore, managers must be flexible and adaptable in the face of uncertainty and lack of knowledge. To couple good science to management, it is important to develop goals, models, and hypotheses that allow us to systematically learn as we manage. Goals and models guide the development and implementation of management practices. The need to evaluate models and test hypotheses mandates monitoring, which feeds into a continuous cycle of goal and model reformulation. This paper reviews the process of adaptive management and describes how it is being applied to oak/pine savanna restoration at Necedah National Wildlife Refuge as an illustration. Our aim is to help managers design their own adaptive management models for successful ecosystem management.     

Pathology and failure in the design and implementation of adaptive management

The conceptual underpinnings for adaptive management are simple; there will always be inherent uncertainty and unpredictability in the dynamics and behavior of complex ecological systems as a result non-linear interactions among components and emergence, yet management decisions must still be made. The strength of adaptive management is in the recognition and confrontation of such uncertainty. Rather than ignore uncertainty, or use it to preclude management actions, adaptive management can foster resilience and flexibility to cope with an uncertain future, and develop safe to fail management approaches that acknowledge inevitable changes and surprises. Since its initial introduction, adaptive management has been hailed as a solution to endless trial and error approaches to complex natural resource management challenges. However, its implementation has failed more often than not. It does not produce easy answers, and it is appropriate in only a subset of natural resource management problems. Clearly adaptive management has great potential when applied appropriately. Just as clearly adaptive management has seemingly failed to live up to its high expectations. Why? We outline nine pathologies and challenges that can lead to failure in adaptive management programs. We focus on general sources of failures in adaptive management, so that others can avoid these pitfalls in the future. Adaptive management can be a powerful and beneficial tool when applied correctly to appropriate management problems; the challenge is to keep the concept of adaptive management from being hijacked for inappropriate use.     

Hydropower,adaptive management,and Biodiversity

Adaptive management is a policy framework within which an iterative process of decision making is followed based on the observed responses to and effectiveness of previous decisions. The use of adaptive management allows science-based research and monitoring of natural resource and ecological community responses, in conjunction with societal values and goals, to guide decisions concerning man's activities. The adaptive management process has been proposed for application to hydropower operations at Glen Canyon Dam on the Colorado River, a situation that requires complex balancing of natural resources requirements and competing human uses. This example is representative of the general increase in public interest in the operation of hydropower facilities and possible effects on downstream natural resources and of the growing conflicts between uses and users of river-based resources. This paper describes the adaptive management process, using the Glen Canyon Dam example, and discusses ways to make the process work effectively in managing downstream natural resources and biodiversity.     

ADAPTIVE MANAGEMENT OF LARGE RIVERS WITH SPECIAL REFERENCE TO THE MISSOURI RIVER1

ABSTRACT: The technocratic approach for managing the Missouri River and other large rivers is not effective in resolving conflicts among competing uses of water and dealing with uncertainty about how river ecosystems respond to alternative management actions. Adaptive management offers an alternative way to address these and other issues. It has the potential to alleviate management gridlock and provide lasting solutions to management of the Missouri River and other large river ecosystems. In passive adaptive management, simulation models and expert judgment are combined to select a preferred management action. While passive adaptive management is relatively simple and inexpensive to use, it does not necessarily provide reliable information for making management decisions. Active adaptive management uses statistically designed experiments to test assumptions or hypotheses about ecosystem responses to management actions. It is best carried out by a collaborative working group. Active adaptive management has several advantages, but the inability to satisfy certain prerequisites for successful application makes it more difficult to implement in large river ecosystems. A second‐best approach is proposed here to select, implement, monitor, and evaluate a preferred management action and retain that action provided ecological conditions improve and socioeconomic indicators do not fall below established acceptability limits.     

Adaptive management in the U.S. National Wildlife Refuge System: science-management partnerships for conservation delivery

Adaptive management is an approach to recurrent decision making in which uncertainty about the decision is reduced over time through comparison of outcomes predicted by competing models against observed values of those outcomes. The National Wildlife Refuge System (NWRS) of the U.S. Fish and Wildlife Service is a large land management program charged with making natural resource management decisions, which often are made under considerable uncertainty, severe operational constraints, and conditions that limit ability to precisely carry out actions as intended. The NWRS presents outstanding opportunities for the application of adaptive management, but also difficult challenges. We describe two cooperative programs between the Fish and Wildlife Service and the U.S. Geological Survey to implement adaptive management at scales ranging from small, single refuge applications to large, multi-refuge, multi-region projects. Our experience to date suggests three important attributes common to successful implementation: a vigorous multi-partner collaboration, practical and informative decision framework components, and a sustained commitment to the process. Administrators in both agencies should consider these attributes when developing programs to promote the use and acceptance of adaptive management in the NWRS.     

Evaluating Adaptive Governance Approaches to Sustainable Water Management in North-West Thailand

Adaptive governance is advanced as a potent means of addressing institutional fit of natural resource systems with prevailing modes of political–administrative management. Its advocates also argue that it enhances participatory and learning opportunities for stakeholders over time. Yet an increasing number of studies demonstrate real difficulties in implementing adaptive governance ‘solutions’. This paper builds on these debates by examining the introduction of adaptive governance to water management in Chiang Mai province, north-west Thailand. The paper considers, first, the limitations of current water governance modes at the provincial scale, and the rationale for implementation of an adaptive approach. The new approach is then critically examined, with its initial performance and likely future success evaluated by (i) analysis of water stakeholders’ opinions of its first year of operation; and (ii) comparison of its governance attributes against recent empirical accounts of implementation difficulty and failure of adaptive governance of natural resource management more generally. The analysis confirms the potentially significant role that the new approach can play in brokering and resolving the underlying differences in stakeholder representation and knowledge construction at the heart of the prevailing water governance modes in north-west Thailand.     

Establishing a Regional Monitoring Strategy: The Pacific Northwest Forest Plan

adaptive monitoring design. Adaptive monitoring design is an iterative process that refines the specifications for monitoring over time as a result of experience in implementing a monitoring program, assessing results, and interacting with users. An adaptive design therefore facilitates ecosystem management. We also discuss lessons of temporal and spatial scales raised by the consideration of a design for ecosystem management. Three additional issues—integration of information from different sources, institutional infrastructure, and the roles of individuals working in an interagency setting—are also identified, but not developed in detail.     

Management by Assertion: Beavers and Songbirds at Lake Skinner (Riverside County,California)

Management of ecological reserve lands should rely on the best available science to achieve the goal of biodiversity conservation. “Adaptive Resource Management” is the current template to ensure that management decisions are reasoned and that decisions increase understanding of the system being managed. In systems with little human disturbance, certain management decisions are clear; steps to protect native species usually include the removal of invasive species. In highly modified systems, however, appropriate management steps to conserve biodiversity are not as readily evident. Managers must, more than ever, rely upon the development and testing of hypotheses to make rational management decisions. We present a case study of modern reserve management wherein beavers (Castor canadensis) were suspected of destroying habitat for endangered songbirds (least Bell’s vireo, Vireo bellii pusillus, and southwestern willow flycatcher, Empidonax traillii extimus) and for promoting the invasion of an exotic plant (tamarisk, Tamarix spp.) at an artificial reservoir in southern California. This case study documents the consequences of failing to follow the process of Adaptive Resource Management. Managers made decisions that were unsupported by the scientific literature, and actions taken were likely counterproductive. The opportunity to increase knowledge of the ecosystem was lost. Uninformed management decisions, essentially “management by assertion,” undermine the long-term prospects for biodiversity conservation.     

Monitoring and adaptive management: resolving social and organisational issues to improve information sharing in natural resource management

Adaptive, or 'learning by doing', approaches are often advocated as a means of providing increased understanding within natural resource management. However, a number of organisational and social issues need to be resolved if these approaches are to be used successfully. A case study in the South Island high country of New Zealand is used to review what is needed to support an ongoing community-based monitoring and adaptive management programme. First, the case study is described, paying attention to the social context of the resource management problem. The results of a workshop that explored this problem are then outlined, along with a proposed information flow suggested by participants. Requirements for future steps to resolve these problems (such as information protocols and a multi-stakeholder information system) are discussed. Finally, some broad lessons are drawn from this exercise that could help others developing similar approaches.     

Missing the trees for the forest? Bottom-up policy implementation and adaptive management in the US natural resource bureaucracy

For decades, natural resource agencies in the United States have attempted to restore ecosystems using adaptive management, a process that emphasizes experimental learning to reduce uncertainty. Most studies show that it rarely occurs in practice and explain implementation failures as organizational issues. This study draws on policy implementation theory to suggest that behaviors and attitudes of individuals may better explain implementation gaps. This comparative case study finds differences between experts implementing adaptive management in the Fish and Wildlife Service and the United States Geological Survey. These include differences in attitudes, perceptions, and behaviors aimed at promoting individual autonomy, performance standards, and defending individual interests on the job. Policy implications are twofold: first, that individual behaviors impact adaptive management implementation and intrinsic motivation to perform such functions. Second, regardless of agency, experts view their work as a social good. This suggests that a devolved planning process may remedy implementation obstacles.     

Modeling human-induced climatic change: A summary for environmental managers

The rapid increase in atmospheric concentrations of greenhouse gases has caused concern because of their potential to alter the earth's radiation budget and disrupt current climate patterns While there are many uncertainties associated with use of general circulation models (GCMs), GCMs are currently the best available technology to project changes in climate associated with elevated gas concentrations. Results indicate increases in global temperature and changes in global precipitation patterns are likely as a result of doubled CO₂. GCMs are not reliable for use at the regional scale because local scale processes and geography are not taken into account. Comparison of results from five GCMs in three regions of the United States indicate high variability across regions and among models depending on season and climate variable. Statistical methods of scaling model output and nesting finer resolution models in global models are two techniques that may improve projections. Despite the many limitations in GCMs, they are useful tools to explore climate-earth system dynamics when used in conjunction with water resource and ecosystem models. A variety of water resource models showed significant alteration of regional hydrology when run with both GCM-generated and hypothetical climate scenarios, regardless of region or model complexity. Similarly, ecological models demonstrate the sensitivity of ecosystem production, nutrient dynamics, and distribution to changes in climate and CO₂ levels. We recommend the use of GCM-based scenarios in conjunction with water resource and ecosystem models to guide environmental management and policy in a “no-regrets” framework or as part of a precautionary approach to natural resource protection.     

Benefits of Collaborative Learning for Environmental Management: Applying the Integrated Systems for Knowledge Management Approach to Support Animal Pest Control

Resource management issues continually change over time in response to coevolving social, economic, and ecological systems. Under these conditions adaptive management, or “learning by doing,” offers an opportunity for more proactive and collaborative approaches to resolving environmental problems. In turn, this will require the implementation of learning-based extension approaches alongside more traditional linear technology transfer approaches within the area of environmental extension. In this paper the Integrated Systems for Knowledge Management (ISKM) approach is presented to illustrate how such learning-based approaches can be used to help communities develop, apply, and refine technical information within a larger context of shared understanding. To outline how this works in practice, we use a case study involving pest management. Particular attention is paid to the issues that emerge as a result of multiple stakeholder involvement within environmental problem situations. Finally, the potential role of the Internet in supporting and disseminating the experience gained through ongoing adaptive management processes is examined.     

Climate change collaboration among natural resource management agencies: lessons learned from two US regions

It has been argued that regional collaboration can facilitate adaptation to climate change impacts through integrated planning and management. In an attempt to understand the underlying institutional factors that either support or contest this assumption, this paper explores the institutional factors influencing adaptation to climate change at the regional scale, where multiple public land and natural resource management jurisdictions are involved. Insights from two mid-western US case studies reveal that several challenges to collaboration persist and prevent fully integrative multi-jurisdictional adaptation planning at a regional scale. We propose that some of these challenges, such as lack of adequate time, funding and communication channels, be reframed as opportunities to build interdependence, identify issue-linkages and collaboratively explore the nature and extent of organisational trade-offs with respect to regional climate change adaptation efforts. Such a reframing can better facilitate multi-jurisdictional adaptation planning and management of shared biophysical resources generally while simultaneously enhancing organisational capacity to mitigate negative effects and take advantage of potentially favourable future conditions in an era characterised by rapid climate change.     

Role of Adaptive Management for Watershed Councils

Recent findings in the Umpqua River Basin in southwestern Oregon illustrate a tension in the rise of both community-based and watershed-based approaches to aquatic resource management. While community-based institutions such as watershed councils offer relief from the government control landowners dislike, community-based approaches impinge on landowners' strong belief in independence and private property rights. Watershed councils do offer the local control landowners advocate; however, institutional success hinges on watershed councils' ability to reduce bureaucracy, foster productive discussion and understanding among stakeholders, and provide financial, technical, and coordination support. Yet, to accomplish these tasks current watershed councils rely on the fiscal and technical capital of the very governmental entities that landowners distrust. Adaptive management provides a basis for addressing the apparent tension by incorporating landowners' belief in environmental resilience and acceptance of experimentation that rejects “one size fits all solutions.” Therefore community-based adaptive watershed management provides watershed councils a framework that balances landowners' independence and fear of government intrusion, acknowledges the benefits of community cooperation through watershed councils, and enables ecological assessment of landowner-preferred practices. Community-based adaptive management integrates social and ecological suitability to achieve conservation outcomes by providing landowners the flexibility to use a diverse set of conservation practices to achieve desired ecological outcomes, instead of imposing regulations or specific practices.     

‘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.     

Reflections on the use of Bayesian belief networks for adaptive management

A broad range of tools are available for integrated water resource management (IWRM). In the EU research project NeWater, a hypothesis exists that IWRM cannot be realised unless current management regimes undergo a transition toward adaptive management (AM). This includes a structured process of learning, dealing with complexity, uncertainty etc. We assume that it is no longer enough for managers and tool researchers to understand the complexity and uncertainty of the outer natural system-the environment. It is just as important, to understand what goes on in the complex and uncertain participatory processes between the water managers, different stakeholders, authorities and researchers when a specific tool and process is used for environmental management. The paper revisits a case study carried out 2001-2004 where the tool Bayesian networks (BNs) was tested for groundwater management with full stakeholder involvement. With the participation of two researchers (the authors) and two water managers previously involved in the case study, a qualitative interview was prepared and carried out in June 2006. The aim of this ex-post evaluation was to capture and explore the water managers' experience with Bayesian belief networks when used for integrated and adaptive water management and provide a narrative approach for tool enhancement.