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The watershed protection approach: A framework for ecosystem protection
e
Pergamon
Waf. Sci. T~ch. Vol. 33. No. 4-5. pp. 23-26. 1996. Copynght Q 1996 IA WQ. Published by Elsevier Science Ltd. Printed in Great Bnta; n All rights reserved.
PH: S0273-1223(96)00209-0
0273-1223/96 $15·00 + 0'00
THE WATERSHED PROTECTION APPROACH: A FRAMEWORK FOR ECOSYSTEM PROTECTION Thomas E. Davenport*, Nancy J. Phillips*, Bruce A. Kirschner** and Lyn T. Kirschner***
* United States Environmental Protection Agency. Chicago, Illinois, USA
** International Joint Commission, Windsor, Ontario, Canada *** United States Department of Agriculture, Natural Resource Conservation Service,
Conservation Technology Information Center, West Lafayette, Indiana, USA
ABSTRACT From the ecosystem protection cocept the watershed protection approach is derived and its implementation by EPA outlined. Copyright
KEYWORDS Ecosystem protection; ecosystem management; watershed protection.
INTRODUCTION Ecosystem protection is at the core of the Clinton Administration's goals for reorienting environmental and natural resource programs towards a more holistic approach to environmental protection. The Administration has called on the Federal Agencies to forge partnerships with States and other public and private parties to achieve place-based environmental protection. These partnerships mandate the agencies to build a programmatic framework and develop tools that are essential to making place-based protection work. In response, Agency Administrators created a consensus calling for ecosystem protection that is driven by key environmental problems that occur in particular geographic places. As envisioned, such environmental and natural resource management would be based on sound scientific information and techniques, and integrate goals for the long term ecosystem health with those for economic stability and involve stakeholders from the geographic places to help define the problems, set priorities, and implement solutions.
ECOSYSTEM PROTECTION Ecosystem protection is defined as the application of ecological and social information, options, and constraints to achieve desired social benefits within a defined geographic area and over a specific period. The seven components of ecosystem management collectively define and bound the concept of ecosystem protection.
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T. E. DAVENPORT et al.
I) Ecosystem management reflects a stage in the continuing evolution of social values and priorities, being neither a beginning nor an end. 2) Ecosystem management is place-based and the boundaries of the place of concern must be clearly and formally defined. 3) Ecosystem management should maintain ecosystems in the appropriate condition to achieve desired social benefits; the desired social benefits are defined by society, not scientists. 4) Ecosystem management can take advantage of the ability of ecosystems to respond to a variety of stressors, natural and man-made, but there is a limit in the ability of all ecosystems to accommodate stressors and while maintaining a desired state. 5) Ecosystem management mayor may not result in emphasis on biological diversity as a desired social benefit. 6) The term sustainability, if used at all in ecosystem management, should be clearly defined -especially, the time frame of concern, the benefits and costs of concern, and the relative priority of the benefits and costs. 7) Scientific information is important for effective ecosystem management, but is only one element in a decision-making process which is fundamentally one of public or private choice. Whether the concept turns out be useful depends on how well its application reflects the agencies' legislative and budget constraints, as well as the collective societal vision. Its important to remember the democratization of science, policy, and choice is not a smooth process, nor is usually efficient. As a means to implement the ecosystem protection mandate the United States Environmental Protection Agency (EPA) has adopted the Community-Based Environmental Protection Approach. Community-Based Environmental Protection is a problem-solving approach that provides a framework for identifying environmental problems, setting priorities, and forging solutions through an open, inclusive process. The approach is driven by the places and by people who are devoted to restoring and sustaining healthy ecological and human communities, their functions, and their values. This approach draws on a collaborative vision of desired future conditions and an integration of ecological, economic, and social factors affecting a place. The attributes of Community-Based Environmental Protection should apply to all that is done at EPA. They include: - Definable geographic areas, specific areas with which groups of people are identified, or areas which are defined by natural boundaries or communities; - An identifiable group or groups of interested people in a community or associated with a place having a bias for action; - A multi-media perspective that assesses and addresses environmental problems; - Specific, measurable, collaboratively-developed goals; - A bias for action by EPA staff; - Greater involvement by citizens in setting an environmental agenda; and, - An accountability system that monitors and evaluates outcomes and adapts over time.
Ecosystem protection
25
WATERSHED PROTECI10N APPROACH The EPA Water Programs will utilize the Watershed Approach to fulfill its Community-Based Environmental Protection responsibilities. The watershed protection approach is an integrated, holistic process for effectively and efficiently preserving, protecting, and restoring the physical, chemical, and biological integrity of the water resources within a defined hydrologic area. As you can see the watershed approach is entirely consistent with and can serve as a foundation for place-based ecosystem protection; thus, it can help EPA achieve the Administration's vision for ecosystem protection. EPA's vision for the Watershed Approach is; "Clean water and healthy, sustainable ecosystems as a result of comprehensive yet tailored water resource management everywhere". EPA will have achieved this vision when its work is driven by environmental objectives rather than programmatic requirements. This means coordinating and tailoring services EPA provides directly, to States, and to local units of government to meet the needs of ecosystems. Programs individually working on a watershed basis will not be sufficient to attain this vision, rather a concerted effort to integrate our programs into a unified, national-state-local water program is required. The key principles of the watershed approach are: 1) Geographic Focus - management activities are directed within specific geographic area, typically the areas that drain to surface water bodies or that recharge or overlay ground waters or a combination. 2) Action driven by environmental objectives and by strong science and data- managers employ sound scientific data, tools and techniques in an iterative process to correct the problem. 3) Coordinated priority setting and integrated solutions. 4) Partnerships - those parties most affected by management decisions are involved throughout and shape key decisions. IMPLEMENTING THE WATERSHED APPROACH EPA will promote and support the watershed approach at local, State, and Federal levels and implement its program in a manner tailored to meet specific needs within watersheds. Because EPA programs are generally implemented by the States, EPA looks to States to create the frameworks through which it can support local efforts. How will this be done?
Enhance Interagency Coordination - Obtain Commitment - Take action to reaffirm commitment to and provide direction for coordinating Federal activities. - Provide Support Build State Watershed Programs - Invest in State reorientations. - Realign federal services to meet local needs as defined through State programs. Expand the Toolbox - Develop tools that are necessary for efficient and effective watershed management and facilitate their application. Improve IntraEPA Coordination - Streamline program requirements - Network - establish relationships with other EPA offices to gamer support for watershed approach.
T. E. DAVENPORT et al.
26
Reach Out to Watershed Stakeholders
- Publicize EPA efforts - Support CTIC's "Know Your Watershed" Program CONCLUSIONS
Today more than ever there is a critical need for comprehensive environmental protection. The world is not compartmentalized; connections are the rule. We cannot make decisions about environmental impacts without considering economic and social impacts. To be fiscally responsible, we must work closely together to eliminate duplicative efforts and, even more troubling, conflicting efforts. But most importantly, to be ecologically responsible we must connect our own work in order to reflect, respect, and effectively protect the vital ecosystems connections that are characteristic of our environment. As you can see from the definition and the attributes of the Community Based Environmental Protection Approach, they are similar to the guiding principles for the Watershed Approach. The major difference between the two approaches concerns the role of the States. The Watershed Protection Approach articulates that the States must take the lead, with EPA providing guidance and support; the States' role in Community-Based Approach is one of a partner and participant, with EPA being an enabler and facilitator. The challenge for us is apply the best parts of each approach to the situation at hand so that we, as environmental and natural resource managers, can do the best job possible.
Pergamon
Waf. Sci. T~ch. Vol. 33. No. 4-5. pp. 23-26. 1996. Copynght Q 1996 IA WQ. Published by Elsevier Science Ltd. Printed in Great Bnta; n All rights reserved.
PH: S0273-1223(96)00209-0
0273-1223/96 $15·00 + 0'00
THE WATERSHED PROTECTION APPROACH: A FRAMEWORK FOR ECOSYSTEM PROTECTION Thomas E. Davenport*, Nancy J. Phillips*, Bruce A. Kirschner** and Lyn T. Kirschner***
* United States Environmental Protection Agency. Chicago, Illinois, USA
** International Joint Commission, Windsor, Ontario, Canada *** United States Department of Agriculture, Natural Resource Conservation Service,
Conservation Technology Information Center, West Lafayette, Indiana, USA
ABSTRACT From the ecosystem protection cocept the watershed protection approach is derived and its implementation by EPA outlined. Copyright
KEYWORDS Ecosystem protection; ecosystem management; watershed protection.
INTRODUCTION Ecosystem protection is at the core of the Clinton Administration's goals for reorienting environmental and natural resource programs towards a more holistic approach to environmental protection. The Administration has called on the Federal Agencies to forge partnerships with States and other public and private parties to achieve place-based environmental protection. These partnerships mandate the agencies to build a programmatic framework and develop tools that are essential to making place-based protection work. In response, Agency Administrators created a consensus calling for ecosystem protection that is driven by key environmental problems that occur in particular geographic places. As envisioned, such environmental and natural resource management would be based on sound scientific information and techniques, and integrate goals for the long term ecosystem health with those for economic stability and involve stakeholders from the geographic places to help define the problems, set priorities, and implement solutions.
ECOSYSTEM PROTECTION Ecosystem protection is defined as the application of ecological and social information, options, and constraints to achieve desired social benefits within a defined geographic area and over a specific period. The seven components of ecosystem management collectively define and bound the concept of ecosystem protection.
23
24
T. E. DAVENPORT et al.
I) Ecosystem management reflects a stage in the continuing evolution of social values and priorities, being neither a beginning nor an end. 2) Ecosystem management is place-based and the boundaries of the place of concern must be clearly and formally defined. 3) Ecosystem management should maintain ecosystems in the appropriate condition to achieve desired social benefits; the desired social benefits are defined by society, not scientists. 4) Ecosystem management can take advantage of the ability of ecosystems to respond to a variety of stressors, natural and man-made, but there is a limit in the ability of all ecosystems to accommodate stressors and while maintaining a desired state. 5) Ecosystem management mayor may not result in emphasis on biological diversity as a desired social benefit. 6) The term sustainability, if used at all in ecosystem management, should be clearly defined -especially, the time frame of concern, the benefits and costs of concern, and the relative priority of the benefits and costs. 7) Scientific information is important for effective ecosystem management, but is only one element in a decision-making process which is fundamentally one of public or private choice. Whether the concept turns out be useful depends on how well its application reflects the agencies' legislative and budget constraints, as well as the collective societal vision. Its important to remember the democratization of science, policy, and choice is not a smooth process, nor is usually efficient. As a means to implement the ecosystem protection mandate the United States Environmental Protection Agency (EPA) has adopted the Community-Based Environmental Protection Approach. Community-Based Environmental Protection is a problem-solving approach that provides a framework for identifying environmental problems, setting priorities, and forging solutions through an open, inclusive process. The approach is driven by the places and by people who are devoted to restoring and sustaining healthy ecological and human communities, their functions, and their values. This approach draws on a collaborative vision of desired future conditions and an integration of ecological, economic, and social factors affecting a place. The attributes of Community-Based Environmental Protection should apply to all that is done at EPA. They include: - Definable geographic areas, specific areas with which groups of people are identified, or areas which are defined by natural boundaries or communities; - An identifiable group or groups of interested people in a community or associated with a place having a bias for action; - A multi-media perspective that assesses and addresses environmental problems; - Specific, measurable, collaboratively-developed goals; - A bias for action by EPA staff; - Greater involvement by citizens in setting an environmental agenda; and, - An accountability system that monitors and evaluates outcomes and adapts over time.
Ecosystem protection
25
WATERSHED PROTECI10N APPROACH The EPA Water Programs will utilize the Watershed Approach to fulfill its Community-Based Environmental Protection responsibilities. The watershed protection approach is an integrated, holistic process for effectively and efficiently preserving, protecting, and restoring the physical, chemical, and biological integrity of the water resources within a defined hydrologic area. As you can see the watershed approach is entirely consistent with and can serve as a foundation for place-based ecosystem protection; thus, it can help EPA achieve the Administration's vision for ecosystem protection. EPA's vision for the Watershed Approach is; "Clean water and healthy, sustainable ecosystems as a result of comprehensive yet tailored water resource management everywhere". EPA will have achieved this vision when its work is driven by environmental objectives rather than programmatic requirements. This means coordinating and tailoring services EPA provides directly, to States, and to local units of government to meet the needs of ecosystems. Programs individually working on a watershed basis will not be sufficient to attain this vision, rather a concerted effort to integrate our programs into a unified, national-state-local water program is required. The key principles of the watershed approach are: 1) Geographic Focus - management activities are directed within specific geographic area, typically the areas that drain to surface water bodies or that recharge or overlay ground waters or a combination. 2) Action driven by environmental objectives and by strong science and data- managers employ sound scientific data, tools and techniques in an iterative process to correct the problem. 3) Coordinated priority setting and integrated solutions. 4) Partnerships - those parties most affected by management decisions are involved throughout and shape key decisions. IMPLEMENTING THE WATERSHED APPROACH EPA will promote and support the watershed approach at local, State, and Federal levels and implement its program in a manner tailored to meet specific needs within watersheds. Because EPA programs are generally implemented by the States, EPA looks to States to create the frameworks through which it can support local efforts. How will this be done?
Enhance Interagency Coordination - Obtain Commitment - Take action to reaffirm commitment to and provide direction for coordinating Federal activities. - Provide Support Build State Watershed Programs - Invest in State reorientations. - Realign federal services to meet local needs as defined through State programs. Expand the Toolbox - Develop tools that are necessary for efficient and effective watershed management and facilitate their application. Improve IntraEPA Coordination - Streamline program requirements - Network - establish relationships with other EPA offices to gamer support for watershed approach.
T. E. DAVENPORT et al.
26
Reach Out to Watershed Stakeholders
- Publicize EPA efforts - Support CTIC's "Know Your Watershed" Program CONCLUSIONS
Today more than ever there is a critical need for comprehensive environmental protection. The world is not compartmentalized; connections are the rule. We cannot make decisions about environmental impacts without considering economic and social impacts. To be fiscally responsible, we must work closely together to eliminate duplicative efforts and, even more troubling, conflicting efforts. But most importantly, to be ecologically responsible we must connect our own work in order to reflect, respect, and effectively protect the vital ecosystems connections that are characteristic of our environment. As you can see from the definition and the attributes of the Community Based Environmental Protection Approach, they are similar to the guiding principles for the Watershed Approach. The major difference between the two approaches concerns the role of the States. The Watershed Protection Approach articulates that the States must take the lead, with EPA providing guidance and support; the States' role in Community-Based Approach is one of a partner and participant, with EPA being an enabler and facilitator. The challenge for us is apply the best parts of each approach to the situation at hand so that we, as environmental and natural resource managers, can do the best job possible.