Forest Service Budget Requests and Appropriations

In spite of recent arguments that significant changes are occurring in the United States Department of Agriculture's Forest Service, to date little empirical evidence exists demonstrating that this is indeed the case and whether these presumed changes are impacting upon substantive policy outcomes. Most of the current evidence available is from studies that have inferred change by measuring attitudinal change in Forest Service employees. None to date has examined changes in quantitative indicators of agency policy efforts or outcomes. In this article, we analyze trends in the budget requests of the Forest Service, the United States Department of Agriculture (USDA), and the Office of Management and Budget (OMB), and appropriations made by Congress, to ascertain whether priorities of these actors concerning the commodity and non-commodity programs of the National Forests have changed since the passage of the National Forest Management Act. The data reveal shifting priorities for the Forest Service, USDA, and OMB. However, although the shifts have been greater for the Forest Service than for the other two agencies, they have been significantly less than the shifts in congressional appropriations. This fact suggests that Congress is changing its view of how the Forest Service should manage its lands more quickly than the Forest Service is changing itself, and that, as some have argued, Congress has been an important external agent of change concerning the agency and its policies.     

National Forest Timber Management Over the Past Decade

Timber output, the major commodity use of the National Forests, was tracked from 1981 to 1993, to assess changes that have occurred in the amount of timber offered, sold, and harvested. In addition, changes in the method of harvest used on the National Forests were examined to view trends in the management practices of the Forest Service. Although trends regarding changes in timber harvest methods varied from region to region, data on timber offered, sold, and harvested showed a dramatic decrease both nationally and in important timber-producing regions since the late 1980s. This reduction, when seen in the light of other recent studies, suggests that the Forest Service is changing the emphasis of its management practices, placing less priority on the traditional high level of timber output.     

Is the Forest Service Keeping Up With the Times?

Interest groups involved in the Forest Service's 1990 Resources Planning Act (RPA) forest planning process and representatives from accredited forestry schools were surveyed via a written questionnaire on their perceptions of change within the Forest Service since 1976. Respondents felt that the agency had changed, particularly during the late 1980s and early 1990s. Consumptive users perceived the change to be negative, while non-consumptive user groups and forestry schools felt it was somewhat positive, although they still felt the Forest Service had much further to go in this direction before achieving these groups' desired priorities for National Forest management. These results indicate that the agency is undergoing a net shift in direction towards increased emphasis on non-commodity forest uses. In general, external forces, such as Congress and the courts, were seen as having a greater impact on agency change than were sources of change within the agency itself. Forestry schools agreed most often with non-consumptive users, indicating that these programs may be undergoing a change away from their traditional focus on timber production. In addition to providing valuable insights on the subject of change in the Forest Service, these survey results locate areas of agreement and disagreement, and provide valuable feedback to the agency regarding its constituent groups' views about its performance in managing the National Forests.     

The Forest Service Since the National Forest Management Act

There has been considerable recent discussion and debate about change and the need for change in the United States Forest Service. A number of observers have argued that the agency has shifted its emphasis from commodity to non-commodity values of the National Forests, has become more sensitive to environmental and ecological concerns, and has become more responsive to public input. However, to date most articles on the topic of change in the Forest Service have been either theoretical and speculative in nature or have based their conclusions on attitude surveys of agency employees. So far no studies have provided “hard,” empirical evidence of change or have conducted any systematic examination of the presumed causes. This symposium attempts to fill this gap. What follows is the presentation of the analyses of a wide range of important quantitative indicators of agency change. From these analyses, we attempt to answer the following questions: Has the Forest Service indeed been changing? If so, what direction has it taken and how significant has this change been? What are the possible causes of change, and what have been the consequences for National Forest policy? What factors are likely to influence future change in the agency?     

Timber and Town: Post-War Federal Forest Policy, Industrial Organization, and Rural Change in Oregon's Illinois Valley

In the recent political furor over disposition of the remaining old-growth forests in the Pacific Northwest, focus has been directed at the ecological shortcomings of the federal sustained yield forest management doctrine. This has occurred in part at the expense of evaluation of these policies based on social criteria. Yet the sustained yield paradigm and the post-war compact between private capital and federal forest agencies were justified in part to foster stable rural timber economies. Nowhere has this compact been more significant than in rural Oregon. And yet nowhere are its failings more apparent. The central argument of this paper is that the failure of federal sustained yield policies to sustain rural communities stems from an implicitly naive model of industrial capitalism. By ignoring the inherently destabilizing character of capitalist industry, by further failing to refine the notion of community stability, and by failing to take genuine steps to defend rural society from the upheavals of industrial change, the United States Forest Service and the Bureau of Land Management have allowed community stability to languish in the dogged pursuit of accelerated cutting rates. This paper explores industrial change in Oregon's forest products sector in the post-war era of federal sustained yield management, looking specifically at southwest Oregon's Illinois Valley.     

Forestry policy in colonial and postcolonial Zimbabwe: continuity and change

Using the case of Mafungautsi Forest Reserve, this paper discusses continuities and changes in policy and practice at the communal and reserved forest interface in Zimbabwe. Colonial forestry policy in Zimbabwe has often been labelled as oppressive, as communal area citizens were not allowed to participate effectively in its formulation and implementation. Independence in 1980, it was thought, would usher in an era of greater participation within the forestry sector. However, the hope that local communities would have greater input in the forestry policies and management has largely remained unfulfilled. The state institutions responsible for managing forests have largely remained unsympathetic to the involvement of local communities in the management of forestry resources despite the pre-independence rhetoric. Alongside the co-management attempt to make local peasants citizens through their inclusion in decision-making has been the continuity of the colonial policy that treated local peasants who used resources as criminals destroying trees and forests. This paper examines how the fundamental policy perspective of forestry in Zimbabwe still perceives local peasant farmers to be unsustainable exploiters of forests. The local resource users have not remained passive recipients of the repressive forestry policies and practices based on science but have actively contested them since the 1950s.     

Neutral Bystander,Intrusive Micromanager,or Useful Catalyst?

An analysis of Forest Service-related legislative activity found that increasingly Congress is becoming involved in agency activities and decisionmaking. Congress's growing scrutiny and management of the Forest Service is indicated by rising trends in requests for agency testimony at congressional hearings, in the number of Forest Service-related bills and amendments introduced in Congress, and in the amount of Forest Service-related legislation enacted. Anecdotal evidence of direct political pressure imposed upon agency personnel by congressional members also indicates that much congressional influence occurs outside of these legislative activities. An examination of activities such as these and directives attached to annual appropriation bills also shows that not all congressional actions are productive in fostering positive agency change. The results of this study indicate the likelihood that Congress has been playing a major role in instigating change within the agency.     

Litigating Agency Change

A study of Forest Service-related litigation and administrative appeals was undertaken to examine their potential roles in effecting change within the Forest Service. The frequency of federal lawsuit decisions involving the Forest Service increased markedly between 1971 and 1993, indicating a dramatic increase in the use of litigation as a tool to force change within the agency, particularly in the Ninth Circuit. Administrative appeals followed a similar increasing trend. An examination of the instigators and purposes of lawsuits found that litigation is used most frequently by environmentalists and most often to block commodity production activities by the agency. Although the agency wins the majority of suits in which it is involved, litigants who initiated lawsuits to stop commodity production activities had higher success rates than litigants seeking to challenge additional environmental measures or to promote commodity production by the agency. A qualitative examination of five National Forest Management Act lawsuit case studies concluded that when litigants are successful in legal challenges against the agency, the court decision often results in substantive on-the-ground changes in management, thereby providing an incentive for additional use of litigation as a means to alter agency actions. These results indicate that the courts and administrative appeals process likely have been significant factors in catalyzing change within the Forest Service.     

Racial,Gender, and Professional Diversification in the Forest Service from 1983 to 1992

The United States Department of Agriculture Forest Service traditionally has been dominated by white, male for esters, particularly in its professional and leadership ranks. Beginning in the mid-1970s, however, civil rights legislation, lawsuits, and statutes that mandated interdisciplinary planning collectively impelled the agency to begin diversifying by race, gender, and profession. This study attempts to quantify the progress the agency has made in workforce diversification since the early 1980s by grouping Forest Service job series into categories and tracking changes in these categories over time. The study reveals that the numbers of employees in “nontraditional” Forest Service fields (e.g., the social and biological sciences) increased markedly, but that these employees remain vastly outnumbered by employees in traditional fields such as forestry. The number of women in the agency also increased greatly, but women made much greater gains in administrative support positions than in jobs that put them in the pipeline for leadership positions. They remain vastly overrepresented in clerical and administrative positions and highly under rep resented in professional and technical positions. People of color made gains in nearly all job categories, but, like women, remain significantly overrepresented in jobs that will not lead to leadership positions. Thus, while aggregate numbers show greater diversity in the Forest Service workforce, a more detailed analysis reveals that the leadership ranks are still the domain of white, male foresters.     

Managing Oman's Archaeological Resource: Historical Perspectives

Abstract

This article examines the history of the development of archaeological resource management in the Sultanate of Oman. It provides an overview of past and present practices and investigates the relevance of current management to the present state of Omani society. Although archaeological resource management in Oman started only three decades ago, the government has made enormous progress in establishing archaeological organizations and in creating their administrative and legislative tools. Nevertheless, it is also evident that the national system of archaeological resource management is facing a number of challenges that need to be addressed. The significance of this study lies in the fact that it is the first attempt to review this resource management historically. It aims to fill an obvious lacuna left by the many researchers who, since starting their activities in the 1950s, have only focused on the archaeology of the resource without evaluating the system through which this resource has been managed.     

对保护青海冬虫夏草资源的思考

青海冬虫夏草生长于高寒高海拔区,其独特的药用和营养价值深受国内外消费者的青睐,需求量不断增加,价格一路攀升,随之在冬虫夏草资源开发利用和管理中出现了一些不容忽视的问题。加强冬虫夏草资源管理,对于保护草原生态,全面实现冬虫夏草资源持续开发利用,有效提高虫草产区社会经济协调发展和增加农牧民收入具有重要意义。     

Letting Indigenous People Talk About Their Country: a Case Study of Cross‐Cultural (Mis)communication in an Environmental Management Planning Process

This paper presents a case study, based on the experiences of two senior Aboriginal traditional owners who were engaged in negotiations surrounding the establishment of a Regional Forest Agreement (RFA) in southeast Queensland. This case is notable as an illustration of the capacity of natural resource management planning, through negotiation within a formal process, to extinguish native title. Importantly, the personal experiences of two senior Aboriginal people provide an insight into a situation designed to enhance interactions between government and community, with the overt intention of improving natural resource management. However, the record of this personal experience indicates that the communication was less than satisfactory and that the outcomes, at least in terms of the experiences recorded here, of the individual senior Aboriginal community members, was less than satisfactory. We conclude that, despite best intentions, there is an important lack of provision for community influence or power, including any legal or administrative institutional framework. We also conclude that there are important institutional and social processes of engagement still to be developed, including ways of engaging the community more widely that has conventionally been the case.     

Documenting Cultural and Historical Memory: Oral History in the National Park Service

"Documenting Cultural and Historical Memory: Oral History inthe National Park Service" provides an overview and assessmentof the current state of oral history projects and programs withinthe National Park Service. Oral history has long been a particularlyvaluable resource and tool for the Park Service in preservingcultural and historical memory. Its rangers, interpreters, historians,archaeologists, ethnographers, and cultural landscape specialistsuse oral history to document the history of individual parks,as well as the events and people the parks commemorate. Theyuse oral history to create interpretive exhibits, movies, andvideos and to record perspectives on major events, figures,and movements. The Service initiates and manages a large numberof unique and significant oral history projects and programs. However, too often the value of its oral history projects andcollections has been diminished because of funding shortages,poor equipment, insufficient training, inadequate preservationmeasures, or other problems.     

The Stone Quarry Cottage Site: Mid-Nineteenth-Century Settlement on Grand Island

Abstract

Archaeological testing was recently conducted at the Stone Quarry Cottage Site on Grand Island, Michigan. The site is a mid-nineteenth-century homestead situated on the shore of Lake Superior. The recent rehabilitation of the cabin by the United States Forest Service allowed the placement of archaeological excavation units within the footprint of the cabin. The site has produced a distinct pattern of artifact deposition that has provided baseline data for ongoing studies of the mid-nineteenthcentury settlement on the island. Despite its provisional nature, the data generated at the Stone Quarry Cottage identified patterns of site occupation reflecting domestic and transient use of this site, for the island as a whole, and possibly for other nineteenthcentury frontier settings. This paper outlines the results of the archaeological testing and offers a discussion concerning the interpretation of the site.     

Characteristics of Oman's archaeological resource: a preliminary review of management prospects

This paper is a preliminary overview of the main characteristics of the archaeological resource of Oman from a management perspective. It looks at the resource in terms of form, space and time. It covers a pilot statistical analysis of the archaeological data so far input into the proposed National Archaeological Database of Oman (NADO). The main findings of this analysis show that the management of Omani archaeological resource lacks a well‐defined strategic research plan, and that there are large research gaps in many geographical and chronological areas. It also shows that the governmental organisations responsible for the management of the country's archaeological resource are not taking into consideration the potential benefits of archaeological records in their management practices.     

Trees as technology: planting shelterbelts on the Great Plains

The turbulent climate of the Great Plains made windbreaks necessary for the protection of settlers and their livestock and crops. At first individual farmers tried to plant their own shelterbelts but with little success. The US Forest Service, with the establishment of the Bessey tree nursery, in 1902, and the field planting of the Nebraska National Forest, developed the expertise to carry out farm forestry on the plains. In 1934 the Forest Service undertook the Prairie States Forestry Project, an eight‐year program to plant shelterbelts from Canada to Texas, in response to the Dust Bowl and the Great Depression. These shelterbelts were a technological solution to environmental and social problems. As they grew, successful shelterbelts developed forest characteristics and served as habitat for birds and wildlife. As systems that were both technical and ecological, shelterbelts embodied a confluence of culture and nature in the technology that farmers and foresters used to engineer a more suitable environment for American society on the Plains.     

Historic landscape management: a validation of quantitative soil thin-section analyses

The archaeological interpretation of past land management practices can be greatly enhanced through examination of soil thin sections. Features relating to manuring practice are among those key to interpreting agricultural practices. The sources and the processes leading to the distribution of these manure materials may further improve knowledge of the past landscape utilisation. The use of quantitative analyses to examine soil thin sections opens the possibility of considering these relationships between manured areas in greater detail and to extract more subtle spatial and temporal changes in past management. In this study the validation of this methodology has been tested with quantitative image analysis methods used to examine manure inputs to a well-documented historical landscape of Papa Stour, Shetland, where intensive manuring has been practised until the 1960s. By using both historic and ethnographic evidence to validate the image analysis protocol, differences in spatial and temporal distribution are examined for the practices of manuring with both fuel residues and with turf. The validation of the hypotheses expected from ethnographic and historical data that quantitative soils-based evidence allows the definition of variations in manuring strategies and provides a more secure basis from which to interpret manuring management strategies in archaeological landscapes.     

From global forests to local politics: unwrapping the boundaries within forest certification

Following decades of concern about unsustainable forest management practices, forest certification was developed in the 1990s to become an influential global forest governance approach. 25 years since its inception, forest certification is under attack, with questions raised regarding its legitimacy and efficacy in driving sustainable forest management. Recognising forest certification as a complex and dynamic boundary-spanning regime, understanding the impact of diverse boundaries on forest certification is essential to address escalating conflict and enable the improved design of forest certification systems. This paper empirically explores the implementation of a forest certification regime using a Forest Stewardship Certification pesticide derogation process. The case shows how competing boundaries place considerable pressure on the effectiveness and sustainability of the global certification regime. Embedded local interests and contested institutional claims hardened the boundaries between interests across the policy regime, weakening connections and hence weakening opportunities to find common solutions.     

Marine geophysical investigation of the inshore coastal waters of Northern Ireland

Northern Ireland has been subject to significant maritime influences throughout its 9000-year known human history. In 1997 the University of Ulster in partnership with the Environment and Heritage Service (DOE, NI) embarked on a programme of seabed mapping in an attempt to record the submerged and buried archaeological resource using a suite of geophysical equipment including a side-scan sonar, a Chirp sub-bottom profiler and a proton precession magnetometer. The geophysical research programme has successfully imaged 80 19th- and 20th-century wrecks, and 20 targets of further archaeological potential. These data will aid the production of wreck-prediction indices for the coastline of Northern Ireland based on site formation processes and site stability. This information will make valuable additions to both Sites and Monuments Records and to the shipwreck database currently under consideration at the University of Ulster.     

Transformation of forest policy regimes in Finland since the 19th century

In this paper, interpretations of sustainable forestry are investigated against the historical background of transformations in the industrial utilisation of forests. Three distinct forest policy regimes in Finland since the 19th century are identified. First, the introduction of the German forestry model, with the central notion of sustained yield, and the establishment of the Finnish Forest Service took place simultaneously in the latter half of the 19th century. These actions aimed at changing patterns of local forest use considered detrimental to long-term forest utilisation. Second, a national forest sector was established during the 20th century. Industrial forestry was seen as a guarantee of economic independence for the new nation-state. Third, during a recent phase the influence of non-governmental organisations and international forest industry companies has increased, and traditional power relations have changed as issues such as biodiversity, forest certification and global investments have been introduced to the debates. It is concluded that the recent transformations in forest management should be read as transformations in industrial forestry rather than as abandonment of industrial forest use models; the legacy of the 19th century German forest science still prevails in forest management.