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.     

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.     

A Shift in Values

Quantitative indicators of change for non-commodity resource management were examined, to assess whether the United States Department of Agriculture Forest Service has been changing its on-the-ground management practices to give more emphasis to non-commodity resources. Specifically, data on recreation management and on wildlife and fish habitat management were analyzed to determine whether any shifts in the agency's management priorities had occurred. All data examined indicate that the Forest Service has been increasing its activities in non-commodity resource management over historic levels. When viewed in context with other recent studies suggesting that the Forest Service is moving away from traditional commodity production, the results of this study provide evidence that a significant shift has occurred, or presently is occurring, in Forest Service management practices.     

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?     

Competition in a Repeated Spatial Auction Market with an Application to Timber Sales

In this paper we develop a model of a repeated spatial auction market. The auction model contributes to the literature on spatial competition by considering the sale of goods in a market with spatial and temporal dimensions, and in which goods are sold by an auction institution instead of a posted-price institution. In the Nash equilibrium of the spatial auction model, each bidder is found to have a dominance solvable strategy to bid below his net (of transportation costs) valuation for the first unit of the good because there is an option value to not winning, namely that the following units may be locationally preferred to the first unit. The equilibrium bidding strategies lead to the possibility of non–Pareto-efficient outcomes. The auction model is applied to data from U.S. Forest Service timber sales.     

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.     

Environmental interpretation is flowering in Denmark

Abstract

Environmental interpretation is flowering in Denmark. In 1986 it was decided to carry out a three‐year experimental project with 14 environmental interpreters. Today the number of environmental interpreters has grown to 230. The inspiration came from abroad, but the project is established according to Danish cultural and democratic traditions. Some Environmental Interpreters are employed by the State in the National Forests, others by counties, local authorities, museums or ‘green associations’, but they are all linked together in the Environmental Interpreter Service with secretariat in The National Forest and Nature Agency. A modern organisation provides training courses for the interpreters and has developed a series of active interpretation methods in order to make experiencing nature an important tool in modern Danish environmental management and inspire a positive attitude to the future—to sustainable development and management. The aim of setting up an Environmental Interpreter Service was to give people interesting experiences in and knowledge of the countryside and thereby a greater understanding of the complexity of nature, the conditions for agriculture and perhaps an increased environmental consciousness. It was also the hope that if people had a greater understanding of nature, they will love and care for it better. The Brundtland Report ‘Our Common Future, the conference in Rio in 1992 and Agenda 21 has changed the Environmental Interpreters’ work. We have recognised, that it is important to use live Interpreters and not only technical media in this important work. People respond best to personal, face‐to‐face interpretation. The interpreters try to create a love of nature, and at the same time, create an understanding of local and global environmental conditions.     

The Cultural Politics of Resource Management: the Case of Bushfires in a Conservation Reserve

Recent bushfire events have seen a rise in conflict over bushfire management in south Australia. A case study from Kangaroo Island illustrates the conflict between the rural community and the National Parks and Wildlife Service. The debate is ostensibly concerned with the effectiveness of bushfire management strategies employed in reserves. Inquiry reveals, however, that the conflict is underlain by cultural and social tensions. These issues concern the protagonists' relationship with the Kangaroo Island landscape and recent land management changes. The autonomy and role of the rural community in the landscape has been challenged by these globalising trends in land management. Through the bushfire issue the community is seeking to reassert its position on Kangaroo Island as creator and steward of the landscape.     

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.     

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.     

The Forest Products Industry,A Specialized Activity of the Sos'va Valley Section of the Ob' Basin

The construction of the Ivdel'—Ob' railroad has opened up the rich timber resources of the Sos'va section of the Ob' River basin. Fifteen logging centers are in operation along the rail line, shipping 3.5 million cubic meters of timber, mainly as roundwood. Selective logging practices used at the present time tend to deplete timber reserves more rapidly than planned. To preserve the Sos'va region as a long-term supplier of timber for the industrial regions of the USSR, sound forest management is recommended, including multipurpose utilization of felled timber and reforestation. The forest products industry will be more economical if about 70 percent of the felled timber is converted into marketable wood products in major mill complexes planned for the region, leaving 30 percent for shipment as roundwood (pitprops, pulpwood, shipbuilding timber). The proposed Lower Ob' hydroelectric power project, even with the lower normal headwater surface now under consideration, would prevent economic development of the region by flooding valuable resource lands.     

Forest Policy Reform and the Organization of Logging in Peruvian Amazonia

Reform in the forest sector in Peru resulted in a new forestry law, developed with substantial input from international conservation and donor organizations. While it incorporates the principles of sustainable forest management, biodiversity conservation and livelihood improvement, inconsistencies remain between the regulatory mechanisms and actual practices and outcomes in the field, leading some to consider the legal framework a failure. This article suggests that problems in the sector persist because the legal and regulatory frameworks do not incorporate existing local institutions, norms and practices — all of which are rooted in complex historical social, political and economic relationships. Based on information from interviews, data on movement of timber and analysis of secondary information, the authors examine the local structure, actors and dynamics of the concession forestry system in the Peruvian Amazon. The article focuses on how financial, social and political relationships in the network of actors, and particularly the patronage system, have helped actors in the sector adapt to the new policy framework. It is proposed that any further reform in the forest sector must be based on a keen understanding and appreciation of the praxis of timber extraction in the region.     

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.     

Contesting land,creating community,in the Highlands and Islands,Scotland

This paper draws on research in four communities in the Highlands and Islands, Scotland, to explore how the notion of community and community identity are re‐worked in the political spaces created as communities claim collective rights to land. In the cases of the Assynt Crofters’ Trust, the Bhaltos Community Trust, and Laid, this has concerned land under crofting tenure; in the case of the claim of the North Sutherland Community Forestry Trust, the land on which the Naver Forests stand is the responsibility of the Scottish Ministers and is managed by Forest Enterprise. The four case studies differ with respect to membership and institutional practices and thus provide fertile ground on which to examine, comparatively, collective struggles for the land and the search for sustainable futures.     

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.     

Spatiotemporal Changes in Landscape Pattern in Response to Afforestation in Northeastern Turkey: A Case Study of Torul

Abstract

Monitoring and understanding of land use/forest cover dynamics as well as the factors affecting the changes in land use/forest cover are necessary for the sustainable management of natural resources. This study analyzes the spatial and temporal changes in land use and forest cover patterns in a typical mountain forest area in the Torul State Forest Enterprise area of Northeastern Turkey. The investigation evaluates the temporal changes of the spatial structure of forest conditions through the spatial analysis of forest-cover type maps from 1984 and 2005 using GIS and FRAGSTATS. The evidence presented here showed that there were drastic changes in the temporal and spatial dynamics of land use/forest cover, and between 1984 and 2005 there was a net increase of 19.9% in total forested area. Productive forest area increased by 3161 ha, although degraded forest area increased 9216 ha. In examining the changes of crown closure and development stages of the forest ecosystem during the study period, the forest stand area with low crown closures increased. The regenerated area increased because of regeneration activities while the other development stages were left to grow to older development stages in the period. These results regarding the crown closure and development stage show that forest quality has increased, and this is partly due to emigration of the rural population in Torul. In terms of spatial configuration, the landscape structure in Torul, the State Forest Enterprise area, changed substantially over the 21-year study period, resulting in fragmentation of the landscape as indicated by large patch numbers and smaller mean patch sizes, owing to heavy timber subtraction, illegal cutting, and uncontrolled stand treatments.     

Linking Public Agencies With Community-Based Watershed Organizations: Lessons From California

Watershed organizations routinely seek to influence public agencies and sometimes also depend on them for financial and technical assistance. For some agencies this relationship is strained and problematic. Watershed organizations tend to develop closer working relationships with decentralized and locally responsive agencies, like the Bureau of Land Management (BLM). Centralized and unresponsive agencies, like the Forest Service, tend to be unreliable partners. Ironically, the same characteristics that once led to accusations that the BLM was captured by local stakeholders such as ranchers have allowed BLM officials to reorient themselves in the 1990s to become responsive to watershed organizations, which currently are favored by grass-roots environmentalists. This paper examines these relationships through a case study from California, where state and federal agencies designed and partially implemented a public/private strategy to preserve biodiversity. The strategy was a curious hybrid of top-down planning and bottom-up implementation. Although orchestrated primarily by the BLM, the strategy was implemented initially in a region of the state where the Forest Service predominated. The case study, therefore, highlights some of the fundamental tensions underlying the relationship between watershed organizations and public agencies.     

Determining the habitats of mollusk collection at the Sapelo Island shell ring complex, Georgia, USA using oxygen isotope sclerochronology

Sequential oxygen isotope analysis was performed on Mercenaria spp. (n = 41) and Crassostrea virginica (n = 17) valves excavated from the Sapelo Island Shell Ring complex, coastal Georgia, USA. The data were analyzed to determine the habitats in which the mollusks were harvested in order to gain insight into the subsistence practices of the site occupants. The rationale for this study is based on the observation that temperatures are similar in all of the habitats surrounding the island, but the δ¹⁸O_water trends across the habitats co-vary with salinity. Accordingly, the shells grown in these habitats contain sinusoidal oscillations in δ¹⁸O through ontogeny due primarily to seasonal temperature variation, but the absolute values reflect the salinity ranges of each habitat. Assuming a relatively constant oxygen isotope/salinity gradient since the time of site occupation, it appears that both of these mollusks were exploited over nearly the full range of their salinity tolerances. While a precise estimate of travel distance during collection cannot be made, these data suggest that mollusks were harvested at distances from the site greater than would be predicted using terrestrial foraging models. In addition to providing insight into past subsistence strategies in this region, this research establishes a new method of assessing catchment area and mobility practices.     

REVISITING LITHIC SCATTERS: A CRM PERSPECTIVE

Abstract

The scope of an archaeological survey may be defined by environmental or cultural boundaries, or by arbitrarily defined boundaries, which is generally the case in cultural resource management (CRM) surveys. The most common site type encountered during the course of almost any Phase I CRM survey is the temporally nondiagnostic “lithic scatter.” The majority of surveys conducted within the United States today are compliance driven, and thus most lithic scatters are discovered and recorded by CRM firms. They are therefore investigated according to state standards, and their potential for contributing to the archaeological record is evaluated according to criteria established under the National Historic Preservation Act. Under these circumstances, the significance of the vast majority of these sites is dismissed outright during the course of initial investigation and reporting. While nondiagnostic lithic scatters may often be uninteresting as individual units of analysis, this paper argues that in aggregate they represent a vital component of the archaeological record. It further argues that their potential value as individual units of analysis is often dismissed too casually. The paper demonstrates that under currently accepted field methodology, many of these sites are not adequately investigated and are not entered into any meaningful database. Recommendations for improving the initial investigation and interpretation of these sites are offered, based on recent initiatives taken in Louisiana by the U.S. Forest Service on Kisatchie National Forest.     

Somaliland

The changing pattern of land‐use in the Forest of Abernethy, Inverness‐shire in the period AD 1750 to the present is examined, using information from records and a number of maps and surveys. It is shown that the forest has a long history of exploitation for timber and the grazing of livestock, and that by the mid‐eighteenth century a pattern not markedly different from that of the present had already emerged. Evidence for the widespread formation of heathland in Dark Age times, and the fact that almost every part of Abernethy has been felled for timber at least once, modifies the concept of the forest as a “native Pinewood”.