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Shifting currents: Progress, setbacks, and shifts in policy and practice

The Wisconsin Academy’s initial Waters of Wisconsin project (WOW I) facilitated a statewide conversation between 2000 and 2003 around one main question: How can we ensure healthy aquatic ecosystems and clean, abundant water supplies for tomorrow’s Wisconsin? Robust participation in this conversation underscored the important role citizens have in the stewardship of our waters, and we found enthusiastic support for farsighted policies—based on sound science—to manage our water legacy. Overall, we found that Wisconsinites cherish water and see our waters as essential to our way of life in Wisconsin. Nationally, our state ranks 25th in land area but has the fourth-highest area covered by water. Wisconsin is 20th in population but is second only to Florida in the number of fishing licenses sold each year. Clean water supports billions of dollars’ worth of economic activity through tourism, agriculture, and industry. From the Northwoods cabin to the Port of Milwaukee to the Wisconsin Dells, water shapes our state’s identity. Our tradition of safeguarding Wisconsin’s waters is grounded in values such as responsibility to family and future generations, respect for land and wildlife, protecting public health and safety, and caring for water as a common good, as articulated in the state’s Public Trust Doctrine (see page 9). These deeply held values have also shaped a conservation ethic, and its legacy has served many generations who depend upon and enjoy the waters of the state. Through WOW I, we identified the need to overcome the institutional and disciplinary separation of science, policy, and management protocols through a more integrated approach to water management. WOW also affirmed that the Wisconsin Department of Natural Resources (DNR) and other public agencies play a critical role in sound scientific application, citizen participation, and the practical implementation of policy while balancing public and private interests toward the goal of a clean water future. More than a decade has passed since our first statewide WOW conversation and the report that captured recommendations from its participants: Waters of Wisconsin: The Future of Our Aquatic Ecosystems and Resources. Drawing from a diverse and growing set of stakeholders from across the state, the Wisconsin Academy initiated a new conversation in 2012 (known as WOW II) to assess progress in regard to our 2003 recommendations. We also sought to review the status of waters in Wisconsin today. The result of this renewed conversation is Shifting Currents: Progress, Setbacks, and Shifts in Policy and Practice. The new report assesses progress in brief, and explores in greater depth the continuing and emerging challenges to water quality, supply, and aquatic ecosystems in Wisconsin. In this report, we first review the context and frameworks for public decision-making about water and then examine some of the root causes—or “drivers”—and ecological stressors that underlie many of the symptoms we see in the form of pollution or ecosystem degradation in Wisconsin. This is followed by a summary of current water issues, many of which had been identified in the 2003 report and remain relevant today. We examine progress since 2003 but also setbacks, and discuss issues that we are likely to continue to face in the coming decades, including controlling agricultural runoff, mitigating climate change and grappling with its effects on the state’s waters, protecting groundwater from bacterial contamination and other pollutants, and preventing groundwater depletion. We also attempt to anticipate issues on the horizon. We offer a deeper look at some particular challenges, such as phosphorus pollution and groundwater contamination. We then consider the current decision-making framework and how it is shaping our capacity to respond to water challenges in Wisconsin. Finally, we offer recommendations and identify opportunities to safeguard Wisconsin’s waters in the decades ahead. From its inception, the Wisconsin Academy’s Waters of Wisconsin Initiative has brought together a diverse community of experts from across the state and from varied fields and areas of interest, to address challenges and seize opportunities related to our precious waters. We have done so as a matter of both principle and practical reality: the state of our waters reflects the ways we interact not only with them, but also with one another and our institutions. The WOW Initiative has aimed to provide guidance for Wisconsin citizens in sustaining the health of our aquatic ecosystems and the resilience of our water supplies over the long term.

Report

Earthquake prediction: The interaction of public policy and science

Earthquake prediction research has searched for both informational phenomena, those that provide information about earthquake hazards useful to the public, and causal phenomena, causally related to the physical processes governing failure on a fault, to improve our understanding of those processes. Neither informational nor causal phenomena are a subset of the other. I propose a classification of potential earthquake predictors of informational, causal, and predictive phenomena, where predictors are causal phenomena that provide more accurate assessments of the earthquake hazard than can be gotten from assuming a random distribution. Achieving higher, more accurate probabilities than a random distribution requires much more information about the precursor than just that it is causally related to the earthquake.

Conference Paper

The conservation genetics juggling act: Integrating genetics and ecology, science and policy

The field of conservation genetics, when properly implemented, is a constant juggling act integrating molecular genetics, ecology, and demography with applied aspects concerning managing declining species or implementing conservation laws and policies. This young field has grown substantially since the 1980’s following development of the polymerase chain reaction and now into the genomics era. Our lab has “grown up” with the field, having worked on these issues for over three decades. Our multi-disciplinary approach entails understanding the behavior and ecology of species as well as the underlying processes that contribute to genetic viability. Taking this holistic approach provides a comprehensive understanding of factors that influence species persistence and evolutionary potential while considering annual challenges that occur throughout their life cycle. As a federal lab, we are often addressing the needs of the U.S. Fish and Wildlife Service in their efforts to list, de-list or recover species. Nevertheless, there remains an overall communication gap between research geneticists and biologists who are charged with implementing their results. Therefore, we outline the need for a National Center for Small Population Biology to ameliorate this problem and provide organizations charged with making status decisions firmer ground from which to make their critical decisions.

Evolutionary Applications

Resilience by Design: Bringing Science to Policy Makers

No one questions that Los Angeles has an earthquake problem. The “Big Bend” of the San Andreas fault in southern California complicates the plate boundary between the North American and Pacific plates, creating a convergent component to the primarily transform boundary. The Southern California Earthquake Center Community Fault Model has over 150 fault segments, each capable of generating a damaging earthquake, in an area with more than 23 million residents (Fig. 1). A Federal Emergency Management Agency (FEMA) analysis of the expected losses from all future earthquakes in the National Seismic Hazard Maps (Petersen et al., 2014) predicts an annual average of more than $3 billion per year in the eight counties of southern California, with half of those losses in Los Angeles County alone (Federal Emergency Management Agency [FEMA], 2008). According to Swiss Re, one of the world’s largest reinsurance companies, Los Angeles faces one of the greatest risks of catastrophic losses from earthquakes of any city in the world, eclipsed only by Tokyo, Jakarta, and Manila (Swiss Re, 2013).

California

The Fort Collins Science Center

With a focus on biological research, the U.S. Geological Survey Fort Collins Science Center (FORT) develops and disseminates science-based information and tools to support natural resource decision-making. This brochure succinctly describes the integrated science capabilities, products, and services that the FORT science community offers across the disciplines of aquatic systems, ecosystem dynamics, information science, invasive species science, policy analysis and social science assistance, and trust species and habitats.

Colorado

Introduction to this special issue on ocean acidification: the pathway from science to policy

Ocean acidification (OA) is a progressive decrease in the pH of seawater over decades, caused primarily by uptake of excess atmospheric CO2 and accompanied by changes in seawater carbonate chemistry. Scientific studies designed to examine the effects of anthropogenic carbon dioxide (CO2) emissions on global carbon fluxes have also led to the detection of OA. During the last decade, this phenomenon has surged to the attention of not only scientists but also policymakers and the public. OA chemistry is well understood and follows first principles of acid-base chemistry (e.g., Gattuso and Hansson, 2011; Box 1 in McLaughlin et al.). Today, total anthropogenic release of CO2 exceeds nine petagrams of carbon annually, with ~85% coming directly from industrial sources and ~15% from changes in land use. The three major sinks for this CO2 are: ~46% of CO2 emitted remains in the atmosphere, ~29% is absorbed by the terrestrial biosphere, and the ocean absorbs the remaining ~26% (Le Quéré et al., 2014), resulting in OA. Since the Industrial Revolution, global average surface ocean pH has dropped 0.1 unit (about a 30% increase in acidity; IPCC, 2013), and it is expected to drop another 0.3 to 0.4 units by 2100 (100-150% increase in acidity) if CO2 emissions continue in a business-as-usual scenario (Orr et al., 2005; IPCC, 2013). Some areas of the ocean, such as coastal regions, upwelling zones, and polar seas, may be subjected to much greater chemical perturbations from OA than indicated by such globally averaged values (e.g., Feely et al., 2008; Mathis et al.).

Oceanography

Advancing marine biological observations and data requirements of the complementary Essential Ocean Variables (EOVs) and Essential Biodiversity Variables (EBVs) Frameworks

Measurements of the status and trends of key indicators for the ocean and marine life are required to inform policy and management in the context of growing human uses of marine resources, coastal development, and climate change. Two synergistic efforts identify specific priority variables for monitoring: Essential Ocean Variables (EOVs) through the Global Ocean Observing System (GOOS), and Essential Biodiversity Variables (EBVs) from the Group on Earth Observations Biodiversity Observation Network (GEO BON). Both systems support reporting against internationally agreed conventions and treaties. GOOS, established under the auspices of the Intergovernmental Oceanographic Commission (IOC), plays a leading role in coordinating global monitoring of the ocean and in the definition of EOVs. GEO BON is a global biodiversity observation network that coordinates observations to enhance management of the world’s biodiversity and promote both the awareness and accounting of ecosystem services. Convergence and agreement between these two efforts are required to streamline existing and new marine observation programs to advance scientific knowledge effectively and to support the sustainable use and management of ocean spaces and resources. In this context, the Marine Biodiversity Observation Network (MBON), a thematic component of GEO BON, is collaborating with GOOS, the Ocean Biogeographic Information System (OBIS), and the Integrated Marine Biosphere Research (IMBeR) project to ensure that EBVs and EOVs are complementary, representing alternative uses of a common set of scientific measurements. This work is informed by the Joint Technical Commission for Oceanography and Marine Meteorology (JCOMM), an intergovernmental body of technical experts that helps international coordination on best practices for observing, data management and services, combined with capacity development expertise. Characterizing biodiversity and understanding its drivers will require incorporation of observations from traditional and molecular taxonomy, animal tagging and tracking efforts, ocean biogeochemistry, and ocean observatory initiatives including deep ocean and seafloor. The partnership between large-scale ocean observing and product distribution initiatives (MBON, OBIS, JCOMM, and GOOS) is an expedited, effective way to support international policy-level assessments (e.g., the Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services or IPBES), along with the implementation of international development goals (e.g., the United Nations Sustainable Development Goals).

Frontiers in Marine Science

Conserving transboundary wildlife migrations: Recent insights from the Greater Yellowstone Ecosystem

Animal migrations are ecologically, culturally, and economically important. Ungulate populations in many parts of Africa, Asia, Europe, and the Americas migrate long distances to access seasonally available resources, traversing vast landscapes in large numbers. Yet some migrations are declining, raising concerns among scientists and natural resource managers. We synthesize recent advances in ungulate migration ecology with relevance to management and policy. Using case studies from the Greater Yellowstone Ecosystem (GYE), we show how new tools can be applied to map ungulate migrations and assess threats across multiple seasonal habitats, serving as a conservation roadmap. To help conserve ungulate migrations, we also propose a transboundary science, policy, and management framework that could be adapted beyond the GYE and that encompasses the needs of multiple species. The key elements of this framework consist of more widespread mapping and assessment of migrations, improved federal and state coordination across jurisdictional lines, increased investment in private land conservation, and strong engagement of local stakeholders positioned to sustain conservation activities over the long term.

Idaho, Montana, Wyoming

Culturally diverse expert teams have yet to bring comprehensive linguistic diversity to intergovernmental ecosystem assessments

Multicultural representation is a stated goal of many global scientific assessment processes. These processes aim to mobilize a broader, more diverse knowledge base and increase legitimacy and inclusiveness of these assessment processes. Often, enhancing cultural diversity is encouraged through involvement of diverse expert teams and sources of knowledge in different languages. In this article, we examine linguistic diversity, as one representation of cultural diversity, in the eight published assessments of the Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services (IPBES). Our results show that the IPBES assessment outputs are disproportionately filtered through English-language literature and authors from Anglophone countries. To incorporate more linguistic diversity into global ecosystem assessment processes, we present actionable steps for global science teams to recognize and incorporate non-English-language literature and contributions from non-Anglophones. Our findings highlight the need for broad-scale actions that enhance inclusivity in knowledge synthesis processes through balanced representation of different knowledge holders and sources.

One Earth

The web of life: Natural science information on the Internet

As society has come to equate economic prosperity with the health of our living resources, national science policy has called for the development of a comprehensive digital knowledge base to support informed decision making and wise resource management. The Internet and World Wide Web demonstrate the earliest stages of this evolving virtual library of the natural world, offering an increasing array of high-quality, innovative resources and services in the natural science arena. This article discusses the leading providers of natural science information on the Internet and highlights some of the exemplary resources they are delivering online. The discussion concludes with a brief discussion of the role of the librarian in developing the Web of natural science knowledge online and provides a short Webliography of starting points for further exploration of this subject area. PDF

Journal of Library Administration

Economic Growth and Landscape Change

Prato and Fagre offer the first systematic, multi-disciplinary assessment of the challenges involved in managing the Crown of the Continent Ecosystem (CCE), an area of the Rocky Mountains that includes northwestern Montana, southwestern Alberta, and southeastern British Columbia. The spectacular landscapes, extensive recreational options, and broad employment opportunities of the CCE have made it one of the fastest growing regions in the United States and Canada, and have lead to a shift in its economic base from extractive resource industries to service-oriented recreation and tourism industries. In the process, however, the amenities and attributes that draw people to this “New West” are under threat. Pastoral scenes are disappearing as agricultural lands and other open spaces are converted to residential uses, biodiversity is endangered by the fragmentation of fish and wildlife habitats, and many areas are experiencing a decline in air and water quality. Sustaining Rocky Mountain Landscapes provides a scientific basis for communities to develop policies for managing the growth and economic transformation of the CCE without sacrificing the quality of life and environment for which the land is renowned. This forthcoming edited volume focuses on five aspects of sustaining mountain landscapes in the CCE and similar regions in the Rocky Mountains. The five aspects are: 1) how social, economic, demographic and environmental forces are transforming ecosystem structure and function, 2) trends in use and conditions for human and environmental resources, 3) activating science, policy and education to enhance sustainable landscape management, 4) challenges to sustainable management of public and private lands, and 5) future prospects for achieving sustainable landscapes.

Book chapter

Detroit River becoming a crucible for boundary organization experimentation

The Detroit River has a long history of human use and abuse, resulting in public outcry over water pollution and resource degradation. This public outcry helped catalyze the enactment of many laws and the Canada-U.S. Great Lakes Water Quality Agreement which led to enhanced research, monitoring, and water pollution control. As pollution from industries and municipal wastewater treatment plants came under control and progress was made in management of single species, the focus shifted to a more comprehensive ecosystem approach that accounted for all the sources of pollution and targeted restoring ecosystem health with resilience. Over time, the Detroit River became a “proving ground” or crucible for experimenting with boundary organizations to overcome geographical, political, institutional, and disciplinary boundaries and strengthen science-policy-management linkages for ecosystem-based management. This study identified 15 boundary organizations functioning in the Detroit River watershed and evaluated two case studies – St. Clair-Detroit River System Initiative and State of the Strait Conferences. Key lessons learned from this study include: 1) establishing boundary organizations, promoting cooperative learning, and building capacity for boundary-spanning are essential for use of an ecosystem approach; 2) boundary spanning requires specific skills, experience, and improved linkages between research and practice; 3) the 15 boundary organizations provide a unique opportunity to collaborate in a community of practice to share knowledge, foster cooperative learning, enhance problem-solving, build trust, and demonstrate leadership; and 4) continued actionable science, investment in capacity building, and cooperative learning are essential to meet long-term goals of sustainability.

Detroit River

Increasing the uptake of ecological model results in policy decisions to improve biodiversity outcomes

Models help decision-makers anticipate the consequences of policies for ecosystems and people; for instance, improving our ability to represent interactions between human activities and ecological systems is essential to identify pathways to meet the 2030 Sustainable Development Goals. However, use of modeling outputs in decision-making remains uncommon. We share insights from a multidisciplinary National Socio-Environmental Synthesis Center working group on technical, communication, and process-related factors that facilitate or hamper uptake of model results. We emphasize that it is not simply technical model improvements, but active and iterative stakeholder involvement that can lead to more impactful outcomes. In particular, trust- and relationship-building with decision-makers are key for knowledge-based decision making. In this respect, nurturing knowledge exchange on the interpersonal (e.g., through participatory processes), and institutional level (e.g., through science-policy interfaces across scales), represent promising approaches. To this end, we offer a generalized approach for linking modeling and decision-making.

Environmental Modelling & Software

Essential biodiversity variables

Reducing the rate of biodiversity loss and averting dangerous biodiversity change are international goals, reasserted by the Aichi Targets for 2020 by Parties to the United Nations (UN) Convention on Biological Diversity (CBD) after failure to meet the 2010 target (1, 2). However, there is no global, harmonized observation system for delivering regular, timely data on biodiversity change (3). With the first plenary meeting of the Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services (IPBES) soon under way, partners from the Group on Earth Observations Biodiversity Observation Network (GEO BON) (4) are developing—and seeking consensus around—Essential Biodiversity Variables (EBVs) that could form the basis of monitoring programs worldwide.

Science

Recognizing political influences in participatory social-ecological systems modeling

Stakeholder participation in social-ecological systems (SES) modeling is increasingly considered a desirable way to elicit diverse sources of knowledge about SES behavior and to promote inclusive decision-making in SES. Understanding how participatory modeling processes function in the context of long-term adaptive management of SES may allow for better design of participatory processes to achieve the intended outcomes of inclusionary knowledge, representativeness, and social learning, while avoiding unintended outcomes. Long-term adaptive management contexts often include political influences -- attempts to shift or preserve power structures and authority, and efforts to represent the political and economic interests of stakeholders -- in the computer models that are used to shape policy making and implementation. In this research, we examine a period that included a major transition in the watershed model used for management of the Chesapeake Bay in the United States. The Chesapeake Bay watershed model has been in development since the 1980s, and is considered by many to be an exemplary case of participatory modeling. We use documentary analysis and interviews with participants involved in the model application and development transition to reveal a variety of ways in which participatory modeling may be subject to different kinds of political influences, some of which resulted in unintended outcomes, including: perceptions of difficulty updating the model in substantive ways, “gaming” of the model/participatory process by stakeholders, and increasing resistance against considering uncertainty in the system not captured by the model. This research suggests unintended or negative outcomes may be associated with both participatory decision-making and stakeholder learning even though they are so often touted as the benefits of participatory modeling. We end with a hypothesis that further development of a theory of computer model governance to bridge model impact and broader theories of environmental governance at the science-policy interface may result in improved SES modeling outcomes.

Maryland, Virginia

Catalyzing change: A literature review on the implementation of the Nature Futures Framework

The Nature Futures Framework (NFF), developed under the Intergovernmental Science–Policy Platform on Biodiversity and Ecosystem Services (IPBES), serves as a catalyst for advancing new scenarios and models focused on biodiversity and ecosystem services within the broader research community. In particular, the framework facilitates the development of scenarios and models that can help guide change processes toward desirable futures for nature and people. This paper assesses 31 studies that have engaged with the NFF since its introduction in 2020, aiming to identify which research areas have been addressed, and where development needs remain. The applications exhibit a large diversity in terms of locations, spatial scales, methods, outputs, and stakeholder involvement. The most common use of the framework has been in developing visions and scenarios. Nearly all studies engaged with diverse values of nature through the framework’s fundamental value perspectives: ‘Nature for Society’, ‘Nature for Nature’, and ‘Nature as Culture/One with Nature’. While the framework is generally perceived as useful, challenges remain in integrating the NFF across multiple scales and fully incorporating plural values, particularly in measuring relational aspects and avoiding Western-centric biases. Future research priorities include developing integrated, quantitative studies and exploring transformative pathways to enhance the framework's effectiveness in driving sustainable outcomes. Overall, the growing body of work using the NFF provides a strong foundation for distilling best practices, facilitating large-scale applications, and achieving the framework's objectives.

Sustainability Science