James R. Skillen - Federal Ecosystem Management: Its Rise, Fall, and Afterlife

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Federal Ecosystem Management

Federal Ecosystem Management

Its Rise, Fall, and Afterlife

James R. Skillen

University Press of Kansas

2015 by the University Press of Kansas

All rights reserved

Published by the University Press of Kansas (Lawrence, Kansas 66045 ), which was organized by the Kansas Board of Regents and is operated and funded by Emporia State University, Fort Hays State University, Kansas State University, Pittsburg State University, the University of Kansas, and Wichita State University

Library of Congress Cataloging-in-Publication Data

Skillen, James.

Federal ecosystem management : its rise, fall, and afterlife / James R. Skillen.

pages cm

Includes bibliographical references and index.

ISBN 978-0-7006-2127-9 (cloth : alk. paper)

ISBN 978-0-7006-2164-4 (ebook)

. Ecosystem managementWest (U.S.) . Ecosystem management

Yellowstone National Park Region. I. Title.

QH76.5.w34s55 2015

333.720978dc23

2015020376

British Library Cataloguing-in-Publication Data is available.

Printed in the United States of America

10987654321

The paper used in this publication is recycled and contains percent postconsumer waste. It is acid free and meets the minimum requirements of the American National Standard for Permanence of Paper for Printed Library Materials Z.- 1992 .

For Sam & Ben

Contents

Acknowledgments

This project started as an essay on the integration of scientific and political authority in federal ecosystem management. As the project expanded, so did the list of people that deserve my gratitude. Thank you first to my family: Beth, Sam, and Ben. They do not necessarily share my interest in appropriations riders, judicial rulings, or the vast array of federal acronyms, but they certainly share my interest in public lands throughout the American West. Thank you for all of the time we have spent exploring.

This project took shape with assistance from numerous scholars, public servants, and research assistants. I am particularly grateful to John Freemuth, Bill Rowley, Paul Culhane, and John Nagle for long conversations and for reviewing portions of this manuscript. I am also grateful to many, many current and retired employees from the Forest Service and the BLM, including folks at the Forest Services Pacific Northwest Research Station and the Public Lands Foundation. For the NWFP chapter, thank you especially to Elaine Zielinski, and for the ICBEMP chapter, thank you especially to Geoff Middaugh. I am grateful for general research assistance from Rachel Stehouwer, Bethany Van Kooten, and Seth Kenbeek, and for general editing assistance from Katie Sauer. Finally, I am grateful to my colleague Melissa Sexton for her extensive editorial comments. All of these people contributed to the project, but none are responsible for any errors or misinterpretations.

This project was made possible by financial support from a number of sources. I am grateful to Calvin College for several research fellowships that provided time for research and writing and to the Mellema Program in Western American Studies for funding travel to various archives. I am also grateful to the Oregon Extension for generous support that provided time for me to finish the manuscript.

Finally, thank you to my children, Sam (11) and Ben (9), who volunteered to make pancakes for dinner one night during the late stages of writing so that I could stay hunched over my keyboard. You may not want to read the whole book, but please at least read the dedication.

Abbreviations

ACS	Aquatic Conservation Strategy
AMA	adaptive management area
APHIS	USDA Animal and Plant Health Inspection Service
BLM	Bureau of Land Management
CCA	Candidate Conservation Agreement
CEQ	Council on Environmental Quality
DSEIS	Draft SEIS
DFWP	Department of Fish, Wildlife, and Parks
EIS	environmental impact statement
EPA	Environmental Protection Agency
ESA	Endangered Species Act of 1973
ESC	executive steering committee
FEMAT	Forest Ecosystem Management Assessment Team
FLPMA	Federal Land Policy and Management Act of 1976
FSEIS	Final EIS
FWS	US Fish and Wildlife Service
GAO	Government Accountability Office
GYC	Greater Yellowstone Coalition
GYCC	Greater Yellowstone Coordinating Committee
GYE	Greater Yellowstone Ecosystem
HCA	Habitat Conservation Area
HCP	habitat conservation plan
IBMP	Interagency Bison Management Plan
ICBEMP	Interior Columbia Basin Ecosystem Management Project
ICRB	Interior Columbia River Basin
IGBST	Interagency Grizzly Bear Study Team
INFISH	Inland Native Fish Strategy
LCAT	Labor and Community Assistance Team
MOU	Memorandum of Understanding
MUSY	multiple use and sustained yield
NAS	National Academy of Sciences
NBS	National Biological Survey
NEPA	National Environmental Policy Act of 1969
NFMA	National Forest Management Act of 1976
NMFS	National Marine Fisheries Service
NPS	National Park Service
NWFP	Northwest Forest Plan
PACFISH	Interim Strategies for Managing Anadromous Fish-Producing Watersheds
PARC	Division of Predator and Rodent Control (US Fish and Wildlife Service)
RCA	riparian conservation area
RIEC	Regional Interagency Executive Committee
REO	Regional Ecosystem Office
ROD	Record of Decision
S&M	Survey and Manage
SBO	supplemental biological opinion
SDEIS	Supplemental Draft EIS
SIT	Science Integration Team
SEIS	Supplemental EIS
USGS	US Geological Survey

Introduction

It has become apparent that we are witnessing one of the most interesting periods in natural resource management since the heady days of Progressivism.

John Freemuth, The Emergence of Ecosystem Management: Reinterpreting the Gospel? (1996)

Some have suggested that these differences amount to no less than a radical revision of professional perspectives, values, and management practicesin other words, a paradigm shift.

Hanna Cortner and Margaret Moote, The Politics of Ecosystem Management (1999)

Is a new era dawning on the western public domain?

Robert Keiter, Keeping Faith with Nature (2003)

Background

In the 1990s, scholars, policymakers, land managers, and many others were talking about a new paradigm for federal lands and resources: ecosystem management. Advocates of this new approach promised that it would yield a host of benefits: integrating federal land and resource management across jurisdictional boundaries; protecting biodiversity

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