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

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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
Picture 1
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
ACSAquatic Conservation Strategy
AMAadaptive management area
APHISUSDA Animal and Plant Health Inspection Service
BLMBureau of Land Management
CCACandidate Conservation Agreement
CEQCouncil on Environmental Quality
DSEISDraft SEIS
DFWPDepartment of Fish, Wildlife, and Parks
EISenvironmental impact statement
EPAEnvironmental Protection Agency
ESAEndangered Species Act of 1973
ESCexecutive steering committee
FEMATForest Ecosystem Management Assessment Team
FLPMAFederal Land Policy and Management Act of 1976
FSEISFinal EIS
FWSUS Fish and Wildlife Service
GAOGovernment Accountability Office
GYCGreater Yellowstone Coalition
GYCCGreater Yellowstone Coordinating Committee
GYEGreater Yellowstone Ecosystem
HCAHabitat Conservation Area
HCPhabitat conservation plan
IBMPInteragency Bison Management Plan
ICBEMPInterior Columbia Basin Ecosystem Management Project
ICRBInterior Columbia River Basin
IGBSTInteragency Grizzly Bear Study Team
INFISHInland Native Fish Strategy
LCATLabor and Community Assistance Team
MOUMemorandum of Understanding
MUSYmultiple use and sustained yield
NASNational Academy of Sciences
NBSNational Biological Survey
NEPANational Environmental Policy Act of 1969
NFMANational Forest Management Act of 1976
NMFSNational Marine Fisheries Service
NPSNational Park Service
NWFPNorthwest Forest Plan
PACFISHInterim Strategies for Managing Anadromous Fish-Producing Watersheds
PARCDivision of Predator and Rodent Control (US Fish and Wildlife Service)
RCAriparian conservation area
RIECRegional Interagency Executive Committee
REORegional Ecosystem Office
RODRecord of Decision
S&MSurvey and Manage
SBOsupplemental biological opinion
SDEISSupplemental Draft EIS
SITScience Integration Team
SEISSupplemental EIS
USGSUS 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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