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Rethinking Responses to Coastal Problems: an Analysis of the Opportunities and Constraints for Canada

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Rethinking Responses to Coastal Problems: an Analysis of the Opportunities and Constraints for Canada RETHINKING RESPONSES TO COASTAL PROBLEMS: AN ANALYSIS OF THE OPPORTUNITIES AND CONSTRAINTS FOR CANADA by Colleen S. L. Mercer Clarke Submitted in partial fulfilment of the requirements for the degree of Doctor of Philosophy at Dalhousie University Halifax, Nova Scotia June 2010 © Copyright by Colleen S. L. Mercer Clarke, 2010 DALHOUSIE UNIVERSITY INTERDISCIPLINARY PHD PROGRAM The undersigned hereby certify that they have read and recommend to the Faculty of Graduate Studies for acceptance a thesis entitled “RETHINKING RESPONSES TO COASTAL PROBLEMS: AN ANALYSIS OF THE OPPORTUNITIES AND CONSTRAINTS FOR CANADA” by Colleen S. L. Mercer Clarke in partial fulfillment of the requirements for the degree of Doctor of Philosophy. Dated: June 4, 2010 Supervisor: _________________________________ Supervisor: _________________________________ Readers: _________________________________ _________________________________ _________________________________ ii DALHOUSIE UNIVERSITY DATE: 4 June 2010 AUTHOR: Colleen S. L. Mercer Clarke TITLE: RETHINKING RESPONSES TO COASTAL PROBLEMS: AN ANALYSIS OF THE OPPORTUNITIES AND CONSTRAINTS FOR CANADA DEPARTMENT OR SCHOOL: Interdisciplinary PhD Program DEGREE: PhD. CONVOCATION: October YEAR: 2010 Permission is herewith granted to Dalhousie University to circulate and to have copied for non-commercial purposes, at its discretion, the above title upon the request of individuals or institutions. _______________________________ Signature of Author The author reserves other publication rights, and neither the thesis nor extensive extracts from it may be printed or otherwise reproduced without the author‟s written permission. The author attests that permission has been obtained for the use of any copyrighted material appearing in the thesis (other than the brief excerpts requiring only proper acknowledgement in scholarly writing), and that all such use is clearly acknowledged. iii DEDICATIONS For My late father, Lewis Mercer and My best friend, John David Clarke iv TABLE OF CONTENTS List of Tables .................................................................................................................. xi List of Figures ................................................................................................................ xii Abstract ........................................................................................................................ xiv List of Abbreviations and Symbols Used ........................................................................ xv Glossary .......................................................................................................................xvii Acknowledgements ....................................................................................................... xx PART I: BACKGROUND, PURPOSE AND DIRECTION CHAPTER 1: INTRODUCTION ...................................................................................... 1 1.1 The Problem ........................................................................................................ 1 1.2 The Research Questions ..................................................................................... 2 1.3 The Research Perspective ................................................................................... 3 1.3.1 The Interdisciplinary Approach ................................................................. 6 1.3.2 Finding Value in Complexity and Chaos ................................................... 7 1.3.3 Interdisciplinary Research and Coastal Management ............................... 9 1.4 The Research Approach .................................................................................... 10 1.4.1 Systematic Review and Meta-synthesis of Evidence-based Practice ...... 11 1.4.2 Improving our Understanding of the State of the Coast in Canada ......... 14 1.4.3. Setting a New Course for Coastal Management ..................................... 16 1.5 The Thesis Structure .......................................................................................... 17 PART II: PROGRESS TOWARDS INTEGRATION: AN ASSESSMENT OF EXPERIENCE BASED PRACTICE CHAPTER 2: FINDING PROGRESS TOWARDS ICM: A POSITIVE PERSPECTIVE ON EFFORTS TO DATE ......................... 19 2.1 The Declining State of the World‟s Coasts ......................................................... 19 2.2 Integrated Coastal Management: The Core Elements ........................................ 21 2.3 Assessing ICM Progress and Effectiveness ...................................................... 27 2.3.1 The Four Order Outcomes (FOO) Framework ........................................ 29 v 2.3.2 The Drivers-Pressure-State-Impact-Response Indicators Framework (DPSIR) ............................................................................... 31 2.3.3 Limitations to ICM Evaluations ............................................................... 32 2.3.4 Recent Initiatives ................................................................................... 33 2.4 The Achievements of Integrated Approaches to Coastal Management .............. 35 2.4.1 Global Support for Improved Coastal Management ................................ 36 2.4.2 Recognition of the Role of Science in Management ............................... 38 2.4.3 Growth in ICM Training and Governance Capacity ................................. 39 2.4.4 Growth in Information and Tools for Implementation .............................. 40 2.4.5 Recognition of the Role of Land based Activities .................................... 42 2.4.6 Recognition of the Value in Local Participation ....................................... 42 2.4.7 Movement towards Ecosystem-based Management Approaches ........... 43 2.5 Why Process isn‟t Enough ................................................................................ 44 CHAPTER 3: EXPERIENCE-BASED PRACTICE IN ICM: A PRAGMATIC ANALYSIS OF THE SHARED CONSTRAINTS TO IMPLEMENTATION ............................................................................... 47 3.1 Facing a Hard Reality: Mounting Concerns over the Effectiveness of ICM ......... 47 3.2 Systematic Review and Meta-Synthesis of Experience-Based Practice in ICM ................................................................................................................ 50 3.3 What Is Holding Us Back? The Constraints to Integration at the Coast .............. 51 3.3.1 Confusion over Coastal Boundaries ....................................................... 52 3.3.2 Lack of Political Will and Long-term Support .......................................... 54 3.3.3 Lack of Vertical and Horizontal Integration in Government ..................... 54 3.3.4 Differing Perspectives and Conflicting Goals .......................................... 57 3.3.5 Failures to Identify the Economic Benefits .............................................. 58 3.3.6 Lack of Interdisciplinary Science and Science to Government Collaboration .......................................................................................... 60 3.3.7 Limitations on Spatial and Temporal Data .............................................. 62 3.3.8 Lack of Capacity in Coastal Science and Management .......................... 62 3.3.9 Limitations to Participatory Management and Implementation ................ 63 3.3.10 Conflicting Time Scales for Management ............................................... 65 3.4 Plumbing the Depths .......................................................................................... 66 3.5 The Next Steps .................................................................................................. 68 vi CHAPTER 4: INTEGRATED COASTAL MANAGEMENT IN CANADA: AN ANALYSIS OF THE CONSTRAINTS TO PROGRESS .................... 69 4.1 Introduction ........................................................................................................ 69 4.2 Systematic Review and Meta-Synthesis of Canadian Experience ...................... 70 4.3 Progress towards Integration ............................................................................ 71 4.4 Constraints to ICM Progress ............................................................................. 73 4.4.1 What is A Coast in Canada? .................................................................. 76 4.4.2 Are Canada‟s Coasts in Peril? ................................................................ 77 4.4.3 Change and Conflict in Perspectives and Goals ..................................... 78 4.4.4 Changing Times and Dwindling Political Will .......................................... 79 4.4.5 Who‟s Got the Helm? Failures to Integrate in Government ..................... 80 4.4.6 Tallying the Costs: Economic Benefits versus the Price of Inaction ........ 84 4.4.7 Dashed Hopes: The Constraints to Participatory Management ............... 86 4.4.8 Failures to Pass the Torch: The Dawn of Limited Capacity in Coastal Science and Management .................................................... 88 4.4.9 Science and Governance: Transforming Data into Practical Wisdom ..... 89 4.4.10 Uniquely Canadian Challenges - Eh? ..................................................... 90 4.5 The Bottom Line on Coastal Management in Canada ........................................ 91 PART III: SUSTAINING THE COASTS OF CANADA: TOWARDS IMPROVED SCIENCE AND MANAGEMENT CHAPTER 5: ARE CANADA’S COASTS IN PERIL? AN ANALYSIS OF CURRENT COASTAL INFORMATION AND ITS RELEVANCE TO DECISION-MAKING ..........................................
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