Easements and Conservation Policy in the North Maine Woods David J
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Maine Policy Review Volume 10 | Issue 1 2001 Easements and Conservation Policy in the North Maine Woods David J. Lewis Follow this and additional works at: https://digitalcommons.library.umaine.edu/mpr Part of the Environmental Policy Commons, Land Use Law Commons, and the Natural Resources Management and Policy Commons Recommended Citation Lewis, David J. "Easements and Conservation Policy in the North Maine Woods." Maine Policy Review 10.1 (2001) : 24 -36, https://digitalcommons.library.umaine.edu/mpr/vol10/iss1/5. This Article is brought to you for free and open access by DigitalCommons@UMaine. EASEMENTS AND CONSERVATION Easements and Conservation Recently Maine has embarked on a new policy direction in its use of conservation easements to protect large tracts of Policy in commercial timberland. In this article, David Lewis argues the North that the effectiveness of using easements as a long-term con- servation policy depends on many factors that may not be Maine Woods fully considered in the decisionmaking process currently By David J. Lewis used in choosing easements for landscape-scale conserva- tion. Lewis indicates that the root of the problem lies in the fact that the state lacks a comprehensive state policy describ- ing the conservation goals desired in the north woods. Before progressing further, Lewis suggests that the ultimate goals of conservation need to be understood clearly. Is con- servation addressing development? Recreation needs? Biodiversity protection? Forest fragmentation? Moreover, what are the costs and benefits associated with the state’s various conservation options? ᳚ 24 · MAINE POLICY REVIEW · Winter 2001 View current & previous issues of MPR at: www.umaine.edu/mcsc/mpr.htm EASEMENTS AND CONSERVATION Of primary INTRODUCTION money. With so much at stake, one may naturally wonder if he state of Maine has no comprehensive land con- easements are indeed a good buy. importance is the Tservation policy. With tens of millions of dollars The shear scale of the West from public and private sources beginning to flow into Branch project has brought up lack of a compre- various conservation initiatives in the state, this could issues from many sides of the pose a problem. Most of the money is targeted at the political spectrum. While both vast stretches of undeveloped forestland in the north environmental and property hensive state Maine woods, an area that occupies a broad transition rights groups have expressed zone between temperate and boreal forests while sup- various concerns over the project, policy describing porting an unusually diverse natural ecosystem. These a newly proposed legislative lands also support a large forest products industry and resolution uses the recent spate are in demand for recreation by local residents as well of easements to argue against the conservation as the many millions of people who live in nearby the need for a national park in urban areas. Over 94% of the land in Maine is in pri- Maine. The resolution states that goals desired in vate ownership. As a result, many important public val- a park is not needed because ues are derived from privately owned land in Maine. “state agencies and nonprofit In recent years, some have concluded that natural organizations are cooperating in the north woods. forest diversity is not adequately represented or protect- an unprecedented effort to secure ed by public or private conservation ownership in permanent rights of access to the Maine (Gawler et al., 1996). In addition to biodiversity north woods and keep valuable needs, the demand for recreation and other non-com- recreational property and natural habitat undeveloped modity uses of Maine’s forests has continued to grow through conservation easements.” This paper will not over time. The convergence of these trends has trig- address the politics of this debate. However, as some- gered a variety of conservation proposals from private one who is a proponent of easements in urban areas and public interests alike. The wide range of character- but who is not clear of the proper usage of easements istics found in each proposal raises the question of the on remote forestland, my concern is over the decision- best way to “protect” the woods. making process used in choosing easements for land- One of the most popular options in recent years scape-scale conservation. has been conservation easements, which are commonly Of primary importance is the lack of a compre- used to protect land from development in areas where hensive state policy describing the conservation goals there is a threat. In 1998, the New England Forestry desired in the north woods. For example, while conser- Foundation announced an unprecedented 750,000-acre vation easements may address goals related to develop- no-development easement bought from the Pingree ment concerns on lake shorefronts and urban Family for lands scattered throughout the remote tim- forestland, the appropriateness of easements on remote berland of northern Maine. This was followed by a backlands that have no shore frontage is unclear. There publicly funded easement consisting of 20,268 acres also may be desirable goals beyond development pro- on Nicatous Lake in northern Hancock County. The tection and public access for the north Maine woods. most recent proposal is the West Branch project, which, To the extent that biodiversity protection, forest frag- when completed, will consist of mostly easements on mentation and backcountry recreation are conservation over 650,000 acres in the region north of Moosehead policy concerns for Maine, easements may not bring Lake and west of Chesuncook Lake. Taken together, the desired benefits to the state. these projects sum to more than 1.4 million acres of There also are important cost considerations with land and potentially more than $40 million of public tools such as easements. In particular, there has been no View current & previous issues of MPR at: www.umaine.edu/mcsc/mpr.htm Winter 2001 · MAINE POLICY REVIEW · 25 EASEMENTS AND CONSERVATION formal cost-benefit analysis performed comparing the and the U.S. Fish & Wildlife Service, most of the usage of public funds on easements as opposed to remaining public lands are administered by the state’s other conservation policy tools, such as full-fee land Bureau of Parks and Lands as either public reserved purchases and regulation by a state agency. In order to lands or state parks. truly evaluate the cost-effectiveness of easements, all Public reserved lands total approximately 500,000 long-term costs related to easement valuation, recre- acres and are managed for “multiple uses.” Timber is ation management and monitoring must be taken into harvested from these lands with the income derived account. In addition to cost concerns, a thorough evalu- from timber sales going directly to support recreation, ation of the benefits provided by easements may be wildlife and timber management on public reserved necessary to evaluate the appropriateness of easements lands. A system of ecological reserves also has been as a landscape-scale conservation tool. established recently on public reserved lands. These lands generally have a great deal of public support, as evidenced by several successful referen- dums designed to fund the purchase of …there has been no formal cost-benefit analysis land. The first referendum was in 1966, when the public voted to acquire land performed comparing the usage of public funds on ease- for the Allagash Wilderness Waterway in northern Maine. In 1976, voters decided to purchase approximately ments as opposed to other conservation policy tools,… 40,000 acres around Bigelow Mountain in western Maine. In 1987—and again in 1999—voters approved a $35 mil- BACKGROUND lion bond and a $50 million bond to purchase addi- tional lands for public reserved lands, state parks, and he land currently proposed for conservation protec- other conservation lands. Ttion in the Maine woods is owned privately and The late 1990s have seen a huge increase in the managed primarily for timber production. Despite pri- activity of private land trusts in Maine. Among the vate ownership, these lands have traditionally been largest deals is an approximately 200,000 acre full-fee open to public recreation and are widely used for hunt- land purchase by the Nature Conservancy in the upper ing, fishing, snowmobiling, and canoeing. In recent St. John river watershed and a 750,000 acre conserva- years controversy has erupted over the management of tion easement on lands scattered throughout the north these lands. While forestry concerns have dominated woods by the New England Forestry Foundation the headlines, there also have been controversies (NEFF). Although the NEFF deal is mostly funded regarding recreation fees, gating and wildlife protec- through private sources, there will be an estimated $3.5 tion. Despite these concerns, there has been relatively million in public funds included. In 1998, the state little land purchased full-fee by the government for and federal governments paid $3.75 million for a con- conservation protection in the last ten years. servation easement around Nicatous Lake in northern Public conservation acreage in Maine amounts to a Hancock County. In the spring of 2000, the state little less than one million acres, or just under 6% of and federal governments announced the West Branch the land base. The most well-known public lands are project, an acquisition featuring mostly conservation Baxter State Park in Piscataquis County and Acadia easements on over 650,000 acres of land north of National Park in Hancock County. Both came into Moosehead Lake and west of Chesuncook Lake. The public ownership by philanthropic donation. While West Branch project has been estimated in the $35 there is some land owned by the U.S. Forest Service million range and the ratio of public to private funds 26 · MAINE POLICY REVIEW · Winter 2001 View current & previous issues of MPR at: www.umaine.edu/mcsc/mpr.htm EASEMENTS AND CONSERVATION is unknown as of now.