Alternative Dispute Resolution and Natural Resources
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ALTERNATIVE DISPUTE RESOLUTION AND NATURAL RESOURCES Building Consensus & Resolving Conflicts in the Twenty-first Century CONFERENCE PROCEEDINGS MAY 16-19, 2000 TUCSON, ARIZONA SPONSORED BY U.S. DEPARTMENT OF THE INTERIOR U.S. DEPARTMENT OF AGRICULTURE / FOREST SERVICE U.S. INSTITUTE FOR ENVIRONMENTAL CONFLICT RESOLUTION OF THE MORRIS K. UDALL FOUNDATION UDALL CENTER FOR STUDIES IN PUBLIC POLICY AT THE UNIVERSITY OF ARIZONA INTRODUCTION The field of alternative dispute resolution (ADR) offers all parties involved in natural resources disputes additional tools and processes to engage in constructive, non- adversarial problem solving. The purpose of this conference was for federal, state, and local government agency staff, together with resource managers and users, environ- mentalists, community-based groups, and private property owners, to learn from ADR experts and from each other about their experiences with environmental conflict resolu- tion and consensus building in the context of natural resource management. This national conference sponsored by the U.S. Institute for Environmental Conflict Resolution of the Morris K. Udall Foundation, The University of Arizona’s Udall Center for Studies in Public Policy, the U.S. Department of the Interior, and the U.S. Depart- ment of Agriculture–Forest Service drew over 425 attendees from across the nation and from Mexico and Chile. Five plenary sessions and fifty-seven panel sessions took place over the two and a half day period. Panel sessions covered three main categories: • ADR processes such as scoping, convening, monitoring implementation, evaluation, issues of neutrality and right to know • Stakeholder concerns and issues such as collaboration and consensus building, managing issues that span multiple agencies and jurisdictions, experiences and successes of ADR in Native American issues • Scientific and technical issues such as the use of GIS and decision support systems, improving communication of technical information for stakeholders, the general public and the media The feedback from this conference has been overwhelmingly positive and enthusiastic. Look for a similar conference in the coming years. 2 TABLE OF CONTENTS WEDNESDAY, MAY 17, 2000 Morning Plenary: Chasing the Elusive Goal: Resolving Natural Resources Disputes, David J. Hayes, Deputy Secretary, U.S. Dept. of the Interior ............. 8 SESSION I ✰ A River Ran through It, Monica Medina, Moderator .......................................... 17 ✰ Multi-stakeholder Negotiation as Resource Tool Karen Malkin, Moderator ..................................................................................... 18 ✰ National Park Planning: Stewardship across Boundaries Luther Propst, Moderator ..................................................................................... 30 ✰ Implementing Collaborative Solutions for Flood Damage Reduction and Natural Resource Protection in the Red River of the North Basin Michael J. Harty, Moderator ................................................................................. 47 ▲ The Mediation Process—The Snake River Mediation / The Parties’ Institutional Issues and Challenges, Joe McMahon, Moderator...................... 48 ▲ Approaches to Managing Intergovernmental Relations Christine Carlson, Moderator ............................................................................... 55 ▲ FACA: A Tool or a Problem? Suzanne Orenstein, Moderator ........................... 66 SESSION II ✰ Grazing on Public Lands: Alternatives for Conflict Resolution Rebecca Mills, Moderator .................................................................................... 68 ● Science and Politics: Making Oil and Water Mix through Innovative Collaborative Processes, Kim Vogel, Moderator .............................................. 69 ▲ Using the Enlibra Principles as a Value-added Tool to Promote Consensus, Joel Hirschhorn, Moderator ............................................................ 80 ▲ The View From the Top Interior Department Officials: When ADR Is Appropriate and When It Is Not, Robert Baum, Moderator .............................. 94 ▲ Creative Thinking: Practical Innovations and Future Opportunities for ADR at the U.S. Environmental Protection Agency Rosemary O’Leary, Moderator............................................................................. 95 The symbol next to each panel denotes the theme: ▲ = ADR processes ✰ = Stakeholder issues and concerns ● = Science and technology 3 SESSION III ✰ Stuck in the Muck, Monica Medina, Moderator ........................................... 126 ✰ The Boundary Waters Mediation, John Wagner, Moderator ...................... 127 ✰ Mediating in the Shadow of the Legislature, Margaret Weil, Moderator ... 128 ▲ Using Games, Simulations, Maps, and Other Tools to Integrate Science, the Humanities, and Community Values to Address Land Use and Environmental Policy Issues in a Collaborative Framework, Herman Karl, Moderator ........................................................... 142 ▲ Negotiated Rule Making, Deborah Dalton, Moderator ................................ 156 ▲ What Have We Learned About Training Federal and State Agency Staff for Collaboration and Consensus? Christine Carlson, Moderator .... 160 ▲ Perspectives from the Negotiating Table: Enhancing One’s Effectiveness So ADR Isn’t DOA, Thom Corcoran, Moderator................... 161 THURSDAY, MAY 18, 2000 Morning Plenary: Senior Mediator Reflections on Developments in the Field of Environmental Conflict Resolution, Kirk Emerson, Moderator .... 185 SESSION IV ✰ Mitigating Conflict to Native American Land Use Deborah Medders, Moderator........................................................................ 195 ✰ Lessons Learned from the Glen Canyon Dam Adaptive Management Program, Barry Gold, Moderator ........................................... 201 ✰ Guidance for Environmental Advocates Considering Collaborative Processes, Frank Dukes, Moderator .................................... 222 ● Integrating Public Values, Technical Analysis, and Procedural Justice in Resolving Environmental Conflicts: Water Quality Regulations for the Neuse River, Corrine Houpt, Moderator...................... 232 ▲ The Framing of Intractable Natural Resource Disputes and Their Implications for ADR Practice, Barbara Gray, Moderator.......................... 241 ▲ Organizational Strategy for Conflict and Conflict Resolution Bryce Appleton, Moderator ............................................................................ 242 ▲ Africa, South America, Mexico, and the United States: Global ADR Realities, Alice Shorett, Moderator........................................... 248 4 SESSION V ✰ Taking A Risk: Tribal Participation in ADR Processes Lucy Moore, Moderator.................................................................................. 250 ✰ Managing Social Conflicts Regarding 25 Percent of the World’s Fresh Water: Preserving the Great Lakes Ecosystem Susan Senecah, Moderator ........................................................................... 259 ✰ Going Hog Wild: Using ADR Approaches to Resolve Disputes over CAFO Sitings, Barbara Gray, Moderator ............................................. 263 ● Seeing Sprawl: Urban Growth Modeling in Two and Three Dimensions—Part I, Wilson Orr, Moderator................................................. 264 ● Selecting, Contracting, and Mediating Disputes with Technical Professionals—A Practical Workshop, Timothy Hoffman, Moderator ....... 265 ▲ Community Resource Mapping, Rosemary Romero, Moderator ............... 270 ▲ Making Collaboration Work: Understanding the Quincy Library Group in the Context of Broader Case Experience Julia Wondolleck, Moderator ......................................................................... 275 ▲ How Well is Collaboration Working? Integrating Multi-stakeholder Dialogues into Policy Decision Making, Ann Moote, Moderator ............... 276 SESSION VI ✰ EPA’s Brownfields Facilitation Pilots: Entry, Landing, and Changing Landscapes, Lee Scharf, Moderator ............................................................ 301 ✰ Arizona Common Ground Roundtable, Mette Brogden, Moderator .......... 304 ✰ Mediating Environmental Disputes Already in Litigation: What Works and What Doesn’t, Michelle Langan, Moderator .......................................... 305 ● Seeing Sprawl: Urban Growth Modeling in Two and Three Dimensions—Part II, Wilson Orr, Moderator................................................ 306 ▲ From Conflict to Collaboration in Natural Resource Management Marion Cox, Moderator .................................................................................. 307 ▲ ADR and the Waters of the Akwesasne, Stephen Garon, Moderator ........ 316 ▲ Agency Experience in Utilizing Facilitated Dialogue and Other ADR Techniques to Manage Public Conflict in the West Ric Richardson, Moderator ............................................................................ 318 ▲ ADR Program Development: Lessons Learned Zell Steever, Moderator ................................................................................. 319 5 Evening Plenary: Navajo Perspectives of Alternative Dispute Resolution The Honroable Robert Yazzie, Chief Justice of the Navajo Nation................ 338 FRIDAY, MAY 19, 2000 SESSION VII ✰ Collaborative Land Management and Conservation: The Sonoita Valley Planning Partnership and Las Cienegas National Conservation Area, Mary Vint, Moderator ................................................... 344 ● Dueling