DISSERTATION CRISES UNWASTED: HOW POLICY ENTREPRENEURS LINKED FOREST BIOMASS TO ENERGY SECURITY IN COLORADO, 1998-2013 Submitted by Mike Eckhoff Department of Forest and Rangeland Stewardship In partial fulfillment of the requirements For the Degree of Doctor of Philosophy Colorado State University Fort Collins, Colorado Summer 2014 Doctoral Committee: Advisor: Kurt Mackes Co-Advisor: Rick Knight Charles Davis Mark Fiege Marcia Patton-Mallory Douglas Rideout Copyright by Mike Eckhoff 2014 All Rights Reserved ABSTRACT CRISES UNWASTED: HOW POLICY ENTREPRENEURS LINKED FOREST BIOMASS TO ENERGY SECURITY IN COLORADO, 1998-2013 Colorado’s forests are facing threats from wildfires, insect and disease epidemics and human encroachment. At the same time, Coloradans are facing energy security problems from fossil fuel price volatility, unintended consequences from continued fossil fuel dependence, problematic alternative, non-renewable fuel promotions and a struggling renewable energy industry. Subsequently, natural resources managers in Colorado are facing two imposing challenges simultaneously: 1) the need to restore forest health and 2) to manage energy resources sustainably, equitably and with public safety in mind. Policy entrepreneurs invested in forest energy found ways to link forest health emergencies to energy security crises. This dissertation is a study that explores how that link was forged and what happened in Colorado as result, looking at the actions taken by the four major federal land management agencies (U.S. Forest Service, Bureau of Land Management, National Park Service and the U.S Fish and Wildlife Service). This study also traced briefly how the State of Colorado responded to these crises, too. First, this study qualitatively surveyed literature in the forest history and policy arenas and energy history and policy arenas to chart how prior events led to current conditions. Media articles were tabulated and coded to quantitatively gauge how salient their respective issues were over time. Using Multiple Streams Theory, policy windows were identified. Second, the Punctuated Equilibrium Theory was applied to the emerging forest energy policy arena during the time frame identified by the policy windows. Finally, interviews and meetings were held with employees at the federal, regional/state and local levels and with members of state government to ii determine how the increased saliency of forest and energy issues translated to forest energy policy actions on the ground in Colorado. This dissertation concludes that federal land management agencies took greater interest and made significant efforts to promote forest energy in Colorado between the years 2000 and 2013. This increased interest resulted in increased funding, regulation and project development and implementation in the state. However, while activity increased, opportunity for additional actions remains. Coloradans would be wise to foster additional public-private initiatives and work to promote forest energy among large groups of proximal forest communities. Inevitably, as fossil fuel supplies decrease and prices increase, Colorado, along with the rest of the country, will in part be forced to return back to its “roots” and Dukert’s notion of “the future behind us.” iii ACKNOWLEDGMENTS Unlike most, if not all, of my peers, my first months at Colorado State University in 2003 were miserable. I was not adapting to graduate school, and I missed North Carolina. I was so despondent by the middle of the semester that I was ready to quit. I said as much to one of my professors in the Department of Political Science, and he suggested I abandon the degree—if only for the weekend—to remember why I chose Colorado. Perhaps I would return rejuvenated. I drove south. In Colorado Springs, another driver’s reckless lane change forced me off Interstate-25 and towards Pike’s Peak. Tense, I rationalized that a change in my altitude might change my attitude. After winding up a long, narrow mountain road, unpaved and without guardrails, I stopped at the top of one of Colorado’s highest peaks with a clear, uninterrupted view all around me including the Continental Divide. However, in my trance I neglected to look up; I was defecated upon by one of the winged locals. I was figuratively crushed. Then, as I walked back to my car while trying to clean my shoulder, I noticed that the slope of the path was downward. Almost as if I had just been christened (or more likely looking for any reason not to assume the prodigal son’s mantle), I decided that, henceforth, I would think positively. For instance, during my long walk back to the car I decided that matters could not possibly become any worse so all of my future efforts would be viewed as though I were moving downhill. (Also, in retrospect, I left on a Thursday. Friday was the last day to withdraw for the semester. Because I was traveling and lacked the internet access necessary for withdrawing, I forfeited any meaningful choice and was essentially trapped in my academic plan for the semester’s remainder.) Reminiscent of my wandering, I see the parallel in my efforts. Of my many faults, the most vexing is that I focus on the negative. Figures such as “the death of 100% of all mature iv lodgepole pine in the next three to five years” or gas price spikes to $4.00 or more per gallon would seem insurmountable and I would have been consumed by the negative coverage. Tireless in their efforts, my graduate committee was vital for ensuring I did not forfeit anything else and helped me to see the opportunities within the bigger picture. I realize I have a knack for missing the forest for the trees. In fact, the basis for this project was an idea from Dr. Mackes. (Someone finally gave him a day off.) They were not alone. Bob Sturtevant was stalwart in his support and his help with this effort, going so far as to initially serve on my committee and then proofread chapters during his retirement and during his stint with the Peace Corps in Ethiopia. Allison Level with CSU’s Morgan Libraries was my guide to resources I did not know existed. I would be lost without her insights, guidance and assistance in and out of the classroom. A number of folks with the Colorado State Forest Service and the Colorado Wood Utilization and Marketing Program helped me along as well, including Tim Reader, Amanda Bucknam, Amanda Morrison, Kristina Hughes, Craig Jones, Matt Schiltz, Tara Costanzo, Damon Vaughn, the CSFS Outreach Division, including Katherine Timm, and Joe Duda, who all helped point me in the right direction (and who probably, given proper hindsight, wish I did not have their personal cell phone numbers). I met some kindred spirits along the way, including Dan Bihn with Bihn Systems, Inc., the Forest Products Society’s CSU Student Chapter and the Society of American Foresters’ Alpha Student Chapter. They all seemed to know what to say, especially when I needed so very badly to hear it. Teaching natural resources history and policy and forest products courses is invaluable. Hundreds of students have been kind enough to let me know where my philosophical shortcomings exist and some even posed the dreaded “So what?” and “Who cares?” questions. I v hope I integrated their thoughts and ideas into this manuscript and corresponding lectures. I also hope, in exchange, they learned that managing people is just as critical, if not, more so than managing the natural resources we consume. I am also tremendously indebted to a myriad of contacts in the forest energy world. To those anonymous respondents from the federal land management agencies’ national, state and regional/local levels, I am deeply indebted to their willingness to speak with me openly and honestly. I hope I have captured their thoughts, ideas and experiences accurately. Similarly, for the folks from state and local government and from the forest products industry and environmental community, I am very humbled by their breadth of experience and very appreciative of their willingness to share some of that experience with me. I am indebted to Dr. Tessler, the staff at Rose Medical Hospital, Dr. Nandi, Dr. Moss, Dr. Larson, Charlotte Popovich, Dr. Snively, the staff at Kaiser Permanente and especially the continued support of Dr. Cohn and my team at Rocky Mountain Cancer Centers. Surviving a bout with Clostridium difficile and a subsequent round with Stage 4B Hodgkin’s Lymphoma halfway through the research process was the most grueling and difficult challenge I ever faced. I hope they know just how grateful I am for the extension of a lifetime. Jane Hastings (and Roxie) at Mad About Fitness became my personal trainer, physical rehabilitator, and cheerleader. I’d still be an uncontrolled growth on the couch, unable to perform a push-up or abdominal crunch, much less know what those exercises are, without her help and support. She is the reason I can sit upright at a desk again and was able to type this paper. When the (wood?) chips were down, my family and friends provided a unique, distant refuge where for a few months, I could recharge and “re-create.” I’m indebted to my friends in Lakewood Shorin-Ryu for their support and teaching me the value of courage (and a well timed vi punch). Along with my dear friends Erin Belval and Kathie Mattor, my parents and brothers served as sorely overworked and vastly underpaid editors, reviewers and personal focus group. Finally, I am indebted to a high-elevation avian species that seemingly enjoyed the freedom of not having to mind its bowel control one fateful day in the Springs. With so many helping, any remaining errors, inconsistencies, exaggerations or unduly complicated and verbose passages where I inadvertently failed to eschew sesquipedalian and erudite diction while attempting to unnecessarily obfuscate the basic yet essential statements of fact (read: lies) belong to me and me alone.