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Understanding the Wicked Nature of ''Unmanaged Recreation' Environ Manage (2006) 38:784–798 DOI 10.1007/s00267-005-0372-2 Understanding the Wicked Nature of ‘‘Unmanaged Recreation’’ in Colorado’s Front Range Jeffrey J. Brooks Æ Patricia A. Champ Received: 29 November 2005 / Accepted: 17 March 2006 Ó Springer Science+Business Media, Inc. 2006 Abstract Unmanaged recreation presents a challenge ‘‘The formulation of a wicked problem is the to both researchers and managers of outdoor recrea- problem!’’ (Rittel and Webber 1973:161) tion in the United States because it is shrouded in In a 2003 Earth Day speech, the Chief of the United uncertainty resulting from disagreement over the def- States Forest Service (Forest Service) identified ‘‘un- inition of the problem, the strategies for resolving the managed recreation’’ as one of the ‘‘four threats’’ that problem, and the outcomes of management. Incom- jeopardize the health of National Forests, the quality plete knowledge about recreation visitors’ values and of recreation experiences, and essential ecosystem relationships with one another, other stakeholders, and functions (Bosworth 2003). The Forest Service identi- the land further complicate the problem. Uncertainty fied three additional threats: wildland fire and fuels, and social complexity make the unmanaged recreation habitat fragmentation, and exotic invasive species. We issue a wicked problem. We describe the wickedness document the nature and the context of one of these inherent in unmanaged recreation and some of the threats: unmanaged recreation. Although we focus on a implications of wickedness for addressing the problem single threat, we acknowledge the interconnectedness, for the Front Range of the Rocky Mountains in multidimensionality, and complex human dimensions Colorado. Conclusions about the nature of the prob- of all four threats. lem are based on a problem appraisal that included a The purpose of this article is to illustrate how un- literature review and interviews of key informants. managed recreation in the Front Range of the Rocky Addressing wickedness calls for institutional changes Mountains in Colorado has attributes of a ‘‘wicked that allow for and reward the use of trust building, problem’’ (Allen and Gould 1986; Churchman 1967; inclusive communication, and genuinely collaborative Conklin 2005, 2006; Nie 2003; Rittel and Webber 1973). processes. We discuss the implications of wickedness for addressing unmanaged recreation. The contributions of the article Keywords Collaboration Æ Natural resource conflict Æ include (1) a description of the unmanaged recreation Problem definition Æ United States Forest Service Æ phenomenon framed as wicked and socially complex, (2) Unmanaged recreation Æ Wicked problems an examination of the broad situational context of un- managed recreation, (3) a limited description of relevant stakeholder perspectives, and (4) implications and recommendations for how to address unmanaged recreation in the Front Range of Colorado. J. J. Brooks (&) Æ P. A. Champ What is Unmanaged Recreation? Rocky Mountain Research Station United States Department of Agriculture, Forest Service Fort Collins, Colorado 80526, USA The phrase ‘‘unmanaged recreation’’ has multiple con- E-mail: [email protected] notations and interpretations, providing opportunities 123 Environ Manage (2006) 38:784–798 785 for debate and disagreement. Conversations with rec- encompassed by the unmanaged recreation phenome- reation researchers and Forest Service employees are non. We investigated the nature of this broader prob- often peppered with alternative labels such as lem on parts of the Arapaho–Roosevelt National ‘‘unmanageable recreation’’; ‘‘difficult to manage rec- Forest (ARNF) in Colorado. We observed evidence reation’’; ‘‘inappropriate dispersed recreation’’; or that unmanaged recreation involves more than diverse ‘‘unmonitored nontraditional activities, growing in motorized and nonmotorized recreation activities. In popularity.’’ We define the unmanaged recreation addition to these, there are many activities occurring in phenomenon as a broad environmental decision and places on and near the ARNF that involve some form management problem, involving multiple stakeholders of nonhuman mobility or some type of recreation and numerous outdoor recreation activities and conflicts, technology, including car/RV camping with generators, occurring simultaneously in and around urbanizing horseback riding, equestrian sports, mountain biking, National Forests. This definition has a caveat: the recreational target shooting, geo-caching, paintball intermixing of National Forests with private, state, and gaming, technical rock climbing, and hunting using other federal lands suggests that unmanaged recreation OHVs. Technological innovations and the popularity is not exclusively a Forest Service problem. of extreme sports have encouraged novel forms of The social context of unmanaged recreation does outdoor recreation (e.g., mountain boarding and off- not allow for a succinct, measurable definition because road inline skating) that include a sense of extreme in each unmanaged recreation situation, there will be challenge and an attitude of conquering nature. New numerous and diverse individuals and groups who are and evolving activities can bring controversies and interested and vested, referred to as stakeholders. challenges for both traditional forest visitors and For- Similar to other management problems that involve est Service managers (Ewert 2001; Frawley 2005; forest conditions, stakeholders understand and define Hollenhorst 1995; Morgan 2005). recreation management conditions according to their This article proposes that increased participation in personal perspectives, insights, and values (Hull and both novel and traditional recreation activities, com- others 2001). Definitions of any one case of unmanaged bined with urbanization, private landowner conflicts, recreation vary, but are nonetheless important because and other factors contribute to the social complexity how a group chooses to define a problem largely and the wickedness inherent in unmanaged recreation. determines strategies for resolution (Allen and Gould This article is not about motorized recreation per se; 1986). rather, it is about unmanaged recreation being a The Forest Service has highlighted unchecked use of wicked problem that requires different approaches to off-highway motorized vehicles (OHVs), creation of visitor management and problem resolution on the unauthorized OHV routes, and related ecological im- ARNF and adjacent lands. Recreational activities and pacts as the quintessential unmanaged recreation issues the ecological impacts from recreation can be complex, (Bosworth 2004; USDA Forest Service 2004a, 2004b). but these are not wicked in themselves. The social The problem for the Forest Service is one of balancing nature of unmanaged recreation is wicked. Acknowl- multiple recreation activities through sustainable edging wickedness and understanding the social con- management (Bosworth 2004), but the current levels of text of this problem are prerequisite to managing impact from OHV recreation are not viewed by the multiple stakeholders in ways that enable them to Forest Service to be sustainable, requiring interven- collectively address impacts to the land, natural re- tion. Given management constraints within the Forest source protection, and sustainable outdoor recreation. Service, successful interventions require the coopera- tion of recreational visitors and vested others. Acknowledging the full nature of this problem, in Wicked Problems addition to OHVs, is necessary to facilitate the desired cooperation. The concept of wickedness is illustrated by contrasting The Forest Service is indeed required to manage its attributes with those of tame problems (Table 1). OHVs according to regulations established in Execu- We argue that the unmanaged recreation problem on tive Orders 11644 and 11989 and the new Travel and near urbanizing portions of the ARNF more clo- Management; Designated Routes and Areas for Motor sely resembles a wicked problem than it does a well- Vehicle Use Rule (United States General Accounting defined analytical problem. Allen and Gould (1986:21) Office 1995; USDA Forest Service 2005). However, argued that public forestry in general has become problematic cases of OHV recreation are just one dependent on models of objective ‘‘scientific rational- symptom of the broader and more challenging problem ity and the assumption that more information on a 123 786 Environ Manage (2006) 38:784–798 Table 1 A comparison of attributes for wicked and tame decision problemsa Problem attribute Wicked problems Tame problems Formulation of problem statement Ill-defined, unstable Well-defined, stable Type of problem complexity Social networks, cultural values Technical, analytical, linear, ecological Diversity of stakeholders High Low Commonality with other problems Unique, time and place dependent Belong to a class of similar problems solved in similar ways Preferred type of solution Emotionally satisfying Rationally best, optimal Agreement on when solution is reached Low High Set of alternative solutions Numerous, unlimited Limited Cost of testing alternatives (i.e., trial and error) High Low Evaluation of solution Subjective, good or bad Objective, right or wrong aAdapted from Allen and Gould (1986), Conklin (2005, 2006), Nie (2003), and Rittel and Webber (1973). phenomenon automatically leads to better manage- so that each party seeks to confute the empirical evi- ment.’’ Many public forestry problems, although
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