FRAMING A REGIONAL LANDSCAPE-SCALE CONSERVATION PLAN FOR THE PENOBSCOT RIVER CORRIDOR USING BEST PRACTICES AND LESSONS LEARNED A thesis submitted by Janna M. Newman In partial fulfillment of the requirements for the degree of Master of Arts in Urban and Environmental Policy & Planning TUFTS UNIVERSITY May 2015 Adviser: Robert Russell Reader: Scott Horsley ABSTRACT At 350 miles long, the Penobscot is Maine’s largest watershed, and New England’s second largest waterway -- draining nearly one-quarter of the state. The Bay to Baxter (B2B) Initiative is a proposed regional landscape-scale conservation strategy for the Penobscot River corridor. The initiative’s name is derived from two natural features and recreational attractions that define the corridor -- Baxter State Park, near the river’s headwaters, and Penobscot Bay at its mouth. The intent behind this initiative is to link these two hubs in order to transform the Penobscot River corridor into an economic development region, primarily supported by recreational, historic, and cultural tourism. For this initiative’s vision to become a reality, and the region to experience the benefits obtained from regional landscape-scale conservation planning, a strategic regional landscape-scale conservation plan will need to be developed. This thesis provides an analysis of strategic conservation planning frameworks utilized by comparable conservation entities in the United States in order to develop a conservation planning framework for the B2B Initiative’s strategic landscape-scale conservation plan. In addition, to aid in the plan’s formulation, implementation, and evaluation, best practices and lessons learned from regional landscape-scale conservation plans and initiatives in regions similar to the Penobscot River corridor are analyzed. ii ACKNOWLEDGEMENTS Many thanks to Rob Lilieholm for introducing me to the Penobscot River corridor and the B2B vision and for providing me with this thesis topic, reviewing my text, and inviting me to be a student and presenter at the Acadian Program. To the staff and board at Island Heritage Trust, thank you for expanding my conservation knowledge, inviting me to the Land Trust Rally, and giving me the support necessary to work on this thesis. To Rusty Russell, thank you for being flexible as my long-distance thesis adviser, for taking the time to review my text, and for your suggestions and support. To my loving family, friends, and boyfriend, thank you for your patience and encouragement, and for nurturing me when necessary. And to my dog, Peter, thank you for providing me with necessary distractions and a comforting presence while I wrote this thesis. iii FREQUENTLY USED ACRONYMS AMC – Appalachian Mountain Club B2B – Bay to Baxter DACF – Maine Department of Agriculture Conservation and Forestry DEP – Maine Department of Environmental Protection DIFW – Maine Department of Inland Fisheries and Wildlife DMR – Maine Department of Marine Resources DOI – U.S. Department of Interior EPA – U.S. Environmental Protection Agency GIS – Geographic Information Systems LCC – Landscape Conservation Cooperative LTA – Land Trust Alliance LUPC – Land Use Planning Commission LURC – Land Use Regulation Commission MCHT – Maine Coast Heritage Trust MEACC – Maine Association of Conservation Commissions MFCM – Maine Future’s Community Mapper MtA2C – Mount Agamenticus to the Sea Initiative NPS – National Park Service TNC – The Nature Conservancy TPL – Trust for Public Land USDA – U.S. Department of Agriculture USFWS – U.S. Fish and Wildlife Service USGS – U.S. Geologic Survey W&W – Wildlands and Woodlands iv TABLE OF CONTENTS Abstract .................................................................................................................. ii Acknowledgements ............................................................................................................ iii Frequently Used Acronyms ............................................................................................... iv Table of Contents ………..………………………………………………………………..v List of Figures ………….………………………………………………………………..vii List of Tables…………………..………………………………………………………...vii CHAPTER 1 Introduction ............................................................................................... 1 CHAPTER 2 Literature Review ..................................................................................... 3 2.1 What is Landscape-Scale Conservation? ................................................ 3 2.2 Landscape-Scale Conservation and Smart Growth ................................. 5 2.3 Landscape-Scale Conservation Design ................................................... 6 2.4 What is Landscape Conservation at the Regional-Scale? ....................... 8 2.5 What are the Ecological Benefits of Landscape-Scale Conservation? . 10 2.6 What are the Economic Benefits of Landscape-Scale Conservation? .. 12 2.7 What are the Health and Social Benefits of Landscape-Scale Conservation? ....................................................................................... 15 2.8 Planning Frameworks for Strategic Landscape-Scale Conservation .... 19 2.8.1 Non-Governmental Conservation Organizations ............................. 19 2.8.2 Land Trusts Nation-wide ................................................................. 26 2.8.3 Federal Government ......................................................................... 33 2.9 Framework Analysis ............................................................................. 36 CHAPTER 3 Argument for a Regional Landscape-scale Conservation Plan for the Penobscot River corridor – The “Bay to Baxter” Vision .................................................. 37 CHAPTER 4 Methodology ........................................................................................... 44 4.1 Background ........................................................................................... 44 4.2 Regional Landscape Conservation Plan and Initiative Review and Criteria .................................................................................................. 45 4.3 Definition of Best Practices and Lessons Learned ................................ 54 4.4 Organizing Best Practices and Lessons Learned into a Strategic Conservation Planning Framework ....................................................... 55 CHAPTER 5 Developing a Regional Landscape-scale Conservation Plan for the “Bay to Baxter” Region Using Best Practices and Lessons Learned ......................................... 60 5.1 Steps to Formulate the Plan .................................................................. 60 5.1.1 Assembling the Planning Team ....................................................... 60 5.1.2 Forming a Vision, Goals, and Objectives ....................................... 77 5.1.3 Using Models and Maps to Identify Priority Focus Areas ............... 90 5.2 Steps to Implement the Plan.................................................................. 99 v 5.2.1 Employing Multi-objective Conservation Strategies and Tools ...... 99 5.2.1.1 Non-Regulatory Conservation Options for Private Land.............. 99 5.2.1.2 Conservation Options with Public Land ..................................... 112 5.2.1.3 Combined Conservation Strategies – Private and Public Land Models ........................................................................................ 123 5.2.1.4 Regulatory Conservation Strategies ............................................ 129 5.2.2 Public and Municipal Outreach and Education .............................. 152 5.3 Steps to Monitor and Evaluate the Plan .............................................. 154 CHAPTER 6 Conclusion and Next Steps ................................................................... 157 Appendices .............................................................................................................. 161 Appendix I ............................................................................................................ 161 Appendix II ............................................................................................................ 163 Appendix III ……………………………………………………………….... ........... 164 Bibliography .............................................................................................................. 167 Reviewed Plans ............................................................................................................ 167 Best Practice and Lessons Learned Case Studies ........................................................... 168 Personal Communication ................................................................................................ 169 Works Cited ............................................................................................................ 169 vi LIST OF FIGURES Figure 1 - Health and Social Wellbeing Benefits from Landscape-scale Conservation ... 19 Figure 2 - TNC's Framework for Conservation Planning ................................................. 20 Figure 3 - TNC Eastern North American Ecoregions ....................................................... 22 Figure 4 - Landscape Conservation Cooperatives ............................................................ 34 Figure 5 - U.S. Fish and Wildlife Service’s Strategic Conservation Framework ............. 35 Figure 6 - The Penobscot River and the Penobscot River Watershed .............................. 39 Figure 7 - Penobscot River Corridor Proposed Planning Area ........................................