Beyond"Scoping"
Citizens
and:San
Juan
National
Forest
Managers,
Learning
Together
Inacommunity-public
land
initiative,
southwestColorado
citizens
andForestService
policies,
andpracublicparticipation
in forest mentphilosophies,
planning
isreceiving
increasedticesseemsto be emerging(Daniels
attentionasmanynationalfor- and Walker 1996). Researchersare
staff
worked
fortwoyears
before
starting
the
effortsto address
probestsprepare
to revise
theirlandandre- documenting
and decisionrevision
oftheSan
Juan
National
Forest
land sourcemanagement
plans.This up- lemsin management
roundof revisions
comes
after making.Yaffeeet al. (1996) list 615
andresource
management
plan.
Community coming
nationwide
thatinvolve
commandates, projects
groups
studied
community
values
andforest a centuryof congressional
munities,
organizations,
and
agencies
but
many
have
argued
that
laws
don't
science
andmanagement
through
informal
ecosystem
management
prinmeetthepublic's
demands,
citingthe applying
exchanges
onresource
management
issues. decisions that are so often settled in
ciplesto environmental
crises.
Many
Topical
working
groups
followed
upwith
resolutions
courts(Selinet al. 1997).Appealsof seekto pull collaborative
more
detailed
examinations
tohelp
ensure timber harvestdecisions,polarized outof controversies
longmiredin anthattheplan
would
reflect
commitment
to
publicdebates
overgrazing
onforests, tagonismand distrust(Yaffeeand
public
land
stewardship.
andcountysupremacy
movements
in- Wondolleck1997).
dicatethat currentdecisionmaking In onestudyof 25 community
modelsarestalledby costlyand un- tion teams that have received rural
assistance
funding,Unicompromising
legalsparring.
Howcan community
ByTimRichardandSamBurns
AgriculturalExthenational
forests
givecitizens
fuller versityof Arkansas
areexaccess
to therevision
process,
bothto perimentStationresearchers
bypass
thecourtroom
andto improve aminingrelationships
between
communitiesand nationalforests.They
theresulting
plan?
A periodof transitionin manage- hope to identify opportunitiesto
strengthenthe potential
for long-termplanningrelationships(NationalResearch
Institute-USDA
fundedgrant). Someefforts emphasizeformal,
technical,or advisoryrelationshipsandtry to avoid
"posturing, polarization,
and differences"(Frentz et
al. 1997), but others are
more informal. One effort,
thesubjectof thisfeature,
PhyllisSnyder,a rancher
whoholdsa grazingpermit,
explainsher perspectiveto
SanJuanNationalForest
archaeologistBruceEllis.
Informal, onsite talks
enabledparticipantsin
the studygroupprocess
to understand
how others
use and value the forest.
The information collected
will helpshapetheforest
planrevision.
Journal
of Forestry :30
aswellastheirpersonal
andcul- bersand the SanJuanNationalForest
suggests
an alternative
modelto po- scape
teamleader
The studygroups, plannerandplanrevision
larization
overforestuseandmanage- turalexperiences.
moreover,
began18monthsbefore
the prepared
meetings
on issues
generated
mentdecisionmaking.
intentto revise
theplanwasto appear bystudy
groups.
Theteamrecruited
inThe Study GroupAlternative
terdisciplinary
teamspecialists
to make
in theFederal
Register.
The SanJuanNationalForestiniand interactive
presentaThestudygroups
served
asa bridge educational
tiative, a communitystudy group between scientific research and the tionstothestudygroups.
TheOCSfacilitated
meetings,
docprocess,lasted from April 1996 studyof communityneedsand fosandcommonun- umenteddiscussions,
and managed
throughMay 1997in southwest
Col- teredrelationships
within an educational communicationamong the study
orado.Threegroups
wereformedon derstanding
(OCS 1995).The process groups,
theagency,
andthepublic.Beprinciples
of collaboration
andpart- framework
theOCShadprovided
assistance
nership
between
ruralresidents
andthe emphasized
regular
informalconversa- cause
couldbecome to regional
communities
for yearsand
ForestService.A major goalwasto tionssothatparticipants
offer alternatives that would address a
acquainted
withoneanother
andvari- was familiar with social,cultural, and
(Preston1997), it
ous
issues.
In
a
collaborative
learning economicdifferences
broadrangeof ecological,
economic,
social, and cultural concerns.Particiinteraction,participants
workedout couldhelpbridgetheknowledge
gap:
pantsidentifiedissues,
shared
visions problemsposedby facilitatorsand the Forest Service needed social inforand values,learnedForestServicemanUSDA ForestServiceand university mation, and citizens neededto underwith the aim of eliciting standforestscience
andregulation.
agement
practices,
andexpressed
their scientists,
In March 1996, newspaper
and
perspectives
on resource
management views and new ideas for solutions.
radioannouncements
publicizedthe
issues.
The intentwasfor everyone
inupcomingrevisionandstudyprocess
volvedto havea greater
understandingThe Process
The Officeof CommunityServices and invited citizensto join study
of issues,
to learnsomething
about
To ensure
a broadrepresentaworkingcollaboratively,
andto come (OCS), a communitydevelopment groups.
and
at FortLewisCollege
in Du- tion of communityperspectives
doserto solving
common
problems. program
the announcements
enThe studygroupapproach
comple- rango,andtheSanJuanNationalFor- knowledge,
individuals
whowore"more
mentsthemoreformalscoping
period estentered
intoa challenge
cost-share couraged
there
theForestService
traditionally
usesto agreement
in 1994to designtheap- thanonehatin thecommunity";
for theforest's
upcoming
plan wereno otherguidelines
or requireregister
publicopinion."It expands
to proach
ments (OCS 1995). Three study
include
peoplenotnormally
involved, revision. The Forest Service's Rural
programini- groupswere formed,one for each
creating
newopportunities
andinitia- CommunityAssistance
share,
reflect- rangerdistricton the SanJuan.All
tivesfor localparticipation,"
explains tiallyfundedtheagency's
Jim Powers,SanJuanNational Forest ing agency
andfieldtripswereopento
leaders'
stronginterestat meetings
thegeneral
public,andmanywereatlocal,regional,
andnational
levels.
planner.
A
core
team
of
four
OCS
staffmemtended
by
interested
people.
In scoping,
the agency
invitesthe
publicto comment
on a rangeof potentialalternatives.
The agencythen
gathers
theinformation,
addsit to the
biophysical
assessment
of thenational
forest'sresources,
and includesit in the
draftenvironmental
impactstatement,
wherepreferredalternatives
are first
published.
The agencythen invites
publicreview
of thedraft.
Scopingis primarilya way to
merelyexchangeinformation.The
studygroupprocess,
on the other
hand,buildsrelationships
anddiversifiespublicinformation
to include
local
individuals'
knowledge
of the landDistrictRangerNike Johnson(left)
pinpointsa locationfor Columbine
District study group membersBreck
Glascock,
EmilyRubenstein,and Ray
Putman.Interdisciplinarycollaboration helpedthe studygroupmembers
learn about resourcemanagement.
40 April 1998
Of 106initialsignups,
56--includ- ment, travel management,
wildlife,
ingretirees,
newcomers
andlong-time range,andaquaticresources.
residents,
recreation
andcommodity
Sevensummerfieldtripsservedas
•ndustryworkers,writers, business crash courses on Forest Service manowners, educators,activists,and natagement
practices.
Theywerethe first
uralresource
managers--participated
opportunity
tobeginmerging
commuregularly
duringtheyear.Somehadal- nity perspectives
with forestscience.
readybeen activein environmental Participants
were exposedto issues
andnaturalresource
issues,
but many theywouldn'tgetsittingat a tableand
werenewto civicdialogue.
Somesaid talking.
theyjoinedto learnaboutthe forest
Duringfallandwinterof 1996-97,
andrelatedissues
ratherthanargue ForestServicespecialists
gavemore
s•ngleissues.
Somesaidtheybecame presentations
on eachissue,followed
•nvolved
to protecttheirrights.Some by small-group
exercises
and discuswereoptimisticaboutthisnewalterna- sionofquestions
posed
bystaffandfauveto traditional
scoping
andpublic cilitators.
Herethegroupsfell to the
The Characteristics
of Success
Five interdependentprinciples
guidedthe communitystudygroup
process.
Leadership.
It takesa combination
of willing personalities,
ability,and
skill and tolerance of individuals and
leaders
in theagency
andthecommunity to findandlink resources
to affect
change(CortnerandShannon1993).
Forexample,
SanJuanNationalForest
planners
andRuralCommunity
Assistanceprogram
staffusedtheplanrevisioncycleto createa new avenuefor
publicparticipation
byleading
theinitiativewithintheiragency
andgivingit
review(OCS 1997).
taskof fine-tuning
theissues
andsug- credibility
andmomentum.
Revision team leader Thurman WilAll threeSanJuandistrictrangers gesting
solutions.
Forestmapsspread
became
studygroupmembers,
pro- out on tablesallowedparticipants
to sonsaid,"Wedon'twantto puta lot of
v•ding a visible commitment to circleimportantareas,drawcorridor workintorevising
theplanbased
just
sharedlearningand its anticipated lines,andrecordcommunity
andeco- on what the Forest Service thinks
contributions
to futuremanagement logicalvalues.Long-timeresidents needschanging,and then havethe
actions.Many other managersand drewon their familiaritywith land- publictelluswefocused
onthewrong
specialists
attended
discussions
aspre- scapes.Newcomerssharedtheir own issues.We would rather have that consenters
andtoanswer
technical
orreg- experiences.
versation
up front"(Richard1996).
ulatoryquestions.
Recorders
chronicled
the rangeof
Dolores District Ranger Mike
Eachgroupfocused
ondistrict-spe-perspectives,
later transcribing
them Zneroldhasdescribed
leadership
in a
cificissues.
Duringinitialmeetings, intoa computer
database
withasmuch collaborative
effortas"sharing
power";
each group crafteda vision state- detailaspossible
to avoidmisrepre- in this environment the Forest Service
ment--a senseof desired future condisentingparticipants'
statements
andto andthecommunity
shareresponsibilnons.The visionsmodifiedexisting provideaccurate
documentation.
Sev- ity for communityand ecosystem
statements
gathered
ayearearlier
byan erallistsofrecommendations,
meeting stewardship
andsustainability.
AmeriCorpsmemberduringnearly notes,newsletters,
anda summary
rePlannerJimPowers
says"theneed
100 interviews with residents in five
portregister
therangeof values,
ideas, for a process
change"
led him to tap
southwest Colorado counties.
suggestions,
and recommendations into local experience
in developing
To furtheridentifyissues,
theOCS thatemerged.
partnerships
andsharingresources
to
&stributed
a one-page
informal
public
The studyprocess
continues
for a integratecommunityneedswith those
survey
withfourquestions
designed
to secondyear as topical working of theforestandtheagency.
Twofacgaugerespondents'
sense
of theirrela- groupsmoreclosely
examinespecific torsled to success,
heexplains.
First,
uonships
with forestlandscapes,
the issuesraisedby the studygroups. thecollaboration,
particularly
between
ForestService,their communities,and Whereas
thestudygroups
considered theSanJuanandMontezuma
County,
•ssues.
The surveyprovidedinforma- a full rangeof issues
specific
to their arose
fromneeds
thatallparties
recoguonnotonlyto theForestService,
but districts,
theworkinggroups
discuss nized-the forest needed an economic
alsoto communities
andcommunity singleissueson a forestwidescale. development
actionplan, and the
organizations
outside
thestudygroup Thisshiftin focushascreated
anop- countyneededanoveralleconomic
deprocess.
Someinformation,for exam- portunityfor newmembers
to join velopment
plan--andbothneeds
were
ple,isenablingcommunity
leaders
to the processbegun by the study eventuallymet throughthe partnerassess
trendsin theregion's
economic, groups.
Sixworkinggroups
compris- ship.Second,
Montezuma
Countyapsocial,and environmental health.
ing 70 individualsare studying proached
theForestService
in a posiMorethan1,000copies
of thesur- wildlife, timber and fire, travel and tivewayto discover
whattheycould
veywentout;about100werereturned. recreation, special management agree
to dotogether.
Fromtheresponses
camealistof issues, areas,specialwater concerns,and
Relationship
building.
A historyof
concerns,
andsuggestions.
Study
group rangeandriparianareas.
positiveagency-public
collaboration
members reviewed it and added and deThe nextstepis for the SanJuan in southwest
Coloradois commonly
finedissues.
Theychose
eightmajorfor- National Forest to invite all former and credited
withmakingthestudygroup
est-management
topicsto evaluatein currentparticipants
to reviewmaterials processpossible.The development
monthlymeetings:
timber,prescribed generated
sofar anddiscuss
howthe planswerejust the beginning.In
1992 the commissioners of Monfire, old-growth,
recreation
manage- studyprocess
cancontinue.
Journal
of Forestry 41
ßThe communitystudygroupapscience
andvaluescan
tezumaCounty,whichis abouttwo- studyprocess,
proachto forestplanningcostabout
thirdspublicland, proposed
to the inform each other to build a common
ofknowledge
anda framework
for $611,000 of local and state funds
OCS a programto address
federal base
land issues.(Note that this was at a a continuing
partnership.
Knowledge USDA Forest Service dollars and ,ntime when ecosystemmanagement gained
through
a shared
learning
expe- kind donations were contributed to
agreement
overfour
theproblem the partnership
wasbecomingForestServicepolicy riencecanhelpto resolve
asan •nand the West rang with news of of arrivingat differentconclusions years.Many seethe process
in long-term
community
and
countysupremacy
movements.)
The from the samedata,basedsolelyon vestment
sustainability,
ratherthana
For ecosystem
MontezumaCounty FederalLands one'svaluesand interpretations.
Program
wasformed,anda pilotpro- the studygroups,informaldialogue mere record of decision of a forest
thestudyprocess
can
process,
not plan.In addition,
ject,the Ponderosa
PineForestPart- wasguidedbyananalysis
nership,producedresultson which hard-and-fastpositions.For the be improvedand costscut. A Ford
research
project•s
ForestService
leaders
andcommunity agency's
interdisciplinary
team,collab- Foundation-funded
now
under
way
to
model
the
study
aporation
revealed
new
insights
and
partmembers
couldbasetheirsupportfor
ners
for
future
stewardship
initiatives.
proaches
and
disseminate
the
findings.
the studygroup initiative (Larmer
ß Rural Community Assistance
1996; Preston 1997).
As studygroupmembers
learned
normalplanmanagement,
theycon- fundscansupplement
The Weminuche
Wilderness
Study aboutresource
ning
resources
to
foster
social,ecotributed
their
own
experiences.
For
exGroupfurthertestedthe conceptof
collaboration between the Forest Serabout
ample,
a construction
worker
estimated nomic,andculturalknowledge
andregions.
costs,
enabling
thegroup communities
vice and the public.That groupof fence-building
ß Qualified,neutralfacilitatorsor
withoutstoppingfor reabout20 regular
members
metfortwo to proceed
years(1993-95) to help providea search.Two California natives,on hear- coordinators are essential.
Can the learningmodel be exanda grazing
permitrange
of useandoveruse
indicators
for inghowa logger
a wilderness amendment to the San
tee usedthe forest,offeredtheir own extendedfrom the localstudyprocess>
andnationalinterest
groups
perience
fromtheirhomestate,which Regional
Juan's
currentplan.
lesseffectively
at a local
relatively
newto participate
Theseexamples
bredtrustandcon- hasfacedchallenges
level,but nevertheless,
opportunit,es
fidenceamongForestServiceresource southwest Colorado. A wilderness entherelationship
arecohadspecial
interest
in timberis- for expanding
managers.
Althoughtheir authority thusiast
he wasbuildinga cabin incidingwiththestudygroupprocess
andexpertise
mighthavebeenchal- suesbecause
involved Seminars and conferences in southlengedbythestudygroups
(Johnson withlocallogsandhadbecome
horse-logging
cooperative. westColoradohavebeenattendedby
1997), manybelievedthe long-term in a startup
Constructive action. Constructive acbenefits would be worth the time and
regional
andnationalinterests
(V•tal
nfromtheotherprinciples. Links,May 1995; GrowingSusta,
commitment
required.
Theywantedto tion results
able
Forest
Enterprises,
October
andtheworking
betterunderstand
howforestplanning, Boththestudygroups
Separeactions
resulting
frombuild- 1995; Open Decisionmaking,
rural communitydevelopment,
and groups
tember
1996;
Stewardship
Contracting
relationships
through
collaborative
ecosystem
management
couldoverlap.
sharing
values,
andthecom- ing,spring1997).
Common
values.
Duringfieldtrips learning,
The studygroupprocess
improves
mitted
leadership
of
community
memand groupdiscussions,
participants
talked about future desired condipractices,
bersandagency
personnel.
But they on pastpublicinvolvement
scoping,
NEPA
astheplan suchasopenhouses,
tionsandpossible
management
solu- makemoreactionpossible
process
iscompleted
andcom- review periods, and mail-in retions.Their basicvalues--expressed revision
by morethancomplementcanparticipate
in im- sponses,
in suchtermsasbeauty,solitude,ac- munitymembers
ingthem.The visionstatements,
recandmonitoring.
cessibility,
freedomfrom regulation, plementation
ommendations lists, newsletters,
calving
areas,
scenic
corridors,
public
Conclusions
education, and so on--informed
maps,andsummary
reports
areavadThe southwest Colorado effort
ableastoolsto representatives
of retheir recommendations.
As particithata community
study gionaland nationalinterestswho
pantswillinglyarticulated
theirvalues demonstrates
and interests and heard others voice
groupapproach
holdspromise
for in- can'tattendlocalgatherings.
Last summer,membersof Colorado
collaborative
ecosystem
stewtheirs, commonground emerged. creasing
Front
Rangeenvironmental
groups
met
andofferslessons
aswell:
Governing
the discussions
wasa tacit ardship
for
a
day
with
San
Juan
National
Forest
ß Bylearningtogether,
ForestSerunderstanding
thatyouhadto respect
to exchange
information
and
others'valuesif youwantedyoursre- vice and communitymemberscan managers
perspectives.
A
more
local
group,
C,ubuild
higher
levels
of
trust
and
solve
spected,
too.Participants
sawtheecozens'
Management
Alternative,
presented
moreefficiently.
logicalandsocial
picturefromdiffer- problems
onitspreferred
alternauve
ßAgencyemployees
andmanagers work-to-date
entperspectives
andgradually
builta
thepublicbytranslating and discussedwith the Forest Serv,ce
commonexperience
andcouldthere- mustengage
language
andprocedures
into where further work was needed and how
foreshareresponsibility
for solutions. planning
resources
couldbe shared
to produce
a
civicdiscourse.
Sharedknowledge.
Through the productive
4:> April 1998
comprehensive
alternative;
a fewmembershavejoinedtheworking
groups.
Study
groupmembers
haveexpressed
bothoptimism
andskepticism
toward
theForest
Service's
willingness
andabilityto recognize
theirperspectives
in the
revisedplan, but manyalsosaythe
agency
andcommunity
haveeachcontnbutedto strengthening
relationships.
Although
it'stoosoonto seetheirwork
reflected
in alternatives,
boththeyand
Forest
Service
participants
haveat least
dedicated
themselves
to sharing
responsibilityforforest
stewardship.
The futureroleof studygroupsis
beingexplored.
Echoing
othersin the
Forest
Service,
SanJuanplannerPowers
saysan obvious
rolefor studygroups
wfilbeplanimplementation
andmonitoring.Ratherthan imposing
automaticclosures,
Dolores
DistrictRanger
Zneroldandlocalresidents
arecooperaungto reduce
motorized
vehicle
damageto anarchaeological
siteneara forest road. Residentshave volunteered to
monitordamage,
andindicators
have
beensetupto temporarily
close
thearea
duringwet weatherconditions
when
necessary
to protect
thesite.
The Appropriations
Act riderthat
hasstopped
fundingof ForestService
planning,
including
revisions,
untilnew
regulations
arewrittenalsohasaffected
howthe SanJuanNationalForestcan
supportand participatewith study
groups.
It maybeyears
before
theforest
canresume
itsplanrevision.
Butgains
towardcollaborative
stewardship
have
notbeenlost.Newrelationships
have
beenestablished
that canhelpmake
neededchanges
in management
and
perhaps
evenamendments
to thecurrentSanJuanNational
Forest
plan.The
promise
of thestudygroupalternative
isalready
beingfulfilled.
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Institute
forConservation,
March
5,Billings,
Montana.
collaborative
planning
taken
rootinthenational
forJournal
ofForestry
95(5):25-28.
L^KMER,
P.1996.
A Colorado
county
tries
anovel
approach: ests?
Y^FFEE,
S.L.,A.E PHIEI.IPS,
andI.C. F•EHTZ.1996.EcoWorkthesystem.
HighCountry
News
28(9):
11-13.
system
management
m theUnited
States:
Anassessment
OFHCEOFCOMMUNITY
SERVICES
(OCS). 1995.ComLiterature
Cited
of
current
experience.
Washington,
DC:
Island
Press.
munity
study
groups
San
Juan
National
Forest
plan
reCORTNER,
H.J.,andM.A.SHANNON.
1993.Embedding
S.L.,andJ.M.WONDOLLECK.
1997.Building
vision:
Introduction,
purpose
andapplication
process. Y^FFEE,
public
participation
initspolitical
context.
Journal
of
bridges
across
agency
boundaries.
In Creating
a)•rDurango,
CO:Office
ofCommunity
Services.
Forestry
91(7):14-21.
estry
)Orthe21stcentury,
eds.J. Franklin
andK.
1997.SanJuanNational
Forest
planrevision
D^N[EES,
S.E., and G.B. W^LKER.1996. Collaborative ----.
Kohm,381-96.Washington,
DC:Island
Press.
study
group
survey
results.
Durango,
CO:
learning:
Improving
public
deliberation
inecosystem- communi(y
Office
of
Community
Services.
based
management.
Environmental
lmpact
Assessment
Review16:71-102.
PRESTON,
M. 1997. Lessons
learned:Presentation
notes.
Paper
presented
at a BLMcollaborative
planning Tim Richard (e-mail: richard_t@
workshop,
April23-24.Missoula,
MT:Center
for
1997.A talkin thewoods:
An impartial
advisory
j•rtlewis.
edu)is research
associate
and
theRocky
Mountain
West.
committee
eases
conflict
ontheOuachita.
Journal
of
SamBurns
isdirector,
Office
ofCommuRICHAP,
D,T. 1996.Plantomakeeverybody
happy.
DuForestry
95(6):26-31.
nity Services,
1000 Rim Drive, Fort
rango
Herald,
January
26.
JOHNSON,
M. 1997.
Leadership:
Mobilizing
people
toact.
andD.S. CA•. 1997.Has
Paper
presented
ataworkshop
conducted
bythePinchot SEEIN,S.W.,M.A. SCHUETT,
LewisCollege,
Durango,CO 81301.
FP•NTZ,I.C., D.E. VOTH,S.AHDERSON,
andWE PEru
Journalof Forestry 4:3