William Butler

Expanding the Scope and Impact of Collaborative Planning

Problem: As planners grow increasingly confident that they have settled on the right concepts and methods to conduct stakeholder-based collaboration, they are not considering what can be achieved through other collaborative approaches. Purpose: We aimed to explore how creating a network of place- and stakeholder-based collaboratives using communities of practice could strengthen individual collaboratives and achieve network synergies. Methods: Using a case study approach, we draw out lessons for collaborative planning from our research on the U.S. Fire Learning Network (FLN), a collaborative initiative to restore ecosystems that depend on fire. We analyzed data from over 140 interviews, hundreds of documents including restoration plans, newsletters, meeting summaries, maps, and various other reports, and observations at more than a dozen regional and national meetings. Results and conclusions: We conclude that the FLN nurtures expertise in ecological fire restoration and collaborative planning by linking multi-stakeholder collaboratives to regional communities of practice. Moreover, this linkage creates and sustains a network of collaboratives that amplify the potential for fundamental change in the culture and practice of fire management. Takeaway for practice: A community of practice is an effective approach to collaboration in situations where the purpose is to expand expertise rather than to resolve conflict and reach consensus. Moreover, a community of practice can link stakeholder-based collaboratives to create a whole greater than the sum of its parts. Realizing this potential requires questioning the universality of some of the core principles of stakeholder-based collaborative planning and diversifying the collaborative planning toolkit. Research support: This research was supported by the Northern Research Station of the U. S. Forest Service and The Nature Conservancy.

Narrating Resilience: Transforming Urban Systems Through Collaborative Storytelling

How can communities enhance social-ecological resilience within complex urban systems? Drawing on a new urbanist proposal in Orange County, California, it is suggested that planning that ignores diverse ways of knowing undermines the experience and shared meaning of those living in a city. The paper then describes how narratives lay at the core of efforts to reintegrate the Los Angeles River into the life of the city and the US Fire Learning Network’s efforts to address the nation’s wildfire crisis. In both cases, participants develop partially shared stories about alternative futures that foster critical learning and facilitate co-ordination without imposing one set of interests on everyone. It is suggested that narratives are a way to express the subjective and symbolic meaning of resilience, enhancing our ability to engage multiple voices and enable self-organising processes to decide what should be made resilient and for whose benefit.

The US Fire Learning Network: Springing a Rigidity Trap through Multiscalar Collaborative Networks

Wildland fire management in the United States is caught in a rigidity trap, an inability to apply novelty and innovation in the midst of crisis. Despite wide recognition that public agencies should engage in ecological fire restoration, fire suppression still dominates planning and management, and restoration has failed to gain traction. The U.S. Fire Learning Network (FLN), a multiscalar collaborative endeavor established in 2002 by federal land management agencies and The Nature Conservancy, offers the potential to overcome barriers that inhibit restoration planning and management. By circulating people, planning products, and information among landscape- and regional-scale collaboratives, this network has facilitated the development and dissemination of innovative approaches to ecological fire restoration. Through experimentation and innovation generated in the network, the FLN has fostered change by influencing fire and land management plans as well as federal policy. We suggest that multiscalar collaborative planning networks such as the FLN can facilitate overcoming the rigidity traps that prevent resource management agencies from responding to complex cross-scalar problems.

Collaborative implementation for ecological restoration on US public lands: implications for legal context, accountability, and adaptive management

The Collaborative Forest Landscape Restoration Program (CFLRP), established in 2009, encourages collaborative landscape scale ecosystem restoration efforts on United States Forest Service (USFS) lands. Although the USFS employees have experience engaging in collaborative planning, CFLRP requires collaboration in implementation, a domain where little prior experience can be drawn on for guidance. The purpose of this research is to identify the ways in which CFLRP’s collaborative participants and agency personnel conceptualize how stakeholders can contribute to implementation on landscape scale restoration projects, and to build theory on dynamics of collaborative implementation in environmental management. This research uses a grounded theory methodology to explore collaborative implementation from the perspectives and experiences of participants in landscapes selected as part of the CFLRP in 2010. Interviewees characterized collaborative implementation as encompassing three different types of activities: prioritization, enhancing treatments, and multiparty monitoring. The paper describes examples of activities in each of these categories and then identifies ways in which collaborative implementation in the context of CFLRP (1) is both hindered and enabled by overlapping legal mandates about agency collaboration, (2) creates opportunities for expanded accountability through informal and relational means, and, (3) creates feedback loops at multiple temporal and spatial scales through which monitoring information, prioritization, and implementation actions shape restoration work both within and across projects throughout the landscape creating more robust opportunities for adaptive management.

The network imaginary: coherence and creativity within a multiscalar collaborative effort to reform US fire management

In response to the ongoing crisis in fire management, the US Fire Learning Network (FLN) engages partners in collaborative, landscape-scale ecological fire restoration. The paper contends that the FLN employs technologies, planning guidelines and media to articulate an FLN imaginary that co-ordinates independent efforts to engage in ecological fire restoration work without need of either hierarchal authority or collective social capital. This imaginary may allow the FLN to draw on the creativity and adaptive innovation of collaboration to reform fire management institutions and fire-adapted ecosystems.

The U.S. Fire Learning Network: Providing a Narrative Framework for Restoring Ecosystems, Professions, and Institutions

Through the U.S. Fire Learning Network (FLN), The Nature Conservancy and federal land management agencies are attempting to reorient fire management from fire suppression toward ecological restoration and community protection. In its first 2 years, the FLN linked place-based collaboratives at a national scale. Using structured planning exercises, the FLN mediated between central coordination and collaborative autonomy by guiding partners through construction of place-based and mutually coherent narratives. These narratives situated landscape partners within an arc of conflict, crisis, and resolution, aligning partners with the goals of FLNs sponsoring organizations while enhancing community solidarity and shared purpose. FLNs narrative framework placed fire managers in a heroic role of restorationist, legitimized multiple professional ways of knowing, and built collaborative capacity, thus charting a path from crisis to renewal for ecological and human communities and for fire management itself.

Low-Regrets Incrementalism Land Use Planning Adaptation to Accelerating Sea Level Rise in Florida’s Coastal Communities

Sea level rise is one of the climate change effects most amenable to adaptation planning as the impacts are familiar and the nature of the phenomenon is unambiguous. Yet, significant uncertainties remain. Using a normative framework of adaptive management and natural hazards planning, we examine how coastal communities in Florida are planning in the face of accelerating sea level rise through analysis of planning documents and interviews with planners. We clarify that communities are taking a low-regrets incremental approach with increasingly progressive measures motivated by confidence in planning intelligence and direct experience with impacts attributable to sea level rise.

Voluntary Collaboration for Adaptive Governance The Southeast Florida Regional Climate Change Compact

The Southeast Florida Regional Climate Change Compact (SFRCCC) has been highlighted as a regional climate change governance exemplar for land use planning. After six years, we find the compact has given momentum to local climate change planning through the Regional Climate Action Plan and provides a foundation for adaptive governance for climate change adaptation. We also find aspects of the compact lacking in terms of representation, decision making, learning, and problem responsiveness. Efforts are now needed to scale down implementation and scale up governance and planning more systematically to address climate change adaptation needs at multiple levels.

Responding to a policy mandate to collaborate: structuring collaboration in the collaborative forest landscape restoration program

The Collaborative Forest Landscape Restoration Program (CFLRP) aims to expand the pace and scale of forest restoration on national forests in the United States. The program requires candidate projects to develop landscape-scale forest restoration proposals through a collaborative process and continue to collaborate throughout planning, implementation, and monitoring. Our comparative case analysis of the initial selected projects examines how existing collaborative groups draw on past experience of collaboration and the requirements of a new mandate to shape collaborative structures as they undertake CFLRP work. While mandating collaboration appears contrary to what is often defined as an informal and emergent process, mandates can encourage stakeholder engagement and renew commitment to overcome past conflict. Our findings also suggest that a collaborative mandate can lead to increased attention and scrutiny, prompting adjustments to collaborative process and structure. As such, mandating collaboration creates dynamic tensions between past experience and new requirements for collaborative practice.

Conflict, Improvisation, Governance: Street Level Practices for Urban Democracy, by David Laws and John Forester: (2015). New York, NY: ­Routledge. 371 pages.

David Laws and John Forester have combined forces to share a series of 13 profiles of public managers in the Netherlands. At the outset, let me say that the book is very good. It is well written an...