openLandscapes - Session F - Government support and application of the ecosystem services concept

University of Kiel, Ecology Centre, Msc Environmental Science, a seminar paper
Status: completed (2008)

Governmental support and application of the ecosystem services concept; the cases of Australia and the United States

Sam Jantz

jantz.sam@gmail.com

Humans obtain benefits from ecosystems and also the processes that produce or support the production of ecosystem goods. Collectively, these benefits are known as ecosystem services and include products like clean drinking water and processes such as water purification. These services can be subdivided into five groups: supporting (i.e. nutrient cycling, soil formation), provisioning (i.e. food, fresh water, fuel), regulating (i.e. climate regulation, disease regulation, flood regulation), cultural (i.e. aesthetic, spiritual, educational)(Millennium Ecosystem Assessment, 2005).

In recent decades, these services have been severely degraded through human activities as was made apparent by the Millennium Ecosystem Assessment. Humans have had a large increase in well being over the past 50 years at the expense of ecosystem degradation. Today’s rate of ecosystem degradation will severely diminish the benefits future generations can obtain from ecosystems (Millennium Ecosystem Assessment, 2005). Ecosystems have been degraded to such an extent that governments have become involved in reducing the amount, or completely stopping, the degradation of ecosystem services as well as researching how to restore lost ecosystem functions. The following is an overview of governmental implementation of the ecosystem services concept in the cases of Australia and the United States.

Australia:

Australia is nation that is in transition from viewing natural resources as commercial commodities, to a nation that wants to slow or reverse the loss of natural resources. This endeavor is being undertaken by the Australian Commonwealth Scientific and Research Organization (CSIRO). Two fundamental policy objectives to improve ecosystem services are sustainable agriculture and the conservation of biodiversity. The Australian government has recognized policies must be implemented at the local and regional levels for effective management to achieve the goals of sustainable agriculture and biodiversity conservation, and therefore has engaged in a wide range of collaborative programs with the states and territories, as well as regional authorities. Australian efforts tend to focus on vegetation because it is considered a useful proxy for the integrity of ecosystem services and the desired vegetation composition of the landscape can be easily communicated to land managers, the wider community, industry groups, and policy advisors. The main obstacle for the CSIRO in influencing policy is the communication of scientific findings in a straightforward way, so that non-scientists can easily understand the findings. Three general recommendations are put forth by the CSIRO to policy makers:

Consider whole landscapes when initiating land use change;
Adopt a multi-factor approach (multiple goods and services);
Use vegetation change as the tool to manipulate ecosystem goods and services.

Steps needed in order to obtain information from vegetative landscapes:

Classify vegetation so that native vegetation, disturbed native vegetation, and farmlands are included;
Classification based upon structure (function). Cover and height classes qualified by species;
Estimate vegetation condition through Vegetation Assets States and Transitions (VAST) classes (figure 1);
Relate condition to ecosystem goods and services (figure 2).

The use of the vegetation approach to ecosystem services assumes:

Purposeful management of vegetation is a practical means to achieve many desired Ecosystem Goods and Services outcomes;
Ecological function varies in different ecosystems over time and is strongly influenced by land management practices;
Land management practices work to change the mix of Ecosystem Services associated with vegetation types and their condition states;
Existing information and tools are adequate in coverage and transferability.

Figure 1 Valuation of VAST's

Figure 2 VAST relationship to ecosystem goods & services

The vegetation approach to Ecosystem Service conservation/restoration will benefit:

wildlife habitats
biodiversity
carbon sequestration
protection of soils from erosion
maintenance of water quality
cultural services
production values of foods, fibers and building materials

(Walker, 2008).

These measures taken by CSIRO are good first steps to help the ecosystem services concept gain more credibility and visibility, but there is still no policy at the national level that takes action based upon this concept. The Australian government, under the leadership of Prime Minister Kevin Rudd, has recognized that the previous environmental management system was not working efficiently, which spurred the development of the “Caring for Our Country Program”. This program is intended to streamline funding for environmental management projects and emphasizes that continued prosperity in Australia is linked to sustainable use of ecosystems. This program intends to invest in projects that match the six following national priorities:

Australia’s national reserve system;
Biodiversity and natural icons (including weeds, feral animals and threatened species);
Coasts and aquatic habitats;
Sustainable farm practices and Landcare;
Natural resource management in remote and northern Australia; and
Community skills, knowledge and engagement.

(Garrett P and Burke T, 2008).

Australia has become one of the leading nations for the application of the ecosystem services concept with the implementation of the “Caring for Our Country” program, but there is still pressure to develop a national ecosystem services strategy and the non-profit company, Australia 21, has spearheaded this effort. Australia 21’s efforts have been guided by the Millennium Assessment as well as the World Resource Institute’s (WRI) report, “Restoring nature’s capital: An action agenda to sustain Ecosystem Services”. The WRI report is a general agenda that is tailored to act as a guideline for governments implementing the ecosystem services concept at the national level and is based upon the five following themes:

Develop and use information about ecosystem services;
Strengthen the rights of local people to use and manage ecosystem services;
Manage ecosystem services across multiple levels and timeframes;
Improve accountability for decisions that affect ecosystem services; and
Align economic and financial incentives with ecosystem stewardship.

(Irwin F. and Ranganathan J., 2007).

Australia 21 has taken these guidelines, almost verbatim, and applied them to the development of a National Ecosystem Services Strategy (NESS). Key activities within Australia 21’s proposed strategy are:

Developing and using information about ecosystem services;
Strengthening the rights of local people to use and manage ecosystem services;
Managing ecosystem services across multiple levels and timeframes;
Improving the evaluation, accreditation and monitoring of ecosystem services using the work that has been extensively developed in Australia on Environmental Management Systems within the agricultural industry;
Aligning economic and financial incentives with ecosystem stewardship and sustainable management.

In 2008, the 2020 Summit was convened in Australia with the aim of developing strategies to tackle a diverse array of challenges seen in Australia’s future, ranging from environmental to socio-economic (Summit 2020 final report). Australia 21 intends to use the NESS to address two of the ten main themes of the 2020 Summit, which are sustainability and future directions for rural industries and communities (Tables 1 and 2) (Australia 21, 2008).

Table 1 NESS and sustainability

PM’s 2020 Summit Stream - Sustainability

How a National Ecosystem Services System can help

Through our creativity and skills, we will have harnessed the full potential of our natural assets and human resources to turn the challenge of climate change to our advantage.

An ecosystem services approach links ecosystems with human benefits and can ensure climate change adaptations have multiple benefits.

Environmental considerations will be fully integrated into economic decision making in Australia, at the household, business and government levels.

An ecosystem services approach provides the framework to ensure decisions are made by all sectors and levels that are compatible with healthy and resilient ecosystems.

Australia’s globally outstanding ecosystems and species are managed to reduce threats and build resilience to promote adaptation to climate change.
By 2020 the health of Australia’s ecological systems will be improved. The health of our river and groundwater systems will be managed to achieve ecological sustainability, supporting food and fibre production and resilient communities.

This can only be achieved with national leadership and strong connections that can be provided by a NESS and NESN. Through a NESS we can support rural communities for their role in maintaining ecosystems that provide services to the broader community, rather than expecting them to support themselves solely through the commodities they produce.

An integrated, whole-of-government approach underpinned by clear targets and measurement with independent reporting is fundamental.

The NESS as described in this document is designed to achieve this.

We could adopt a National Sustainability, Population and Climate Change Agenda and develop robust institutions to support it. Australia would have a whole-of-government approach to climate change and sustainability policy, encompassing government expenditure, taxation, regulation and investment.

Bringing the value that ecosystem services provide into this agenda is essential if we are to provide clear incentives to maintain and improve ecosystems and the services they provide. ANESN would bring all sectors, not just government, to the process.

We could implement a set of national environmental accounts, including carbon and water accounts, to inform government, business and community decision-making. These could be linked with the current national economic accounts.

An ecosystem services approach involves being explicit about what ecosystems supply. Rather than limit environmental accounts to carbon and water, other natural resource accounts such as biodiversity and resource condition could be developed through NESN interaction.

Table 2 NESS and Directions for Rural Industries and Communities

PM’s Summit Stream - Future Directions for Rural Industries and Communities

How a National Ecosystem Services System can help

The development of strategies for fostering food security and the future sustainability and productivity of remote, rural and regional Australia has been the focus of summit discussions.

The benefits that good land stewardship provides all Australian’s is rarely acknowledged and those that do it are rarely rewarded. The NESS aims to do this.

The challenges posed by climate change with particular emphasis on its impacts on the food, fibre and forestry value chains.

These value chains to not presently recognise the true cost of production and do not incorporate the cost of carbon, water and biodiverity loss, nor do they recognise contribution to the provision of these services by strong stewardship.

Development of appropriate incentive schemes to promote environmentally sustainable behaviour and strategies

The NESN could develop, through broad consultative processes, the right mix of incentives and regulations to maintain and improve ecosystem services across the landscape.

The government should investigate and develop a holistic sustainable farm operational plan strategy, including an integrated carbon strategy. Research effort needs to be expanded and there needs to be a clear connection between the latest research and farm adaptation, particularly as it relates to improving productivity.

The impact of farm operations on the provision of the full range of ecosystem services can be incorporated through a NESS. The NESN could provide focus and coordination to the research and development effort.

Nationwide harmonisation and standardisation is urgent. This includes uniform regulation, licensing, standards and enforcement for transport (both road and rail) and agriculture. State and local government regulatory reforms would be encouraged through Federal Government incentives and penalties, linked to the rate of progressive reform.

A NESN as part of a NESS can bring the maintenace and improvement of ecosystems into the frame by setting standards through negotiation across sectors under national leadership.

Future infrastructure investment decisions should be approached from a national perspective.

A NESN as part of a NESS can bring the maintenace and improvement of ecosystems into the frame by advising infrastructure investmant decisions.

U.S.A:

The U.S.A Environmental Protection Agency (USEPA) was heavily influenced by the publication of the Millennium Ecosystem Assessment of 2005. The EPA Ecological Research Program has since been entirely dedicated to the preservation and restoration of Ecosystem Services, and is structured under five main themes:

Decision support (valuation methods, assessing trade-offs, and outreach and education);
Mapping, Modeling, and Monitoring Ecosystem Services at multiple scales;
Pollutant-specific studies (i.e. reactive nitrogen);
Ecosystem-based studies (i.e. wetlands, coral reefs, freshwater systems);
Place-based demonstration projects (i.e. Willamette River Basin, Oregon).

(Goodman, 2008)

To achieve the long-term goals of:

Equipping national policy makers with the tools and technologies to develop scientifically defensible assessments of the state of our nation’s ecosystems and the effectiveness of existing national programs and policies;
States and tribes apply improved tools and methods to protect and restore their valued ecological resources;
Giving decision makers knowledge so that they are able to understand the importance of Ecosystem Services, in order to make informed, proactive management decisions that consider a range of alternative outcomes.

(Landers, 2008)

In addition to the Ecological Research Program, the Ecosystem Services Task Team, co-chaired by the USEPA and the Committee on Environment and Natural Resources’ (CENR) Subcommittee on Ecological Systems, was convened in 2007. The Ecosystem Services Task Team’s main purpose is to coordinate and

focus federal agencies on Ecosystem Service activities, which also includes making practical use out of scientific research. Findings from the Ecosystem Services Task Team are transmitted via the subcommittee and CENR, to the White House’s Office of Science and Technology and Policy (Figure 3) (Goodman, 2008).

Figure 3 Authority structure of Ecosystem Services Task Team

Outside of the USEPA, another government agency that is involved in the implementation of the ecosystem concept is the United States Department of Agriculture’s (USDA) Natural Resources Conservation Service. This service houses numerous programs that give incentives to farmers and land developers to use more sustainable and environmentally friendly practices. For instance, the Conservation Reserve Program (CRP), provides assistance to farmers and ranchers who comply with Federal, State, and tribal environmental laws, and also encourages environmental enhancement. This program aims to reduce soil erosion, protect food and fiber provisionary services, reduce sedimentation in streams and lakes, improve water quality, establish wildlife habitat, and enhance forest and wetland resources through the use of a payment system (USDA Conservation Reserve Program). Within this program lies the National Conservation Buffer Initiative to help achieve the aims of the CRP. This initiative makes use of trees and grasses on the margins of farmland to slow water runoff and trap sediment, fertilizers, pesticides, bacterial and viral pathogens, and heavy metals (USDA Natural Resources Conservation Service, 2008).

Final Thoughts:

The acceptance of the ecosystem services concept as a tool to guide environmental management by these two nations indicates a paradigm shift in this field. Indeed, the United States government has demonstrated itself to be fairly skeptical when it comes to accepting environmentally progressive ideas. However, unlike Australia, the United States currently has no plans to develop a strategy that implements the ecosystem services concept at the national level, and current efforts are mainly for advisement purposes. If this concept is to be used effectively it must not only be accepted as a useful tool for management, but must also be interwoven in policies that govern at the national level.

Useful Links:

http://www.nrcs.usda.gov/

http://epa.gov/ord/esrp/

http://www.australia21.org.au/

http://www.csiro.au/

http://www.nrm.gov.au/

http://www.wri.org/

References:

Australia 2020, 2008. Australia 2020 Summit Final Report. Commonwealth of Australia.
Australia 21, 2008. A National Ecosystem Services Strategy for Australia Concept Proposal. http://www.australia21.org.au/pdf/final.doc.
Garrett P, Burke T, 2008. CARING FOR OUR COUNTRY - BETTER LAND MANAGEMENT, LESS RED TAPE. Joint Media Release. http://www.environment.gov.au/minister/garrett/2008/pubs/mr20080314.pdf.
Goodman, Iris. Ecosystem Research: Perspectives from U.S. Agencies. Ecosystem Services: Solution for problems or a problem that needs solutions conference. Salzau Castle, Germany. 15 May 2008.
Irwin F. and Ranganathan J., 2007. Restoring Nature's Capital: An Agenda to Sustain Ecosystem Services. World Resources Institute.
Landers, Dixon. Exploring the Scientific Underpinnings of Ecosystem Services in the Willamette Valley, Oregeon, U.S.A. – a Place-Based Study. Ecosystem Services: Solution for problems or a problem that needs solutions conference. Salzau Castle, Germany. 15 May 2008.
Millennium Ecosystem Assessment, 2005. Ecosystems and Human Well-being: Synthesis. Island Press, Washington, DC.
USDA Natural Resources Conservation Service, 2008. National Conservation Buffer Initiative: Questions and Answers. http://www.nrcs.usda.gov/technical/ecs/aquatic/buffer.pdf.
USDA Natural Resources Conservation Service. Conservation Reserve Program. http://www.nrcs.usda.gov/programs/crp/.
Walker, Joe. Vegetation, Policy and Ecosystem Services. Ecosystem Services: Solution for problems or a problem that needs solutions conference. Salzau Castle, Germany. 15 May 2008.