ESP 172: Public Lands Management, Fall 2005

Professor Mark Lubell

Email: mnlubell@ucdavis.edu

Webpage: http://www.des.ucdavis.edu/faculty/lubell/

Office Hours: Tuesday-Thursday, 1-3pm, or by appointment; 2146 Wickson.

Tuesday/Thursday 10:30-11:50am

Lecture Location: Hutchinson 115

Section 1: Friday, 11-11:50am; Young 184

Section 2: Friday, 12:10-1pm; Young 184

Section 3: Friday, 1:10-2pm; Young 184

Abstract

Currently, the US Federal government owns approximately 652 million acres of land (27.7% of the land). State and local government ownership adds to that total. Because these public lands contain some of the most important natural resources in the country, how they are managed is one of the most controversial and fascinating areas of environmental policy. This course will review public lands management from both a theoretical and descriptive perspective. We will discuss the political economy of public lands, the major political forces affecting public lands, and the specific details of energy policy, forests, rangelands, national parks, and wildlife on public lands. By the end of the course, ecology students should have better idea of the political challenges they might face when trying to do science in the context of public lands, and the management implications of their research. Public policy students should have a better idea of how the system works, in order to focus their future career or research goals.

Administrative Details

Course grading consists of three elements: mid-term examination (25%), final examination (25%), final paper (30%), and class/section participation (20%). The mid-term and final will focus on concepts presented in lecture, and will be a combination of short answer and multiple choice. The 10-page paper must focus on a critical public lands issue or controversy in California (other geographic locations can be considered with instructor approval). It should contain three main sections: 1) detailed description of issue; 2) application of relevant class materials and theoretical perspectives; 3) criticisms of current policy and policy recommendations. The best papers will include personal interviews with real stakeholders in the issue, along with additional research sources. Class participation requires attendance of lectures and one discussion section per week, along with contributions to discussions in both forums. Discussion sections will require demonstration of outside reading. The exam times and paper due dates are as follows:

Midterm Examination: Thursday, October 27, same room

Final Examination (Code M): Thursday, December 15, 8:00am-10:00am, same room

One-Page Paper Prospectus Due: Tuesday, October 18, in class

Final Paper Due: Tuesday, November 29, in class

Two-Page Analytic Reading Summaries: 4 summaries due in discussion section, which may be turned in any week of the quarter. Maximum length two pages, double-spaced. The summaries must use a concept, argument, or idea from the readings and relate that idea to class lecture material, or evaluate importance for a current public land management issue, or develop an analytic critique.

Cheating and Late Work Policies

If you are caught cheating on an examination, you will receive a zero for that exam. Given the fact that the exams are at least 25% of your grade, a zero on one exam almost guarantees you a D or F in the class unless you are perfect on the other materials. Do not plagiarize research materials for your papers. There should be no quotes without citations, and all references should be given credit. This includes Internet materials. Plagiarized papers will also receive a zero. If any cheating is egregious enough, I will report the offender to the appropriate campus authorities for disciplinary action. Lesson: Don’t cheat.

Late papers or missed exams will only be allowed with a written documentation of a medical or some other personal emergency. Otherwise, there will be no making up exams. If you turn in the paper late without an excuse, you will lose one letter grade for each day it is late.

Required Books and Readings

Loomis, John B. 2002. Integrated Public Lands Management, 2^nd Edition. New York: Columbia University Press (ISBN: 02311244449)

Nienaber Clarke, Jeanne, and Daniel C. McCool. 1996. Staking Out the Terrain: Power and Performance of Natural Resource Agencies. State University of New York. (ISBN: 0791429466)

Wilkinson, Charles. 1993. Crossing the Next Meridian: Land, Water, and the Future of the West. Covelo, CA: Island Press (ISBN: 155963149X)

During some weeks, the required readings will be articles or materials available on the Internet. There will also be recommended readings available each week, which will complement the required readings and lectures. Many of the lectures will draw upon case study materials from these supplemental readings. For tests, you will be responsible for the information presented in the lectures and the supporting information from the required readings.

Week 1: Introduction

Thursday 9/29: History of Public Lands

Loomis, Chapter 1, 2

Wilkinson, Chapter 1

Recommended Reading

Greenwire: Online Environmental News Service (great for finding paper topics!)

http://www.eenews.net/Greenwire.php

High Country News: Western Public Lands News (great for finding paper topics!)

http://www.hcn.org/index.jsp

Clawson, Marion. 1951. “Administration of Federal Lands in The Public Interest.” The Journal of Politics 13(3): 441-460.

Public Lands Map

http://www.headwatersnews.org/images/N10.jpg

Council on Environmental Quality: Online Sources for Public Lands Statistics

http://ceq.eh.doe.gov/nepa/reports/statistics/00public.html

BLM 2004 Public Land Statistics

http://www.blm.gov/natacq/pls04/

Week 2: Public Land and Natural Resource Regimes

Tuesday 10/4: Political Economy of Public Lands

Loomis, Chapter 3

Hardin, Garrett. 1968. “The Tragedy of the Commons.” Science 162: 1243-1248. (JSTOR)

Thursday 10/6: Institutions, Ideas, Interests

Ciriacy-Wantrup and Richard C. Bishop, “Common Property as a Concept in Natural Resources Policy”. Natural Resources Journal (hand-out)

Recommended Reading

Alchian, Armen A., and Harold Demsetz. 1973. “The Property Right Paradigm.” The Journal of Economic History 33 (1): 16-27.

Lowry, Bill. 1998. “Public Provision of Intergenerational Goods: The Case of Preserved Lands.” American Journal of Political Science 42(4): 1082-1107. (JSTOR)

Week 3: Politics and Public Lands I

Tuesday 10/11: Congress, President, and the Courts

University of Colorado Law Review, Inc. Colorado Law Review,  Spring, 2001,  72 U. Colo. L. Rev. 287,  9603 words,  ARTICLE: SHAPING THE MODERN WEST: THE ROLE OF THE EXECUTIVE BRANCH n1,  John D. Leshy

A Presidential Initiative: Clinton’s Roadless Area Moratorium

http://www.cnie.org/nle/crsreports/forests/for-33.pdf

Congressional Power: The 1995 Timber Salvage Rider

http://www.ncseonline.org/NLE/CRSreports/Forests/for-17.cfm?&CFID=12099146&CFTOKEN=60937532

Thursday 10/13: Administrative Law and NEPA

Environmental Law Northwestern School of Law of Lewis & Clark College,  FALL, 1990,  20 Envtl. L. 681,  9948 words,  NEPA'S EFFECT ON AGENCY DECISION MAKING: ARTICLE: NEPA'S IMPACTS ON FEDERAL AGENCIES, ANTICIPATED AND UNANTICIPATED.,  BY PAUL J. CULHANE

Recommended Reading

Yale J. on Reg. Yale University, Winter, 1998, 15 Yale J. on Reg. 1, 24366 words, ARTICLE: Shedding Light on Chevron: An Empirical Study of the Chevron Doctrine in the U.S. Courts of Appeals,  Orin S. Kerr +

Fordham Environmental Law Journal,  Fall, 2000,  12 Fordham Envtl. Law J. 211,  18071 words,  NOTE: ENFORCING ECOSYSTEM MANAGEMENT UNDER THE NORTHWEST FOREST PLAN: THE JUDICIAL ROLE,  Lauren M. Rule

Journal of Law & Politics,  Winter, 1998,  14 J. L. & Politics 1,  14724 words,  ARTICLE: Congressional Review of Agency Rulemaking: The 104th Congress and the Salvage Timber Directive,  Peter A. Pfohl

Environmentalist Critique of Bush Administration Forest Policy

http://www.seattleweekly.com/features/printme.php3?eid=40512

Horwitz, Robert B. 1994. “Judicial Review of Regulatory Decisions: The Changing Criteria.” Political Science Quarterly 109(1): 133-169.

Journal of Land, Resources, & Environmental Law, 2000, 20 J. Land Resources & Envtl. L. 245, 13544 words,  ARTICLE: Procedures Without Purpose: The Withering Away of the National Environmental Policy Act's Substantive Law,  Matthew J. Lindstrom, Ph.D.

University of Richmond Law Review,  May, 1994,  28 U. Rich. L. Rev. 619,  27896 words,  ARTICLE: AGENCY ACTION, FINALITY AND GEOGRAPHICAL NEXUS: JUDICIAL REVIEW OF AGENCY COMPLIANCE WITH NEPA'S PROGRAMMATIC ENVIRONMENTAL IMPACT STATEMENT REQUIREMENT AFTER LUJAN V. NATIONAL WILDLIFE FEDERATION,  Matthew C. Porterfield

The University of Tulsa Tulsa Law Journal,  Winter, 1996,  32 Tulsa L.J. 259,  26656 words,  THE FIFTIETH ANNIVERSARY OF THE ADMINISTRATIVE PROCEDURE ACT: PAST AND PROLOGUE: FIFTY YEARS WITH THE ADMINISTRATIVE PROCEDURE ACT AND JUDICIAL REVIEW REMAINS AN ENIGMA,  James C. Thomas

Week 4: Politics and Public Lands II

Tuesday 10/18: Bureaucracy

PAPER PROSPECTUS DUE!!!!!

Clarke and McCool, Chapter 1, 5, 6.

Thursday 10/20: Interest Groups

Loyola of Los Angeles Law Review,  November, 1996,  30 Loy. L.A. L. Rev. 275,  23170 words,  COMMENT: LAW WEST OF THE PECOS: THE GROWTH OF THE WISE-USE MOVEMENT AND THE CHALLENGE TO FEDERAL PUBLIC LAND-USE POLICY,  Patrick Austin Perry *

“A bare-knuckled trio goes after the Forest Service.” By Peter Aleshire, High Country News

http://www.hcn.org/servlets/hcn.Article?article_id=4040

Recommended Reading

“How the West was won, and won, and….” By Jim Wolf, High Country News

http://www.hcn.org/servlets/hcn.Article?article_id=1385

“DC’s green power-brokers look for a new home.” By Phil Shabecoff, High Country News

http://www.hcn.org/servlets/hcn.Article?article_id=1446

Week 5: Ideas

Tuesday 10/25: Multiple-Use Management

Loomis, Chapter 8

Thursday 10/27: Midterm Examination!!!!!!!

Recommended Reading

The Harvard Environmental Law Review,  SUMMER, 1994,  18 Harv. Envtl. L. Rev. 345,  32423 words,  ARTICLE: FEDERAL LAND MANAGEMENT IN THE TWENTY-FIRST CENTURY: FROM WISE USE TO WISE STEWARDSHIP,  SCOTT W. HARDT *

Week 6: National Forests

Tuesday 11/1: Overview

Thursday 11/3: Controversies

Loomis, Chapter 9

Wilkinson, Chapter 4

Clarke and McCool, Chapter 2 (Focus on the Forest Service section)

Recommended Reading

Office of Technology Assessment. 1992. Forest Service Planning: Accomodating Uses, Producing Outputs, and Sustaining Ecosystems (note: This is a great report!)

http://www.wws.princeton.edu/cgi-bin/byteserv.prl/~ota/disk1/1992/9216/9216.PDF

Congressional Research Service. 1995. Below-Cost Timber Sales: Overview.

http://www.ncseonline.org/NLE/CRSreports/forests/for-1.cfm

Congressional Research Service. 1995. Forest Service Timber Sale Practices and Procedures: Analysis of Alternative Systems.

http://www.ncseonline.org/nle/crsreports/forests/for-14.cfm?&CFID=16761769&CFTOKEN=30797370

Sabatier, Paul A., John Loomis, Catherine McCarthy. 1995. “Hierarchical Controls, Professional Norms, Local Constituencies, and Budget Maximization: An Analysis of U.S. Forest Service Planning Decisions.” American Journal of Political Science 39:204-242 (JSTOR)

Burnett, Miles and Charles Davis. 2002. "Getting Out the Cut: Politics and National Forest Timber Harvests, 1960-1995." Administration & Society 34: 202-228.

Clawson, Marion. 1976. “The National Forests.” Science 191 (4228): 762-767.

National Forest Timber Harvest Data

http://www.fs.fed.us/forestmanagement/reports/index.shtml

Week 7: Public Rangelands

Tuesday 11/8 Overview (Dan Macon Guest Lecture)

Thursday 11/10: Controversies

Loomis, Chapter 10

Wilkinson, Chapter 3

Clarke and McCool, Chapter 4

Fleischner, Thomas L. 1994. “Ecological Costs of Livestock Grazing in Western North America.” Conservation Biology 8(3): 629-644 (JSTOR)

Recommended Reading

Land and Water Law Review,  1997,  32 Land & Water L. Rev. 345,  2976 words,  FIFTY YEARS OF BLM: ESSAY: THE BUREAU OF LAND MANAGEMENT: A HALF-CENTRUY OF CHALLENGES AND CHANGE,  Al Pierson *

Colorado Law Review,  Spring, 1998,  69 U. Colo. L. Rev. 633,  28436 words,  COMMENT: PUBLIC RANGELAND REFORM: NEW PROSPECTS FOR COLLABORATION AND LOCAL CONTROL USING THE RESOURCE ADVISORY COUNCILS,  Todd M. Olinger

Colorado Law Review,  Spring, 2002,  73 U. Colo. L. Rev. 413,  38864 words,  ARTICLE: SUSTAINING GEOGRAPHIES OF HOPE: CULTURAL RESOURCES ON PUBLIC LANDS,  Sandra B. Zellmer*

“Assessing the Full Cost of the Grazing Program”; Center for Biological Diversity

http://www.sw-center.org/swcbd/Programs/grazing/Assessing_the_full_cost.pdf

Week 8: Parks and Wilderness

Tuesday 11/15: Overview

Thursday 11/17: Controversies

Loomis, Chapter 12

Clarke and McCool, Chapter 3 (National Park Service section)

Recommended Reading

Nash, Roderick. 1970. “The American Invention of National Parks.” American Quarterly 22 (3): 726-735. (JSTOR)

Noss, Reed F. 1991. “Sustainability and Wilderness.” Conservation Biology 5 (1): 120-122. (JSTOR)

Journal of Land, Resources, & Environmental Law,  2001,  21 J. Land Resources & Envtl. L. 219,  43218 words,  THE STATE OF THE LAW: The Wilderness Act of 1964: A Practitioner's Guide *

Cornell Law Review,  September, 2002,  87 Cornell L. Rev. 1333,  37524 words,  ARTICLE: PRESERVING MONUMENTAL LANDSCAPES UNDER THE ANTIQUITIES ACT,  Christine A. Klein+

Week 9: Mining and Energy

Tuesday 11/22: Overview

Wilkinson, Chapter 2

Thursday 11/24: Thanksgiving Holiday—No Class

Congressional Research Service Report, 2004. "Mining on Federal Lands"

Who Owns the West? Oil and Gas Leases. Report by the Environmental Working Group

http://www.ewg.org/oil_and_gas/part2.php

Tulsa Law Journal,  Spring / Summer, 1998,  33 Tulsa L.J. 765,  43648 words,  MINERAL LAW SYMPOSIUM: ARTICLE: Hardrock Minerals, Energy Minerals, and Other Resources on the Public Lands: The Evolution of Federal Natural Resources Law,  Robert L. Glicksman+ and George Cameron Coggins++

Week 10: Wildlife and Ecosystems

Tuesday 11/29: Wildlife (Jan Stevens guest lecture)

FINAL PAPER DUE!!!!!!!

Loomis, Chapter 11

Clarke and McCool, Chapter 3 (Fish and Wildlife Service section)

Recommended Reading

Curtin, Charles G. “The Evolution of the U.S. National Wildlife Refuge System and the Doctrine of Compatibility.” Conservation Biology 7 (1): 29-38. (JSTOR)

Keiter, Robert B., and Harvey Locke. 1996. “Law and Large Carnivore Conservation in the Rocky Mountains of the U.S. and Canada.” Conservation Biology 10(4): 1003-1012. (JSTOR)

Primm, Steven A., and Tim W. Clark. 1996. “Making Sense of the Policy Process for Carnivore Conservation.” Conservation Biology 10(4): 1036-1045.(JSTOR)

Thursday 12/1: Ecosystem Management

Loomis, Chapter 13

Grumbine, R. Edward. 1994. “What Is Ecosystem Management?” Conservation Biology 8(1): 27-38.

Recommended Reading

Power, Thomas Michael. 1991. “Ecosystem Preservation and the Economy in the Greater Yellowstone Area.” Conservation Biology 5 (3): 395-404.

Clark, Tim W., Elizabeth Dawn Amato, Donald G. Whittemore, Ann H. Harvey. 1991. “Policy and Programs for Ecosystem Management in the Greater Yellowstone Ecosystem: An Analysis.” Conservation Biology 5(3): 412-422.

Week 11: Conclusion

Tuesday 12/6: The New West

Hansen, Andrew j., et al. 2002. "Ecological Causes and Consequences of Demographic Change in the New West" BioScience 52: 151-162.

Shumway JM, and Otterstrom SM. 2001. "Spatial patterns of migration and income change in the mountain West: The dominance of service-based, amenity-rich counties." 
Professional Geographer 53 (4): 492-502

Thursday 12/8: Conclusion (also a cushion day for guest speakers earlier in quarter)

FINAL EXAMINATION: Thursday, December 15, 8:00am-10:00am, same room