A TALE OF TWO SPECIES: HABITAT CONSERVATION PLANS AS BOUNDED CONFLICT

M. NILS PETERSON,' Department of Wildlife and Fisheries Sciences, Texas A&M University, College Station. TX 77843, USA STACEY A. ALLISON,2 Department of Wildlife and F~sher~es Sciences. Texas A&M Un~vers~ty, College Station. TX 77843, USA MARKUS J PETERSON,3 Department of Wildlife and F~sheries Sciences, Texas A&M Un~vers~ty, College Station, TX 77843, USA TARLA RAI PETERSON, Department of Communication, University of Utah. Salt Lake. UT 84112-0491. USA ROEL R. LOPEZ, Department of Wildlife and Fisheries Sciences. Texas A&M University, College Stat~on. TX 77843, USA

Abstract: \Vorl t l~vidc IIUIII~I pop11I;ltio11 rx1);111sio11 A I I ~ r is ing s t , ~ ~ i d ; i ~ . c I ~ ( 1 1 I i \ . ing phcc- i ~ ~ ( w a s i ~ i g prcs\u~.c 011

\ \ i l t l l i l r p o p l ~ l a r i o ~ ~ s ; u ~ t l r l ~ c . i ~ - h;tl,i~;~~.;. ( : o ~ ~ l l i c t rcg;r l t l i~rg c o n w ~ - \ ; ~ t i o ~ i ; I I I~ p ~ - c s c ~ - \ . ; r ~ i o ~ ~ o f ' r ~ ~ ~ d ; l n g c ~ c d sprc i rs is

anloll:: t h r g~.catcsI c ' I~ ;~ l l r~~ge. ; o l thc. 21st CCIILLII.\. l . ~ i ( l : ~ ~ ? g c - ~ ~ c ( l spcci(~s II~~II~;I~(.III~II~ OII p~.i\.;ltc- I;~II~s n l ; ~ g ~ ~ i t i c s t11c

p r o h l c m ~ ~ l l c ( ~ l ~ ~ ~ t c r ~ c t l I]\ II;IIUI.;I~ I.~.\o~II-c~ po l i i \ -m i~ l \ r r s ;111d n1;ltr;lgrln. (;i\(,~i 111;11 (o~ lsc~- \ . i l l i on 01 c ~ ~ ~ l ; ~ ~ i g ( ~ r c t I

sp(.cics i ~ ~ c ~ . t . ; ~ r i r ~ g l \ , dcpcnds o n src-ul i n g r o ( ~ l ~ c ~ . a ~ i o n ol' pl-iv.~tr 111opcrt\. (ncnc.1-s ill loc;~I r o r n ~ ~ l r ~ ~ ~ i t i r . ~ . 111ittc1--

st;lntling IIOV LO s twl rc th;lr cooprl-at ion i \ i rupo~-?ant. \Vc u s c ~ l ;In rr11nog1-apliic app~-o;lch to c I-iric ;dl\. ~-c-\.icw the

Fl;~hi~;tr ( :ons r~ - \a t io~ i I'larr (H(:P) proccwcs used i n attcmpLs to drvc lop r-c-gio~~al Il(:l 's to I x . :~c l i t the t I o ~ ~ s t o 1 1

t(md (flu/o /I~II.\/~?I~II.~I.\) and rhc F lor ida clcc~. (OI/OIOI~I,II\ ~ J I I ~ - ; ~ ~ ( I ~ I L . \ ~/II~'IIIIII: I I ~ ~ c Y ~ L ~ I - , Kc\ ( l cc~ . ) . 111 I)ot11 ( a,c-s.

t l ~ r p~-occss was ti;unrtl aa a search til l- the o p t i m u n ~ \ o l u t i ( ~ n lhr-ough e c ~ l l ; ~ l ) o ~ - . ~ ~ i o ~ ~ ;III<I (~I~S(.I I \ I IS t )u i l ( l i~ ig . dnd

i n nri~11r.I- case \\.a\ thr solut ion . ~ ~ l ~ i c \ c t l . T h r par-adoxi( ;11 IIX~III-~ of l iberal tlc~noc-t;ic\ p ~ t ~ l u t i c d ~ I i z p i~s\ i l ) i l i t \ -

o f a single, ideal .;olurion. k'ailing 10 t i ~ ~ d the oprinl;ll solut ion Ict l l o tli.;illllsion1nc11~ ; I I I~ pcss im i \~n \ v i ~ h the

pro i rss x n o n g 1 i ( 3' part iciplnts. \l 'c suggrst t lw t wi th in drnloc-rat ic polirical c-ontcrr.;, ;1pp10;1cI1rs to C~II~I.\.;IL~~II

p h ~ r ~ ~ i n g that c.c,nLcr aro1111tl I ~ c ~ l ~ n d c d c o ~ ~ t l i c t. w11ic.h is ~ . o o r r t l i n ;I( L t ~ o \ \ I v t l g ~ n r n ~ o l t l r c p a ~ - ; l t l ~ n inI1~1.cn1 LO r h r

ideals or I i h ( ~ ~ - t \ ant1 yq~~ ;~ l i t \ , , ~ 1 . c m o w l i k r l ) to p ~ . o ( l ~ ~ ( . r w t i s l k t o ~ - \ I .~ \~I ILs III;III .II,(. ~ ~ o I I ~ ~ ~ I I s I I s - I ) ; I \ ~ ~ ( I ;~pp~.oac-h(,s.

JOURNAL OF WILDLIFE MANAGEMENT 68(4):743-761

K q words: Hufn /lion\/r~~iur~.\i\. c .o rn rn l~n ic ;~ r io~~ , c-omm~unir\-l);~.;rtl c - o n w ~ . \ . ; ~ t i o ~ ~ , c-onllicl. ( o ~ l r c ~ i s l l s . dcmoc~-;~c\.,

t>ntlangrred aptJ( its. c ~ h ~ l o g ~ - a p h ~ ~ . FIo~-irl;l, h;rhir;~t c-on\cr\ a t ion p l a n ~ i i ~ i g . t Iou. ; ro~~ to;~tt. Kc\. ( I c ~ r , O d ~ r o i l ~ w r vir-

prri~rricis t lor~ i~rm, p~-opc.~-t\ , rights, soc.i;d c-;rpi~;rl, Trxah.

ETHNOGRAPHIC ANALYSES

Key Deer

Fig. 1 . Cartoon by Jay "Ding" Darling that was instrumental to the Instigation of Florida Key deer conservation, in the Florlda Keys. USA, 1934 (used by permlsslon of the J . N "Ding" Darlling Foundat~on).

Pine Kc! ( P ~ ~ ~ I - s o I I rl al. 2002). ; \ I ) o ~ ~ ~ s i c k . nlcdi- ator \\,;IS .\olicitrtl to ;lttclnpt ;I c o m m ~ m i t ~ ~ - l ~ ~ ~ s t ~ c l ;~ppi .o;~cl~ t o the, p1.oI11e1n (l%idol-Pawla, P.. 1111-

p~~ljlishetl 1-rport s u b i ~ ~ i t t t d 10 tlic hlonl-or ( : o I I ~ -

ty Scl~ool Distl-ict. Kc! \Vest, Florida. LTSX). I'hc IXIKC* lelt ~x~rtici l j ; r~~rdli-~rs~l .a~c~d, ;111glv. antl more p)lai-iretl in their viclvs (I'ctc~~.so~i et al. 2002). D u r i ~ ~ g the sitme \-ear, a n in te r t~ ;~ l LISFWS report ~ ~ o t e t l s c r i o ~ ~ s p~~blic . rcl;rtio~~s p~-ol,lcnis in tlic Keys (Fa;uics 1992).

111 1992, hlo111.oc ( ~ ) I I ~ I \ ;~tloptetl the K ~ L C 01 (;ro\vtli 01.dil1iuic.e (# 016-1902) \virhi~i its on^- PI-rhrnsi\c, Pla~i. \vliic.h rcstr.ictt,tl the, n~unbcr . oS Iiew rrsidrntial d\vcllings I111ilt c~)unr!~vitlc to 255 ;I y c ; ~ ~ . w ~ t i l 2001. \vhich now I1a5 bvcn c \ tc .~~dr t l intlcfiriirc~l\-. I'rrnri~h ; I IY i s s~~e t l o n ;I point .s\srrm. and lots 011 l%ig t'i~lc Kc\, \ I : I I - I wit11 21 poi~i t ~irf i r i t t111c to die plcscncc of rr~tl;rngr.rcd spvcirs. Flu.- ~ h c r ; il' the vr l i ic~rl ;~~. tr-aslie rirrc. ot tlotv (IiOF) through ;I par-tic~~lal- island doc\ I I O ~ mrvl mirii- rnwn state-ma1 ~tlarcci L.evvl oS Sc1.1 ic? \t;~ntla~-ds tlceirrrtl c.ririr;rl lor tlr:vc~lopmci~t intrnsit! ; ~ r ~ t l Irrirric;rnc e\;~c.rratio~r, t lcvelol)~~rc~rt i5 stopprtl.

I ) L I I ~ I I ~ the lii-st 2 \cars of the proccss, comnlu- nicatioii Ikil~trc contl-ihl~tcd to the existence of ;in :(I-tilici;~l antl tenuotts consensus ; ~ I I I O I I ~ all steering con>~nirtee rne~nbcrs, \cith [he cxccprion of the h~~sinc.;s repl-esentarivr. Joanc described the co11111111riic;ltio11 that O ~ ~ I I I K T ~ as I sided, i ~ ~ g . "\,l'ell, I rllcan i t w x comm~rnicatecl. I ) l t t I don't really t h i ~ ~ k the! rrally ul~dcr\ tood what i t

iiieant" ( 1-1. U 12, IO. Applicants wcrc not sei-io~~s- 1y ii~\,ol\,ctl in the biologicnl basis of tlic H(:P. JO; I I IC , 011r of tlic tcch11ic-;11 advisors said, "The ;~pplicants.. .tlidii't h a w I I I I I ~ ~ to conlrilmte i l l

t c r r ~ ~ s of11iologic;d co~isi t lerat io~~s antl I)\'.-\ [pop- ~ i l ; ~ t i o ~ l \,iabilit\, ;~nalysis] dcvelop~nrut, so (hey kind of .;at 011 the sidelines for rhc first \,ear ant1 a Ii;111" (14, 112, K). (;o~ivc~.scly, I.ihhy a technical athisor, described being cxclutlcd from process decisions ;IS difficult. s;t\ing. "If thcy w:~ntetl to sit and d o 11o11g Iiits a ~ i t l eat veggic burritos its real- ly thcir lmsiness aiid its toilg11 I ) r c a ~ ~ s c sometinies \\-r Selt likc \IY [tecliilical XI\-iso1-s] wcrc part 01' the comn~ittce, ; ~ n d we tried to weigh in o n things" (18, UIO. 1.;).

M'lie~i the applic;~~its. in con junc t io~~ \\-it11 tlie co~~sul tan t . finished a draft H(:P hasctl on the I'LL-\-lo ivhich they did nor coil tributc-the L'SFI4'S I-ejected i t becxrhr it ncirhei- 111-ovidctl sufficient nii~igation 1101- spccifictl how ~ ~ ~ i t i j ? ; ; i -

tion \coultl Ilc paitl ti)r. 'Tliis w;ls a snl-prise t o thc applicants a11(1 t l ~ c business ~-eprcsc~~tat ive, \vho Iklt th;~r after 2 years of \cork. t l ~ c IJSF\VS hilt1 bli~ltlsitlrtl theni aiitl \\.;is r n r ~ - e l ~ . rqing to b a ~ - g ; i i ~ ~ 1'01- higher ni i t igat io~~. Accordiiig to Neil. "Tliis stl~cly has cost $200,000 more (ha11 it \v;ls [)I-oject- etl to cost p~.in~;llily beca~tsc \vc haven't t)cc11 able to get a l i~~ishc t l product. and 1 lee1 its bccal~se 1 t l ~ e L:.S.] Fish arid M'iltllife [Senice] keeps char~giiig \vllat the! \\.;li~t." ( I I , C124, K). He \vent 011 ro say, "M'cll 1 don't kno\c wh\ \ve got ro the cntl, 01- ;~l)out to rhr t.11(1, a ~ ~ t l the r juet io~is came out tli;lt, c . ;~~nc out ... 1 think Trey \+.;IS tl-yiiig to get iiiorc out 01' the II<:P than Ikdclxl regulatio~is pl-ovidctl for, and to I x honest \ v i t l ~ )ou, Libb). tolcl rnc he \*,;is. SO !.C)LI know I thin!, he. S;IW his ~-olc rnorc as tnilig to get as much 21s p'ssible i l l

the p m i i i t ;~ppl iwtio~i" (Neil, 11, L' 13, K). J o a ~ i e s;iitl, "To be quite honest wit11 y ) u , I t11i11k they \\.ere t~-virig to get as n ~ u c l ~ as the!. could ti)r as lit-

rle as the!. could" 114. I~l12. K). The uncxpcctrtl I-rjection of the ( h f t HCI' and

the attitude charrge arliollg applica~lts ca~tscd a rift l )e t \vcc~~ committee member-s \cith local \.el-- S I I S 11ational iri~crcsts. 'Tre!., all agency reprcscnt;l- l i w . tlcscribetl the dis;igreenirrit i l l these \\x)rds,

perked my c ;m up. So I went to Neil m t l saitl, '\.\'h\. d o we 11avr 3: 1 ? ' .\ntl 11r saitl, [ thr L1.S.] Fish ;~ricl \.Yildlifc [Senice] \\.ants 5: I ,' :u~d I said, '\.Yell ill1 thr hcttcr rras011 I 0 <tart at l : l and negotiate \err k~row.' Lfill thrn i t G I I I I ~ O L I ~

i r r . . . o ~ ~ r last r n r r r i ~ ~ g , \vc.'\c got some pc,oplr f r o n ~ Flol-itla Fish mltl \Vilrlliti., \vhatevrr the!. call it, sa\ing. '\G \ ~ u n t ro retire all the huiltl- able Ixid on Rig Pine in thc next 20 \.ears, so you rrally ncctl a 10:l ~iiitigation ~-ario' .... 1'111 still c-I-ying I~loody rn~~r t lc r , I sav that's hullsl~it. Ict'\ o l k r 1: I . Then 1ve'r.r g o i n ~ to I)e hack up to 3: 1 , if !,o11 ofil- 3:l then i r ' x still going to I x hack lip to 5: I or something (17. U7, I().

T h r ;~ncctlote sli;u.ctl 11y Miuitls illustr.atcs ho\\' f;lr Il.ori1 conscrwxs tlic g~ 'oup \ \xs. By this point, their scxhions had tlegenera~cd i r~ to tm1ition;ll \vi~i-losc I);~r-g;~ini~ig. Jcn~i i f r r tlcsCrihcd thr ~ic\v focus as "the rnairi concerli of t11r colint! that states in black and \ v l ~ i t r wc n.ill allow this a1.c;~ to Ilc tle\,rlopctl, or thew ;~rc ;~s . i ~ r r t l , 1111, \vc \vill nor allo\\. this at-ea.. . y o ~ ~ ' r c telling solncorle thc!~ can't develop t l~eir propi-t! so it's a taking.. ..so \ \ , l~at ~ v c I~avr tried lo do is call i t t l~csc h ~ ~ h h l r arras.. .so its not like ! o ~ ~ ' r c s t ip~~lat ing cxact lob" (13, U6, K). Libby argr~ctl, "It [ th r P\'A] brcamc alniosr like the Bible 'OH- val~tca 01' 0.0001.' I mean come o11" 118. L ' l I , K).

Thc citizen mrnlber- reprcsci~tirrg local I I I I \ ~ - ncsses ;md rhc Mollroe Co~~rr tv repl-escr~t;~ti\.e \vc,re the only i~iformanrs 11ot f'r~~stratetl Ivith the nrovenienr ttnvartl prrmit t i~ig and a\\nv from I~olistic planrri~rg. This might re1lrc.r 11ic f'1c.t that this nlowinent anicliorateti the ~ O M . C I - i~r~l)al;~ricc that the husincss rt.111-esrritativc n.as hcing, a~icl ;~llo\\wi hlonror (:ou~lty alternati\cs to Ii~ntling all miligation. L,il~hy irrf'ormed 11s that " t l ~ e latest I)onibsl~cll is, I rliirik eve)-yonc ; ~ s s ~ ~ n i e t l that the cor~r~ ty \\as going to cam!. forth this ii~itii+~tion \\,harc\,er thtx costs were, ~lrc\ , were going to be paid 101- o \ ~ t of county fi~ntls 1-igl~t?. . .'l'otall!~. \ f i l l now g ~ ~ e s s u.ho pays He \vho builds" (18. L! I I , K) .

The tlralt rejrction a ~ ~ t l rnovrmcnr ro ;I detail- orirntctl and t imr-conr~~t r~ ing perrnitti~lg pr-owss led to disillusionnim \\it11 the process ;untl t i o ~ ~ h r s I-cgai-ding potential s~~cccss . As J e ~ ~ n i f ' e r tlcscrihetl,

U'c're all, likc sick 01' i t , t o 11c hor~est. \Ye ~ ~ 1 s t \\.ant to Iinish the thrnn thing a~ l t l e\.rl-y nicct- ing there is t l~is rlew ~rrvrlxtion. 'oh. now we'll writt, i t likc this,' 'oh ~ v c slloultl have tlorrc this.'. . .b 'e all speak the sanlc la~iguage, antl n t ,

ha\en't been conrml~nicati~rg li)r the last 3 \ears .... It's uitilul. 1 conlr~iunic.atc better uith

Table 1. Attributes and evolution of the commun~ty-based conservation (CBC) plannlng processes deslgned to develop multl- specles Habltat Conservation Plans (HCP) for the endangered Florlda Key deer on Big Plne Key. Florlda. and Houston toad in Bastrop County, Texas, USA.

CBC nrocesses evaluated

Attributes Blg Plne Bastrop

Expectations for process Resolve decades of dlspute regarding Key Settle dlspute over land use and enable deer conservation versus development ~nd~v~duals and businesses to contlnue land

uses threatened by Houston toad conservatlon Commlttee power balance Equallty and popular sovereignty domlnate Personal lhberty and property rlghts domlnate Committee dynamlcs Unlted front agalnst the buslness representatlve Unlted front against the USFWS and outslde

dissolved Into schlsm between local and outslde environmental Interests strengthened after the governmental agency representat~ves after the USFWS rejected the draft HCP for Inadequate U S Flsh and Wildllfe Servlce (USFWS) rejected mltlgatlon the draft HCP for lack of local mltlgatlon funds

Process problems Unrealistic expectations poor argumentatlon Unknown regulatory boundaries unreallstlc and commun~cat~on skllls expectations poor argumentation and commu-

nlcatlon skills Result Abandonment of CBC process and no Abandonment of CBC process and no resolut~on

resolution of land-use issues of land-use lssues

[Srrvicrl 's co1u.t. K L L ~ , \\c'rc. no[ . \ I r ' r r not close to 111at. \Vc.l-<x at least ii vc.;it :1\\;1\ il~Ol1l t l l ~ l l . A ~ l d . I I I ~ , s o t l~at ' s I ' ~ . ~ ~ s t i x ~ i t ~ g " (Ken. I I S . ( '12 , 15).,Jari- 11.v <;lid. "It j11st ~ C C I I I ~ IiLc it'.; \ e n possiblr that. v'k110\\. \ \ r 111ai c11d u p l i : n ~ ~ i g to rl islx~~i(i t l~ i s ~ l ~ i n g . .And, 1111, all o l ' t hc \vo~.L \ \ i l l I ia\c been ti)i. I I ; I ~ I ~ I I I . Y'LIIoI~, t l i e~ i I ' ( l p~-ol)al)lv regret i t " (16, L'22. Ki. .Al tho~~gl i ; I I I commit tcr ~ i ~ c . n ~ b c ~ . \ I,cg;in I I I C (:R(: I ) I X K C S S ( x p r c t i ~ i g C O I I V ~ I ~ S ~ I S I O c ~ ~ ~ c , ~ . g c . 2 pxrti( . ipx~tts d i s t - t ) ~ i t i ~ i ~ ~ ( d i ~ i \ o I v r n ~ e ~ ~ t ~ I I

March 2002 tluc l o I r ~ ~ s t ~ . , ~ t i o n wit11 t l ~ c lack of progl-css, ;111(1 111~. co~ii~ii i t tc ' t ' I)cg;111 ;I I I C \ \

app r -o ;~c l~ l x l t ir i~lg ;I rons1111i1ig 1i1-111, ;I LI\\?cI., a n d a 1'111l-ti1i1r 1)ioIogist ( I ~ a l ~ l c 1 1, ~ I l i c s r ~ ' I I I ~ ( ~ : I -

mental clixngc~s t11;11kc(I [lie c ~ i d of g~. ;~ss~.oots (:KC: in ~ - e f r ~ - r r ~ c . c to t l ~ i \ ll(:P,

DISCUSSION 80111 111c 13ig Pinr Krv ; I I I ( I l k ~ s t ~ o p ( h ~ r ~ i t ~ i X i ;

cor~~rrii t tccs 1xp11 \\ i t11 ~~n~-eal i \ t ic . ;~ l l> Iligh hopes 1i11- ~.eac!ii~ig a11 o p t i ~ i i ~ ~ n i so111tio11 I I I I - O I I ~ I I c o l l a l ~ o~-arion :uitl co11sc11s11s I~~ l i ld ing . I\lt~n~l)t.r-s ol' Ix~tli c.ornrnittres tlio11gl)t tlic p~.oc.c.s\ \ \or~lrl c - d ~ ~ c x t r t l ~ e ( . O I I I I I I I I I I ~ ~ \ a ~ i d I . ( w ) I \ ( ~ \ (.;IIP 111' p1-e\iu11sI! intract;~l)lc l a ~ ~ t l - ~ r s c contlicrs. ( : o n s t . ~ - \ ; ~ t i o ~ ~ policy \vitIiil~ c.oliteiiipol.ai.! tlcn~oc~.;~c.ics I I I I I . ; ~ . I~o\vt>ver. ncgoti;~tr t l ~ e c o ~ ~ ~ p l c \ ~ . c l a t i o ~ ~ s l ~ i p Ix.t\\.c,c.n r q ~ ~ a l - it^ and lil)r~-n-. 1-;1tl1c1 I I I ~ I I i ~ t t c ~ ~ i p t to ;~voi(l this ~-c.larionshil) (hlc1111le 1993. 2000). 111 the 25 .\pr-il 2000 rcgion;~l H(:l' ~ ) ~ ~ l ) l i c 111ccting i l l Big Pin(., ;In an011) Inollh ( ~ I I I I I I I I I I ~ ~ ~ ! I I I ~ I I ~ ~ ) ~ I - asked 111c critic;~l q~rcstion: "Oors t l ~ c . rcgiste~.e(l vote^. ha\.e the right to vote o n pr01~1.tics t l ~ r y (lo ~ i o t o\v11?" (%ischka 2000). T h e t l c ~ ~ ~ o c r , ~ r i c - 11;11-;1tlos ~ - r c l ~ ~ i ~ - e s I1i:Ps to 1'' . ' I ' , ~ c i Itate t l ~ c I I I I ~ ; I ~ \ 1).11;111( c I)rt\veen 1ibc.1-t\ ( ~ x o p c r t \ rights) and c.rl~~alit\. ( l ) o l ) ~ ~ l a ~ sovereign- [ \ ) in~plicit in the a l ' o ~ . r ~ ~ ~ c ~ ~ ~ t i o ~ ~ c ( I qu~cstion.

Both Hi:P c o ~ n l n i ~ ~ t . r * . ; t l ~ a t \ \ e c \a luatc t l ; ~ t t c n ~ p t c t l t o skil-I this t;~.;k \I i t 1 1 (1;1111:1ging ~.csults. T11e II(;Ps arc ~ i o \ \ o\c>r 1)11tlgr1 a r ~ t l >I \ear- past sc.hrrl111etl c o ~ ~ c l t ~ s i o ~ ~ s . \ v l ~ i l ( , ~x~rn ic ipa r~ t s are tlis- iIl11sio11r~1 \ \ i t 1 1 t l ~ c ptlblic partici1):1tio11 1)r-o(.ess ; ~ n t l ~ ~ ~ ~ c . c . r t a i n ~ - c g : ~ ~ - c l i ~ ~ g 1tttu1.c C O I I S ~ I - \ a t i o n ~ ) I ; I I I I ~ ~ I I ~ in 111rit- t x g i o ~ ~ s . T l ~ c tcv~~: t t i \c s o h ~ t i o ~ i I)c.ing 01lk1-ctl I)\- t l ~ c Big I'ine c o ~ n r n i ~ t r r cwr~i- t i ; t I l \ r c ~ c r t s to 111r i~~( l i \ . i ( lu ;~l I l ( : l ' p~.occhs h\, ~ - c . c l ~ ~ i ~ . i ~ ~ g iil~(li\.i(ll~<~l l i ~ n ( l o \ v ~ ~ c ~ ~ 10 p ~ o \ i ( l c 111iti- g a t i o ~ ~ on ;I c;tsc-lmcxsc I)asis, \ \ l ~ i l c i l ~ e K;usl~op c o n ~ ~ t y 11( :I ' 11:1(l 11ot !ct o lk~.c . ( l 'I p o t c , ~ ~ t i ' ~ l so111- tion. Thi \ rt- nitio ion I-est~lrecl ill ~ I I I H ) I I I ;In arti- lici;~ll) I i o l~ to f i ( ' no~~s ~ ~ I - I I - ; I ~ ~ I I 01 t11c c o ~ l ~ ~ ~ ~ i l t c c s ;uld t l~c i r c o n ~ n ~ r ~ n i t i r s , c r~c .ou~-ag i~ ig ~ ~ ~ c ~ n l ~ c r s to ig11ot.c tlic. c o t ~ ~ p l c ~ s i t \ ol'rlic political 111i1i(.u ~ i t 1 1 - in \ r l~ic . l~ tl~ril- t l t , c i \ i o~~s \voultl h e c\x111;1tc~l.

c;ise o f a n i ~ ~ ~ a l liatecl ;I> cntl;ingcred, the Lnitrd State5 has stated its desir-e to protect Iiabita~ nvc- cswr) for recovery ol thcsc \pccic5, even \vhen s t~ch protrction comes ; ~ t a co51 to individuals, as evidenced hy I he passage a i d cout in~~ecl rnfol-cc- rlicrit ot the ESA.

The coir~plcx practice of der~~oc~- ; ic> it~trtttlcd O I I both 01' thcsc caws in ano~her- ~ ~ I I I ~ I I \ ~ ~ I I 21s \\.ell. No citi~c.11-hascd planning ellort c:tn rcplx- 5rnt the puhlic iri t l ~ e sense of I pcrson. I \.otr. 1'articip;ltioll i l l \cnllcs s ~ ~ c h as voting is \ .o lu~~t :~r \ and 111ust ~ . c ~ ~ ~ a i n so. ,Ilthough those coriverii~~g H(:l' o r ot l~el- (;B(: proccsses c;~n-;~ntl sl~ould- do c\cr\,rhing possihlr to eris~u-c that public 1x11.- ticipation processes are \ridely acccs,ihle-and ~ho111d aftir~uati\vly attempt to ir~cludc ;I tli\ersc group in lx~hlic clelibe!-ations-they calulot re- q11ir-e people to participate. Ever1 ill tlie rare casc \rlieii an a g c ~ ~ c ! devotes major I-esourccs to this e t l i~r t , public respolisc rcmains limited. This Iict allrays offers an openirig fol- dissatisfiic.tio~i, hot11 wit11 thc process and its result\.

O11r casc studies suggest that. in corr~munities whew the deil~ocratic par;rrlo\ i5 t.\itlent (e.g., the Flot-itla Keys), no . ; i~~glc o p t i r n ~ ~ ~ n solution exists for H(;Ps. More politicall\ I ~ o r r ~ o g e n o ~ ~ s comrn~~nit ies (e.g., 13asti-op ( : o u ~ ~ t v ) rnlrsr still f';rce tlir lxr~-;rdc)x at a nxtion;d level. Accordi~~gly, li amitrg II(;P processes as a seal-c.11 l i ~ r the single, opti111l111i solntion through col laborat io~~ and consenslls bttildi~ig often leads to disillusion- ment and pcssi~nism by community i r ~ c ~ n l ~ r r s clircc.tl\. in\.ol\.rd with developing the H(;P.; brcausc participants are trapped ~r i th in tlir dcn~ocratic paradox.

MANAGEMENT IMPLICATIONS S o n ~ c might s ~ ~ g g e s t a l ) ; ~ ~ ~ d o t l l ~ i c ~ ~ t of cotnn111-

~iicv-based ;~ppr-oache\ to I l ( :P tlcvc'lopmeiit due to chc apparent inrt'fecti\er~e\s 01' tlic 2 CKC etli11-ts we ewluarcd. In ollr currrrlt r eg~~la torv fra~ne\vor-k, ho\vc\.cr. tltis \vo111tl 1-rs111t in a prolif- eration of intli\.idual H<:Ps, habitat fragrnei~ta- tion. and poor ecos\,tcnl nlanagernent. hlore- o\-el-, tlisr~~issirig local cornrn~~ni tv input 011

regional and national issues, s ~ ~ c h as the ESA, tlis- 1ni5sc.s local i~ed conflicts that \rill r v c n t ~ ~ ~ ~ l l > force t l~cir way into national cot~scr\;i~ion polic\.

Bawd on our case studies, \vc s11gge51 t h a ~ coln- ii11u1it\-hascd H(:l's pl-olxhly \rill be Incw s ~ ~ c - ccssli~l if they incorpo~-ate t l ~ e bou~~dcc l conflict (Peterson 1997: 17 1-1 85) irilicrcnr to rhc clemoc.- I-atic paradox. Kol~ndrd conllict enables partici- ~ X I I I I S to (.oll;~bora~ivcl\ ( 1 ) develop a pt-ocess lor

rq~l;dl!. fitlsc ;t\stunptio~l that disagrrements over p ) l i c ! prcfi.~-c~lces ~~ecea\ i t :~~c.d p c r s o ~ ~ a l attacks. .AI111ott~11 i ~ ~ ; ~ t l c q u a t e 01- i~~effrct ive comnlu~~ica- lion skills \ \ i l l [lot plc\.ent p~rt ic ipants f i o ~ r ~ a t l r ~ n p t i r ~ g lo c x c ~ t po\\rr ~ x r i o u s ncgative tac- tics. ctfccti\c c o ~ ~ ~ ~ ~ ~ u n i c . : ~ t i o n skills can provide a colrliuoll p l .~ t l i )~-~n f ' r o ~ ~ ~ \\.l~ich to debate the KU-

ious i ~ ~ t e r e s t \ 01';111 p r ~ i c i p ; u ~ t s . \'erlues lor (:BC p l x r ~ r ~ i ~ ~ g .;bo~drl I)c dc\igncti to incorporate 1,. ,ISI( .' . ( . o ~ n n ~ r ~ n i c a t i o n t rai~l i~lg.

( 5 ) L h p i l r altcnlpting to cr~sul-r that ?\.el-). pal t i c ipn t possesses cxwr~tial con~~nunicatic,n skills. the lkilirator l n ~ s t ~ o t ;Issume thCit all pal.- ticipant\ \\.ill choose to wr tlirm. The ronini~~ri i - catio~r 1 )~)cess n l ~ ~ s t h r designcd with sufficient r c \ i l i c ~ ~ c \ ~ to recover f'roni frequent n~isI>el~avio~-. F I I ~ I I ~ ~ I . . p r t i c i p a ~ ~ ~ s mllst proccccl with the full kno\vl'dge tliat [heir participation ill the CHC p~.occ.s I-einains h111 1 ot III;III\ . idtcrnatives avail- able to tlirm.

(6) Keg~ilatory agent ies, su( 11 as the LSn2'S in the 2 cases n-c e~.aluatrd. 11retl to takc rcaporlsibil- i t \ . tor i ~ ~ f o r n l i i ~ g a11 p ~ - t i ( ~P ; I I I IS of 1.egl11aton ho~rnrlaric.~, ;mtl thc11 documenting that the), have done so. .-\gain, agcncv penonnel cannot guararl- trr that all p a r t i c i p ~ ~ ~ t \ \ \ i l l listen LC) a ~ i d under- stand tlic relrlxnt ~reg~~la tory bounclaries. This p r ; ~ t i c c ~vill. ho\vel.rr; n ~ i n i m i ~ c the legitimacy of c o ~ n l ) l ; ~ i ~ ~ t s tint rrg~ilatorv agcncica Icere arbitmi-\. a l~ t l cap~ic i o ~ ~ s . TO do this ~vcll, agency prrsonncl 11111\1t \vo~-k cIosr1~. with t l ~ c fi~cilit;~to~-s of the 1 x 1 ~ ~ s . This corild i n c l ~ ~ d c crlat~ling agrncy prl-- s o n ~ ~ r l to ol)t;tin Insic facilitation skills and ~ - t . q ~ ~ i r r s incl~~\ic ) ~ i ol' Ii~ciliti~tion cost.s in budgets as\oc.i;~rctl \vi t l r c~r \ i~-onmentd planning processes.

ACKNOWLEDGMENTS Special tl1;lnks a1.c chtcndrd to thr staff of the

h'ational Kcy 1)ccr Refuge. Rlonl-oc Co~~nr! . Flori- da. .I: I.. Kro~vn, R. N. il'ilkins. and 2 arioriynow rcti>rccs pi-o~itletl Iirlpfi~l colnmcnts on earlier drafis ol'tllis i n a n ~ ~ s c r i p ~ . 'The I:.S. Fisll and \\'iltl- l i k Ser-~icr, 1,owcr (:olor;ldo k v e r Authorit!. TI'iI', 'Trxas Coope~xt iw Extc~ision, Texas Xgri- cultui~~tl Experiment Station, Texas h&,M Univer- sit\ (T.-\hll ') , and nwilt3rous Bastrop County 11usinrsac.s ~)~-o\iclccl f't~ntling for thrse case stud- ies. "I'bc. I ~ s t of rlrc 'Toy' Lker of the Florida k y \ " is ~ h c ~ I X ) ~ ) ~ I I ~ 01' the J . N. "Ding" Darling Fol~nrl;~rion ;r~rd is 11wcl I,\. prrnission. Hurnan rrsral-ch pro~oc.ol\ \vc~-c I-evie~crd and approved by the l:-\lll' I n d c p c n d r ~ ~ t Kevirw Hoard (proto- col n ~ r n ~ l ) c ~ - \ E2000-22 1 . ~ n d E200 1-087) and the T c x x Xgric ul tur,ll b:xpcrirnent S t a t i o ~ ~ .

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-. 2001 5,1l(, 1 IJI 1101 \;;I VC.II~(.III, 1111 [)I I\;II(. 111 1111-

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\ \ I \ ! I I:\. I ) . 1')O-I I . i ~ l l \ i ~ ~ g COII\(.I\.I~~IIII .IIII[ I IIIIIIIIIIII~-

I\ ~I \~I~I , I I I , I I I \ , I',I~I.\ 40Ll-.5l I I I I 11, \\OI(.III i 1 1 1 t 1 I<. kT.