《Best Practice in Protected Area Management and ….docx》由会员分享，可在线阅读，更多相关《Best Practice in Protected Area Management and ….docx（48页珍藏版）》请在课桌文档上搜索。
1、BestPracticeinProtectedAreaManagementPlanningANZECCWorkingGrouponNationalParksandProtectedAreasManagementBenchmarkingandBestPracticeProgram1.eadAgencyParksandWildlifeServiceTasmaniaMay2000SUMMARYManagementplanningprocessesandpracticesinAustralia,NewZealandandNorthAmericanparkmanagementagenciesareide
2、ntifiedandreviewed.AllAustralianandNewZealandagenciesarerequiredbylegislationtoproducemanagementplansforprotectedareas.Legislativerequirementsvary,butthemanagementplanningprocessesusedbyallagenciesarebroadlysimilar.Acomparisonofprocessesismadeandamodelofthegeneralprocesspresented.Current4goodpractic
3、esusedbyagenciesinmanagementplanningareidentifiedratherthanone4bestpracticemodel.Thisapproachrecognisesdifferentplanningsettingsandtheinevitabilityofchange.Theconceptof4goodpractice,alsofitsbetterwithacultureofcontinuingimprovement.Aframeworkoftgoodpractice,considerationsforuseinthemanagementplannin
4、gprocessisproposed.Withacontinuingtrendtowardleaneruissuc-fbcussedmanagementplans,mostagencieswillhaveachievedfullornearfullplanningcoverageofthehigherstatus,highuseprotectedareasand,incaseswherebroadscaleplanningisused,allreservesby2001.AnimpressiveaspectofthemanagementplanningworkbeingdoneacrossAu
5、straliaandNewZealandistheintegratedapproachbeingadopted,whereallaspectsofconservationanduseareconsideredduringtheplanningprocess,thecommunityaregenerallyinvolvedfromanearlystageandthefinalplanisthoroughlyscrutinisedbeforebeinggivenhighlevelapproval.Useoftargetshashastenedthepreparationofplansinmanya
6、gencies.However,overzealousadherencetosettargetsandtimelinesmaycompromisethequalityofthemanagementplan/orreducepublicinvolvementandconfidenceintheprocess.Manygoodpracticeshavebeenidentifiedforeachstageintheplanningprocess.Itisrecommendedthatthesetoolsbeprovided,andothersaddedwhenavailable,ontheANZEC
7、Cwebsiteforongoinginformationexchangeandimprovementinmanagementplanning.Aspectsofmanagementplanningidentifiedasneedingimprovement/developmentacrossallagenciesinclude: effectiveinvolvementofindigenouspeopleinmanagementplanning; integratingmanagementplanswithpolicyandstrategyplanning,budgetinganddevel
8、opmentplanningprocesses; monitoring,evaluatingandreportingontheimplementationofplansandtheeffectivenessofplansinmeetingmanagementobjectivesforprotectedareas; useoftheinternettofacilitatepublicconsultationandforreleaseofdraftandfinalmanagementplans.Itisrecommendedthatthee-mailnetworkofplannersfromAus
9、tralianandNewZealandagenciesbemaintainedtofacilitatediscussionandexchangeofinformationonthesepriorities.TABLEOFCONTENTS1 INTRODUCTIONI1.1 ANZECCBenchmarkingandBestPracticeProgram11.2 Objectivesandscopeoftheproject12 BACKGROUND12.1 ABriefHistory12.2 Purposesofmanagementplans23 ESTABLISHINGGOODPRACTIC
10、ES43.1 Methods43.2 Model54 OVERVIEWOFMANAGEMENTPLANNINGPROCESSES55 REVIEWANDDISCUSSIONOFPRACTICES95.1 Audienceformanagementplans95.2 Formatandcontentofmanagementplans105.3 Targetsandtimeframes105.4 Publicinvolvement115.5 Boards,councils,advisoryandconsultativecommittees125.6 Contractingoutvs.interna
11、lstaff.135.7 Managersvs.dedicatedplanners145.8 Implementation145.9 Monitoring,evaluationandreview166 GOODPRACTICE*CONSIDERATIONSINTHEMANAGEMENTPLANNINGPROCESS187 WHATNEXT?20REFERENCES21APPENDICESAPPENDIX 1 BenchmarkingGroup22APPENDIX 2 BenchmarkingQuestionnaire23APPENDIX 3 DescriptionofManagementPla
12、nningProcesses(1998)28APPENDIX 4 ManagementPlanProgress39APPENDIX 5 BenchmarkingProcessMeasures40APPENDIX 6 EstimatesofManagementPlanCosts42APPENDIX 7 ManagementPlanUsers*Feedback43APPENDIX 8 Examplesof,GoodPractices45FIGURESFigure 1 TypicalPlanningHierarchy(simplified)3Figure 2 ProtectedAreaManagem
13、entPlanningSystem(incorporatingevalution)7Figure 3 ModelofProtectedAreaManagementPlanningProcess81 INTRODUCTION1.1 ANZECCBenchmarkingandBestPracticeProgramIn1994,ANZECC(AustralianandNewZealandEnvironmentandConservationCouncil)initiatedabenchmarkingandbestpracticeprograminvolvinginvestigationsintokey
14、operationscommontoallconservationagencies.Theaimoftheprogramistogatherandpooltheapproachesandexperiencesofconservationagenciesinmanagementplanningsoastoidentifyareasofbestpractice,andhenceprovidearesourcethatwillassistandguideindividualagenciestoIeamfrom,borrowandadaptideastoimprovetheirmanagementpl
15、anning.1.2 Objectivesandscopeoftheproject1. Toidentitythepurposeofandaudienceformanagementplansforprotectedareas.2. ToidentifytheprocessesusedbyAustralianFederal.StateandTerritoryandNewZealandparkmanagementagenciesandanyotherrelevantagenciestoundertakemanagementplanningforprotectedareas.3. Toidentif
16、ytheprocessesandtechniquesusedbytheseparkmanagementagenciestoprovideplanningguidanceintheabsenceofmanagementplans.4. Toreviewtheseprocessesagainstpublishedmodelsformanagementplanning.5. Toidentifytherangeofcontent,detailandformofcurrentmanagementplans.6. Todeterminebestpracticeprocessesinthepreparat
17、ion,implementation,monitoringandevaluationofmanagementplansandotherplanningproducts.7. Todeterminebestpracticeprocessesformonitoringandreportingonperformance(attheorganisationallevel)inthepreparationandimplementationofmanagementplansforprotectedareas.8. Toprovideausefulreferenceforparkmanagementagen
18、ciesandestablishamechanismforcontinuingimprovementinpractices.ThestudyencompassedtheprocessofpreparingmanagementplansIbrprotectedareasstartingwiththedecisiontoprepareamanagementplanforacertainprotectedareaorgroupofareasandfinishingwithevaluationoftheplanseffectiveness,planreviewandamendmentorreplace
19、ment.2 BACKGROUND2.1 AbriefhistoryForaboutthirtyyearsparkmanagementagenciesinAustraliaandNewZealandhavebeenpreparingmanagementplansforprotectedareasinaccordancewiththeprovisionsoflegislationsetuptoestablishandmanagenationalparksandotherreserves.Typically,managementplansfitintoasuiteoflegislation,pol
20、iciesandplansforprotectedareasasshowninsimplifiedforminFigure1.Managementplanshavebeenusedasatooltoindicatehowareserveistobeused,developedandmanaged.Overtheyearstherehavebeenchangesintheapproachtoandformofmanagementplans.Intheearlieryearsmanagementplanstendedtoincludealotofresourceinformationthatwas
21、notdirectlyrelevanttomanagementstrategies.Also,theplanningprocesswasoftendrawnoutandinvolvedspecialistplannersorplanningteams.Techniquesformoreeffectivepublicparticipationinmanagementplanninghavebeendevelopedovertheyears.Morerecently,thetrendhasbeentoleaner,morestrategic,managementplans.Thereisgreat
22、eremphasisonsettingandmeetingtargetsforpreparationofplansforcertaincategoriesofreserve,e.g.allnationalparks.InsomeStatesthereisnowmoredirectinvolvementofparkmanagersinpreparationofmanagementplans,while,inonecase,preparationofmanagementplansisnowdonecompletelybycontractplanners.Timeframesforplanprepa
23、rationhavebeencondensedanduseofplanningmanualsandstandardplanformatswithsomegenericsectionssuchaszoning,haveassistedthistrend.Ownershipofplansbybothmanagersandthepublicmaybeinfluencedbythesedifferenttrends.Otherinnovationsincludegroupingadjacentreservesinoneplantherebygivingbetterregionalcontextform
24、anagers.Someplansforlargerparkshaveadoptedaperformance-basedapproachthatspecifiesoutcomessoughtforeachofthemajorplanningcomponents(e.g.resourceprotection,access,recreationandtourismetc)andstrategieswithperformancemeasuresandindicators.Animportantissueismonitoringandevaluatingtheeffectivenessofmanage
25、mentplansinenhancingmanagementofprotectedareas.Twoquestionsareofparticularsignificance: towhatextentaretheprescribedactionsinmanagementplansimplemented?Isthereaclearlinkbetweenpriorityactionslistedinplansandon-groundmanagementprograms?Towhatdegreearemanagementplansactuallyusedinbudgetplanninganddete
26、rminingworkprograms?;and towhatextenthasmanagement,undertheplan,achievedtheobjectivesofmanagement?2.2 PurposesofmanagementplansBeforecomparingtheprocessesofmanagementplanningitisimportanttobeclearaboutwhyconservationagenciesdomanagementplanning-whatisitspurpose?Whatoutcomesareexpectedfromit?Theprima
27、rypurposeofmanagementplanningistheinterpretationandintegrationofarangeofpolicies,treaties,strategies,businessplansandlegislativerequirements(includingthoseshowninFigure1)intoageographicaloverlaythatprovidesanessentialFigure1TypicalPlanningHierarchy(simplified)1.egislationAgencypolicies,strategies,co
28、rporate/businessplansRegionalplans,broadscalelandmanagementplanningManagementPlansforindividualorgroupsofreservesSubsidiaryplanseg.fireplans,siteplansetc.OperationalZactionplans,worksprogramsframeworktoguidemanagementofaparticularrese,eandassurethepublicthattheareaisbeingresponsiblymanaged.Underthis
29、umbrella,specificpurposesofmanagementplansareseenasbeingto: Ensurereservesaremanagedtoachieveobjectivesoflegislation,stakeholderexpectations(includingthoseofAboriginalZIwitraditionalowners),corporategoalsandconservationmanagementobjectives-qualityassurance,consistency,preventionofincrementaldegradat
30、ionthroughadhocdecisionmaking. Gainpublicinvolvementinreservemanagement-givethegeneralpublicawaytohavetheirsayaboutmanagement. Developasharedunderstandingofandavisionforareserve-identifythesignificanceofanarea,consolidatelegislativeandpolicyissues,integratevariouselementsofmanagementandconveytothepu
31、blicandmanagementstaffhowthereservewillbeprotectedandvisitorsprovidedfor. Providepublicaccountability-astatementofintent,forthecommunity,whatwewanttoachieveandhowandthecriteriabywhichtheperformanceofmanagementundertheplanwillbeassessed.3 ESTABLISHINGGOODPRACTICES3.1 Methods AreviewconductedOfbenchma
32、rkingliteratureandmanagementplansfromAustralia,NewZealandandNorthAmerica. Detaileddiscussionsheldwithmembersofthebenchmarkinggroup(seeAppendix1). Questionnairedesignedanddistributedwiththeassistanceofbenchmarkingpartners(seeAppendix2).ResponsesreceivedfromallSlateandTerritorynatureconservationagenci
33、esinAustraliaandNewZealandandfromParksCanada(thesehavebeentabulatedandacopyprovidedtoeachagencyseparately). Meetingofbenchmarkinggroup.BasedontheUSDOEEnvironmentManagementBenchmarkingGuide,thefollowingstepsweretaken: identifyanddescribethemainstages(activities)inthemanagementplanningprocess-seeSecti
34、on4； establishprocessmeasuresforeachmainstage(activity)-seeAppendix5; compareanddiscusstheresultsforeachmeasurebetweenbenchmarkingpartnersinthecontextofdifferingadministrativeandfinancialenvironments-seeSection4; identifybestpracticeprocessesandhowtheycanbeestablished-seeSections5and6andAppendix8.Gi
35、vendifferinglegislation,administrativearrangementsandsocialsettingsacrossAustraliaandNewZealand,thebenchmarkinggroupidentifiedgoodpractices5inmanagementplanning,ratherthantrytodefineasinglebestpracticemodel.Suchanapproachwasconsideredmoreappropriatebecauseitrecognisesthatatechniquemayworkwellinapart
36、icularsituationbutnotbesuitedtoothersituations.Thetermgoodpracticesalsorecognisesandallowsmorescopeforfutureimprovement.3.2 ModelFigure2illustratestheprotectedareamanagementplanningsystemofwhichmanagementplansareacomponent.Figure3showsthemainstagesinthemanagementplanningprocessandisusedasamodelforin
37、vestigatingtheprocessitselfandtheassociatedpractices.4 OVERVIEWOFMANAGEMENTPLANNINGPROCESSESAsummaryofmanagementplanningprocessesineachstateandNewZealandisgiveninAppendix3.Legislationsetsminimumrequirementswhichvarybetweenagenciesandwhichmaybesupplementedbyadditionalprocessesthroughadministrativedec
38、isions.AllAustralianandNewZealandconservationagenciesarerequiredbylegislationtoproducemanagementplansforatleastsomeclassesofprotectedarea.Legislativerequirementsinclude: plantobeprepared“assoonaspracticable“afterproclamationofareserve planforwildernessparktobepreparedwithin2yearsofproclamation timef
39、ramestocompletecertainstages processtobefollowedinpreparingplan formalpublicconsultationstages(preand/orpostdraftplan) Stateauthorityconsultationrequirements content considerationofcertainobjectivesofmanagement involvementofstatutoryadvisorybodies 叩PrOVaI durationofplan amendmentprocesscompliance1.e
40、gislationconfersauthorityonmanagementplans,however,legislativerequirementstendtoslowthepreparationandapprovalprocess.Broadly,theprocessesusedbyallagenciesaresimilarandfollowthemodelshowninFigure3.Themostsignificantaspectsofacomparisonofprocessesareasfollows.1. Decisiontoprepareamanagementplan,steeri
41、nggroup,briefThisfirstdecision-makingstageoftheprocessmaybeundertakenatvariouslevelsinanagencybutisnormallybasedonmanagementplanningtargetsoraprogramestablishedbytheMinisteroragencyexecutive.Awell-definedbriefiscriticalforoutsourcingplanningbutalsorelevantinhouse.AtthisearlystageQlddecideswhetherthe
42、reservewarrantsanormalorminiplan,dependingonreservesizeandcomplexityofmanagementissues.2. Datagathering,issuesidentification,consultationThereisdiversityinthelevelandformofcommunityconsultationpriortopreparingadraftplanforpublicrelease.Somelegislation(e.g.Commonwealth,QId)requiresadvertisementofthei
43、ntentiontoprepareaplanandcallforpublicsubmissions.Otheragenciesadvertisetheintention,contactstakeholdersandinviteinput.ManydifferentformsofpublicConsullationZparticipationarepossibleatthisstage,dependingonavailabletime,resourcesandlevelofcontroversyofissues.ExecutiveZMinisterZAdvisoryCouncilsTTradit
44、ionalOwnersmaybeinvolvedinapprovinggoals,issues,planrecommendationsatthisearlystage(e.g,WA,Qld).3. Plandrafting,internalagencyreviewConsistentapproachesareadopted,manyagenciesusetemplatesorplanformats.Adecisioncanbemadetovarytheusualstyletosuittheexpectedaudience.Someagencies(e.g.SA)involveselectedg
45、roups,includingregionalconsultativecommitteesinreviewingearlydrafts.Afurtherstepofcirculatingareviseddraftplantorelevantstateagenciesmayoccurhere(e.g.ACT,Tas),elsewherethisstep,ifitoccurs,doessoatthesametimeasreleaseofadraftplanforpubliccomment.4. Publicexhibitionofdraftplan,consultationAlldraftplan
46、srequirehighlevelendorsementforreleaseeitherbytheMinister(e.g.ACT,QLD,Tas)orDirector/CE(WA).NTrequirescabinetapprovalofadraftplanpriortopublicrelease.Formaladvertisementofdraftplansisuniversal.NZholdshearingsbyDGrepresentativesand(heConsen,ationBoardwherepeoplemayspeaktoandbequestionedabouttheirsubm
47、issions.Figure3ModelofProtectedAreaManagementPlanningProcess5. Revisionoffinalplan,submissionanalysisandreportingGenerallythisstepinvolvesdocumentationofpubliccommentsalongwiththeresultingproposedplanchanges.Thisdocumentationthenaccompaniestheproposedfinalplanthroughthesubsequentapprovalsteps.Thelev
48、eloffeedback(osubmittersisvariable,rangingfrombasicacknowledgement(mostagencies)topublishedanalysisofsubmissions(WA).AdvisoryZmanageiTientcommittees/councilsandTraditionalOwnersmaybeinvolvedinthisorthepreviousstage,reviewingplansandsubmissionsandadvisingtheMinister(NSW,SA,NT,WA,Tas,ACT,NZ).NZhasalegislateddeadlinetoreviseadraftplanandforwardittotheConservationBoardwithin8monthsofpublicrelease.TheBoardthenisrequiredtoapprovetheplanorreferitbacktotheDGwithin6months.6. ApprovedplanAplanisapprovedbyt
