Thesis (M. S. - Renewable Natural Resources)--University of Arizona, 1998. / Includes bibliographical references (leaves 98-103).

The purpose of this study has been an investigation of citizen participation in USDA Forest Service land management planning for the Coronado National Forest (CNF) in southeastern Arizona. Using an interdisciplinary approach, this research combined concepts from the fields of sociology, political science, natural resource planning and management to develop methods for obtaining citizen input, promoting ethnic minority participation, and following Forest Service use of public comment in the planning process. Data from existing questionnaires and a short questionnaire developed specifically for planning forums were used to investigate forms of participation, determine which publics participate and ascertain levels of interest in natural resource planning. Participation on the CNF core planning team provided observations on use of the publics' input. Despite a 20 percent Mexican-American population surrounding the CNF, there was essentially no ethnic minority participation in planning forums designed to gather public issues. Data support the thesis that minorities did not participate because they did not generally think that natural resource questions were important and did not support land planning. Ethnic minorities will come to meetings when they are directly affected, despite a low sense of efficacy. Ethnic minorities had equal access to information about planning forums; however, very few were on the mailing list because they did not respond to a letter inviting them to be on the CNF mailing and generally did not answer requests for public comment. The Forest Service used the public comments received as the basis for writing issue statements which set the parameters for integrating land and resource planning. Results were reported back to the public for review and issue statements were subsequently revised as a result of citizen and other agency comment. Citizen participation is one way to overcome skepticism of the Forest Service resource management performed in the name of the public interest. Different syles of decision-making imply different roles for citizen participation. Elections are decided by voting and legislative votes are influenced by lobbying. In a bureaucracy, incremental decision-making suggests citizen participation in order to map the political terrain, satisficing encourages interest group negotiation, and the synoptic approach wants facts from the publics. To count votes when decisions are being made to satisfice adds irrelevant data that frustrates both decision-maker and public. Comprehensive and useful public comment can be obtained from a structured process that is appropriate to the decision-making style the agency is using. Citizen views are part of the decision, but so also are economics, legal requirements, and resource constraints. Only in elections do a majority of citizens who vote, win. Bureaucratic decisions are not so neat in terms of popular will. But that is inherent in a government run by three branches, the legislative, executive, and judicial, in a complex society.

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This dissertation traces the history of cattle grazing at Saguaro NP, Organ Pipe Cactus NM and Fort Bowie NHS in southern Arizona. This collection of studies examines the factors affecting that use, the ranchers who made their living from the landscape, and the federal land managers responsible for sustaining the natural and cultural resources. A dominant industry on arid public lands since the Civil War, grazing was altered by a variety of influences: environmental and human-derived. Ranching communities developed from homesteading settlements. Success was determined by climate, topography, and natural resources; social and cultural pressures; economic events and political legislation; and later federal regulations and decisions. The first agency to oversee grazing, USFS was under constant pressure to maximize short-term human benefits. The NPS Organic Act of 1916 mandated conservation of natural resources "by such means as will leave them unimpaired for future generations" and yet approved cattle grazing, an extractive use, under USFS management. Park managers were frustrated by grazing practices not under their control. Parks were at a cultural and social disadvantage. Residents and politicians often expressed displeasure at park reservations; communities feared that parks would interfere with local industries. Park employees supervised visitors and developed recreation infrastructure; they came with little experience to manage livestock. Lack of funding for research, limited manpower, and political and administrative interference allowed cattle grazing to continue unregulated for decades altering vegetation and enhancing erosion. In the 1960s, changing values from the environmental movement, the waning power of the livestock industry, and the rise of activist scientists impelled NPS to act. Without monitoring data, NPS turned to legal opinions to terminate grazing. Now grazing is regulated and carefully monitored. NPS is mandated to incorporate research results into management decisions. Older grazing permits are being retired, but land acquisitions for park additions add new management challenges. Purchasing permits offers a new but financially limited opportunity to protect sensitive lands. Grazing has ended at all three parks, yet ecological changes and historic structures remain. As cultural and administrative legacies, those remnants offer opportunities to interpret a significant regional tradition and an untold controversy.