problem definition.

Last week I introduced the concept of IEM as well as the IEM framework for policy development (Figure 1). Today I want to discuss the second step in the IEM framework ‘Defining the Problem’; this is a really important step in achieving an IEM outcome.
First things first! An environmental issue must be recognised as an issue by people. Once the issue is recognised we can move onto the job of ‘defining the problem’. Appropriate problem definition right from the start of the process is crucial in achieving effective IEM.  This is because the way in which the problem is defined sets the scene for the how the issue will be analysed.

Using a case study on a proposed Marine Reserves (MR) in Kaikoura, New Zealand, I will illustrate how important problem definition is when finding solutions to environmental management issues.

Figure 1. Step 2 in the IEM Framework in Problem Definition.

Issues in Problem Definition

When it comes to problem definition in environmental management it is important to maintain a view of the ‘bigger picture’ at hand.  Too often people jump to the solution of a problem before they have adequately defined the problem.  You might be thinking that finding a solution quickly isn't a bad thing, if the solution seems obvious – why not move straight to it!? Well, being hasty without adequate problem definition can and has lead many a policy maker in to even more complex problems.  The following are four key points to be aware of for successful problem definition:

·     Environmental problem are rarely simple, they are complex issues with many interconnections that are difficult to resolve, and sometimes they are referred to as ‘wicked’ problems (Bardwell, 1991).

·        There can be multiple interpretations of the problem, we need to understand the problem solver as well as understanding the problem, this is because people are not value free, and values can be embedded in their environmental definition (Bardwell, 1991).

·        We must be aware of the language used in problem definition as it can be used as a powerful tool to muster emotion and interest and push the issue in a certain direction (Cairns & Crawford, 1991).

·         Metaphors can be helpful for understanding complex issues, however they can over-simplify issues to a point where the definition does not adequately emphasise the importance of the issue (Swaffield, 1998).

Case Study: Marine Reserve in Kaikoura

Background

This case study has a long history but it all started back in the late 1980’s when Barry Dunnett, a local teacher and representative for Forest & Bird (F&B) put forth a proposal for a Marine Reserve (MR) on the Kaikoura Peninsula.  The Kaikoura Peninsula is a unique and beautiful location that boasts diverse marine flora and fauna, rich in marine mammals, birds, plants and fish. Preserving the marine environment is important for Kaikoura’s tourist ventures as well as for recreational and cultural values.

There was support from local stakeholders (iwi, businesses & organisations) to ensure that at least part of the coastline was protected from localised fishing and Barry presented the idea of protecting half of the peninsular as a MR.  Consultation with stakeholders occurred but there was much debate about the appropriateness of the MR, in 1997 local MP Doug Kidd announced he would run the mediation process to resolve this issue, however this ended in an impasse; no consensus was ever reached on a MR in Kaikoura.

What went wrong?

There were several wrong turns that lead to the demise of the MR proposal, but if we trace back to the origins of the issue we find that the idea of a MR became a “Goal Trap” where stakeholders became focused on the solution - a MR, without properly defining the issue in the first place.  At the time F&B had issued a national MR goal that 10% of NZ’s coastlines be protected as MR’s, this in-turn led Dunnett to believe that a MR was the BEST solution for Kaikoura. Instead of stakeholders focusing on the issue as a whole, they focused on "how do we get everyone to agree to this MR on the Kaikoura peninsula?".  It was an incredibly narrow focus and if the actors had stopped, taken a step back and viewed the bigger picture, they may have realised that a MR was not their only option. A more communicative and collaborative approach might have brought forth new ideas such as moving the MR north or south of the peninsula to areas with high diversity and low human interaction, or that maybe that an iwi managed Rahui (temporary closure), Mataitai or Taiapure (locally managed) area may have been a better management tool for this situation. However, these ideas were not considered by this group as they were in a "Goal Trap" and wanted to contribute to F&B's national MR goal.

How to improve problem definition so we do not repeat our mistakes?

Make sure you have clearly defined your problem before you focus on solutions!!!

Bardwell (1991) suggests that instead of viewing problem definition as one step in the IEM framework, break it down in to smaller steps to help tease out the main problem (Table 1).

Step 1	Building an understanding of the problem: defining the problem-space
Step 2	Establishing some initial criteria for the goal
Step 3	Searching for solutions
Step 4	Deciding among solutions
Step 5	Evaluating progress: comparing initial goals to and monitoring the solution

Table 1. Organising the problem in problem definition.

When the problem is clearly defined, finding the correct solution will be easier.

What about the Kaikoura Peninsula??!

The Kaikoura Peninsular has since been protected by a Rahui (iwi managed temporary closure) and plans are (still) underway for MR's to the North and the South of the Peninsula. The Rahui was first instated in 2002, and has been renewed every 2 years since - until a more permanent management plan is decided on for the area so watch this space...!
http://www.stuff.co.nz/marlborough-express/news/kaikoura/7489840/Rahui-extended-for-two-years 

Today was an introduction to problem definition in IEM, drop in next week to learn more about barriers to integration and a recipe for success for IEM in policy development.


References

Bardwell, L.V.  (1991). Problem-framing: A perspective on Environmental Problem-Solving. Environmental Management, 15:603-612.

Cairns, J. Jr. & Crawford, T.V.  (1991). Integrated Environmental Management. Chelsea, Michigan: Lewis Publishers.

Swaffield, S.  (1998). Frames of Reference: A metaphor for Analysing and Interpreting Attitudes of Environmental Policy Makers and Policy Influences.  Environmental Management 22:495-504.