Sustainability for the Nation: Resource Connection and Governance Linkages Committee on Sustainability Linkages in the Federal Government Science and Technology for Sustainability Program Policy and Global Affairs Division Copyright © National Academy of Sciences. All rights reserved. Sustainability for the Nation: Resource Connection and Governance Linkages THE NATIONAL ACADEMIES PRESS 500 Fifth Street, NW Washington, DC 20001 NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Insti- tute of Medicine. The members of the committee responsible for the report were chosen for their special competences and with regard for appropriate balance. This study was supported by a grant from the U.S. Environmental Protection Agency under award number EP10H002179, U.S. Geological Survey under award number G10AP00149, U.S. Department of Energy under award number DE-PI0000010, TO #8, National Aeronautics and Space Administration under award number NNX11AB43G, U.S. Department of Agriculture under award number 59-0790-1-124, National Science Foundation under award number CBET-1135117, National Oceanic and Atmospheric Administration under award number WC133R-11-CQ-0048, TO #1, BP, Lockheed Mar- tin, the David and Lucile Packard Foundation under award number 2011-36690, and the Cynthia and George Mitchell Foundation. Any opinions, findings, conclusions, or rec- ommendations expressed in this publication are those of the author(s) and do not neces- sarily reflect the views of the organizations or agencies that provided support for the pro- ject. 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Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences. The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering. The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the re- sponsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine. The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy’s purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the Nation- al Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council. www.national-academies.org Copyright © National Academy of Sciences. All rights reserved. Sustainability for the Nation: Resource Connection and Governance Linkages Copyright © National Academy of Sciences. All rights reserved. Sustainability for the Nation: Resource Connection and Governance Linkages COMMITTEE ON SUSTAINABILITY LINKAGES IN THE FEDERAL GOVERNMENT THOMAS GRAEDEL (CHAIR) (NAE), Clifton R. Musser Professor of Industrial Ecology, Yale University ROBERT ANEX, Professor of Biological Systems Engineering, University of Wisconsin-Madison WILLIAM CARROLL, JR., Vice President, Occidental Chemical Corporation GLEN T. DAIGGER (NAE), Senior Vice President and Chief Technology Officer, CH2M HILL PAULO FERRÃO, Professor, Instituto Superior Tecnico, Technical University of Lisbon HOWARD FRUMKIN, Dean, University of Washington School of Public Health SALLY KATZEN, Senior Advisor, Podesta Group; Visiting Professor, New York University School of Law ANNA PALMISANO, Associate Director of Science for Biological and Environmental Research, Office of Science, U.S. Department of Energy (retired) STEPHEN POLASKY (NAS), Fesler-Lampert Professor of Ecological/Environmental Economics, University of Minnesota LYNN SCARLETT, Co-Director, Center for Management of Ecological Wealth, Resources for the Future ROBERT STEPHENS, International Chair, Multi-State Working Group on Environmental Performance DEBORAH SWACKHAMER, Professor and Charles M. Denny Jr., Chair in Science, Technology, and Public Policy, Hubert H. Humphrey Institute of Public Affairs, University of Minnesota LAUREN ZEISE, Chief, Reproductive and Cancer Hazard Assessment Branch, California Environmental Protection Agency Science and Technology for Sustainability Program Staff MARINA MOSES, Director JENNIFER SAUNDERS, Program Officer DOMINIC BROSE, Program Officer EMI KAMEYAMA, Program Associate DYLAN RICHMOND, Research Assistant v Copyright © National Academy of Sciences. All rights reserved. Sustainability for the Nation: Resource Connection and Governance Linkages Copyright © National Academy of Sciences. All rights reserved. Sustainability for the Nation: Resource Connection and Governance Linkages Preface In July 2011, the National Research Council’s (NRC’s) Science and Tech- nology for Sustainability Program initiated a new study, Sustainability Linkages in the Federal Government. This followed a series of discussions held by the NRC’s Roundtable on Science and Technology for Sustainability that explored linkages between topics critical to long-term sustainability. The premise is that achieving sustainability is a systems challenge that cannot be addressed by sepa- rately optimizing pieces of the system. To address this systems challenge, an ad hoc committee with a wide range of expertise and experience in government, academia, and business was convened. Brief biographies of the individual com- mittee members are provided in Appendix A. The committee was charged to produce a report with consensus findings that provides an analytical framework for decision formulation and decision making related to linkages of sustainabil- ity. This framework can be used by U.S. policy makers and regulators to assess the consequences, trade-offs, and synergies of policy issues involving a systems approach to long-term sustainability and decisions on sustainability-oriented programs. The framework was to include social, economic, and environmental domains of sustainability, highlighting certain dimensions that are sometimes left unaccounted for in cross-media analyses. During the course of the study, the committee conducted several fact- finding meetings and committee meetings. The first committee meeting was held September 20-21, 2011, in Washington, D.C. During this meeting, sponsors discussed areas of interest to their agency or organization, and several panel discussions addressed a variety of perspectives (state and local, industry, non- governmental, and national) on sustainability linkages. Three subsequent fact-finding meetings explored specific examples that cut across a variety of geographies and scales and featured a range of sustainability challenges. The purpose of these meetings was to examine in detail a number of approaches to challenges involving either connections among sustainability- related resources, or of linkages across agencies addressing such challenges. At these meetings, the committee heard from and questioned those involved about issues of science, monitoring, organization, communication, and governance. The geographies included sustainability management of coastal systems (the vii Copyright © National Academy of Sciences. All rights reserved. Sustainability for the Nation: Resource Connection and Governance Linkages viii Preface Puget Sound, the Great Lakes; committee meeting in Seattle, WA, February 6-8, 2012), regional nonurban systems (the Mojave Desert, the Platte River; commit- tee meeting in Omaha, NE, April 11-12, 2012), and urban systems (Phoenix, Philadelphia; committee meeting in Tempe, AZ, June 11-12, 2012). The sustain- ability issues that were the focus of the examples involved the tension of manag- ing multiple users of a given resource, and multiple stressors on elements of these systems. System elements included water quality and availability, ecosys- tem health, endangered species, energy, transportation, urban infrastructure, public health, commerce, and food production. The linkages involved federal agencies, regional organizations, state agencies, local government, nongovern- mental organizations, and citizen stakeholder groups. A fifth committee meeting was held on July 16-19, 2012, in Woods Hole, MA, to begin to draft the consen- sus report, and a sixth meeting was held on October 11-12, 2012, in Washing- ton, DC. An agenda for each meeting is provided in Appendix C. The committee gratefully acknowledges all of the speakers for their in- formative presentations, and Derek Vollmer, National University of Singapore, and Stephanie Ariganello, Michigan Sea Grant, for preparing background papers for the meetings. The information provided at these meetings is used throughout this report and provided important perspectives which were utilized in this re- port’s findings and conclusions. In this report, Chapter 1 first describes the challenge that the committee ad- dressed. Chapter 2 discusses the current impediments to effective government action, Chapter 3 explores the fact-finding examples and the lessons they pro- vide, Chapter 4 develops the decision framework for linkage challenges, and Chapter 5 provides a vision for improved responses to sustainability linkages. The committee acknowledges Janene Cowan, University of Minnesota, and Kurt Barnes, Barnes Bros., for providing support for visual materials for the decision framework. The report would not have been possible without the sponsors of this study, including the U.S. Environmental Protection Agency, U.S. Geological Survey, U.S. Department of Energy, National Aeronautics and Space Administration, U.S. Department of Agriculture, National Science Foundation, National Oceanic and Atmospheric Administration, BP, Lockheed Martin, the David and Lucile Packard Foundation, and the Cynthia and George Mitchell Foundation. The April 2010 planning meeting was supported by the Interface Environmental Foundation. On behalf of the committee, I want to express our thanks and appreciation to Marina Moses, director of the Science and Technology for Sustainability Pro- gram, Jennifer Saunders, the program officer responsible for our study, and Emi Kameyama, program associate, for the time and effort they put into assembling the committee, planning the meetings, and organizing the report. I also thank the National Academies staff, Dominic Brose, program officer; Dylan Richmond, research assistant; Patricia Koshel, senior program officer; Sara Frueh, media officer II; Stephen Mautner, executive editor; Adriana Courembis, financial as- sociate; Radiah Rose, editorial projects coordinator; and Kathleen McAllister, Copyright © National Academy of Sciences. All rights reserved. Sustainability for the Nation: Resource Connection and Governance Linkages Preface ix associate program officer (through October 2010), for their support and assis- tance with study activities. Finally, I thank, especially, the members of the committee for their tireless efforts throughout the development of this report. Thomas Graedel, Chair Committee on Sustainability Linkages in the Federal Government Copyright © National Academy of Sciences. All rights reserved.