The Many Roots of Environmental Conflict
by Jonathan Dain, NRLI Director
The relatively small size of the Rodman dam belies the impacts of its construction and the strong passions it engenders.
On a breezy Thursday morning in March, our airboats bounced like old pickup trucks on a bumpy dirt road as they skimmed across the Rodman reservoir. Oddly masked, earmuffed and sitting spaced from each other, the wind pinned us against the seats as bald eagles soared overhead and bass fisherman cast their lines off in the distance. If we had not first learned of the area’s history from UF’s Dr. Steven Noll, it would have been difficult to imagine this as a place of controversy. Our pilots and guides, Mickey Thomason (2019 NRLI/DEP)* and Allen Martin (NRLI Class XIII)** navigated the waters with confidence and expertise despite the wind. Both have worked in and around the polemic Rodman Reservoir for a long time. For Mickey, that means close to 30 years, for Allen close to 15. Both recognize the reservoir’s positive and negative aspects. Both have seen the tensions between advocates for Ocklawaha restoration and advocates for maintaining the reservoir ebb and flow over time, sometimes latent, sometimes emergent and sometimes manifest. They know the issues well. They were invaluable in helping us organize a session that focused on one of Florida’s more intractable conflicts as described below by current Fellows Brandon Smith and Vincent Vitale.
What makes environmental conflicts so complicated? Why do they sometimes become “intractable” as in the case of the Rodman/Kirkpatrick dam and reservoir? The sources of environmental conflict are varied and in NRLI we use a framework called “the Circle of Conflict” (C. Moore 2014) to help us understand their complexities. Dr. Christopher Moore developed the framework after studying conflict and associated mediation efforts over many years. He identified a series of elements commonly found in complex conflicts. They include what he defined as structural issues, differing values, disagreements over data, relationship histories/dynamics, identity issues and competing interests. The Circle of Conflict can help us better understand the Rodman Reservoir case and others like it.
Structural Issues: The actions of powerful outside forces created a situation (dammed river) that eventually resulted in controversy, pitting people against each other over what to do. Over the years, other powerful stakeholders became involved and aligned themselves with and/or favored one side or the other in the conflict. Meanwhile, the area is managed by numerous state and federal agencies with different mandates, each of which has decision-making power over different parts and aspects of the area. These mandates are sometime in conflict. The way the situation is structured makes it very difficult to address.
Values: Those supporting the maintenance of the dam and those advocating for Ocklawaha river restoration have differing priorities in terms of values and principles. Values are discussable but not negotiable. Some stakeholders value the resource as it now stands, others value it as it once was. It can be difficult to imagine a middle ground when the situation is perceived as a zero-sum game.
Data: The sides in the conflict cite conflicting data. How ecologically functional is the waterbody? How will fishing opportunities in a restored river compare to current fishing? How structurally sound is the dam? What are the economic implications of restoration? Of dam maintenance? How are threatened species like manatees impacted by the dam and associated Buckman lock? Disagreement over data can be a source of conflict.
Relationship history: Intrenched inter-personal differences, miscommunication, negative previous experiences and power-plays have all contributed to conflict according to historian Dr. Steven Noll. There is lack of trust, among many of the key stakeholders, making dialogue and negotiation difficult.
Identity: Identity has to do with who we are, how we perceive ourselves and how we perceive our place in the world. It is a normal part of being human. When identity is threatened, people often react strongly. Involved in the Rodman issue are people whose identity is closely tied to their positions and interests. Like values, identity cannot be negotiated Perceptions of insiders vs. outsiders, fears of losing recognized skill, knowledge and mastery that took years to develop, fear of losing one’s sense of place – or desire to recover a lost sense of place. Identity can sometimes divide and make dialogue and negotiation difficult.
Interests: The “visible” part of most conflicts are clashing needs and interests. In this case behind people’s positions (save Rodman reservoir; free the Ocklawaha) are a wide variety of explanations, of why we want or don’t want something, be they substantive (a safe place to bank fish, improved habitat for native species, access to prime bass fishing), procedural (a transparent and fair decision-making process) or psychological (being treated respectfully, not feeling threatened).
Conflict can enter a phase of intractability when groups are trapped in a structure that is difficult to change, when parties value different things and/or cannot agree upon data, when trust is absent and/or people begin to see each other as enemies. NRLI Class XX did not visit Putnam County to make judgments about who was right or wrong in a situation that has been polarized for years. Instead, they came to listen, to observe and to learn. The group left Palatka with an appreciation of the Rodman/Ocklawaha situation’s complexity and some tools for better understanding the roots of conflicts they face in their own counties.
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*Cross Florida Greenway Manager, Division of Recreation & Parks, Florida Department of Environmental Protection
** Regional Freshwater Fisheries Administrator, Florida Fish & Wildlife Conservation Commission
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8-Month Flagship Program | Session 6 |
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Win, Lose, No Draw
By Brandon Smith and Vincent Vitale, NRLI Class XX Fellows
During the March NRLI training, the Fellows were presented with a conflict that was framed as being intractable - the Rodman Dam/Reservoir in Palatka, Florida. Merriam-Webster defines intractable as being not easily relieved or cured and this conflict definitely fits that bill.
The Rodman Dam and Reservoir owe their existence to a monumental project that takes us nearly a century back in time. The Cross Florida Barge Canal was a proposed canal that would allow ship traffic and commerce to bypass the long (and often unsuccessful) journey around the tip of Florida. The idea has been documented as far back as Spanish occupation in the region which sought to connect the Atlantic and the Gulf of Mexico across the “neck” of Florida. This story begins in the 1930s when Franklin D. Roosevelt approved funding for a canal that would connect the St. John’s River on the Atlantic to the Withlacoochee River in the Gulf of Mexico.
Over the course of the next four decades, construction was halted on various occasions as funding and legal challenges persisted. Ultimately, Richard Nixon put a permanent end to all activity in 1971 at the onset of a new, nationwide push for environmental conservation. However, by this time, a series of locks and dams had been established moving from east to west across the state. In 1968, an earthen dam was established in Palatka, Florida across the Ocklawaha River. This dam yielded a 9,500 acre reservoir which became known as the Rodman Reservoir. The dam and lock system, which are still in place today, control the reservoir levels and discharge. Ranging from 18-30 feet above sea level, it is a unique body of freshwater that has become known today as a premier largemouth bass fishery. Perhaps more so, it has become known as a source of conflict over its future. Some groups have formed calling for the removal of the dam in order to restore the Ocklawaha river to its natural state and call on environmental reasons for the restoration. While, proponents for keeping the dam, cite not only the recreation opportunities but also say they are concerned about environmental damage that would be caused to existing ecosystems that were created in the reservoir.
This conflict posed a new question to the NRLI fellows. In our training we had been discussing how to get stakeholders to listen to each other and attempt to reach a compromise. This is an issue that has black and white solutions with clear winners and losers. Bringing stakeholders to the table to listen to each other’s views becomes much more difficult when there is no viable way to compromise.
This particular conflict has been going on for decades and has been just slowly simmering with no real action taken. Shortly before our training there were several news articles that reported the groups in favor of removing the dam are taking a new approach. Instead of arguing for restoring the natural environment, since there are arguments regarding environmental concerns from both sides of the issue, proponents for removing the dam are claiming safety concerns that the dam is in risk of failure and the repairs will cost more than removing the dam would. This brought the conflict from a simmer to a boil to the point where one of the pro-dam stakeholders withdrew from our panel discussion.
So the question becomes, how do we use or modify NRLI principles to address a conflict with no hope of compromise? Can you expect stakeholders to listen when their only option is win or lose?
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NRLI Alumni Team Up to Offer Training for Local Decision-Makers in the Suwannee River Basin
by Paloma Carton de Grammont (Class XVII), Tatiana Borisova (Class VIII), and Charles Barret (Class XVII)
In February 2021, three NRLI alumni led a series of virtual workshops to provide information and tools that empower community leaders to make informed decisions about their communities’ water resources. The workshops created an opportunity to discuss water policies and local priorities with regional and state agencies, as well as to allow decision-makers to network and exchange ideas.
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Applications for Class XXI |
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We are starting to receive applications for NRLI Class 21 and look forward to receiving more NRLI-recommended applicants.
Please encourage potential applicants to get their materials in as soon as possible, and thank you all for helping spread the word - we appreciate all you do to help recruit the best of the best!
Here are some links to share:
The deadline to apply is April 30, 2021.
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Getting to Know Class XX Fellows |
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Jorge Guevara
Forest Hydrologist, U.S. Forest Service
Jorge grew up in New Smyrna Beach, Florida where he worked the family clam farm, raised brahman cattle and was active in the FFA. This foundation in Florida agriculture led him to earn both his degrees, undergraduate in Natural Resource Conservation and master’s in Soil and Water Science, from the University of Florida. After many odd jobs he landed in Southwest Florida with the Natural Resource Conservation Service (NRCS) and later in American Samoa assisting farmers and ranchers with water quantity and quality issues. He now works with the US Forest Service managing the watershed program as the Forest Hydrologist for the National Forests in Florida.
Jorge spends his time off with his wife of 12 years (Amy) and their two boys, Hobie (10) and Rex (5). In general, you can find them tramping around Florida and the rest of the United States surfing, running, fishing, hunting, camping, and exploring the out of doors.
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Madeline Hart
Environmental Consultant, Florida Department of Agriculture and Consumer Services
Maddy Hart is an Environmental Consultant with the Florida Department of Agriculture and Consumer Services in the Office of Agricultural Water Policy (OAWP), covering water policy and water supply planning issues related to agriculture in the Suwannee River and Northwest Florida Water Management District areas. Maddy has worked on multiple water quality plans for springs and surface water bodies around the State: reviewing water quality models, land use data, performing nutrient load reduction calculations, and geospatial analyses. Maddy also serves as a representative of OAWP at various meetings and gives presentations to stakeholders. After working for a Water Management District, in the private sector, and in the petroleum cleanup field, Maddy came to FDACS to fulfill her passion for public service and the environment.
Maddy is a Florida native who grew up in Plantation, Florida, moved to Tallahassee for college and never left (Go Noles!). She holds a BA in Political Science and International Affairs and an MS in Geography, both from Florida State University. Outside of work she enjoys visiting Florida’s springs, beaches, trails, and local breweries with her husband Jeremy and two dogs, Truvy and Wewa.
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Darlene Velez
Water Resources Chief, Suwannee River Water Management District
Darlene Velez earned her B.S. in Marine Science from Eckerd College and her M.S. in Fisheries and Aquatic Sciences from the University of Florida. Darlene worked as a biological scientist at the University of Florida for more than seven years and served as a lab manager and field coordinator for several contracted research projects on water quality and submerged aquatic vegetation along the Gulf Coast of Florida as well as coral reef research in southeast Florida. She also worked at Florida Fish and Wildlife Conservation Commission Florida Marine Research Institute where she collected and processed water chemistry samples and worked on seagrass monitoring projects in the Tampa Bay and Big Bend area.
Darlene joined the District in 2013 as an environmental scientist in the Water Resources Division and now serves as Water Resources Chief leading a diverse team collecting, analyzing, and reporting water quality, biology, hydrology, and water use data for the District. She is involved in numerous interagency coordination and strategic planning efforts and promotes the importance of data-driven management decisions. She enjoys the challenge of making science accessible to all through education, outreach, and mentoring the next generation of Water Resource scientists and managers.
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Class XX Fellows & Schedule |
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Alicia Betancourt Monroe County Extension Director, UF/IFAS Extension
Buck Carpenter Owner/Operator, Southern Pioneer Farms, LLC
Nicole Casuso Biological Scientist IV, Division of Plant Industry, FDACS
Mysha Clarke Assistant Professor of Human Dimensions of Natural Resources, UF
Jason Davison Director of Field Services, Florida Farm Bureau Federation
Jorge Guevara Forest Hydrologist, U.S. Forest Service
Madeline Hart Environmental Consultant, FDACS
Susana Hervas Postdoctoral Research Associate, UF
Sandra Oxenrider Land Resource Specialist, St Johns River Water Management District
Dawn Ritter Natural Resource Manager, Highlands County Board of County Commissioners
Michael Simmons Natural Resource Specialist, U.S. Army Corps of Engineers
Brandon Smith Environmental Specialist, Brevard County Natural Resources Mgmt Dept
Darlene Velez Water Resources Chief, Suwannee River Water Management District
Vincent Vitale Conservation Education Specialist, White Oak Conservation Foundation
Allyson Webb Senior Resource Manager, Corkscrew Swamp Sanctuary, Florida Audubon
Yilin Zhuang Regional Specialized Agent, Water Resources, UF/IFAS Extension
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