Conservation Education Task Force
Report and Recommendations

"Vision-to-Action Strategy"

November 1997

CHARTER
OBJECTIVES
HISTORICAL PERSPECTIVE
CURRENT REALITIES
SIGNALS IN OUR OPERATING ENVIRONMENT
REASON FOR EXISTENCE
FROM VISION TO ACTION

APPENDIXES
APPENDIX I. Conservation Education Task Force Team Members
APPENDIX II. Forest Service Programs Providing Conservation Education
APPENDIX III. Forest Service Townhall Meeting Capsules Summaries

EXECUTIVE SUMMARY
ISSUE
SUMMARY
I. VISION & MISSION
II. VITAL PRIORITIES
III. FROM VISION TO ACTION

TASK FORCE CHARTER

The Directors of the Cooperative Forestry, Recreation, Heritage & Wilderness Resources and Wildlife, Fish & Rare Plants staffs and the Office of Communications realized both the opportunity conservation education offers the Agency and how current efforts have not reached the potential success across the board. The USDA Forest Service has a myriad of public education and outreach programs. Current endeavors are substantial with a significant cost in terms of both dollars and personnel. However, these efforts are also fragmented and uncoordinated, with no clear strategy or priorities.

In response to this situation, under Chief and Staff direction, the Directors commissioned a task force in September 1996, to develop a national corporate vision for all educational programs of the Forest Service under the oversight of the affected staff directors. They also directed the task force to develop a clear, forceful strategy to accomplish Forest Service education and outreach goals in a prioritized fashion.

To develop a vision and a strategy for Forest Service conservation education efforts, the task force was to address the following questions: Should "educating the public about natural and cultural resources" be a Forest Service priority? What should the main themes be in educating the public? Who should our target audiences be?

OBJECTIVES

1. Establish a corporate vision and objectives for conservation education that will guide Agency efforts through 2002.

2. Develop a dynamic strategy with specific, prioritized actions and responsibilities to achieve the vision and objectives.

HISTORICAL PERSPECTIVE

1. Development of Conservation Education: milestones that have defined it in the Forest Service

* Conservation education was considered as a "nice thing to do" and was deemed to be a role for women.

Conservation education in the Forest Service goes back to the early 1900's. Fed at first only by catastrophic events such as wild fires, conservation education was nurtured by women like Mrs. Priscilla Edgerton, who authored The Forest, A Handbook for Teachers in 1927 and Ms. Margaret Mount-March who promoted the idea of conservation through talks to various civic and school groups in the 1920's and 1930's. Conservation crusades such as Ms. Mount-March's "Penny Pines" raised student awareness and donations to fund planting pines on National Forests.

* Following its first timid steps in trying to limit the abuse of forest resources, the Forest Service institutionalized its role in conservation education.

Conservation education formally entered the Forest Service's agenda with the 1928 Forest Service Manual which noted the importance of education to "promote the best use of all forest resources in the country, public and private." This early Manual promoted cooperation with schools and publications for children.

* Interest of American people followed the need to protect their natural resources. Appeal to the hearts of people with Smokey as a symbol.

In World War II, Americans feared an enemy attack or sabotage could destroy our forest resources. As a result, the Cooperative Forest Fire Prevention Program (CFFP) was organized to encourage citizens to make a personal effort to prevent forest fires. On August 9, 1944, the Forest Service and the War Advertising Council introduced a campaign symbol named Smokey Bear. The result was a great success in decreasing accidental, human-caused forest fires. In the years that followed, the focus of Smokey's campaign broadened to appeal to children as well as adults. To complement the Fire Prevention Classroom Program, the Forest Service launched in 1953 a fulfillment program called the Junior Forest Ranger program.

* Efforts are geared toward helping people understand nature.

Forest Service efforts to provide forest visitors with information and interpretive services began in the 1950's. These efforts were formalized in 1962 with the creation of the Visitor Information Service (VIS) program. Over the next two decades, 25 major visitor centers and hundreds of interpretive sites and information centers were built and staffed. In 1980, the name of the VIS program was changed to "Interpretive Service," (IS). Annual visitation to visitor centers and IS sites now is about 12 million. Heritage interpretive programs, like Passport in Time, are growing in popularity.

* Official backing and support is provided. Woodsy Owl is created to focus message and attention on issues of environmental conservation.

In a formal way, the Forest Service's "Environmental Education," as it was known by then, came into being in 1968 under Chief Edward F. Cliff. Cliff was convinced that protection and wise use of the Nation's natural resources would only be possible if the Forest Service had the understanding and support of the public. Cliff sent an environmental education training team all over the United States to teach thousands of Garden Club members, educators and personnel of the Forest Service and other State and Federal agencies about the principles of environmental education and how to teach them.

Nationally, legislative support and funding, came through to address public concerns at the Federal and State levels. Prominent among them were the National Environmental Policy Act of 1969 (P.L. 91-190) and the National Environmental Education Act of 1970 (P.L. 91-516), both of which identified education as a mechanism for improving the quality of the human environment. The National Environmental Education Act of 1990 (P.L. 101-619) is a restatement of that goal.

In June 1974, Congress enacted Public Law 93-318 which established Woodsy Owl as a "symbol for a public service campaign to promote wise use of the environment and programs which foster maintenance and improvement of environmental quality." In 1996, the viability and desire to continue Smokey, Woodsy, and the Junior Forest Ranger programs were reaffirmed by Chief and Staff.

* Formal curricula are developed.

The 1970's were a heyday for environmental education in the Forest Service. The Forest Service began its support of "Project Learning Tree" curriculum material developed for grades K through 12. In 1971, the Forest Service published its own set of lesson plans called "Investigating Your Environment," using science based activities which develop skills for collecting, recording, and interpreting information about different parts of the environment. These materials have stood the test of time and are still regarded by some educators as examples of the best materials produced. These materials were updated in the early 1990's.

* Conservation education expands through wildlife viewing and other outdoor recreation interests. Collaboration between public and private partners opens new opportunities for conservation education programs.

In the mid 1980's, as wildlife associated recreation interest increased with the American public, the Forest Service developed a watchable wildlife program called Eyes on Wildlife. In 1994, this was expanded into the current program known as NatureWatch - highlighting three focus areas: Eyes On Wildlife, FishWatch, and Celebrating Wildflowers. These programs are a collaboration of public and private partners uniting a wide variety of perspectives to the rich diversity of ways to learn about natural resources through educational activities, festivals, nature trails, interactive displays, educational computer programs, brochures, classes, and so forth. Other examples of cooperative efforts include 31 State viewing guides, National Fishing Week, International Migratory Bird Day and other education events. Wildlife, fish, and wild flower viewing opportunities are found on every National Forest and Grassland and on most ranger districts across the country.

*Service-wide, focused conservation education effort with local implementation is instituted.

The Natural Resource Conservation Education program (NRCE) was created as "a service-wide focused program jointly sponsored by the USDA Forest Service and the National Association of State Foresters." Chief and Staff established the program in February 1991 to move the public from awareness to informed actions concerning all natural resources, particularly conservation. Designed as a lifelong learning program, the NRCE program has helped National Forests, State forestry agencies, and research units carry out 200 projects each year since 1992.

* Conservation Education expands into urban communities.

The increasing urbanization of the American people created the need for the Forest Service to reach a different kind of audience and expand its education programs to help the urban population connect with their natural environment.

Following the 1990 Farm Bill, the Forest Service Urban and Community Forestry Program was expanded and education became one of its integral components. State Forestry agencies and other partners have promoted classroom lessons aimed at inspiring students of urban communities to appreciate their natural environment through discussions and interactive teaching materials as well as experiential activities. At the higher education level, the Forest Service has funded the development of a baccalaureate degree program in Urban and Community Forestry.

In 1991, Forest Service Research established the Urban Tree House. This program was established as a community-based, cooperative education and outreach effort. Three Urban Tree Houses exist today around the country.

2. Lessons Learned from History

Despite the early recognition in the Forest Service Manual of the importance of conservation education to carry out the mission of the Forest Service, in reality this task has largely been considered as "a nice thing to do." It has often been viewed as an extracurricular duty of Forest Service employees and appropriate for Forest Service volunteers.

Changing values in America have resulted in many Forest Service programs including the introduction of many conservation education programs. The growth of so many education programs reflects the Agency's attempt to respond to what the public expects. The public told our leaders at town hall meetings around the country, held in 1994, that the Forest Service has the responsibility to educate the public on natural resource issues (see Appendix III & IV).

Smokey has been extremely successful and his fame is carried on by people who believe in his mission. Adults who have grown up with Smokey have passed his message on to a younger generation that realizes the importance of saving our forests and wild lands from careless fire. Other programs such as NatureWatch have also been very successful at niche marketing. The Forest Service now needs to identify other niches and create a national approach that balances niches to achieve its vision for conservation education.

Conservation education programs have been launched from many different directions and at many different audiences. Across the board, extreme enthusiasm and dedication at delivering these services has been demonstrated. However, without an overall structure to guide conservation education and to integrate the multiple pieces, programs across the board have been as successful as they could have been, and the return for the investment has not been maximized.

CURRENT REALITIES

1. Current Assets of Existing Conservation Efforts

Programs
The existence of nearly 40 programs (see Appendix II) speaks volumes about the Forest Service's desire to provide education.

Facilities and Research
Our visitor centers and campgrounds are spots where people who are anxious to learn congregate. Research facilities are also places where the knowledge and expertise of our scientists can be shared. Forest Service research is the largest natural resource science organization in the world, having the breadth, depth, and credibility to provide factual information on a wide range of natural resource topics and issues.

Partners
This is an area of strength at the national, state, and local levels. National partnerships are in place (or the groundwork has been laid) with the major providers of environmental education in this country. Local units have also established partnerships with hundreds of local entities. The partner listening sessions indicated strong desire for more future partnerships involving more than just money. Conservation groups are anxious for joint delivery of programs developed in concert. The Forest Service relies on the support of :

National Studies
Numerous national studies, including the President's Commission on America's Outdoors (PCAO), identifying wildlife-associated recreation as extremely popular for millions of Americans, encouraged educators to integrate environmental education into basic school curricula.

Federal resource agencies are called to play a greater role in providing viewing opportunities for people to experience the Nation's wildlife resources. In response to the PCAO, a report entitled, "Watchable Wildlife: A New Initiative," was published by Defenders of Wildlife in cooperation with federal land management agencies. This launched the national Watchable Wildlife effort. This also provided a framework for federal and state agencies and private conservation groups to unite a number of scattered efforts to provide new recreation, conservation, and educational opportunities.

National Networks
Conservation education networks are in place in every region, area, and station as well as in virtually every State forestry agency. Every region has interpretive specialists, biologists and botanists focusing on education. Many National Forests have full-time or part-time educators, interpreters, and biologists providing education programs.

Funding
The Forest Service has mixed apples and oranges in the way it funds conservation education. NRCE has been funded off-the-top as a consolidated program while at the same time various program areas, such as wildlife and fire prevention, have supported their own education programs. Consolidated funding has been an area of controversy for two reasons: individual programs have been developed by dedicated individuals to accomplish program objectives (therefore the programs are responsive to their needs), and program leaders do not want someone else to tell them what to do with their resources.

Nevertheless, the NRCE earmark provides funds, albeit limited, to be spent by National Forests, State forestry agencies and research units specifically for education purposes. Some units have told us that without this designated money, they would have none for education.

The Interpretive Services (IS) Program benefits most resource areas, and IS programs exist for almost every natural and cultural resource the Forest Service manages. Despite these wide ranging benefits, most IS programs are funded entirely from a declining Recreation (NFRM) budget line-item. The Congressional earmarks to build new, multi-million dollar visitor centers continue. Our inability to adequately staff and maintain existing centers and programs has resulted in a self-imposed moratorium on all new major visitor facilities. A few regions have begun to multi-finance IS programs at major visitor centers, but such efforts are inconsistent, sporadic, and time consuming.

    External Funds - Challenge Cost-Share
    Leveraging resources for conservation education from public-private partnerships has been quite successful. Among others, the National Forest Foundation has started to provide opportunities for private investors, individuals and corporations to support the Forest Service in its funding of conservation education programs.

    NRCE and other programs, such as Urban Tree House and NatureWatch, have matched every appropriated dollar with between $1-$2 each year.

2. Core Assumptions of Operations until Today

Some of the Forest Service core assumptions about conservation education are apparent by what the Agency has been doing in education and outreach and the way it has been done.

There seems to be a dichotomy in the philosophical approach and the degree of local autonomy versus national direction among Forest Service programs. NRCE programs have largely functioned autonomously with the belief that programs should be locally initiated, developed and delivered.

All of the programs have sought and benefited from materials, tools, and direction through the creation of national partnerships, networks, and coordination.

3. Strengths and Weaknesses

Today, operations benefit from intricate networks of partners, educators and committed individuals providing access to a wealth of resources. The Chief 's and key staff directors' interest in conservation education is an essential support and driving force behind current efforts to reorganize the vision of the Forest Service for conservation education. The current Administration's focus on education, children and the environment provide a favorable political context in which to improve our programs.

The main areas that have impeded the performance of conservation education efforts and that need to be improved are: internal coordination, communication and sharing of materials, funding, understanding of NRCE, and targeting of audiences.

SIGNALS IN OUR OPERATING ENVIRONMENT

Often the ability to affect change is determined by the ability to listen and to understand the signals emitted in our operating environment. The signals in today's environment tell us it is the appropriate time and context to give greater emphasis to conservation education as a Forest Service priority.

1. Signals for Interpretation in the Forest Service

The Chief has indicated a strong interest through speeches and other communications in making conservation education more effective.

The Agency focus on customer service, especially for visitors to National Forests is greater than ever.

There is a growing willingness to take an entrepreneurial approach in carrying out the Forest Service mission through collaboration, partnerships and enterprise teams.

Appropriated funds are down, triggering the need to explore non traditional funding sources and the need for programs that are focused and supported.

Forest Service employees are overworked and have less time to devote to programs not seen as a measurable target. The incredible volunteer work force that has emerged consequently shows the undeniably strong public support and interest in this matter.

Emphasis across government on collaboration and coordination is increasing.

The public demand for visitor facilities and need for them is growing at a time when budget constraints may cause us to cut back on hours of operation.

2. Signals in the External Operating Environment

The number of people living in urban areas continues to grow (presently 80% of the American population). At the same time, their knowledge and awareness of the importance of natural resources and functioning of natural environments declines.

Critics of environmental education are questioning its impartiality and threatening the future of the National Environmental Education Act.

The world of environmental education and edu-tainment has expanded to include many non-scientific sources. Television is the most important source of knowledge about the environment for most Americans, followed by newspapers and magazines.

Many partners and other organizations are providing significant conservation education around the country. They have demonstrated interest in working with the Forest Service because of our land base resources and scientific management and expertise.

The academic environmental education community is putting into place national guidelines for excellence for environmental education materials and learner outcomes for students and educators. It is also analyzing existing environmental education materials with those new standards.

REASON FOR EXISTENCE

1. Mission of Conservation Education

By the year 2002, Forest Service conservation education will be an effective, dynamic means for the Forest Service to connect the American people with their environment. The Forest Service will provide the tools they need to participate effectively in the critical task of sustaining our Nation's natural and cultural resources. This undertaking shall be a coordinated, Forest Service-wide effort that will affect all aspects of the Agency's operations.

2. Reason for Existence

A. Sustaining America's natural and cultural resources requires the participation of an informed public.

Conservation education builds an understanding of the connection of people and their environment so they can effectively participate with the Forest Service in attaining the Forest Service mission. The Agency needs people to understand the problems and potential solutions to allow the Agency to take necessary steps on behalf of the public but for that, people need to understand the effects of their actions.

B. As a conservation leader, the Forest Service is expected to provide information and education to the public.

C. The Forest Service has the organization, knowledge, people, partnerships, and experience to deliver a balanced conservation message.

3. Our Destination

We are now at a critical juncture where the various educational strands can be woven together to create a synergistic program that supports the Forest Service mission and transforms the role of education in the Forest Service.

4. What Value do we Deliver and to Whom?

The program at the national level will focus on:

A. Youth: Provide educational experiences in variety of environments.

B. Urban Communities: Provide a connection to the land to those who are becoming increasingly disconnected from it.

C. Visitors: Enhance recreational experience of forest visitors; influence and inform visitor behavior to protect the resource.

5. Core Assumptions of New Strategy

Long-term conservation education is critical for the Forest Service to be allowed to carry out its mission in the future. The public must understand the need for, and feel connected to, natural resources. Future legislators, members of the executive, legislative, and judicial branches, need to understand the environmental/natural resource implications of their decisions.

Conservation education is critical to accomplishing both immediate and long-term goals and benefits.

Conservation education should be integral to program delivery.

Conservation education programs should support development of land management plans with input from diverse, informed members of the public.

Coordination between Deputy areas can eliminate duplication and competition among programs and increase cost effectiveness.

Coordination and sharing of information among all Forest Service units can improve quality of service and reduce costs by not reinventing the wheel each time.

FROM VISION TO ACTION

1. VITAL PRIORITIES Necessary to Give Conservation Education Preeminence in the Forest Service

A. INTER-DEPUTY LEADERSHIP AND COORDINATION
Inter-deputy leadership and coordination at the national level will ensure all education efforts are integrated across Forest Service program areas.

B. CORE THEMES
Forest Service core conservation education programs will support two key themes:

C. TARGET AUDIENCES
Forest Service education efforts will focus on three primary audiences--our visitors, youth, and urban communities.

D. PARTNER INVOLVEMENT AND COORDINATION
Partners will continue to be involved both strategically and tactically in all our education efforts. Emphasis will be given to increasing partner involvement at all levels and in all phases of financing/fund-raising, development and implementation.

E. PROGRAM COLLABORATION WITH LOCAL FLEXIBILITY
Share successes and failures, information and materials among the different local and national programs.

Increase efficiency in utilization and distribution of conservation education tools and in training staff.

Complement Forest Service Priorities under the Government Performance and Result Act (GPRA).

2. CONCRETE ACTION

To accomplish these vital priorities, the following actions will be taken. Implementation plans will be developed in the near future.

A. INTER-DEPUTY BOARD OF DIRECTORS AND TEAM
An inter-deputy board of directors will be responsible for carrying out the recommendations of the Conservation Education Task Force. An inter-deputy team, under the direction of the board of directors, will coordinate implementation.

B. NATIONAL MESSAGES, AUDIENCES AND MATERIALS

Guidelines
Review guidelines and standards for excellence in education developed by the North American Association for Environmental Education. Modify these guidelines to encompass education and interpretative activities in all deputy areas. Officially adopt guidelines and standards for Forest Service conservation education excellence.

Focus messages based on defined themes and target audiences.

Evaluation
Inventory and evaluate existing programs to ensure they target the three identified audiences effectively, support the conservation education themes and meet the guidelines for Forest Service conservation education excellence.

Revise and Develop Programs
Modify existing programs and materials and develop a body of basic conservation education materials as needed.

Develop annual emphasis areas for conservation education programs which complement Forest Service priorities under the Government Performance and Result Act (GPRA) (e.g., riparian initiatives). Implement emphasis areas nationally for a full year.

C. FUNDING
Develop sustainable and adequate funding sources for education programs through leveraging partnerships, appropriated funds, and self-sustaining program opportunities.

D. LAND MANAGEMENT PLANNING/COLLABORATIVE STEWARDSHIP Incorporate educational principles and techniques into the land management planning process (e.g., Leave No Trace for Wilderness planning, Ske-cology for winter sports planning).

Make direct connection between conservation education and collaborative stewardship (e.g., Children's Forest, Natural Resources Youth Camps, National Envirothon).

E. SUPPORT FIELD EFFORTS
Assist the field in committing time and financial resources to targeted education efforts.

Establish and publicize a national clearinghouse for education materials both in hard copy and Internet formats.

Train line officers on the value of education in meeting Forest Service mission, goals and objectives.

Train all Forest Service employees on the value of conservation education as a tool for customer service.

Facilitate training of Forest Service employees and partners across the country on the basics of conservation education and delivery of effective education programs.

F. PARTNERS
Operate with partners to such an extent that a Forest Service conservation education effort not including partners is a rare exception.

Develop mechanisms with partners to leverage resources, build networks, develop materials and implement delivery systems.

Use partnerships to reach as great an audience as possible beyond the targeted audiences recommended by this task force. Seek out national level partners such as PBS, National Geographic and Smithsonian. Continue to nurture partnerships with states, local communities and school systems.

Utilize television, newspapers and magazines as effective ways to reach audiences.

G. MULTI MEDIA TECHNOLOGY
Enhance Internet and World Wide Web access for Forest Service conservation education.

Maximize use of multi-media technology for delivering educational messages.

H. ACCOUNTABILITY

Develop desired outcomes and measure their accomplishments. Tie accountability to the adopted standards and guidelines for Forest Service conservation education excellence.

Accomplish accountability through: employee performance standards, systematic evaluation of outcomes, and recognition and awards for employees and partners.

To emphasize the Agency focus on conservation of natural and cultural resources, the Forest Service returned to the term "conservation education" rather than "environmental education."

Appendixes | Executive Summary | Conservation Education Homepage