Why Remediation Progress Differs Among Great Lakes Areas of Concern: Factors that Enable and Constrain Michigan Public Advisory Councils

Abstract

There are 14 designated “toxic hotspots,” or “Areas of Concern” (AOCs), around Michigan’s coasts where legacy contamination impairs water quality. The State’s Office of the Great Lakes manages the Remedial Action Planning (RAP) process and engages stakeholders through local Public Advisory Councils (PACs). Michigan began Remedial Action Planning in 1985, but to date, only two AOCs have completed cleanup. The overarching objective of this study is to determine: why does RAP implementation progress differ among AOCs? This study asks the research question: what factors enable and constrain a PAC’s ability to influence RAP implementation progress? The existing literature solicits responses from state and federal agency participants, and the dominant explanatory narrative is that maximum public representation on PACs facilitates RAP implementation progress. Semi-structured interviews were conducted with 29 past and current PAC participants in a representative set of five Michigan AOCs (Kalamazoo River, Lower Menominee River, Saginaw River and Bay, St. Clair River, and White Lake). Among the factors that enable progress, PACs benefit from: motivated, engaged individuals from the community; consistent and flexible funding; strong leadership; and perceptions of independence and influence. Constraints to a PAC’s influence on RAP implementation progress include: poorly managed meetings; inconsistent commitment from community members and organizations; and inconsistent state and federal commitment and engagement. Factors that help explain why AOCs differ in their progress include: clearly delineated state agency roles; a balanced membership with network connections to resources and support; state and federal agency commitment and engagement; and effective PAC leadership. Recommendations for agencies to cultivate the process of community-based collaborative ecosystem management include collaborating with PACs on agendas, criteria, and roles, and supporting the PAC’s membership transitions and strategic outreach.