The Journal of Extension

Volume 59 Number 4 Article 6

10-28-2021

A Five-Step Stakeholder Communication Plan for More Effective

Natural Resource Management
Hannah O. Brown
University of Florida, [email protected]

Susan K. Jacobson
University of Florida, [email protected]

Marcy Cockrell
Florida Department of Agriculture and Consumer Services, [email protected]

Jessica Sutt
U.S. Fish and Wildlife Service, [email protected]

Katherine Allen
UF/IFAS Extension in Suwannee County, [email protected]

See next page for additional authors

This work is licensed under a Creative Commons Attribution-Noncommercial-Share Alike 4.0 License.

Recommended Citation
Brown, H. O., Jacobson, S. K., Cockrell, M., Sutt, J., Allen, K., & Copeland, A. (2021). A Five-Step
Stakeholder Communication Plan for More Effective Natural Resource Management. The Journal of
Extension, 59(4), Article 6. https://doi.org/10.34068/joe.59.04.06

This Research in Brief is brought to you for free and open access by the Conferences at TigerPrints. It has been
accepted for inclusion in The Journal of Extension by an authorized editor of TigerPrints. For more information,
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A Five-Step Stakeholder Communication Plan for More Effective Natural
Resource Management

Cover Page Footnote

We thank the Guana Tolomato Matanzas National Estuarine Reserve, the UF/IFAS Natural Resource
Leadership Institute, the UF/IFAS Nature Coast Biological Station, Florida Sea Grant, and the UF School of
Natural Resources and Environment for supporting this project. Thank you to Becca Burton with the UF
Thompson Earth Systems Institute for helpful review of this manuscript. We would like to dedicate this
work to Dr. Lisa Conti, the long-time Chief Science Officer to the Florida Department of Agriculture and
Consumer Services. Dr. Conti was a friend, mentor, and inspiration to everyone she met.

Authors
Hannah O. Brown, Susan K. Jacobson, Marcy Cockrell, Jessica Sutt, Katherine Allen, and Amy Copeland

This research in brief is available in The Journal of Extension: https://tigerprints.clemson.edu/joe/vol59/iss4/6

 Research in Brief Volume 59, Issue 4, 2021

A Five-Step Stakeholder Communication Plan for

More Effective Natural Resource Management

Hannah O. Brown1, Susan K. Jacobson¹, Marcy Cockrell²,

Jessica Sutt³, Katherine Allen4, and Amy Copeland5

AUTHORS: 1University of Florida. ²Florida Department of Agriculture and Consumer Services. ³U.S. Fish and Wildlife Service. 4UF/IFAS
Extension in Suwannee County. 5St. Johns River Water Management District.

Abstract. Effectively communicating with diverse groups involved in environmental management is critical to
facilitating successful projects. This five-step communication plan is designed to enable resource managers and
extension professionals to successfully engage their stakeholders. This plan, which uses oyster reef management
as an example, was informed by two primary sources: an expert meeting with stakeholder leaders and coastal res-
idents and a review of relevant literature. By incorporating stakeholder input throughout the planning and imple-
mentation of natural resource management projects, new and innovative ideas emerge, and relationships between
stakeholders, managers, and extension agents are strengthened.

INTRODUCTION An effective stakeholder communication plan is needed

for all types of resource management. This is particularly evi-
The interactions, synergy, and feedback among biological and dent in the case of oyster reef management. Oyster reefs are
social factors make environmental management an inher- declining globally and are one the of most at-risk ecosystems
ently complex endeavor. Effectively communicating with in the world (Beck et al., 2011). However, in the Gulf of Mex-
diverse groups involved in natural resource management ico there is potential for oyster reef recovery through resto-
reflects this complexity (Lauber et al., 2012). The presence ration, conservation, and management (Beck et al., 2011).
of inclusive and consistent communication is a major pre- Management of oyster reefs relies on not only devising a plan
dictor of program success (Jacobson, 2009). Although exten- for the reefs themselves but also working with the communi-
sion professionals and managers are tasked with organizing ties that rely on wild reefs for their livelihood, cultural iden-
and educating people about important public issues (Peters, tity, and recreation.
2002), it is only through engaging all relevant stakehold- Many people have a stake in the future of this important
ers—people that impact or will be impacted by a manage- natural resource, including oyster harvesters, seafood dis-
ment decision—that they can impact the ways communities tributors, consumers, and coastal residents. While manage-
interact with natural resources long-term (Stern & Coleman, ment projects in the Gulf of Mexico have begun to involve
2015; Leong et al., 2009). stakeholders, a range of barriers still hinder these manage-
Conventional management efforts sometimes exclude ment activities. For example, differing communication styles
stakeholders who are not considered “experts” (Bown et al., and preferences can keep messages from reaching import-
2013), which limit opportunities for trust-building (Daven- ant stakeholder groups (La Peyre et al., 2012; Jacobson,
port et al., 2007) and coordination (Berkes, 2009). The ben- 2009). Perhaps more critically, the goals, interests, and val-
efits of effective communication with diverse stakeholder ues of stakeholder groups may differ (Scyphers et al., 2014;
groups include building relationships, increasing stakeholder Acheson, 2006). To address these barriers, which are charac-
participation, and facilitating ownership of project outcomes teristic of many challenges tackled by extension profession-
(Lauber et al., 2012; Jacobson, 2009). Consistent commu- als, we present a five-step plan to guide communication with
nication with diverse stakeholder groups can also reveal diverse stakeholder groups.
unknown environmental trends and innovative approaches
(Krasny & Tidball, 2010).

Journal of Extension
 Brown, Jacobson, Cockrell, Sutt, Allen, and Copeland

METHODS ers or local resource users to make key decisions is a great

start, but it is also important to consider who is not included
Data for this plan came from two main sources. The first was in management discussions. Stop and think: Who is repre-
an expert meeting held in April 2019 with stakeholder leaders sented in discussions? Who is missing? Who could be more
and coastal residents from a Northeast Florida coastal com- represented? Understanding that you have a role in deciding
munity facilitated by the University of Florida Institute for whose voices are represented is an important step toward
Food and Agricultural Sciences (UF/IFAS) Natural Resource building a more complete stakeholder network.
Leadership Institute. Thirty stakeholders—including scien-
tists, managers, and oyster harvesters—participated in the Understanding Positions and Interests
meeting, providing recommendations on how to best engage Once you have identified your stakeholder groups, it is
coastal residents in oyster management projects. Experts important to understand their specific positions and interests.
were organized into small groups and presented a series of Recognizing the differences in the positions and interests
questions, including “How have you participated in oyster across stakeholder groups is crucial to developing a commu-
management?” and “How can oyster management projects nication plan that works toward engaging as many people as
better engage local residents?” Questions and prompts were possible. Stakeholder positions represent what stakeholders
determined through a review of relevant literature. An open want to happen, such as strengthening regulations on oyster
discussion was held within each group, and then a ranking harvesting or closing an area to wild harvest. Interests are the
activity was used to prioritize points discussed. Data was reasons why stakeholders have decided to take their respec-
analyzed via Dedoose, a mixed-methods analysis software. tive positions, such as to ensure economic stability, maintain
Second, we reviewed literature from communications, psy- cultural identity, or to keep their families safe (Fisher et al.,
chology, and sociology, as well as research on oyster manage- 2011).
ment, such as a survey of stakeholders by Brown (2019). This
was synthesized with the expert group results to develop the Valuing Local Knowledge
stakeholder communication plan. Engaging stakeholders in management can help encourage
support from local communities, but it can also serve to
RESULTS AND DISCUSSION: THE FIVE- inform management by offering new and creative solutions.
STEP COMMUNICATION PLAN The knowledge and experiences of resource users in your
region—many of whom are part of families who have been
Effective communication with diverse stakeholder groups present for generations—can prove to be extremely valu-
results in myriad benefits (Gray et al., 2012; Leong et al., able. Generational and anecdotal information, called tradi-
2009; Klein et al., 2008; Lauber et al., 2012). The five-step tional or local ecological knowledge (Huntington, 2000), has
plan in Figure 1 outlines the key communication elements to informed some of the most significant and effective actions
consider while planning management projects. in natural resource management. For example, prescribed
fire was originally used by Native American communi-
STEP 1: GETTING TO KNOW YOUR AUDIENCE
ties to manage forests while colonizing Europeans saw the
Identifying and involving the correct stakeholders—anyone practice as destructive. Over time, controlled burns became
that can impact or will be impacted by a management deci- an accepted ecosystem management tool used to maintain
sion—is crucial for project success. Working with research- diverse forests, stimulate new growth, and improve habitat
for wildlife (Rinkevich et al., 2011).

STEP 2: ENGAGING AND EDUCATING

Oyster stakeholders demonstrate varying communication
patterns, including preferences for sharing information
mainly within their own stakeholder groups (Brown, 2019).
Understanding such differences across groups of stakehold-
ers for any natural resource management project can make
outreach activities more effective and help reach groups that
have not been included in the past.

Educating through Social Interaction

Previous research has found that engaging in active behav-
Figure 1. A five-step communication plan to guide participatory iors alongside others promotes a communication exchange
and inclusive management. and, potentially, the emergence of innovative ideas (Krasny &

Journal of Extension Volume 59, Issue 4 (2021)

 A Five-Step Stakeholder Communication Plan
Tidball, 2010; Muro & Jeffrey, 2008). Through activities such • Phone or web-based participation platform for
as field trips, hands-on experiences, and data parties (Franz, those who can’t attend in person.
2013), participants are more likely to learn key information • Food and drinks.
while forging new relationships. To increase the likelihood
of long-term stakeholder investment, it is important to meet • Time in the agenda for breaks.
stakeholders where they are most comfortable. A weekday • Time in the agenda for public comments.
meeting may not lead to much participation from individu-
als who work during business hours. If your goal is to engage • Name tags and a place at the table for everyone.
fishers, for example, hold a meeting at a local marina to make
Managing Conflict
the event more accessible and familiar (see Appendix for
Conflict happens, especially when diverse groups of people
engagement ideas).
come together to talk about controversial issues. When you
are dealing with difficult discussions, it’s helpful to try to
Getting Creative
manage conflict instead of trying to resolve it. Understand-
When we spoke to oyster stakeholders about the best ways
ing that conflict is a productive part of collaboration can help
to engage residents, they offered a range of creative ideas. By
you feel more confident when situations feel tense. To bet-
organizing events that prioritize relationships and celebrate
ter manage conflict in your management activities, first ask
local oyster traditions, the typical stakeholder meeting can
why the conflict exists. Thinking through the reasons why
transform into a much-anticipated social happening. For
a conflict has emerged can help you understand a person’s
example, managers could invite residents to participate in a
interests—the reasons behind their decisions and opinions.
storytelling event and oyster roast. Emphasizing local stories,
Facing conflict can be exhausting, and even scary, but in
celebrating local traditions, and relying on residents to pass
many cases the process of working through conflict can lead
on their experiences and knowledge to tourists and other res-
to stronger relationships and innovative solutions to complex
idents were all described during the expert meeting as exam-
issues (Monaghan et al., 2006).
ples of creative stakeholder outreach.

STEP 4: REQUESTING FEEDBACK

STEP 3: BUILDING AND MAINTAINING TRUST
Stakeholders often have different ideas of what makes a
As uncertainty increases in natural resource management,
management project successful, which are influenced by
trust often decreases (Molm et al., 2009). An oyster stake-
the way stakeholders understand the issues related to natu-
holder survey revealed that mistrust between groups is
ral resources (Robinson, 2013). Participants from the expert
common in the Gulf of Mexico (Brown, 2019). Commercial
meeting suggested a range of goals for oyster management
harvesters and seafood distributors reported a high level of
projects, including increasing communication with har-
trust in one another. Scientists and natural resource man-
vesters, influencing local politics, establishing community
agers also trusted information from one another. But trust
ambassadors, and securing stable funding sources.
between other groups was low. By providing clear mes-
One way to ensure that you are aware of the goals and
sages and regularly including stakeholders in discussions of
management projects, a more trusting relationship can be opinions of different groups is to request feedback. Consider
these tips, based on previous research (Israel et al., 2009), for
cultivated between resource users and resource managers.
evaluating your collaborative management activities:
Building and maintaining trust is important throughout the
entire communication process. • Plan for evaluation from the beginning, reserving
10-15% of a program’s budget for evaluation activ-
Anticipating the Logistical Needs of Participants ities.
Heavy workloads and time limitations are common barriers • Use pre- and post-process evaluations (tests, assess-
that make continued participation difficult for some stake- ments, or surveys) to measure how participant
holders (Diaz et al., 2014). In order to make participating in behavior, attitudes, and goals have changed over
management achievable and desirable for a variety of indi- time.
viduals from diverse backgrounds, it is important to consider
• Develop evaluation instruments with reliable and
what logistical needs stakeholders may have and address
valid measures.
them. Consider the following:
• Collaborate with diverse partners to create better
• Accessible location. measurement instruments for your evaluation.
• Convenient time of the event. • Don’t fear the negative response. Though it may be
• Childcare for working parents. hard to swallow, criticism can often provide more
insight into how to best update your program.

Journal of Extension Volume 59, Issue 4 (2021)

 Brown, Jacobson, Cockrell, Sutt, Allen, and Copeland
STEP 5: ENCOURAGING LONG-TERM INVESTMENT social learning. Journal of Environmental Management,
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needs, and participants shift. The expert group that informed Bown, N., Gray, T., & Stead, S. M. (2013). Contested forms
this plan meets regularly to discuss relevant science and man- of governance in marine protected areas: A study of
agement topics, which keeps the relationships between group co-management and adaptive co-management. New
members active. To maintain the relationships that you have York: Routledge.
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• Keep communication lines open by updating the A mixed-methods analysis of stakeholder communication
public on the progress of your project and offering and preference for future management outcomes on the
opportunities for public comment. gulf coast (Unpublished doctoral dissertation). Univer-
sity of Florida, Gainesville, Florida.
• Create an email listserv or host regular meetings
Davenport, M. A., Leahy, J. E., Anderson, D. H., & Jakes, P. J.
to easily communicate with participants from past
(2007). Building trust in natural resource management
projects.
within local communities: A case study of the Midewin
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toring, outreach, and long-term aspects of the proj- 39(3), 353–368. www.doi.org/10.1007/s00267-006-
ect. 0016-1
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advisory boards and in decision-making meetings. (2014). A framework for integrating and managing
expectations of multiple stakeholder groups in a collab-
• Attend community meetings and events outside of
orative partnership. Journal of Extension, 52(3). https://
the ones you host.
archives.joe.org/joe/2014june/iw6.php
• Keep it local. Hire local companies and contractors Fisher, R., Ury, W. L., & Patton, B. (2011). Getting to yes: Nego-
for future management needs. tiating agreement without giving in. Houghton Mifflin.
Franz, N. K. (2013). The data party: Involving stakeholders in
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to help guide extension professionals and managers from factors that influence stakeholder trust of natural
the early stages to the post-implementation phases of their resource science and institutions. Environmental Mana-
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the Gulf of Mexico are used as an illustrative example in this 10.1890/1051-0761(2000)010[1270:UTEKIS]2.0.CO;2
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.945062

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APPENDIX. STAKEHOLDER ENGAGEMENT & FACILITATION ACTIVITIES

The following table provides examples of facilitation and engagement activities that can be used during each of the five steps
presented in this paper. Activities are based on suggestions made during the expert meeting and activities used by the UF/IFAS
Natural Resource Leadership Institute (Monaghan et al., 2016).

Min. # of
Communications Goal Activity Idea Description Potential Challenges Materials Needed
Facilitators
Step 1: Timeline Create a historical timeline Participants may Long sheet of 2
Getting to Know Your around a specific event disagree about the time paper, tape,
Audience or topic (e.g., restoration when specific events enough markers
of a local reef). Everyone occurred. Multiple his- for all participants
participates to add items to a tories can be included
large timeline, which can be on the same timeline,
posted on a wall or table. aiding in comparison
between perspectives.
Step 2: Engaging and Pair walk Organize participants in This can be used as a A quiet space 1
Educating groups of two. The pairs can break when discussions where participants
walk together in a nearby with the entire group are free to wander
space (outside is a bonus) are getting heated. Be
and discuss a specific topic. careful to make sure
people come back in a
timely fashion.
Step 3: Building and Develop Guide a discussion on group This activity is time Flip pad & markers 2
Maintaining Trust Group norms to be used during intensive. Disagree-
Norms meetings (e.g., raise hand to ments may arise, allow-
speak, silence phone) ing the group to practice
resolving conflicts.
Step 4: Requesting Picture of Ask participants to draw a If you have many new Paper, drawing 2
Feedback Success depiction of what a success- people at the later materials, flip
ful outcome of a specific meeting, you can chart, markers
project could look like. Keep examine the drawings
these drawings and after done by others and ask
some time has passed and general questions about
progress has been made on participant markers of
the project, revisit the draw- success.
ings. Ask participants how
their ideas of success have
changed or stayed the same.

Step 5: Encouraging Shuck and Invite participants to a It may be difficult to A festive, outdoor 3
Long-Term Investment Tell gathering to share stories, find a time and place location, materials
cultural traditions, and eat that is convenient for to roast and shuck
oysters. This could be used many different groups. oysters, a sound
to build rapport with local Try focusing on a few system, sign-in
harvesters or to educate key stakeholders to sheet, etc.
tourists with harvesters serv- ensure attendance.
ing the role of community
ambassadors.

Journal of Extension Volume 59, Issue 4 (2021)