NEW DIRECTIONS IN FLOODPLAIN MANAGEMENT1

ABSTRACT: Over the last 30 years, average annual riverine flood damages have exceed $2 billion. Damages associated with the Mississippi River Flood of 1993 exceeded $12 billion and these costs do not include the non-quantifiable, human impacts of this disaster. In a report submitted to the White House in June 1994, a federal interagency floodplain management review committee proposed better ways to manage the nation's floodplains. The committee indicated that the 1993 Mississippi River flood was the result of a significant hydrometeorological event, that federal flood control efforts in the Mississippi basin had prevented nearly $20 billion in potential damages, and that, in spite of federal flood damage reduction efforts, throughout the nation people and property remain at risk to inevitable future flooding. It recommended that the division of decision and cost-sharing responsibilities among federal, state and local governments be more clearly defined, and that the nation adopt a strategy of, sequentially, avoiding inappropriate use of the flood-plain, minimizing vulnerability to damage through both nonstruc-tural and structural means, and mitigating damages as they occur. The report did not call for abandonment of human use of the flood-plain but argued for full consideration of the economic, social and environmental costs and benefits of all future floodplain activity.     

INTEGRATED WATERSHED MANAGEMENT ON THE TRUCKEE RWER IN NEVADA1

ABSTRACT: The Truckee River is a vitally important water source for eastern California and western Nevada. It runs 100 miles from Lake Tahoe to Pyramid Lake in the Nevada desert and serves urban populations in greater Reno-Sparks and agricultural users in three Nevada counties. In the 1980s and 1990s, a number of state and local groups initiated projects which, taken collectively, have accomplished much to improve watershed management on the Truckee River. However, the task of writing a management plan for the entire watershed has not yet been undertaken. Key players in state, federal and local government agencies have instead chosen to focus specific improvement efforts on more manageable, achievable goals. The projects currently underway include a new agreement on reservoir operation, restoration of high priority sub-watersheds, public education and involvement, water conservation education, and water resource planning for the major urban population centers. The approach which has been adopted on the Truckee River continues to evolve as more and more people take an interest in the river's future. The many positive projects underway on the watershed are evaluated in terms of how well they meet the definition of the ambitious water resources strategy, “integrated watershed management.”     

HISTORICAL AND SOCIOPOLITICAL CONTEXT OF THE WESTERN WATERSHEDS MOVEMENT1

ABSTRACT: The 1990s have featured a rapid proliferation of “watershed initiatives” in the western United States and elsewhere. Watershed initiatives are ad hoc, voluntary associations typically featuring both governmental and non-governmental actors organized together to collaboratively seek new strategies for addressing water and related natural resource problems at physically relevant regional scales. These efforts are a response to historical and sociopolitical trends that have resulted in increasingly ineffective forums and processes of resource management decision-making, and that have subordinated the role of local stakeholders in problem-solving efforts. In most cases, watershed initiatives appear to provide a pragmatic vehicle for resource managers and stakeholders to address common concerns in a more efficient manner than is otherwise possible, and as such, deserve further application and continued support.     

INSTITUTIONAL OPTIONS FOR THE COLORADO RIVER1

ABSTRACT: In many interstate river basins, the institutional arrangements for the governance and management of the shared water resource are not adequately designed to effectively address the many political, legal, social, and economic issues that arise when the demands on the resource exceed the available supplies. Even under normal hydrologic conditions, this problem is frequently seen in the Colorado River Basin. During severe sustained drought, it is likely that the deficiencies of the existing arrangements would present a formidable barrier to an effective drought response, interfering with efforts to quickly and efficiently conserve and reallocate available supplies to support a variety of critical needs. In the United States, several types of regional arrangements are seen for the administration of interstate water resources. These arrangements include compact commissions, interstate councils, basin interagency committees, interagency-interstate commissions, federal-interstate compact commissions, federal regional agencies, and the single federal administrator. Of these options, the federal-interstate compact commission is the most appropriate arrangement for correcting the current deficiencies of the Colorado River institution, under all hydrologic conditions.     

Institutions for Interstate Water Resources Management1

Abstract:  This paper evaluates alternative approaches to management of interstate water resources in the United States (U.S.), including interstate compacts, interstate associations, federal‐state partnerships, and federal‐interstate compacts. These governance structures provide alternatives to traditional federalism or U.S. Supreme Court litigation for addressing problems that transcend political boundaries and functional responsibilities. Interstate compacts can provide a forum for ongoing collaboration and are popular mechanisms for allocating water rights among the states. Federal‐interstate compacts, such as the Delaware River Basin Compact and federal‐state partnerships, such as the National Estuary Program, are also effective and complementary approaches to managing water resources. However, all of these approaches can only make modest improvements in managing water resources given the complicated and fragmented nature of our federalist system of government.     

SUBSTATE INSTITUTIONAL INNOVATION FOR MANAGING LAKES AND WATERSHEDS: A WISCONSIN CASE STUDY1

ABSTRACT: Since the 1970s, there has been extensive experimentation with new approaches to water and land resources management at the state and local levels. There is a critical need to document, assess, and synthesize lessons learned from the nation's recent experience with subnational institutional changes in environmental management. This paper examines institutional changes aimed at more integrated water and related resources management at the substate level of government. We describe innovative institutional changes in a case study of Dane County, Wisconsin, and assess the implementation and preliminary consequences of these changes. Dissatisfaction with watershed and lake management results and perceptions of institutional inadequacy led to significant changes in the structure and rules for county resources management. A new entity was created to focus watershed management responsibilities. The scope of authority and powers were expanded. However, these changes all occurred within the framework of a general purpose unit of government. The new institutional arrangements have achieved a number of milestones, although it is premature to fully assess resource outcomes. The substantive changes, implementation tactics, and overall experience in Dane County's reforms - especially with regard to addressing intergovernmental tensions and decentralized management, limited authorities and funding, and public and constituency support - have useful implications for other substate efforts at more comprehensive and integrated water resources management.     

REVISITING STATE WATER RIGHTS LAW1

ABSTRACT: Water resources professionals should be engaged actively in revisiting state water rights law. During the past four years, sponsored by the American Society of Civil Engineers with cooperation of other water resources organizations, over a hundred engineers, hydrologists, geographers, lawyers, administrators, educators, water users, and other persons interested in water law have been preparing a Model State Water Rights Code. Preliminary drafts of the Model Code have been considered in four states, and its provisions will be disseminated nationally to state legislators and other policy makers upon formal publication in September 1994. The Model Code gathers the best provisions from state water laws into comprehensive regulated riparian and prior appropriation provisions, includes commentaries explaining how its textual sections address water resources planning and management issues, and references similar language in current state water statutes. The goal of the Code Project is to provide materials which will assist legislators so they can enact effective, efficient, and equitable water laws. In the future, the Code drafting group will expand its efforts to develop legal guidelines for allocating shared transboundary water resources, water quality law, federal water statutes, and other water resources legal issues.     

THE WESTERN WATER COMMISSION: WATERSHED MANAGEMENT RECEIVES THE AVI'ENTION OF A NEW GENERATION1

ABSTRACT: Our nation periodically reviews national water policy and considers its directions for the future. The most recent examination was directed at the western United States and the role of the federal agencies in meeting its needs. The West is no longer the frontier, but rather contains vibrant cities and booming centers of international trade, as well as tourism, mineral, and oil and gas development, agricultural, and other development. In this changing environment, federal water policies need to consider the long term sustainability of the West, provide justice to Indian tribes, protect the rivers and ecosystems on which natural systems depend, balance the needs of newcomers with those of agricultural users and communities, and meet a myriad of other demands. The Western Water Policy Review Advisory Commission has just concluded its review of these issues and issued its report. Key among the recommendations is the need to coordinate federal agencies at the basin and watershed level and make government more responsive to local needs, but within a framework that includes national mandates. The Commission's recommendations are presented here, along with some of the issues that surrounded the operations of the Commission.     

THE (POLITICAL) SCIENCE OF WATERSHED MANAGEMENT IN THE ECOSYSTEM AGE1

ABSTRACT: Ecosystem management has become an important unifying theme for environmental policy in the past decade. Whereas the science of ecosystem dynamics suggests that it will remain difficult to define ecosystem borders and all of the natural and anthropogenic effects that influence them, the politics of ecosystem management require that a national ecosystem delineation standard be adopted. Moreover, a political framework for ecosystem management decision making must be designed in such a way as to complement the hierarchical, interrelated nature of ecosystems generally. This paper advocates that a watershed-based ecosystem delineation standard is the most politically suitable because it will be easily understood by the public and watersheds have a long history as a medium of environmental policy. The paper then proposes that the political framework for watershed-based ecosystem management must depend heavily on state and local autonomy, subject to federally prescribed standards and goals. The Coastal Zone Management Act provides a model for how a national ecosystem management policy can work within state and local watershed cultures and economies.     

Earthquake risk reduction: An examination of local regulatory efforts

We develop an understanding of local governmental efforts to address earthquake risks. Our data for a sample of California and Washington cities' risk-reduction efforts sort into two different clusters of leading jurisdictions as contrasted with a cluster of lagging jurisdictions. We explain differences among the three categories of cities in terms of different political-economic factors. Local governmental willingness and ability to undertake risk-reduction programs have more to do with local political demands and community resources than with objective risk or previous earthquake experience. State mandates have a selective impact on local risk-reduction efforts. The principal policy lessons concern the need to address gaps in local risk-reduction efforts through more careful targeting of federal and state earthquake programs and by including stronger teeth within state mandates.     

Reforestation Strategies Amid Social Instability: Lessons from Afghanistan

Foreign and domestic government agencies and other international organizations pursue reforestation programs in rural upper watershed areas of Afghanistan over the past decade to alleviate poverty, combat the insurgency and rehabilitate a depleted forest resource base. Popular programs incorporate cash-for-work to conduct hillside terracing, check dam construction and tree-planting for nut production, fuel wood, timber, dune stabilization, and erosion abatement. Programmatic approaches have varied as a function of accessibility, security and local objectives. Uncertain land tenure and use rights, weak local environmental management capacity, and a focus on agricultural production to meet immediate needs limit interest, nationally and locally. Unreliable security, a lack of high quality tree planting stock, limited technical knowledge and coordination among government agencies, and poor security hamper program expansion. Reforestation success would be most likely where these issues are least acute. The Afghan government should focus on supporting community based natural resource management, developing and disseminating improved conservation tree nursery strategies, and promoting watershed management schemes that incorporate forestry, range management and agronomic production. Reforestation practitioners could benefit from the human and material resources now present as part of the international war effort. Successes and failures encountered in Afghanistan should be considered in order to address similar problems in insecure regions elsewhere when reforestation may help reverse environmental degradation and contribute to broader social stabilization efforts.     

A PARTICIPATORY APPROACH TO WATERSHED MANAGEMENT: THE BRAZILIAN SYSTEM1

ABSTRACT: Brazil is currently facing the challenge of implementing a new water resources management system to promote the rational and sustainable use of the country's waters. This system is based on the following principles of water management: (2) stakeholders' participation; (2) the watershed as the planning and management unit; and (3) the economic value of water. Stakeholders' participation and the involvement of civil society in the decision making process is guaranteed by permanent seats in the watersheds' management committees. These committees are the highest decision level for the establishment of water policy and for planning its use. The executive branch of the committees is the watershed agency or the water agency. This paper presents the recently approved Brazilian water resources management system and discusses the participatory approach followed to validate and to ensure prompt response to decisions regarding water use by all stakeholders. The formulation of the National Water Law (January/1998) was also supported by extensive consultation with civil society, professional associations, state and municipal governments as well as with federal governmental agencies and private sector organizations. It also presents an overview of the formulation of the National Water Law. Finally, as watershed committees have been created and are already operating in a limited number of watersheds, some of the major obstacles to the success of the new system are discussed along with alternatives for overcoming such obstacles.     

A STUDY OF COASTAL POLLUTION AND AGENCY INTERFACE1

ABSTRACT: The 26-mile man-made beach bordering part of Mississippi's Gulf Coast and the contiguous Mississippi Sound waters provide an important recreational and tourist attraction for that area. Being the tourist nucleus for the State, announcements in September 1973 by the Mississippi Air and Water Pollution Control Commission and the State Board of Health that Sound waters had reached a level of pollution that made them potentially dangerous for body contact was met with a myriad of responses. The resulting multi-governmental, multi-agency interface that resulted in trying to deal with the situation highlighted the type of problems that can arise when social, economic, political, and legal forces come to bear on a sensitive area. Questions of jurisdictional and legal authority to act, tourist industry economic pressures, and water quality testing and monitoring procedures were representative of the type of problems that arose during this period. A retrospective analysis of this problem served to isolate the type of articulation that is essential between federal, state, and local agencies vested with responsibilities such as monitoring water quality, protecting public health, etc. This paper develops some of the interface complexities that emerged in dealing with this problem and makes selected recommendations for other areas that may potentially face similar situations.     

DROUGHT PLANNING: A PROCESS FOR STATE GOVERNMENT1

ABSTRACT: Drought has been a prevalent feature of the American landscape during the latter part of the 1980s, producing serious socioeconomic and environmental consequences. These recent experiences with drought have renewed concern about the inadequacy of federal and state contingency planning efforts and the lack of coordination for assessment and response efforts between these levels of government. This paper presents the results of research aimed at facilitating the preparation of drought contingency plans by state government in conjunction with a state's overall water management planning activity. The ten-step drought plan development process reported is intended to improve mitigation efforts through more timely, effective, and efficient assessment and response activities. Officials in appropriate state agencies should examine the proposed framework and alter it to best address drought-related concerns, adding or deleting elements as necessary.     

南四湖供用水管理机制的完善

南四湖的供用水管理尚存在诸多不完善之处,诸如供用水管理权限不清、用水纠纷、法治建设落后于实际需要、执法难等问题一直困扰着当地经济和社会的发展。采取完善法治、优化现有管理体制、改善行政执法条件等措施,将有利于完善南四湖供用水管理机制,有利于南四湖水资源的管理与利用,促进当地经济和社会的可持续发展。     

Changing Approaches to Mountain Watersheds Management in Mainland South and Southeast Asia

Mountain watersheds, comprising a substantial proportion of national territories of countries in mainland South and Southeast Asia, are biophysical and socioeconomic entities, regulating the hydrological cycle, sequestrating carbon dioxide, and providing natural resources for the benefit of people living in and outside the watersheds. A review of the literature reveals that watersheds are undergoing degradation at varying rates caused by a myriad of factors ranging from national policies to farmers' socioeconomic conditions. Many agencies—governmental and private—have tried to address the problem in selected watersheds. Against the backdrop of the many causes of degradation, this study examines the evolving approaches to watershed management and development. Until the early 1990s, watershed management planning and implementation followed a highly centralized approach focused on heavily subsidized structural measures of soil conservation, planned and implemented without any consultation with the mainstream development agencies and local people. Watershed management was either the sole responsibility of specially created line agencies or a project authority established by external donors. As a consequence, the initiatives could not be continued or contribute to effective conservation of watersheds. Cognizant of this, emphasis has been laid on integrated, participatory approaches since the early 1990s. Based on an evaluation of experiences in mainland South and Southeast Asia, this study finds not much change in the way that management plans are being prepared and executed. The emergence of a multitude of independent watershed management agencies, with their own organizational structures and objectives and planning and implementation systems has resulted in watershed management endeavors that have been in complete disarray. Consistent with the principle of sustainable development, a real integrated, participatory approach requires area-specific conservation programs that are well incorporated into integrated socioeconomic development plans prepared and implemented by local line agencies in cooperation with nongovernment organizations (NGOs) and concerned people.     

EFFECTS OF INCREASED DELTA EXPORTS ON SACRAMENTO VALLEY'S ECONOMY AND WATER MANAGEMENT1

ABSTRACT: Exports from the Sacramento‐San Joaquin Delta are an important source of water for Central Valley and Southern California users. The purpose of this paper is to estimate and analyze the effects increased exports to south of Delta users would have on the Sacramento Valley economy and water management if water were managed and reallocated for purely economic benefits, as if there were an ideal Sacramento Valley water market. Current Delta exports of 6,190 thousand acre‐feet per year were increased incrementally to maximum export pumping plant capacities. Initial increases in Delta exports did not increase regional water scarcity, but decreased surplus Delta flows. Further export increases raised agricultural scarcity. Urban users suffer increased scarcity only for exports exceeding 10,393 taf/yr. Expanding exports raises the economic value of expanding key facilities (such as Engle bright Lake and South Folsom Canal) and the opportunity costs of environmental requirements. The study illustrates the physical and economic capacity of the Sacramento Valley to further increase exports of water to drier parts of the state, even within significant environmental flow restrictions. More generally, the results illustrate the physical capacity for greater economic benefits and flexibility in water management within environmental constraints, given institutional capability to reoperate or reallocate water resources, as implied by water markets.     

环境行政执法工作中存在的问题及对策分析

近年来，我国虽然不断加大环境执法的力度，但由于在立法、体制、机制与执法监管能力等方面存在的弊端，执法效果不显著，这在一定程度上影响了环保法制建设的进程，降低了环保部门行政执法的能力。本文针对现实障碍，提出了尽快修订和完善法律体系，完善环境管理体制，扩大执法的权限，提高环境执法及应急能力等相应对策。     

我国跨区域水环境行政管理体制之检讨与完善

我国对水资源实施的是流域管理与行政区域管理相结合的管理体制。流域管理机构的地位不明确,在监督管理中没有完全独立的权限,基本上属于一种协调机构,因此完善我国的跨区域水环境行政管理体制具有重要的现实意义。从尽早完善水环境保护管理体制立法、明确各环境监督管理部门的具体职责、健全环境保护跨部门以及中央与地方的协调机制、成立跨区域环境保护管理协调机构、明确流域管理机构在流域水环境保护中的行政执法地位等方面作出了探讨,以利于更好地保护跨区域的水资源。     

COST MINIMIZATION OF NUTRIENT REDUCTION IN WATERSHED MANAGEMENT USING LINEAR PROGRAMMING1

ABSTRACT: Linear programming is applied to identify the least cost strategy for reaching politically specified phosphorus and total suspended solids reduction targets for the Fox-Wolf river basin in Northeast Wisconsin. The programming model uses data collected on annualized unit reduction costs associated with five categories of sources of phosphorus and total suspended solids discharge in each of the 41 sub-watersheds in the basin to determine the least cost management strategy. Results indicate that: (1) cost-effective nutrient reduction requires careful selection of geographic areas and source categories to address throughout the watershed; (2) agricultural sources are the most cost-effective to address in the basin; and (3) care should be exercised in setting nutrient reduction targets, given that there are likely to be significantly increasing marginal costs of nutrient reduction; the model predicts that lowering the most restrictive target by 33 percent would cut reduction expenditures by about 75 percent. Policy implications of the model include support for the investigation and potential development of institutional arrangements that enable cost-effective nutrient reduction activities to occur, such as the creation of an agency with authority over a given watershed, coordinated watershed management activities, or nutrient trading programs.