Surprising cooperation despite apparently irreconcilable differences: Agricultural water use efficiency and CALFED

Much has been said about the need and benefits of consensus building for resolving disagreements about water and environmental management. Less has been said about how to better convene and facilitate those processes. This paper focuses on the latter, examining the challenges and breakthroughs encountered when decision-makers convene consensus building processes that seek an agreement among stakeholders who believe they have “apparently irreconcilable differences.” The research described here analyzes two multi-stakeholder, collaborative processes convened by the CALFED Bay-Delta Program (CALFED) on the issue of agricultural water use efficiency in the Sacramento and San Joaquin river watersheds of California. The first process made very little progress; however, stakeholder representatives in the second were able to forge an agreement that included significant innovation and surprising risk taking by all sides. Analyzing the two processes, this paper shows that the stakeholders, conveners, and facilitators in these processes had to do much more than make the discrete trades across interests envisioned in consensus building theory or reframing as described in theories about conflict and frames. Looking at the data, this paper shows how several concepts from outside consensus building—including boundary objects and interlanguage—along with less well-known concepts and issues within the consensus building literature—bricolage and representation—can provide insights into how the Steering Committee accomplished what it did. This paper introduces these additional concepts, how they mattered in this CALFED process, and suggests a complex set of interrelated insights into how future collaborative and integrative environmental programs can approach the most difficult environmental policy and management conflicts.     

The means do not justify the ends: A comment on CALFED

The state-federal CALFED process was more successful in transforming the means of thinking about decisions regarding California Bay-Delta resource management than in achieving the desired policy ends. Case studies in this special issue document how CALFED helped change the dynamics between stakeholders and agency managers; between scientists and implementers; and between endangered species managers and water project operators. In most cases, however, the new relationships and agreements failed to achieve the desired policy outcomes. The new tools and approaches that CALFED fostered can complement and support – but not substitute for – the obligation of policy makers to honestly confront and resolve fundamental oppositions of interest over resource management issues.     

Quantification and control of microbial pollution from agriculture: a new policy challenge?

Faecal indicator organisms (FIOs) are commonly used to quantify pollution of public health significance. Health protection, as indexed by FIO control, is a central aim of new ‘catchment-scale’ water quality management required in the USA by the Clean Water Act and in the European Union (EU) by the Water Framework Directive (WFD). Experience of the former, after a decade of implementation, suggests that the most significant reason for water quality ‘impairment’ is elevated FIO concentrations, mainly in recreational and shellfish harvesting waters. This provides an early warning of possible problems which the EU regulatory authorities are likely to face. To date, however, a surprising lack of EU attention has been given to prediction and control of catchment fluxes of this key parameter. This is likely to prove embarrassing if the experience of the US regulatory community is not acted upon with some urgency. There is a growing, though still partial, body of empirical science to form the ‘evidence-base’ for good regulatory practice. However, adoption of ‘best management practices’ (BMPs) to effect remediation of impacted waters will require close integration of water policy with policies on financial support for the farming community. This is likely to require enhanced communication and integration within the discrete policy communities addressing the agricultural sector through the Common Agricultural Policy and water regulation through the Water Framework Directive.     

Integrating scientific knowledge into large-scale restoration programs: the CALFED Bay-Delta Program experience

Integrating science into resource management activities is a goal of the CALFED Bay-Delta Program, a multi-agency effort to address water supply reliability, ecological condition, drinking water quality, and levees in the Sacramento–San Joaquin Delta of northern California. Under CALFED, many different strategies were used to integrate science, including interaction between the research and management communities, public dialogues about scientific work, and peer review. This paper explores ways science was (and was not) integrated into CALFED's management actions and decision systems through three narratives describing different patterns of scientific integration and application in CALFED. Though a collaborative process and certain organizational conditions may be necessary for developing new understandings of the system of interest, we find that those factors are not sufficient for translating that knowledge into management actions and decision systems. We suggest that the application of knowledge may be facilitated or hindered by (1) differences in the objectives, approaches, and cultures of scientists operating in the research community and those operating in the management community and (2) other factors external to the collaborative process and organization.     

Collaborative governance and adaptive management: Lessons from California's CALFED Water Program

Both for its technological and institutional innovations and for its history of conflicts, California's water system has been one of the most observed in the world. This article and this Special Issue on the CALFED Bay-Delta Program continue in this tradition. CALFED is likely the most ambitious experiment in collaborative environmental policy and adaptive management the world has seen to date. This Issue moves beyond the celebratory tone of other analyses of collaborative, adaptive management and looks closer into how collaborative networks work to produce innovation, and more importantly to reflect also on their inherent contradictions, limitations and “dark sides”. While collaborative governance enhances mutual understandings and can be a source of innovation, it appears ill-suited to resolve alone the distributive dilemmas at the core of many water – and other environmental – conflicts. A lacuna in existing research concerns the institutional design of effective boundaries and linkages between democratic politics, legitimate authority, and adaptive governance, i.e. the mix of institutions that can provide sufficient responsibility, accountability and democratic legitimacy, without choking off the self-organizing interaction, shared learning, and communication that is at the heart of collaboration. A painful realization in the Delta is that environmental conservation and further growth may be fundamentally at odds; efficient win–win solutions, institutional or technological, seem insufficient to satisfy the competing demands posed upon the system. Radical decisions and changes might be necessary, but they seem unlikely under current institutional arrangements and political conditions.     

Collectively engaging complex socio-ecological systems: re-envisioning science, governance, and the California Delta

We address the future of science and governance for the California Delta, focusing on the CALFED Bay-Delta Program, an interagency, multi-stakeholder effort to understand and manage the Delta for multiple purposes. We portray a Delta history as a coevolutionary process between science, governance and ecosystems. Global integrated environmental assessments (IEA) provide insights into understanding complex, dynamic socio-ecological systems. Many of the discursive stakeholder and scientific activities that have arisen under CALFED are similar to IEA and remain essential to the shared learning needed to effectively interact with a dynamic Delta. More deliberately enmeshing environmental monitoring, analysis, and collective learning into Delta governance will improve outcomes.     

环境政策对象识别、界定和政策对象群体间关系的研究

系统地探讨环境政策对象识别和界定的假定、依据、标志、方法、程序用于指导科学识别和界定环境政策对象 ;合理划定环境政策对象边界的有关问题。将政策对象分为数个群体 ,研究政策对象群体种类、大小、数量、分布 ,确定环境政策对象组成和结构。研究环境政策对象群体关系形成的成因、机制、过程和状态 ,注重研究群体间冲突关系、妥协关系的形成规律和过程。从而归纳出过程性、相关性、差异性、冲突性和可调和性等环境政策对象关系特征     

Uncertainties in the assessment of “significant effect” on the Dutch Natura 2000 Wadden Sea site – The mussel seed fishery and powerboat race controversies

Natura 2000, the nature network based on the European Bird and Habitat Directives, is explicitly grounded on ecological science. To acquire a permit under the Dutch Nature Conservation Act, an appropriate assessment of significant effects must be conducted based on the best available scientific knowledge. In this way the scientific and policy world are directly linked. This article focuses on ‘significant effect’ as a boundary object to analyse how science–policy interactions shape the meaning and assessment of significant effect and how these interpretations influence the decision-making process. To this end, two conflicts over significant effect are investigated: the conflict over the 2006-spring permit for the mussel seed fishery, and the 2011 permit for the planned World Championship powerboat races. In both cases nature organisations started a court process against the government-granted permits in protest to the “no significant effect” claim, stating that there was insufficient certainty for this conclusion. These conflicts are approached as controversies between discourse coalitions with different interpretations of the ecological knowledge. We show how significant effect became a focal point in the controversies, limiting the debate to ecological arguments and science-based expertise, but also creating options for parties to advance their protest by articulating uncertainties. Only uncertainty of incomplete knowledge was explicitly addressed, excluding ambiguity of values and unpredictability of the actual ecosystem. We suggest that acknowledging the value aspect in disputes on significant effect would leave more space for effective solutions of the problems under debate.     

Legal constraints, environmental variability, and the limits of innovative environmental governance

Using CALFED as a case study, this article explores problems with a conventional conceptual framework for understanding environmental crises. That framework, which both derives from and influences legal regimes, posits that environmental managers should fulfill the protective requirements of environmental laws, but should discern exactly where the brink of non-compliance lies and should allow or even facilitate resource consumption right up to that perceived edge. In contexts like CALFED, where environmental conditions are uncertain and institutions are unavoidably somewhat rigid and inflexible, that approach will function poorly, and this article therefore articulates an alternative conceptual approach capable of improving the reliability of resource allocation patterns. That alternative approach posits that in conditions of scarcity, environmental uncertainty, and rigidly constraining environmental laws, the intensity and reliability of resource use are likely to be inversely proportional, and reducing the intensity of consumptive use will tend to increase the stability and reliability of consumptive patterns.     

Making science relevant to environmental policy

Implementation of current environmental and natural resource policy has created an era of regulatory discontent, and has prompted calls for new approaches to management that can achieve both long-term ecological sustainability and improved policy performance. These new approaches, such as ecosystem management, emphasize the importance of holistic and integrated science, meaningful public involvement to reflect changing societal goals and objectives, collaborative decisionmaking, and flexible and adaptable institutions. Implementing such approaches will require significant institutional change in all institutions, including the institution of science. Attributes of the scientific culture — including adherence to the myth of objective, value-free science, preference for technical solutions as first-order solutions, and advancement of the scientific method and scientific rationality as preferred logic — have often worked to separate scientists from citizens and science from the policymaking process. They have also fostered undemocratic processes and results. Changes in the institution and culture of science, including embracing more holistic and integrated scientific processes, creating a more civic science, and rethinking the role of scientific advocacy in the policy process, will be required to move toward democratic as well as ecological sustainability.     

Ingredients in sustainably managing water in semi-arid environments

The lessons learned from CALFED indicate that ingredients important in the long-term resolution of water management issues may not result in short-term “solutions”. The value of this special issue lies in its identification of ingredients that stimulate re-framing of issues, adapting to new knowledge and innovative decisions. But sustainable water management also requires the political patience to sustain those processes as a means of perpetuating the long-term decision-making necessary to anticipate and/or respond to an ever-changing environment.     

The asteroid and comet impact hazard: risk assessment and mitigation options

The impact of extraterrestrial matter onto Earth is a continuous process. On average, some 50,000 tons of dust are delivered to our planet every year. While objects smaller than about 30 m mainly disintegrate in the Earth’s atmosphere, larger ones can penetrate through it and cause damage on the ground. When an object of hundreds of meters in diameter impacts an ocean, a tsunami is created that can devastate coastal cities. Further, if a km-sized object hit the Earth it would cause a global catastrophe due to the transport of enormous amounts of dust and vapour into the atmosphere resulting in a change in the Earth’s climate. This article gives an overview of the near-Earth asteroid and comet (near-Earth object-NEO) impact hazard and the NEO search programmes which are gathering important data on these objects. It also points out options for impact hazard mitigation by using deflection systems. It further discusses the critical constraints for NEO deflection strategies and systems as well as mitigation and evacuation costs and benefits. Recommendations are given for future activities to solve the NEO impact hazard problem.     

Are new industry policies precautionary? The case of salmon aquaculture siting policy in British Columbia

This paper argues that regulatory processes and outcomes in the context of a new industry could respond to mechanisms and factors that shape governmental agendas, illustrating how policy can behave reactively rather than in a precautionary manner. In the case of salmon aquaculture, an emerging industry characterized by risks, uncertainties, exponential growth, economic significance and environmental controversy, the outcomes of such reactive policies are generally reflected in siting criteria that yield implicit environmental and socio-economic disadvantages and trade-offs. This paper proposes a conceptual framework based on specific mechanisms and factors that attempt to explain how policy evolves in the context of a new industry. It then links regulatory events back to the concepts to discuss how siting policy has been shaped using the salmon aquaculture industry in British Columbia as an example. The paper finally argues that, although in practice, policy makers generally tend to make incremental choices that are reactive to diverse issues, new industries could adopt more precautionary policies based on processes of public negotiation, analytical decision making and regional planning based on a systems approach.     

Effects of regulatory uncertainty on corporate strategy—an analysis of firms’ responses to uncertainty about post-Kyoto policy

A better understanding of corporate strategy under regulatory uncertainty enables policy makers to improve policy making efficiency and enhance regulations’ effectiveness. Based on a review of the literature on policy formulation, we propose that regulatory uncertainty is characterized by a dependence on political negotiation, a discrete scenario structure, and a discontinuous resolution. Data from a worldwide survey show that firms pursue response strategies to regulatory uncertainty that address these characteristics by participating in policy making and increasing strategic flexibility. Surprisingly, the results also show that regulatory uncertainty only partly causes firms to postpone strategic decisions. We find that existing regulation and a need to act quickly despite regulatory uncertainty are opposed to the pursuit of a postponement strategy. We conclude that improving the mechanisms by which firms participate in early stages of the policy making process could enable them to operate in a more target-oriented manner, allow for more efficient policy implementation, and increase a regulation's effectiveness.     

Policy integration for adaptive water governance: Learning from Scotland's experience

This paper contributes to on-going attempts at bringing together two influential ideas in water governance: Integrated Water Resource Management (IWRM) and adaptive governance. In particular, a tension remains between the call in IWRM for the use of formal institutions, such as river basin organisations, to secure public policy integration, and the assumptions in adaptive governance in favour of informal collaboration between essentially independent policy actors. To clarify this relationship, this article draws on theoretical research on public policy integration, and uses these insights in an empirical setting to identify mechanisms that can facilitate effective policy integration for adaptive water governance. The research is based on recent attempts in Scotland to implement IWRM ideas to improve flood management. Several governance mechanisms were adopted to facilitate the integration of flood, water and rural land use policies. Six Scottish policy regimes are analysed using documentary sources and interviews. Results challenge the idea that collaboration should primarily be built on either river basin organisations or informal mechanisms. We identify a mix of informal and statutory-based mechanisms which may secure political and technocratic commitment to policy integration.     

Marginalization by collaboration: Environmental justice as a third party in and beyond CALFED

Governance and planning of ecosystem and water management within the California Bay-Delta, a critical component of California's water economy, have been characterized by a range of innovations in collaboration and conflict resolution. Despite legal mandates to incorporate environmental justice, the California Bay-Delta Authority's (CBDA) policy-development process and the subsequent Delta Vision process have systematically marginalized the role of environmental justice in California's water policy. We suggest that environmental justice in Bay-Delta planning can be understood as a “third party” with a tenuous seat at the CALFED water management table. As such environmental justice is a useful lens through which to assess the state's broader commitments and capacities relative to equity as a planning principal and outcome. We interpret the fate of environmental justice within Bay-Delta planning as indicative of the inherent tensions between systems based on increasing market dominance and state legitimation and the values of environmental justice based on distributive, procedural, and cognitive justice. We construct a model of marginalization and environmental injustice in collaborative planning to illustrate these tensions. We draw upon experiences of members of the Environmental Justice Sub-Committee of CBDA's Bay Delta Public Advisory Committee, as well as interviews with other key environmental justice interests, and a comprehensive review of internal and public CBDA documents relating to the environmental justice program including budgets and program plans, and ethnographic field work. We conclude that by learning from the mistakes of Bay-Delta planning, a positive model of collaborative, environmental justice-based planning for water and ecosystem management is possible.     

环境政策综合调控机制及理论

环境政策综合调控系统由环境问题、不良环境行为等成分构成，各成分的相互作用及环境政策调控主体与政策对象的博弈影响环境政策效率。使用环境政策综合调控模型，准确调控位置、调控对象、利用综合调控工具能为环境政策调控创造条件和环境。     

The role of science-policy interface in sustainable urban water transitions: Lessons from Rotterdam

This paper investigates the role of the science-policy interface in leveraging transitions to sustainable urban water management. The paper presents a case study of the Dutch city of Rotterdam, which is increasingly regarded as a global leader in adaptive and resilient urban water management. The analysis reveals that Rotterdam’s transition has occurred incrementally over the past 15 years, driven by policy entrepreneurs: largely municipal policy makers and policy practitioners. Strategic use of the science-policy interface (SPI) has facilitated the development of innovative solutions to achieve policy goals and created the enabling conditions necessary for transformative change. The Rotterdam case suggests that an effective SPI requires: (1) compelling water narrative; (2) cross-sectoral collaboration; (3) co-production of knowledge; (4) experiential evidence-based learning; (5) strategic use of trusted scientists; (6) fostering networks; and (7) generating business from science-based innovation. Rotterdam’s strategic approach to knowledge and innovation coupled with a new narrative around water sets it apart from many other cities and adds a new dimension to debates regarding enabling factors for advancing sustainable practices. These findings will be of interest to those engaged in urban water management policy and practice, environmental governance, and debates over transitions more broadly.     

Regulating concentrated animal feeding operations to enhance the environment

Economies of scale have led to the production of animals at large facilities concentrated in selected regions. Such production is accompanied by environmental problems. In the US, federal and state governments have enacted new legislation and regulatory provisions to respond to problems created by concentrated animal production, with an emphasis on eliminating water pollution. While such efforts may advance environmental quality, a more fundamental issue is whether adequate consideration has been given to the broader issue of what concentrations of animals means for the rural environment. Concentrations of animals use large quantities of antibiotics, reduce landscape diversity, and are accompanied by the loss of native species. To respond to these issues, governments need to devise additional regulatory controls that place production costs on producers and preclude practices denigrating the environment. Regulatory efforts that champion small-scale operations and activities rather than supporting industrial-sized farms through commodity price supports also warrant consideration.     

Policy implementation of catchment-scale flood risk management: Learning from Scotland and England

Recent years have seen a gradual adoption of a “catchment-scale” approach to flood risk management into European policy-making which, amongst other objectives, promotes rural land use change to reduce flood risk. While some exploratory studies of land managers’ attitudes exist, research is lacking on how public policies can be mobilised locally to implement these ideas. Two local initiatives were analysed in the transboundary River Tweed basin in Scotland and England during which public authorities negotiated with land managers. A combination of documents (N = 21) and interviews (N = 63) forms the basis of the data analysed. The results showed that implementation is highly dependent on the local policy framework, the activities of implementers, and land managers’ responses to (combination of) policy instruments. Several factors were identified influencing implementation such as devolution arrangements (i.e. from national to regional/local), the level of local interest on flood risk, local attitudes to compromise and collaboration, available policy instruments, and the existence of participatory catchment organisations. With limited scope for stand-alone regulatory action or funding in the short term, synergies and measures promoting co-benefits in flood risk management should be further sought in the Water Framework Directive River Basin Management Plans, as well as in cross-compliance and the new agri-environment-climate strategies of the common agricultural policy.