ENHANCING THE EFFECTIVENESS OF PUBLIC PARTICIPATION IN DEFINING WATER RESOURCE POLICY1

ABSTRACT: Federal regulations require agencies administering water resource projects to inform and educate citizens so that they will understand and participate effectively in local programs. Government officials and public involvement specialists have proposed positive outcomes which should derive from agency educational efforts. Eleven interdependent educational goals are identified in this study such that achievement of each goal improves the likelihood of achieving others. Evaluations indicate that educational programs are inadequate and goals are not attained fully. The incorporation of mechanisms employed by professional educators is a potential remedy. Educational and social psychology contain an abundance of effective educational devices and methodologies appropriate for use in informal adult educational programs. An individualized educational program is recommended to meet the needs of a heterogeneous adult audience.     

PLANNERS AS A PUBLIC IN WATER RESOURCES PUBLIC PARTICIPATION PROGRAMS1

This paper suggests a number of benefits in identifying urban and regional planners as a public in public participation programs of water resources planning studies. A perspective on public participation is presented. Recent trends and developing concepts are identified: emphasis on the need to coordinate urban and regional planning activities with water resources planning, increasing system complexity, the goals and objectives orientation of planning, planning for multi-objectives, the evaluation of a broader range of alternatives, and the consideration of water alternatives as only one set of measures to further society's aspirations. One way to assist in capitalizing on these trends is to seek out participation of those in other planning efforts who are involved in planning but on a different level. Because of their intimate knowledge of an areas history, growth and development, political climate, local perceptions of needs and desires, and major problems and issues they are able to contribute a great deal of insight in making the water resources planning effort more responsive at the local level. The paper describes one of the first major efforts at working-level public-planner contact which was carried out as part of the Susquehanna River Basin Study. A regional survey team comprised of an engineer and an economist from a federal agency and a state water resources planner met informally with planners, city managers, and local planning commissions to discuss issues related to water resources and the growth and development of local areas. This effort while only part of the overall public participation program yielded a number of benefits and if expanded and refined would be a very useful experience in other studies.     

A FUZZY SETS MODEL FOR MEASURING THE EFFECTIVENESS OF PUBLIC PARTICIPATION IN WATER RESOURCES PLANNING1

Mathematical modeling of complex water resources System problems, particularly water pollution control, is aided by fizzy set theory. Public participation in large scale federally funded water resources and pollution control projects is now a federal requirement and practice of various planning agencies. However, no systems based model for quantifying and measuring the effectiveness of public participation is known to exist. In this paper, we report a fuzzy set based model developed for doing this in areawide water resources planning The model is essentially cascade in nature and employs the concepts of fuzzy pessimistic and optimistic aggregations to cluster and analyze the evaluations of the basic factors. Sample computations of the model are provided.     

PUBLIC PARTICIPATION IN WATERSHED MANAGEMENT: COMBINING NOMINAL GROUP PROCESS AND MICROCOMPUTERS1

ABSTRACT: The growing concern for public participation in water resource decision-making has invited researchers to improve and develop reliable, quick, and inexpensive techniques for measuring public preferences. It is increasingly clear that traditional participation mechanisms, though useful, are no longer sufficient in providing the level of participation desired by many. A combination of microcomputer technology with Nominal Group Process (a step-by-step process ending in ranked recommendations) offers numerous possibilities for active participatory planning. Efforts at participation occurring through a well developed and defined process cannot be successful without a sensitivity to the conceptual, methodological, and pragmatic problems involved. This paper prefaces presentation of an alternative active process technique with discussion of the theoretical basis of participatory democracy and the frustration with practical implementation procedures.     

IDENTIFICATION OF TRAINING NEEDS FOR PUBLIC PARTICIPATION RESPONSIBILITIES1

ABSTRACT: The research project reported here surveyed planners in Coastal Zone Management and “208” programs in New England to determine the nature of their educational and experiential preparation for carrying out public participation functions, and to identify the planners’ own perceptions of the relative importance of those functions and their adequacy for performing them. Criteria for effective programming were developed and used as a standard for comparing various backgrounds with capability for performing necessary tasks. The research indicates that prior planning experience is more directly related to perceived adequacy than either academic or other experiential backgrounds. The survey also revealed a predominant emphasis on activities involving direct public conduct, e.g., organizing citizen advisory groups and conducting public meetings. The results of the analysis were used to make recommendations for curriculum topics that should be incorporated into the training of professional planners so that they will be better prepared to undertake public participation responsibilities. Those recommendations stress preparation for direct public contact, but also for training in other means of public involvement, such as media contact, that are not now being carried out with comparable emphasis or effectiveness.     

THE ROLE OF CITIZEN ADVISORY GROUPS IN WATER RESOURCES PLANNING1

ABSTRACT: This paper presents the significant conclusions of research conducted over a four-year period, the purpose of which was to analyze the operation of three citizen advisory groups established in conjunction with Level B Studies of the New England River Basins Commission. The three Studies were the Long Island Sound Study, the Southeastern New England Study, and the Supplemental Flood Management Study of the Connecticut River Basin Program. The research examined the criteria and procedures used for selection of members, the relevant personal characteristics of the members, the procedures employed for carrying out their responsibilities, and the relative importance of group functions as perceived by both citizen advisors and professional study participants. The impact of these factors upon the effectiveness of citizen advisory groups as a strategy of public participation is evaluated. The paper includes recommendations, derived from the research, for the use of planning agencies seeking to maximize the effectiveness of citizen advisory groups.     

ACHIEVING PUBLIC INVOLVEMENT IN THE CORPS OF ENGINEERS,WATER RESOURCES PLANNING1

ABSTRACT Public interest in all governmental agency planning has increased greatly in recent years. The program of the Corps of Engineers for obtaining direct public input to its water resources planning is described. Implementing policies, guidelines, and activities are summarized. Experiences with public involvement are discussed. Some basic problems that have surfaced in carrying out the program are cited.     

WATER RESOURCES MANAGEMENT IN THE PUBLIC INTEREST1

ABSTRACT. The water resources manager, concerned with providing for citizen needs for water in all its varied aspects, is obliged to consider the public interest in his decision making. But the public interest, although inferring the superiority of public over purely private interests, is more of a concept of political ethics than an operational objective. Recent attacks on water resources developments place in question just how responsive the water resources manager has been to the public at large during the planning process. The recent broadening of planning objectives beyond economic efficiency to include greater attention to social goals is an encouraging development. Efforts should be expanded toward greater citizen participation and more attention should be given to sampling surveys to determine citizen attitudes on water resources proposals. In the last analysis, the decision-making process must combine the expertise of the water resources manager and the participation of the people through the political process.     

SOCIO-ECONOMIC CONSIDERATIONS IN WATER RESOURCES PLANNING1

Historically, the main objective of water resources development has been economic efficiency, and the technique for its evaluation has been benefit-cost analysis. Gradually other objectives have emerged, and these in order of their emergence are regional income redistribution, environmental quality and social well-being. These multi-objectives have given rise to multifarious problems, and have made the planning process much more complex than ever before. The different objectives are not mutually exclusive, and, hence, contributions to one can only be made at the expense of others. Trade-off studies between different objectives are difficult to make. It is suggested that one way to overcome this difficulty could be to design a system to perform optimally in terms of one objective, subject to a specified level of performance of the other, which in effect becomes a constraint. The paper also discusses the pros and cons of the desirability of public participation in our decision-making processes, and the necessity of developing social sciences models to aid water planning and management.     

THE CENTRAL ARIZONA WATER CONTROL STUDY: A CASE FOR MULTIOBJECTIVE PLANNING AND PUBLIC INVOLVEMENT1

This paper describes the successful application of a multiobjective planning framework, incorporating substantial public involvement, to a major water resources decision involving intense confilcts. The study was initiated to help resolve more than a decade of controversy over a project proposed to control flooding and provide regulatory storage in the Phoenix, Arizona, area. The public was actively involved in the development of study goals and the specification of acceptable tradeoffs between multiple objectives. A wide range of structural and nonstructural alternatives was formulated and evaluated in relation to these objectives, and broad-based support was developed for a new plan. Reasons for the successful outcome are discussed, as well as implications for water resources planning under the new Federal Principles and Guidelines.     

STRATEGY FOR DYNAMIC REGIONAL WATER RESOURCES PLANNING AND IMPLEMENTATION1

ABSTRACT Water resources planning has emphasized the consideration of alternatives in the formulation of goals and objectives. With greater availability of data and projection models, optimization of plans is now much nearer to accomplishment. In contrast to these favorable aspects of planning, increased complexity of plans and large number of alternatives serving differing sets of goals have extended the time horizons from initial plan formulation to eventual implementation. In this paper a man-machine strategy is proposed to reduce the time required for decision making and conflict resolution. A panel of representatives of the decision makers, influentials and publics involved are selected and brought through a series of dynamic planning steps that simulate real time decision making. Computer interaction graphics is used to visualize the decision making process and to illustrate where and why conflict arises. A mechanism for resolution of conflict and retention of consistency in policy formulation using a cognograph is described.     

A SYSTEMS RESOURCES APPROACH TO CITIZEN PARTICIPATION: THE CASE OF THE CORPS OF ENGINEERS1

ABSTRACT: The thesis of this paper is that the citizen participation process provides necessary, but not sufficient conditions to affect substantive change in federal water resource management agencies' planning and decisionmaking. That is, in its present form, the citizen participation process has been observed to occur outside of the normal decision arenas of federal resource management agencies. The paper reviews concepts of citizen participation and defines some theoretical problems inherent with them. Then, a strategy for the structuring of a citizen participation process is proposed. This strategy is based upon the notion that citizen support for federally sponsored programs are essential if such projects are to be implemented. Therefore, an approach which integrates citizen valves with those held by other institutions and the agency is suggested. In conclusion, the relevancy of actively developing and including citizen input to the water resource planning process is illustrated by a discussion of three cases of the Corps of Engineers and Urban Studies planning process, in different metropolitan regions.     

ANALYSIS OF NEW TECHNIQUES FOR PUBLIC INVOLVEMENT IN WATER PLANNING1

ABSTRACT: The growing demands by the public for a more active role in planning have recently generated considerable interest among researchers and planners in the subject of public involvement techniques. Numerous surveys have found that standard public participation techniques (e.g., public hearings) by themselves are considered inadequate. Several techniques that have potential for overcoming some of the limitations of standard public involvement techniques have recently been developed. This paper describes several of these new techniques and analyzes each of them in terms of their potential utility in water resources planning.     

A PROCESS FOR FEDERAL WATER PLANNING AT THE FIELD LEVEL1

ABSTRACT: A process for planning at the field offices of Federal water resources agencies is described. The process involve s both planners and publics in the following four planning activities: problem definition, formulation of alternatives, impact analysis and evaluation (or plan ranking). Evaluative factors are defied as the goals, concerns, constraints, etc. that affected publics and other decision makers consider in ranking alternative actions. These factors serve to drive the entire process and glue the four planning activities together. In contrast to other “models” of the planning process, the four activities are considered to be carried out simultaneously and continually from the beginning of the process. As the planning process proceeds, each activity is repeated a number of times at increasing levels of detail. Various aspects of the process are illustrated by means of an example involving water resources development in Carmel Valley, California.     

PROBLEMS OF PUBLIC ACCESS TO WATER IN TEXAS LAKES AND STREAMS1

ABSTRACT: Rapidly increasing demand for recreational use of Texas' public waters is resulting in growing conflict between riparian landowners and the public. This paper examines the public access question, certainly one of the most poorly defined and understood areas of Texas water and property law. Since the appropriation acts of the late 1800's, most surface waters are owned by the state, and are held in trust for the benefit of the people. While there is no express statutory authority giving the general public the right to use these waters, there is extensive, if often conflicting, case law recognizing such rights on navigable streams. It is equally well established that the public may not gain access by crossing private property. Definition of public and private rights is complicated by the fact that Texas land grants (with their attendant property rights) have emanated from Spain, Mexico, the Republic of Texas, and the state. Obstacles imposed by riparian landowners to public entry, use and passage, as well as spatial aspects of access, are also considered. Because public access rights are based on the peculiar circumstances of each case, it is difficult to establish general legal principles, and there is almost no reliable information to aid the recreation-seeking public. A clear legislative enunciation of public rights appears politically infeasible at present, the most immediately attainable goal lying in the area of better public education.     

WATERSHED COUNCILS: AN EMERGING FORM OF PUBLIC PARTICIPATION IN NATURAL RESOURCE MANAGEMENT1

ABSTRACT: There is increasing interest in using watershed councils to provide information to public natural resource managers, particularly in the western states. Watershed councils are composed of interested governmental and nongovernmental stakeholders that form to collaboratively manage water and other natural resources at the scale of a watershed. This research is the first step in a multi-step policy analysis designed to answer the question of whether watershed councils are an improvement over traditional methods of public involvement in natural resource management. This paper outlines why watershed councils form and discusses their structure and operation. There is considerable variability in terms of watershed councils' goals, their effectiveness, stakeholder composition, their involvement in the “real” decision-making process, types of participation that are allowed, leadership, financing, decision-making procedures, efficiency, and temporal scale. These structural components are presented as a framework that can be used by researchers to develop criteria to evaluate watershed councils.     

WATER SUPPLY AND URBAN GROWTH PLANNING: A PARTNERSHIP1

ABSTRACT As urban expansion outstrips water supplies, the usual solution is to build pipelines to bring in water from sources farther afield. Such water supplies may act as either a leader of urban development or as a follower. In either case, this engineering approach to the provision of water has fostered less than optimal utilization of regional water and land resources for urban growth. More efficient utilization of these resources is achieved when water supply development and urban growth planning are conjoint activities. Water supply planners and land use planners, working together, are able to generate and evaluate the full range of urban development options, including water demand management through conservation. Preferred regional growth plans are achieved using the best mix of water supply and urban growth. The result is a reduced rate of water supply development and a reduction of urban expansion on prime lands. This partnership approach is demonstrated for the Calgary Region under two levels of water conservation.     

A METHODOLOGY FOR OUTDOOR RECREATION ANALYSIS IN A STATE WATER RESOURCES PLANNING STUDY1

ABSTRACT: The paper presents a methodology for outdoor recreation analysis in a comprehensive State water resources planning study. This methodology applies to determination of recreation participation desires among the population, allocation of those desires to areas of potential resources within which they must be satisfied, comparison of the areal potential resources against the allocated desires to identify areas having recreational resource deficits or needs, and exploration of alternative solutions to the identified needs. Major elements discussed are: market area, inflow-outflow, resource desire determination and projection, resource desire allocation, facility inventory, resource desire-resource analysis and alternative solutions to identified needs of water-oriented outdoor recreation.     

GROUND WATER YIELDS AND INVENTORY FOR LAND-USE PLANNING IN CRYSTALLINE ROCK AREAS OF WAKE COUNTY,NORTH CAROLINA1

In urbanizing areas underlain by crystalline rocks an inventory of the usable ground water should form an important element in the land-use planning process. Land-use decisions are most often made upon water-well yield data alone, but these data do not address the inventory question. A method utilizing local geology, stream lowflow characteristics, and pumping test data permitted outlining portions of Wake County, North Carolina, which are more favorable and those which are less favorable for ground water supply development. Information from state-required 24-hour pumping tests on 232 wells was supplemented by information from an additional 100 wells whose initial yields were determined by shorter pumping tests. Comparison of the ground water inventory values on a per acre or per square mile basis with average water use at various residential densities provides information useful to the responsible political body as it decides about population density distribution and the need for surface water supplies. For Wake Country an average density of one residential unit per acre appears generally permissible before overdraft of the ground water supplies becomes a significant risk. By utilizing the ground water inventory and patterns of ground water yields from various rock types, county officials can maximize the effectiveness of public facilities funds. The technique appears useful for other parts of the Piedmont region of the southeastern United States.     

COST ANALYSIS OF WATER AND WASTE WATER TREATMENT PROCESSES IN DEVELOPING COUNTRIES1

ABSTRACT: Mathematical modeling techniques are used to develop predictive equations for cost of water and waste water treatment processes in developing countries utilizing socioeconomic, environmental, and technological indicators. Predictive equations are developed for each of the three regions (Africa, Asia, and Latin America) for construction, operation, and maintenance costs of slow sand filter, rapid sand filter, stabilization lagoon, aerated lagoon, activated sludge, and trickling filter. Data analysis indicated that cost of water treatment processes is a function of technological indicator (percentage of imported materials), population, and the design capacity. The variables which gave the best correlation for waste water treatment cost were population, design flow, and the percentage of imported waste water disposal materials.