How to improve water governance in multifunctional irrigation systems? Balancing stakeholder engagement in hydrosocial territories

Abstract

The aim of this article is to conduct an evidence-based analysis of stakeholder engagement in decision-making processes affecting multifunctional irrigation systems. The selection of case studies has allowed us to examine different tools that promote stakeholder engagement and good governance. The case studies show how stakeholder engagement in irrigation systems shapes hydrosocial territories: (1) by reducing tension between stakeholders, (2) by redirecting regional planning and strategy, (3) by highlighting water crises, (4) by decentralizing water responsibilities, and (5) by integrating values and beliefs from different stakeholders.     

Stakeholder engagement in water governance as social learning: lessons from practice

ABSTRACT

The OECD Principles on Water Governance set out various requirements for stakeholder engagement. Coupled with conceptualizations of social learning, this article asks how we define and enact stakeholder engagement and explores the actual practice of engagement of stakeholders in three fields of water governance. The results suggest that a key consideration is the purpose of the stakeholder engagement, requiring consideration of its ethics, process, roles and expected outcomes. While facilitators cannot be held accountable if stakeholder engagement ‘fails’ in terms of social learning, they are responsible for ensuring that the enabling conditions for social learning are met.     

Enhancing institutional dynamics for multiple uses of water amidst climate‐related risks: The case of Lake Buhi,Philippines

This study examined the current governance system for Lake Buhi, Philippines. It describes stakeholder patterns of decision‐making, their roles in the decision‐making process based on their legal mandates, the manner of interactions, the sources of conflict and how these various issues are currently resolved. Stakeholders represent diverse interests, including irrigation, hydropower generation, fishery management and navigation. This study uses data generated from ten key informant interviews of the different stakeholders, information from five round table discussions, and secondary data and reports of various agencies. The results indicate that Lake Buhi and its watershed present classic man‐in‐nature governance challenges. The interplay of internal and external uncertainties regarding multiple uses results in a complex system that is difficult to effectively manage. Climate‐related hazards aggravate the pressures from activities within the lake watershed, complicating water allocation issues. The institutional arrangements that have emerged to address these challenges, however, appear to be fraught with overlaps, fragmentation and a lack of communication. It is thought these deficiencies could be addressed by establishing a lake basin council with representation from all the involved organizations, as well as any stakeholder groups not represented by organizations. The system of governance over the lake must address issues concerning water uses and access to the resource. The capacity of the organizations to participate in such an arrangement is weak, however, and capacity building is needed. The availability and sharing of data and information among stakeholders are also weak and must be strengthened if the work of the lake basin council is to be based on the best available information.     

Involving stakeholders in integrated river basin planning in England and Wales

The European Water Framework Directive provides a new impetus to manage river catchments in more integrated, joined-up ways. This article looks at the role of stakeholders in integrated catchment management. Taking the work of the Environment Agency as a case study, the article begins by looking at recent successes at managing water related issues and the role of stakeholders in this. It then looks at ways in which water environments continue to be vulnerable, particularly to diffuse pollution, some development practices and climatic changes. It argues for the need for more integrated management responses, characterised by collaborative and inter-disciplinary learning to manage the interdependencies, complexities and uncertainties of catchments as integrated systems. This will require both the strengthening and streamlining of current approaches to stakeholder engagement, as well as the development of new approaches. The article concludes by outlining recent work by the Environment Agency to shape these new arrangements for stakeholder engagement, and by reflecting on the lessons learned from this.     

Ecosystem-based management in challenging conditions: implications of a case study from north-eastern Turkey

This paper studies ways to implement ecosystem-based management (EBM) regardless of data and governance conditions. It focuses on a case study from Turkey and considers how EBM can be implemented under certain specific challenging conditions. The case study provides conceptual context diagrams of actual and hypothetical situations and then compares them using soft systems methodology. This comparison emphasizes the need for a firm political will that fully enforces regulations on the protection of water resources. The paper also recommends a productive stakeholder engagement that empowers locals and uses local knowledge to meet information requirements for progress towards EBM implementation under challenging conditions.     

Unravelling Stakeholder Perceptions to Enable Adaptive Water Governance in Dryland Systems

Adaptive water governance seeks to increase a social-ecological system’s adaptive capacity in the face of uncertainty and change. This is especially important in non-linear dryland systems that are already exposed to water scarcity and increasing degradation. Conservation of water ecosystem services is key for increasing adaptive capacity in drylands, however, how stakeholders perceive water ecosystem services greatly affects how they are managed, as well as the potential for adaptive water governance. This paper focuses on identifying the system’s potential for enabling adaptive water governance by analysing different stakeholder perceptions on water ecosystem services. It takes the Rio del Carmen watershed as a case study, offering important insights for an increasing number of water-scarce regions. Semi-structured interviews were conducted with key stakeholders in the watershed in order to unravel their perceptions and understand the governance context. We found disparities in how stakeholders perceive water ecosystem services have led to water overexploitation and several conflicts over water access. Our results indicate that stakeholder perceptions have a major influence on the system’s adaptability, as they shape the acquisition of water ecosystem services. Divergent stakeholder perceptions act as an important barrier to collaboration. Generating and sharing knowledge could facilitate the development of a common vision, allowing all actors to co-create information about water ecosystem services and the system state, engaging them in a participatory process, suitable for their context, and that will better support adaptive water governance.     

Qualifying irrigation system sustainability and governance by means of stakeholder perceptions: the Neste Canal (France)

From the analysis of stakeholders’ attitudes, this article explores problems, opportunities and constraints for improving sustainability and establishing better water governance processes in the selected case study, the Neste irrigation canal (France). Data were collected through semi-structured interviews and analyzed by means of a new codification system for identifying the affinities and confrontations between stakeholder demands. Results revealed that there are conceptual and practical heterogeneities among the preferences of stakeholder groups regarding irrigation management, sustainable attitudes and governance promotion. These results can be used by stakeholders and the relevant authorities as a first step in customizing their interventions.     

Stakeholder evaluation of the feasibility of watershed management alternatives,using Integrated Lake Basin Management principles

Containing more than 90% of the liquid fresh water on our planet's surface, lakes are used for a wide range of human needs. Managing them for sustainable use also requires consideration of a multitude of scientific, socioeconomic and governance issues. Integrated Lake Basin Management (ILBM) is a comprehensive approach for achieving sustainable management of lakes and reservoirs through gradual, continuous and holistic improvement of basin governance, involving sustained efforts for improvement of six governance ‘pillars’ (Policy; Institutions: Stakeholders; Knowledge; Technology; Finances). This study demonstrates that ILBM is applicable not only to lentic water systems (lakes, reservoirs), but also to the upstream and downstream water systems (rivers, tributaries) of which they are a part. Two watersheds in eastern Pennsylvania (USA), designated as ‘Critical Water Planning Areas,’ are used as a case study for this application, with a focus on the ILBM Stakeholder pillar. The primary objective was to rank the feasibility of alternative management options for these watersheds on the basis of watershed stakeholder perceptions and discussions. The results of this process and the analyses undertaken in this study are discussed, including the management options ultimately identified, the lessons learned in the evaluation process, and means for improving the process for future evaluations.     

Stakeholder preferences for water management alternatives in the Red River Basin

Water management in multijurisdictional river basins requires participation and cooperation across stakeholder groups. This research estimates stakeholder preferences for Red River Basin management alternatives. Issues that basin residents and experts considered relevant were identified and preferences for implementing change were assessed. The choice experiments method was used for estimations. An analysis of different stakeholder groups was employed because of an expectation that informed stakeholders and decision-makers would be more engaged with basin management issues, particularly water quality goals and institutional arrangements. However, this analysis demonstrates that the three different samples did not have significantly different preference orderings.     

What’s the middle ground? Institutionalized vs. emerging water-related stakeholder engagement processes

Abstract

In this day and age, it is widely argued that stakeholder engagement in water-related decision-making processes yields many benefits, including legitimacy, acceptance and trust. Key legal frameworks, such as the European Water Framework Directive and the Aarhus Convention, have spurred the emergence of formal forms of stakeholder engagement. On the other hand, many engagement processes are spontaneous and self-organized. This article investigates the strategies used in formal (government-led) and informal (bottom-up) engagement processes in search of a middle ground. To this end, case studies in the Netherlands, the United States, Uganda and Ethiopia are analyzed using the OECD’s stakeholder engagement checklist. We conclude with reflection on the ways forward to make formal and informal stakeholder engagement complementary.     

Interactive Actor Analysis for Rural Water Management in The Netherlands: An Application of the Transactional Approach

Recent developments in the policy sciences emphasize the social environment in which decisions are made. The ‘network metaphor’ is often used to describe the key role of interactions between interdependent actors involved in decision making. These interactions take place in a policy arena drawn up by actors with an interest in and control over decisions on the issues addressed. Interdependencies, caused by the need for actors to increase their means of realizing objectives, are the driving force behind these interactions. Dependency relations are of special interest to water management and river basin management because of the fundamental asymmetrical interdependencies that exist in river basins between upstream and downstream stakeholders. Coleman’s linear system of action models decision making process involving dependencies between multiple stakeholders as exchange of control over issues, while interactions are required to negotiate exchanges of control. We developed an interactive method for actor analysis based on Coleman’s linear system of action and applied it to the national rural water management policy domain in The Netherlands. The method is firmly rooted in mathematical sociology and defies the criticism that methods for actor and stakeholder analysis do not specify a theoretical basis explaining the causal relations between the variables analyzed and policy change. With the application to the rural water management policy arena we intended to increase our insight into the practical applicability of this analytic method in an interactive workshop, the acceptability of the approach for the participating actors, its contribution to the process of decision making and our understanding of the rural water management policy arena in The Netherlands. We found that the Association of Water Authorities, the Ministry of Public Works and the Ministry of Agriculture are the most powerful actor in the policy domain, while governance and cost and benefits of rural water management are the most salient issues. Progress in policy development for rural water management is probably most promising for the issues governance, costs and benefits, safety and rural living conditions through improved interaction between the Association of Water Authorities, the Ministry of Agriculture and the Rural Credit Bank. Besides these analytic results the interactive approach implemented increased the participants understanding of their dependency on other actors in the rural water management policy domain and supported them in developing a sound perspective on their dependency position. We concluded that the method developed is acceptable to real-world policy decision makers, can successfully be applied in an interactive setting, potentially contributes to the process of decision making by increasing the participants understanding of their dependency position, has the potential to delivers valuable advice for future decision-making and increases our understanding of policy development for rural water management in general.     

Stakeholder‐enhanced environmental flow assessment: The Rufiji Basin case study in Tanzania

Environmental flows are now a standard part of sustainable water management globally but are only rarely implemented. One reason may be insufficient engagement of stakeholders and their priority outcomes in the environmental flow‐setting process. A recent environmental flow assessment (EFA) in the Kilombero basin of the Rufiji River in Tanzania concentrated on a broad‐based investigation of stakeholders' use and perceptions of the ecosystem services provided by the river as a framework for the assessment of flow regimes that would maintain them. The EFA process generally followed the Building Block Methodology but within an enhanced stakeholder engagement framework. Engagement began with the involvement of institutional stakeholders to explain the purpose of the EFA and to elicit their priority outcomes. Extensive interactions with direct‐use stakeholders followed to investigate their uses of and priorities for the rivers. Results were used by the EFA specialist team in choosing flow indicators and defining measurable environmental objectives. The specialists then met to reach a consensus of the flow requirements. The EFA results were lastly reported back to stakeholders. During the Kilombero EFA, we learned that stakeholders at all levels have a good awareness of the natural services provided by a healthy river and can contribute to the setting of environmental objectives for the rivers and floodplain. These can be factored into the biophysical assessments of river flows required to maintain habitats, processes, water quality, and biodiversity. It is therefore important to allocate significant resources to stakeholder engagement. It now remains to be seen if enhanced stakeholder engagement, including the increased understanding and capacity built among all stakeholders, will increase support for the implementation of the recommended flows.     

Water Managers’ Boundary Judgments and Adaptive Water Governance. An Analysis of the Dutch Haringvliet Sluices Case

In this paper, we explore how managing actors’ boundary judgments influence the adaptability of water governance. We approach this question by examining the relationship between the way water managers frame, and act in, complex water issues on the one hand and develop adaptive water governance strategies on the other. We define four categories of boundary judgments made by water managers in order to deal with the complexities in water governance issues. An in-depth case study analysis of an attempt to adjust the management of the water regime in the south-west Delta of the Netherlands is provided in order to reconstruct the water managers’ boundary judgments and their impact upon governance strategies used. We found that, most of the time, the water managers involved predominantly made tight boundary judgments. These tight boundary judgments seemed to hamper the mutual learning process among a variety of stakeholders that is needed to realize adaptive water governance. We argue that wide boundary judgments enhance the chance of realizing adaptive practices and build upon exploration, learning, and connection.     

On risky ground: the water professional in politics.

Best practice in drainage basin management requires consultation and stakeholder engagement in the formulation and implementation of plans. The water management professional, engaging with the political world, is on risky ground, thanks to many stakeholders' accidental or chosen unwillingness to accept science-based advice. Technical specialists produce good advice, yet progress is inhibited because they do not connect effectively with politicians, administrators and managers. A series of short case studies from three countries in different but related fields provides evidence of the problems that are encountered. Professionals may be cut off from the political world within comfort zones defined by the cultural norms and behaviours of bureaucracy, their profession or their preferred communications style. The consequence of the professionals' lack of engagement in the political world can be that scarce money and effort is wasted on low priority issues, and the case for sound, sustainable environmental management is discredited. Stakeholder support is worth winning, because it can bring positive benefits in the effectiveness of environmental management programmes. Where outside help is needed to bring about this result, it should be provided by advisers who are sensitive to the culture, at the national, professional and organizational level, of the recipients.     

流域水资源脆弱性评价与适应性治理研究框架

针对流域水资源脆弱性与适应性问题,提出了脆弱性分析与适应性治理研究框架,包括水资源脆弱性的影响因素分析,面向治理决策的水资源脆弱性评价指标体系构建,基于粗集-BP神经网络模型进行水资源脆弱性评价。分析了流域水资源脆弱性的原因和产生机理,针对不同脆弱性机理拟定了适应性治理组合方案。最后运用奈特不确定性REU模型通过概率分布函数和效用函数的二次期望求解,对拟定的备选治理方案进行了决策选择。所提出的研究框架为流域水资源脆弱性评价与适应性治理研究奠定了基础。     

水电开发企业利益相关者治理模式探讨

针对水电开发企业的特点,结合利益相关者理论,提出水电开发企业采用利益相关者治理模式的现实依据。分析水电开发企业利益相关者的内涵,构建了水电开发利益相关者治理模式,包括内部治理机制和外部相关配套机制,其中内部治理机制为:责权利分配机制、表决权机制、委托代理关系、激励约束机制等;外部相关配套机制为:法律环境的保障、水利投融资体制、外部监管、债权人治理和移民机制等。     

Two decades of Brazil’s participatory model for water resources management: from enthusiasm to frustration

In January 2017, the water community in Brazil celebrated the 20th anniversary of the promulgation of Brazil’s National Water Resources Policy (Federal Law 9.433). However, Brazil’s participatory model has not delivered the expected policy outcomes yet. Inclusiveness in decision making has become pointless since mechanisms of social control and accountability are almost nonexistent. Despite the widely celebrated opportunities for stakeholder engagement and decentralized water management, implementation of water policies remains largely dependent on state actors. These findings indicate the need for carefully planned and evidence-based water reforms in Brazil.     

The UK Climate Change Risk Assessment 2012: Assessing the Impacts on Water Resources to Inform Policy Makers

The Climate Change Act 2008 requires a series of assessments of the risks of climate for the UK, under both current conditions and over the long term, to 2100. This paper describes the research completed on the impacts of climate change on the UK water sector, involving stakeholder engagement and a mix of literature review, expert elicitation and broad-scale quantitative analysis to develop ten climate change risk metrics. These include measures of the demand for water, impacts on supply, water quality and asset performance using future scenarios based on the UK Climate Projections 2009 and future population projections from the Office for National Statistics. The analysis has resulted in a number of key findings that can help to inform policy in different parts of the UK. Overall the assessment showed that there is likely to be increased pressure on water resources in the UK. These pressures need to be considered in long term plans so that the needs of different users are met without impacting on the environment.     

State-of-the-art review of transboundary water governance in the Euphrates–Tigris river basin

This article reviews the state of the art of transboundary water governance in the Euphrates–Tigris river basin, which is characterized by both political confrontation and cooperative institutional development. First, research on the physical characteristics of the basin is presented, with references to the literature on large-scale water development projects that underpin transboundary water interactions. Then, contending approaches to transboundary water governance are discussed, with specific references to the evolution of institutions. Finally, bearing in mind that transboundary water governance in the basin occurs in volatile political circumstances, current issues such as control of the water infrastructure by non-state violent actors and protection of water during armed conflict are scrutinized.     

浅析太湖治理行动网络的构建

太湖污染治理涉及很多不确定的科学问题,同时涉及流域社会的所有利益相关者.如何使不同的利益相关者形成恰当的水污染合作治理的集体行动模式,是解决太湖水污染问题的管理基础.本研究从太湖治理的组织模式出发,将太湖水污染治理历程分为单项目治理、蓝藻大规模暴发前项目群治理以及蓝藻大规模暴发后项目群治理三个阶段,并对各个阶段行动者网络关系进行分析.在总结实践经验和理论分析的基础上,重构了近期和未来太湖治理的行动者网络结构,并提出构建新型太湖治理模式的政策建议.