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Forty Years of California Water Policy:What Worked, What Didn’t, and Lessons for the Future
Tim QuinnJune 11, 2020
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• 1975-1985: RAND Corporation & UCLA
SPOILER ALERT: THIS PRESENTATION IS SOMEWHAT AUTOBIOGRAPHICAL
• 1985-2007: Deputy General Manager, MWD
• 2007-2018: Executive Director, ACWA
• 2019: Landreth Visiting Fellow, Stanford
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So, What Have I Learned at Stanford?
Governance is the Most Important Decision We Make in Advancing New Policies or Projects.
But We Don’t Really Think Much About It.
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Another Valuable Career Lesson . . .
Collaboration Works, Conflict Doesn’t.
I learned this reaching out across silo boundaries hundreds of times during my career.
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THE BASICS: WHAT IS GOVERNANCE?
Any Public Policy Must Answer Three Questions1. Who Gets What and When?2. Who Decides?3. How Are These Decisions Made?
In California water policy, these questions have been answered in very different ways over time.
Source: Schlager and Blomquist (2008)
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NATURAL POLICY DECISION-MAKING ERAS Schlager and Blomquist (2008)
Development Era1900-1980s
Regulatory Era1970s-2010s
Collaborative Era1980s-Still Trying
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ALTERNATIVE DECISION-MAKING PROCESSESAnsell and Gash (2007)
Managerialism“Public agencies make decisions unilaterally or through closed decision processes, typically relying on agency experts”
AdversarialismAdversaries resort to “winner-take-all” decision processes
CollaborationPublic agencies and stakeholders shape policy through open, transparent process
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Era Primary Goal Decision-Making Process
Development Era Water Supply, Flood Control & Hydropower
Centralized, Managerial and Adversarial; Driven by Water Agencies
Regulatory Era Environmental Protection
Centralized, Managerial and Adversarial; Driven by Regulatory Agencies
Collaborative Era “Coequal Goals”Collaborative, Decentralized, Democratic and Inclusive
NATURAL RESOURCE POLICY ERAS DECISION-MAKING
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To Understand Policy Formation You Have to Think About the “Black Box” of Politics
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In Our Democracy, Policy Making is VERY PARTICIPATIVE
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In Managing Natural Resources,You Can’t Escape Politics
´ In a democracy, public policy is forged through a political process.
´ “For people to govern watersheds well requires that they make collective choices…Collective choices are ultimately political choices. Thus, governing watersheds well requires embracing politics.” Source: Schlager and Blomquist (2008, x)
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On Private and Political MarketsSource: Quinn (1983)
In Private Markets:´ Decisions are made by
decentralized entities guided by Adam Smith’s “invisible hand”
´ Determine the Price, Output and Consumption of Goods and Services
´ Collaboration is undesirable because it results in inefficiency
In Political Markets:Ø Decisions are made by centralized
public entities with considerable “stakeholder” participation
Ø Determine “The Rules of the Game”Ø To influence decisions, stakeholders
compete by building coalitionsØ Collaboration is essential to secure
sound policy outcomes
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Coalition Building is The Essence of Political Competition
´ In the Political Marketplace, You Build Coalitions to Influence Public Decisions
´ Shifts in Demand and Supply Drive Private Market Outcomes
´ Shifts in Coalitions Drive Political Market Outcomes
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Coalition Building is Universal in the Political Marketplace
BUT THERE ARE DIFFERENT KINDS OF COALITIONS
• “WARRIOR” COALITIONSØ GROW YOUR SILO TO DEFEAT THE
OTHER SILO(S)Ø ADVERSARIAL/WINNER-TAKES-ALL
PROCESS
• “COLLABORATIVE” COALITIONSØ WORK OUTSIDE YOUR SILOØ COLLABORATIVE/SHARED BENEFITS
PROCESS
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Collaboration Is Really Hard.
Decentralized, Inclusive, Open & Transparent Process Usually in “Big Tents”
Building Collaborative Coalitions Requires Complex Policy Solutions
“Coequal Goals”: Both the Environment and Economy Count, Simultaneously
“War is easy, collaboration is hell”.
Tim Quinn Water Manager
Stakeholders Have to Leave the “Safety” of Their Silos.
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WHAT MAKES A NEW POLICY DURABLE?
A Stable Policy Equilibrium
Private Market EquilibriumØ Demand = SupplyØ “Normal” Profits
Political Market EquilibriumØ Coalition DynamicsØ A Broad Support Coalition
Stabilizes a New PolicyØ Significant Opposition Undermines
a New Policy
A Durable Policy is All About Building a Broad-Based Support Coalition
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Collaborative success stories at the state level
1991 BMP AGREEMENT
1990s DROUGHT WATER BANKS
1994 BAY-DELTA ACCORD
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Collaborative success stories at the state level
1994 MONTEREY AMENDMENTS2009 DELTA REFORM ACT
2014 PROPOSITION 12014 SGMA
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Collaborative success stories at the local level -- Restoration
BUTTE CREEK SALMON RESTORATION PROJECT
LOWER COLORADO RIVER MULTISPECIES CONSERVATION PLAN
BATTLE CREEK RESTORATION PROJECT
YUBA RIVER ACCORD
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Collaborative success stories at the local level –Water Management
Agricultural IRWMPs Statewide EBMUD-Sacramento County Freeport ProjectUrban IRPs
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Collaborative success stories at watershed scale
San Gabriel River Basin
Yakima River Basin
Santa Ana River Basin
Platte River Basin
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Key Success FactorsWhat has made these collaborative initiatives success stories to one degree or another?
Leadership: Top of the List
Ø Facilitative, NOT Managerial
Ø No Preconceived Solutions
Ø Trust the Process and Protect it
Betsy Rieke
Western Canal Water District Board of Directors
Ted Trimble & Gary Nelson
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Key Success Factors
Stakeholder Commitment
Ø Key stakeholders were committed to the success of the collaborative
Ø Compromise wins over the Pull of winner-Take-all
Ø Broad base of support to protect the new policy equilibrium
John Krautkraemer, EDF
Dan Nelson, SLDMWA
Dave Schuster, SWC Inc
Steve Hall, ACWA
Bonny Herman, VICA
Gary Bobker, Bay Institute
Woody Wodraska, MWD
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Key Success Factors
´ Most had Big Tents´ Open, Transparent,
Inclusive Processes´ Overcoming
Disagreements´ Entrepreneurship
Institutional Design
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Key Success Factors
´ Many successes triggered by crisis´ Drought´ Threatened Regulation´ Lawsuit
´ Fear of an adversarial process can lead to collaboration
´ Do we have to wait for crisis to collaborate?
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The Delta Conundrum
Why is the Delta so important?
Ø The Delta is the “hub” of our water supply system
Ø Conveys Drinking water to 25 million Californians
Ø Irrigates more than 3 million acres
Ø Vital for numerous resident and migratory fisheries
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Because it’s so important, many governors have tried to “fix” the Delta
1980 1990 2000 2010 2020
Duke’s Ditch
Bay-Delta Accord
CALFED
BDCP WaterFix
Water Resiliency Portfolio
Peripheral Canal
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Question: If all these bipartisan governors supported action in the Delta, why is it still such a mess?
Answer: Because we got the governance wrong.
Ø Clash of Warrior Coalitions
Ø Managerial/Adversarial Decision-Making
Ø Minimal Investment in Collaborative Coalition Building
We are using decision-making processes from earlier eras when only collaboration will work!
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The Current State of Collaboration in California Water Policy
Leadership Vacuum on Governance
Water Warriors on the March
Lawsuits Circular Firing Squad
Fueled by Combat ScienceRead Mount &
Gartrell in CalMatters
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What Can We Do About it?
Support collaboration where it has a foothold
Urge the Newsom Administration to enter a truly Collaborative Era in water policy
Use the November election as an opportunity to reset governance in CA water policy
You must have some good ideas, too!
Spotlight combat science to promote collaboration
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So, Let’s Talk