SALMON, SCALES, and STAKEHOLDER PARTICIPATION: TRANSBOUNDARY WATER GOVERNANCE in the PACIFIC NORTHWEST By
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SALMON, SCALES, AND STAKEHOLDER PARTICIPATION: TRANSBOUNDARY WATER GOVERNANCE IN THE PACIFIC NORTHWEST by Laurel Stark A Thesis Submitted to the Graduate Faculty of George Mason University in Partial Fulfillment of The Requirements for the Degree of Master of Science Conflict Analysis and Resolution Master of Arts Conflict Resolution and Mediterranean Security Committee: ___________________________________________ Chair of Committee ___________________________________________ ___________________________________________ ___________________________________________ Graduate Program Director ___________________________________________ Dean, School for Conflict Analysis and Resolution Date: _____________________________________ Fall Semester 2017 George Mason University Fairfax, VA University of Malta Valletta, Malta Salmon, Scales, and Stakeholder Participation: Transboundary Water Governance in the Pacific Northwest A Thesis submitted in partial fulfillment of the requirements for the degree of Master of Science at George Mason University, and the degree of Master of Arts at the University of Malta. by Laurel Stark Bachelor of Arts University of Victoria, 2015 Director: Susan Hirsch, Professor The School for Conflict Analysis and Resolution Fall Semester 2017 George Mason University Fairfax, VA University of Malta Valletta, Malta Copyright 2017 Laurel Stark All Rights Reserved ii ACKNOWLEDGEMENTS I would like to thank my friends and family who support me in a myriad of ways, and encourage me to find depth and enjoyment in all of life’s adventures. Thank you to the academics (especially my advisor, Susan Hirsch) and stakeholders who contributed time and energy to this project—sharing expertise and helping me research, write, and grow. Special thanks to those with the Coast Salish Gathering and Salmon Beyond Borders—I sincerely hope I have accurately reflected your thoughts. Thank you to the lovely coffee shop and café personnel across Malta and the Pacific Northwest; you skillfully made these public spaces into locales of productivity and mellow vibes. So much appreciation to Thanos Gatsias—I have no words to describe all you did for us, and how much you brightened our spirits. Lastly, special thanks to ‘the cohort,’ I am so grateful for the year we spent together on that rocky island called paradise, and for the experiences we’ve shared. Thank you to you all, and all those who helped me get to where I am today. iii TABLE OF CONTENTS Page List of Tables .................................................................................................................... vii List of Figures .................................................................................................................. viii List of Abbreviations ......................................................................................................... ix Abstract ............................................................................................................................... x 1. Introduction .................................................................................................................... 1 1.1 Structure of the Thesis............................................................................................... 4 2. Literature Review............................................................................................................ 5 2.1 Governance................................................................................................................ 5 2.1.1 Environmental Governance .............................................................................. 10 2.1.2 Water Governance ............................................................................................ 12 2.2 Stakeholder Participation ........................................................................................ 16 2.3 Discussions of Scale ................................................................................................ 23 3. The Pacific Northwest, a Transboundary Region ......................................................... 34 3.1 PNW Background ................................................................................................... 34 3.2 Salmon and Fishing ................................................................................................. 38 3.2.1 Economic Relevance ........................................................................................ 40 3.2.2 A Conflict of the Commons? ............................................................................ 41 3.2.3 Ecological Relevance ....................................................................................... 43 3.2.4 Issues of Identity, Livelihood, and Subsistence ............................................... 44 3.3 Operating Frameworks ............................................................................................ 45 3.4 The Case Study........................................................................................................ 47 3.4.1 The Coast Salish Gathering .............................................................................. 48 3.4.2 Salmon Beyond Borders ................................................................................... 50 4. Research Methodology ................................................................................................. 54 4.1 The Case Study Expanded....................................................................................... 55 4.2 Data Collection ........................................................................................................ 56 iv 4.2.1 Public Documents ............................................................................................. 57 4.2.2 Interviews ......................................................................................................... 59 4.3 Data Analysis .......................................................................................................... 60 4.4 Study Limitations and Ethical Considerations ........................................................ 63 4.5 CSG and SBB, a Complementary Pair .................................................................... 66 5. Deliberative Democracy: A Framework of Engagement.............................................. 69 5.1 Methods of Engagement.......................................................................................... 69 5.2 Relationships Configured ........................................................................................ 76 6. Deliberative Values and Meaningful Engagement ....................................................... 83 6.1 Being Neighborly: Dialogue and Cooperation ........................................................ 84 6.1.1 Forum for Consensus ........................................................................................ 85 6.1.2 Solution-Building ............................................................................................. 87 6.2 Shared Place, Shared Values ................................................................................... 93 6.2.1 Abundance, Life-Giving ................................................................................... 94 6.2.2 Sovereign .......................................................................................................... 96 6.3 Science and Education ............................................................................................ 98 6.3.1 Science as Shared Production ......................................................................... 100 6.3.2 Water Quality and Policy Consequences........................................................ 101 6.3.3 Science Problematized .................................................................................... 103 7. Scaling Governance: Inclusion of Stakeholders ......................................................... 107 7.1 Current Processes: States, (First) Nations, and Stakeholders ............................... 108 7.1.1 State/Province and Nation-State as Referent Objects ..................................... 109 7.1.2 Stakeholders as Networks of Cooperation: Influencers and Coalitions ......... 112 7.1.3 Stakeholder Engagement as Re-Scaling ......................................................... 117 7.2 Scaling Down ........................................................................................................ 119 7.2.1 Local Action and Social Capital ..................................................................... 120 7.3 Scaling Up ............................................................................................................. 124 7.3.1. International Treaties and Government-to-Government Relations ............... 126 7.4 ‘Glocalization,’ Participation, and Deliberative Democracy ................................ 128 8. Stakeholders and Governing Scales Re-Visited ......................................................... 131 Appendices ...................................................................................................................... 137 Appendix A.............................................................................................................. 137 v Appendix B .............................................................................................................. 148 References ....................................................................................................................... 150 vi LIST OF TABLES Table