CONFLICT and COOPERATION WITHIN an ORGANIZATION: a CASE STUDY of the METROPOLITAN WATER DISTRICT of SOUTHERN CALIFORNIA by DAVID

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CONFLICT and COOPERATION WITHIN an ORGANIZATION: a CASE STUDY of the METROPOLITAN WATER DISTRICT of SOUTHERN CALIFORNIA by DAVID CONFLICT AND COOPERATION WITHIN AN ORGANIZATION: A CASE STUDY OF THE METROPOLITAN WATER DISTRICT OF SOUTHERN CALIFORNIA by DAVID JASON ZETLAND B.A. (University of California, Los Angeles) 1991 M.S. (University of California, Davis) 2003 DISSERTATION Submitted in partial satisfaction of the requirements for the degree of DOCTOR OF PHILOSOPHY in Agricultural and Resource Economics in the OFFICE OF GRADUATE STUDIES of the UNIVERSITY OF CALIFORNIA DAVIS Committee in Charge 2008 Electronic copy available at: http://ssrn.com/abstract=1129046 Electronic copy available at: http://ssrn.com/abstract=1129046 Abstract Back in 1995, one member of a water co- did not change to reflect this scarcity, wa- operative announced it was going to buy wa- ter continued to be treated as a club good ter from an “outside” source. Other mem- when it should have been treated as a pri- bers of the cooperative did not like this idea, vate good. Because MET did not change its and a dispute broke out. After lawsuits, lob- policies for allocating water (take as much as bying and lopsided votes, peace of a sort was you need, at a fixed price, no matter where bought with 235 million dollars of taxpayer it is delivered), inefficiency increased. Argu- money and intense political pressure. Why ments over the policies increased inefficiency did this dispute happen? Was it exceptional even further. or typical? Is it possible that cooperative According to Hart and Moore (1996), members are not cooperative? These ques- cooperatives are efficient (relative to firms) tions are intrinsically interesting to students when members have reasonably homoge- of collective action, but they are more signif- nous preferences. Taking the high correla- icant with this cooperative: The Metropoli- tion between characteristics and preferences tan Water District of Southern California for granted, I quantify heterogeneity among (MET) is one of the world’s largest water members through their dependency on MET utilities, supplying water to 18 million peo- for water, and their heterogeneous depen- ple. dencies imply that they will also have het- In this dissertation, a case study of erogeneous preferences on policies, e.g., how MET, I answer these questions and ex- much storage to build. plain how the 1995 dispute had roots in The dependency result violates Hart and deeper problems. The story has three an- Moore’s necessary and sufficient condition alytical threads: The first traces MET as of “reasonable homogeneity,” but they had a case-history; the second models insti- assumed self-interested members were man- tutional structure and incentives within a aging scarce goods (i.e., goods with excess public corporation; the third bridges the demand at a price of zero). Relaxing these two: linking empirical history and actions assumptions allows for the possibility that at MET to theoretical predictions of mod- social preferences, (i.e., treating others as els. yourself or maximizing group welfare) or The story goes as follows: MET’s co- abundance (i.e., having so much water that operative structure worked well when water the use of one member is not rival to an- was abundant and costs were subsidized for other) might result in MET being an effi- most members. When supply fell and de- cient cooperative—even with members that mand rose, water grew scarce. Since the have heterogeneous preferences. rules governing the management of water Social preferences are tested using eco- i Electronic copy available at: http://ssrn.com/abstract=1129046 nomic experiments in which water man- MET water is more or equally valuable; de- agers and comparison groups of undergrad- pendency of MET lowers property values uate students play public goods games. Al- for cities; and member-agencies post-1994 though the experimental results indicate (post-drought) land values change by differ- that managers are relatively more cooper- ent amounts. ative than students, they do not achieve an How can MET improve efficiency? I absolute level of cooperation consistent with outline how MET can use internal auctions social preferences. This result—in combina- to allocate water and conveyance among tion with the historical fact that MET water member agencies—reducing conflict over al- stopped being abundant after the 1960s— location, increasing efficiency and generat- leads us to dismiss the possibility that co- ing useful price signals. Even better, auc- operation or abundance could overcome het- tions can complement equity by allocat- erogeneous preferences. MET may have ing marginal water and conveyance left af- been efficient in the 1960s, but it is not to- ter inframarginal water and conveyance are day. allocated on a per capita (“lifeline”) ba- So, how is MET inefficient? MET’s pric- sis. I also describe results from experimen- ing policies are inefficient in multiple ways: tal auctions with water managers and stu- MET fixes prices in the year before they dents that show how managers suffer from take effect; charges the same price for de- stronger endowment effects in a buy-sell livery anywhere (postage stamp prices); and auction but are more competitive in a bid- mixes fixed and variable costs into one price. only auction. Put differently, MET’s prices are inefficient This dissertation is intrinsically impor- because they are based on average cost— tant as a case study of one of the world’s not marginal cost. MET is also inefficient largest water utilities, but it also contains because its cooperative structure is not con- “interesting features” that can be expanded ducive to settling disputes among members; upon or used elsewhere. Dependency can be conflicts over policies are decided by median used to quantify bargaining power among vote, which dissipates the surplus. (or within) other organizations; the experi- Can we measure inefficiency? Perhaps mental quantification of cooperation among some member agencies get more value from MET’s member agency managers can guide water than others? Perhaps MET water other attempts to understand bureaucrats; is more valuable than local water? The the estimate of the impact of water on ur- presence of these effects (or similar effects) ban land values appears to be the first of its would violate a basic definition of economic kind; and—finally—the combination of per- efficiency—equality of marginal benefit. I capita allocation of inframarginal water and use 60 years of panel data to measure the auction for marginal water seems to deliver impact of water supply on assessed land a nice compromise between equity and effi- values. The results support inefficiency: ciency that could be used in many settings. ii Contents List of Tables vii List of Figures ix Glossary xii Acknowledgements xiii 1 Introduction 1 1.1 ThemesinWater................................. 2 1.1.1 Water as a Good . 2 1.1.2 Water as a Human Right . 2 1.1.3 Water as a Tool for Growth . 3 1.1.4 WaterasaPublicService ........................ 3 1.2 AboutMET.................................... 3 1.3 TheWheelingDispute .............................. 4 1.3.1 MET Rejects an Offer.......................... 4 1.3.2 PunishingSDCWA? ........................... 5 1.3.3 Resolution . 6 1.4 AThesisonMET ................................ 6 1.5 Significance .................................... 7 1.6 DissertationOverview .............................. 8 2 MET Today 11 2.1 CooperativeStructure .............................. 11 2.1.1 Governance and Oversight . 11 2.1.2 What Is MET’s Mission? . 13 2.2 WaterSupplies .................................. 14 2.2.1 Costs of MET Water . 14 2.3 RevenueStructure ................................ 15 2.3.1 Rate Classes . 17 2.3.2 Prices and Equilibrium . 18 2.3.3 EfficientPricing ............................. 20 2.4 Demand Management . 20 2.4.1 Elasticity . 21 iii 2.4.2 Preferential Rights . 21 2.4.3 Purchase Orders . 23 2.5 Summary ..................................... 23 3 MET’s History 25 3.1 LA Sets the Stage . 25 3.2 FromPowertoMET............................... 26 3.2.1 Opposition . 27 3.2.2 Add Water . 27 3.2.3 Bids for Hoover Power . 28 3.2.4 Colorado River Aqueduct . 28 3.3 DumpingWater.................................. 28 3.3.1 Miscalculating Demand . 30 3.3.2 Cross-Subsidies.............................. 30 3.3.3 Free Riding and Expansion . 31 3.3.4 SDCWAtotheRescue? ......................... 31 3.4 GloryYears.................................... 32 3.5 Irrational Los Angeles? . 34 3.6 The End of Abundance . 36 3.7 ChangesinSupplies ............................... 36 3.7.1 The Colorado River . 36 3.7.2 The State Water Project . 37 3.8 Changes in Demand . 39 3.9 Changes in Votes . 40 3.10 Changes in Culture . 41 3.11 Changes in Cost . 42 3.12 The Big Drought . 43 3.13SDCWADefects ................................. 45 3.14 Barriers to Change . 45 3.14.1 Monopoly Power . 47 3.14.2 Principal-Agent Problems . 47 3.14.3 Agricultural Water . 47 3.15 Summary . 48 4 Analysis of Efficiency at MET 49 4.1 “Cooperate” . 50 4.1.1 Type, Preference & Action . 50 4.1.2 Organization, Game & Outcome . 51 4.2 EfficientForm................................... 52 4.2.1 EfficientCooperatives .......................... 52 4.2.2 Social or Selfish . 54 4.2.3 Abundant or Scarce . 55 4.2.4 Homo- or Heterogeneous . 55 4.2.5 Forms of Inefficiency........................... 56 4.3 MakingDecisions................................. 57 iv 4.3.1 Causes of Conflict . 58 4.3.2 Examples of Conflict . 58 4.4 Inefficient Allocation . 59 4.4.1 Ramsey and Tier Prices . 59 4.4.2 Postage Stamp Pricing . 60 4.4.3 Setting Prices for Next Year . 62 4.4.4 Total Cost Control . 62 4.5 Summary ..................................... 63 5 Experiments in Cooperation 65 5.1 HowExperimentsWork ............................. 66 5.1.1 Cooperation Games . 66 5.1.2 Experimental Validity . 67 5.1.3 Internal Validity . 68 5.1.4 External Validity . 68 5.2 ExperimentalDesign............................... 69 5.2.1 DeterminingType ............................ 71 5.2.2 Group Cooperation . 72 5.2.3 Hypotheses . 74 5.2.4 Session Details . 74 5.3 Results....................................... 74 5.4 Discussion....................................
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