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RURAL WATER GOVERNANCE IN THE SASKATCHEWAN PORTION OF THE PALLISER TRIANGLE: AN ASSESSMENT OF THE APPLICABILITY OF THE PREDOMINANT PARADIGMS. A Thesis Submitted to the Faculty of Graduate Studies and Research In Partial Fulfillment of the Requirements For the Degree of Special Case Doctor of Philosophy in Canadian Plains Studies University of Regina By Jim W. Warren Regina, Saskatchewan December, 2013 Copyright 2013, Jim W. Warren UNIVERSITY OF REGINA FACULTY OF GRADUATE STUDIES AND RESEARCH SUPERVISORY AND EXAMINING COMMITTEE James William Warren, candidate for the degree of Special Case Doctor of Philosophy in Canadian Plains Studies, has presented a thesis titled, Rural Water Governance in the Saskatchewan Portion of the Palliser Triangle: An Assessment of the Applicability of the Predominant Paradigms, in an oral examination held on November 13, 2013. The following committee members have found the thesis acceptable in form and content, and that the candidate demonstrated satisfactory knowledge of the subject material. External Examiner: *Dr. Patricia Gober, University of Saskatchewan Co-Supervisor: Dr. Harry P. Diaz, Canadian Plains Studies Co-Supervisor: Dr. Gregory H. Argue, Adjunct Committee Member: Dr. John F. Conway, Department of Sociology & Social Studies Committee Member: Dr. Margot A. Hurlbert, Department of Sociology & Social Studies Committee Member: Dr. David J. Sauchyn, Department of Geography Chair of Defense: Dr. Philip Charrier, Department of History *Participated via video conference ABSTRACT This thesis describes the paradigmatic forms of water governance and management employed by town and country communities, irrigation districts, regional pipeline systems and private water management systems in the Saskatchewan portion of the Palliser Triangle. It demonstrates that the trajectory of water policy development affecting the region since 2002, when the province developed its Safe Drinking Water Strategy, has reflected the influence of the market-based paradigm within the province’s water governance policy community. The application of policy measures that conform to the principles of the market-based water governance paradigm have failed to consistently produce the beneficial outcomes predicted by the paradigm’s advocates. The lack of consistent efficacy is apparent in outcomes related to water conservation, social equity and infrastructure financing objectives. The research demonstrates that the water management challenges facing the study communities are context specific. They are related to the hydrological and social conditions that obtain locally. In attempting to deal with social equity, conservation and infrastructure challenges, actors at the community level have found practices derived from each of the major water governance paradigms useful. Rather than attempting to apply any particular water governance template in cookie cutter fashion, policy makers need to be flexible and eclectic in their approaches to addressing the water governance and management challenges of rural communities in the Saskatchewan portion of the Palliser Triangle. One size does not fit all. i ACKNOWLEDGEMENTS This thesis was made possible by the generosity of over 200 water management practitioners and residents of the Palliser Triangle who provided interviews to university researchers including this writer. A desire to improve the governance and management of water on behalf of communities in the region was evident in their comments and their donation of time. I would also like to thank my co-supervisors, Dr. Harry Diaz and Dr. Gregory Argue for their support and advice. Dr. Diaz’ efforts to involve the author in academic research projects associated with water governance and management were critical to developing the pool of primary research data which supports the thesis. Dr. Argue was particularly helpful in sharing the insights he obtained while working as a vice-president with SaskWater. Members of the thesis committee made significant contributions to shaping the theoretical perspective and direction of the thesis. Margot Hurlbert’s work on water governance and her assessment of Saskatchewan’s watershed committees stand as the foundational research in the area. Dr. John Conway assisted the author in developing a political-economic perspective on Saskatchewan. And, Dr. David Sauchyn contributed to the author’s assessment of the role that climate and climate change research should play in developing sustainable water management policies. The proofreading efforts of my wife, Virginia Warren, were critical to the development of a presentable finished product. Without the support and patience of Virginia and my stepdaughter, Zane Guidry, during what were at times challenging and stressful periods, the project would not have been completed. ii TABLE OF CONTENTS Abstract ………………………………………………………………………...…. i Acknowledgements…………………………………………………………...…… ii Table of Contents…………………………………………………………............. iii List of Tables………………………………………………………………............. vi List of Figures……………………………………………………………………… vi List of Maps………………………………………………………………………... vi List of Appendices…………………………………………………………............. vi List of Abbreviations………………………………………………………………. vii CHAPTER 1: Scope and purpose……………………………………………….. 1 1.1 Introduction………………………………………………………...….. 1 1.2 The geographic focus…………………………………………………... 7 1.3 Principle research questions and associated hypotheses…………….…. 10 1.4 Structure of the thesis…………………………………………………...14 CHAPTER 2: Literature review …………………………………………………17 2.1 Introduction ……………………………………………………………. 17 2.2 The predominant paradigms…………………………………………….18 2.3 The state-centred/municipal hydraulic paradigm……………………….24 2.4 The market-based paradigm……………………………………………. 26 2.5 Type II and community-based systems....................................................35 2.6 IWRM and the international template………………………………….. 37 2.7 Rejection of the modern template ……………………………………... 39 2.8 Canadian issues………………………………………………………….42 CHAPTER 3: Theoretical perspective…………………………………………... 46 3.1 Introduction……………………………………………………………. 46 3.2 Deconstructing market-based water governance………………………. 46 3.3 The conflation of utility costs and water prices………………………... 53 3.4 Bonbright’s BMPs……………………………………………………... 59 3.5 The elasticity problem ………………………………………………….69 3.6 The wastewater problem……………………………………………….. 73 3.7 Concepts from the field of public policy analysis……………………... 74 CHAPTER 4: Methodology……………………………………………………… 77 4.1 Introduction…………………………………………………………..... 77 iii 4.2 The utility of triangulation……………………………………………... 79 4.3 Research design………………………………………………………... 81 4.4 Interview methodology………………………………………………… 94 4.5 Utility of the data: constructing plausible interpretations……………… 97 CHAPTER 5: Hydrology and history – an overview of the context…………... 100 5.1 Introduction……………………………………………………………. 100 5.2 Climate and hydrology of the Palliser Triangle……………………....... 100 5.3 Sources and consumption patterns…………………………………….. 105 5.4 Historical overview…………………………………………………….. 109 5.5 Policy windows and policy change…………………………………….. 112 CHAPTER 6: The institutional setting………………………………………….. 122 6.1 Introduction……………………………………………………………. 122 6.2 Complexity……………………………………………………………... 123 6.3 Municipal impacts of the SWDS………………………………………. 129 6.4 The new SaskWater……………………………………………………. 136 6.5 The role of the Saskatchewan Municipal Board ………………………. 141 6.6 Type II/user-based governance systems ………………………………. 144 6.7 The role of NGOs……………………………………………………… 147 CHAPTER 7: Municipal Experience I – unanticipated water crises ................. 152 7.1 Introduction……………………………………………………………. 152 7.2 Support for the full cost pricing model……………..………………….. 154 7.3 Unforeseen water problems……………………………………………. 156 7.4 The impact of drought and flooding...…………………………………. 157 7.5 The impacts of regulation and contamination………………………….. 168 7.6 Infrastructure failure…………………………………………………….173 7.7 Other unanticipated challenges………………………………………….176 7.8 Summary observations…………………………………………………. 178 CHAPTER 8: Municipal Experience II – conservation contradictions ………. 181 8.1 Introduction……………………………………………………………. 181 8.2 The need to conserve ………………………………………………….. 181 8.3 The contradictory conflation of conservation and pricing……………... 184 8.4 What transaction costs?........................................................................... 186 8.5 Conservation is not universally urgent………………………………… 190 8.6 Innovative demand management strategies……………………………. 192 8.7 Environmental conservation…………………………………………… 193 8.8 Summary observations…………………………………………………. 195 CHAPTER 9: Municipal Experience III – offloading and inequity…………....197 9.1 Introduction……………………………………………………………. 197 9.2 Offloading …………………………………………………………….. 197 9.3 Financing challenges…………………………………………………… 199 9.4 Equity, fairness and ability to pay……………………………………... 204 iv 9.5 Taxation and community sustainability………………………………... 210 9.6 Water rate systems……………………………………………………... 211 9.7 Gold plating……………………………………………………………. 214 9.8 SaskWater’s role……………………………………………………….. 218 9.9 Municipal autonomy…………………………………………………… 220 9.10 Conclusions ………………………………………………………...... 221 CHAPTER 10: District irrigation …………………………………………......... 225 10.1 Introduction…………………………………………………………… 225 10.2 Multiple irrigator districts ………………………………………......... 227 10.3 Private versus public source water……………………………………. 232 10.4 Governance and equity………………………………………….......... 236 10.5 The case for cross subsidization………………………………….......
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