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Photographs included in the original manuscript have been reproduced xerographically in this copy. Higher quality 6" x 9” black and white photographic prints are available for any photographs or illustrations appearing in this copy for an additional charge. Contact UMI directly to order. Bell & Howell Information and Learning 300 North Zeeb Road, Ann Arbor, Ml 48106-1346 USA 800-521-0000 UMI SCIENCE, POLICY, AND STAKEHOLDER PARTICIPATION IN WATER QUALITY REGULATION: THE EMERGENCE OF OHIO’S TMDL PROGRAM DISSERTATION Presented in Partial Fulfillment of the Requirements for the Degree Doctor of Philosophy in the Graduate School o f The Ohio State University By Tara A. Maddock, M.A. The Ohio State University 2002 Dissertation Committee: Dr. Paul Robbins, Adviser ^>proved By Dr. Larry A. Brown Dr. Eugene McCann Adviser Dr. Dale White Geography Department UMI Number 3039500 UMI UMI Microform 3039500 Copyright 2002 by ProQuest Information and Learning Company. All rights reserved. This microform edition is protected against unauthorized copying under Title 17, United States Code. ProQuest Information and Learning Company 300 North Zeeb Road P.O. Box 1346 Ann Arbor. Ml 48106-1346 ABSTRACT Water quality regulation in the United States is shifting from national scale policies to an increased role for state and local governments. Persistent water quality problems are forcing local governments to provide solutions to conflicts between environmental protection, urban growth and economic development. At the same time, stakeholders have increasing opportunities to shape the structure of policy formation and influence scientific practices. These changes in environmental policy are resulting in significant changes in the science of water quality management, yet little research exists on these changes in local environmental policy formation and the role of science. I trace the emergence of Total Maximum Daily Load (TMDL) policy in the context of political and economic restructuring in Ohio. Why is TMDL policy emerging now, nearly thirty years after it was written into law? What role does science play in the formation of policy and regulation? How are coalitions of stakeholders changing under TMDL policy implementation? I trace the formation o f TMDL policy through national and local contexts, debates over scientific practices, and increased stakeholder participation in influencing policy and scientific outcomes. Data collected through participant observation, qualitative in-depth interviews and quantitative surveys of stakeholders, managers and scientists are used to elucidate the interaction of state and non-state actors in policy and scientific practice formation. Employing discourse analysis and social constructions of science, I examine the formation and fragmentation o f stakeholder coalitions over policy and scientific practices under the TMDL approach. The research contributes an understanding of how a changing economy and rising environmental agenda are shifting power relations among stakeholders. In turn, the research offers an accounting of how shifting coalitions of stakeholders are emerging from the TMDL policy and scientific narratives. Outcomes of the research include; 1) the social and economic context for the emergence of TMDL policy in Ohio; 2) an explicit accounting of the role of science in policy and regulation; 3) stakeholder narratives of science and responsibility under TMDL policy, and 4) shifting stakeholder coalitions that emerged from TMDL policy that impacts the economic regime. lU For my husband, Kevin... His continued understanding and patience with my academic pressures, deadlines, schedules, and several job relocations far exceeded my highest expectations. My special thanks to him for his unwavering love and belief in me. ***** For my parents... To my father, who first inspired me to be a teacher fi-om the time when I was four years old and visited his classroom. He always encouraged me to set my goals high and to reach them by simply expecting me to, "do the best that you can." To my mother, who gave me confidence to pursue my dream of becoming a professor and researcher. She instilled in me a desire to do interesting, relevant research, and to combine rigorous academic inquiry with a social conscience. On intellectual, professional, and political levels, she is my close personal confident and fnend. ***** IV ACKNOWLEDGMENTS Many thanks to my advisor, Paul Robbins, for his energetic and unending encouragement to strive for rigorous academic research and excellence in teaching. Also, thank you to my committee members, Larry Brown, Eugene McCann, and Dale White. Thank you to all my graduate student colleagues, in particular Janek Mandel, Fernando Bosco, and Jon Moore who provided encouragement, support, humor, and a stimulating intellectual environment for education and research. I am grateful to all of the research participants who openly gave of their time to help me understand the nuances of the TMDL program. I am indebted to the staff at Ohio EPA who welcomed me into their meetings and offices, and fostered the early development o f this research topic. VITA October 16, 1969 ..................................... Bom - Tennessee, USA 1994 ........................................................... B.A. Geography, University of Hawaii at Manoa 1996 ........................................................... M.A. Geography, University of Georgia 1996-2001 .................................................Graduate Teaching and Research Associate, The Ohio State University Fall, 2001.................................................. Visiting Assistant Professor, Ohio University PUBLICATIONS 1. Robbins, P. and Maddock, T. 2000. Interrogating Land Cover Categories: Metaphor and Method In Remote Sensing. Cartography and Geographic Information Science. 27(4): 295-309. FIELDS OF STUDY Major Field: Geography VI TABLE OF CONTENTS Abstract ..........................................................................................................................................ü Dedication .................................................................................................................................... iv Acknowledgments ........................................................................................................................ v Vita................................................................................................................................................vi List of Tables ..............................................................................................................................xii List of Figures ............................................................................................................................xiii List of Maps ...............................................................................................................................xiv Chapters: 1. Introduction ........................................................................................................................ 1 1.1 Introduction .................................................................................................... 1 1.2 Total Maximiun Daily Load Policy ............................................................ 3 1.2.1 Significance of TMDL Policy .................................................................... 4 1.2.2 Overview of TMDL Policy Emergence in Ohio .........................................6 1.3 Outline of Dissertation ..................................................................................7 2. Theoretical Approaches to Environmental Regulation, Science and Stakeholders.... 13 2.1 Introduction ................................................................................................... 13 2.2 Political Ecology ...........................................................................................16 2.2.1 Critiques and Expansion of Political Ecology Approaches .................... 18 2.3 Policy Formation and Environmental Regulation .................................... 20 2.3.1 Geography o f Regulation ............................................................................21 2.3.2 Role of the State ........................................................................................... 22 2.3.3 Urban Regime and Regulation Theory ......................................................23 2.3.4 Application to Water Resource Investigations ......................................... 25 2.4 Science, Scientific Practice, and Society .................................................