Governance and Adaptation to Climate Change: the cases of Chile and Canada
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Governance and Adaptation to Governance and Adaptation to Climate Change:Climate Change: the cases of Chile and Canada the cases of Chile and Canada
Darrell R. CorkalDarrell R. Corkal,, P. Eng. , PFRA P. Eng. , PFRA
Dr. Harry (Polo) DiazDr. Harry (Polo) Diaz, U of R, U of R
Dr. David Gauthier,Dr. David Gauthier, U of R U of RSaskatoon, Saskatchewan, CanadaSaskatoon, Saskatchewan, Canada
SSHRC MCRI – SSHRC MCRI – Institutional Adaptation to Climate ChangeInstitutional Adaptation to Climate Change
Presented at: Climate Change and Water on the Prairies, June 22, 2006Presented at: Climate Change and Water on the Prairies, June 22, 2006Agricu lture and Agri-Food C anada
Prairie Farm R ehabilita tionAdm inistra tion
Agricu lture et Agroalim enta ire C anada
Adm inistra tion du rétablissem entagrico le des P ra iries
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The IACC Project GoalThe IACC Project Goal
Develop a systematic understanding of capacities of regional institutions to formulate and implement strategies of adaptation to climate change risks and the forecasted impacts of climate change on the supply and management of water resources.
Two project basins:South Sask River Basin, CanadaRio Elqui River Basin, Chile
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IACC Project Objectives:IACC Project Objectives:
1. Identify current vulnerabilities of rural communities to water and climate conditions in both basins;
2. Examine potential future scenarios of climate change in the two basins and their potential risks
3. Evaluate, discuss regional institutional capacities to reduce the future vulnerabilities of rural communities associated to climate change and its impact on the hydrological resources
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Conceptual Vulnerability ModelConceptual Vulnerability Model
Adaptive Capacity
Vulnerability
Exposure of System
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Our project seeks to understand:Our project seeks to understand:
Adaptive capacity of rural communities
Roles played by governance institutional actors in the development (or underdevelopment) of that adaptive capacity.
Focuses on the problematic of vulnerability in the context of an institutional system.
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The Vulnerability ApproachThe Vulnerability Approach
Current/pastexposure
Adaptivestrategies
Futureexposure
FutureAdaptive capacity
Current vulnerability of
a system
Future vulnerability of
a system
Futureclimate
probabilities
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What are institutions?What are institutions?
Institutions are rules -- which define roles and procedures for people– and their resulting organizational forms. They determine what is appropriate, legitimate and proper by establishing cognitive and normative structures which define perceptions and interpretations.
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The purpose of institutional The purpose of institutional assessment:assessment:
To understand governance institutional actors and processes and to identify issues that impact upon the vulnerability of the communities.
Assess institutional governance capacity:
1. to identify problems and issues in the civil society
2. to seek solutions to those problems and to deal with issues,
3. to implement solutions
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COMMUNITY
Our focusOur focus
Informal institutions
FormalInstitutions
Governance
Economic
Health
THE STUDY
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Governance:Governance:
processes and institutions by which authority in a country is exercised by the common good (World Bank Group 2000). The exercise of authority includes three elements:
The process by which those in authority are selected, monitored, and replaced;
The capacity of the local government to manage its resources effectively, and to implement sound policies; and
The respect of citizens and the local government for the institutions that govern economic and social interactions between them.
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The Structure of GovernanceThe Structure of Governance
Community
LocalGovernment
WatershedCommittee
Provincial Water Management
Agency
National WaterManagement Agency
Regional HealthAuthority
Economic DevelopmentAgencyInstruments,
RelationsRegulations
ValuesInternal decision-making
Resources
ResearchAgency
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Governance: a definition Governance: a definition Webster’s New World Dictionary of the American Language, 1980Webster’s New World Dictionary of the American Language, 1980
Governance is:– The “act, manner, function, or power of
government”
Governance is the process of “governing”:– “To exercise authority over; rule, administer,
direct, control, manage, etc.”– It’s purpose connotes: “the maintenance of
public order and the promotion of the common welfare,” and, “orderly management”
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Which Aspects of Governance Which Aspects of Governance Should Be Assessed?Should Be Assessed?
The assessment should evaluate the rules that define the use and distribution of water resources, the organizations that define and apply these rules, and their cognitive and normative structures .
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The methodological dimensions The methodological dimensions for the assessment of institutionsfor the assessment of institutions Organizations and their links
– roles, responsibilities, distribution of power Instruments
– Formal rules (legal, political) affecting water management, climate (environment), health
Management, decision-making– Openness & Ability to identify and solve water mgmt.
problems (climate, society) Institutional values on climate change and
sustainability– Present values, Future planning
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Different institutional contextsDifferent institutional contexts
Chile:- Centralized
authority- The free market
as a central organizational mechanism
Canada:- Decentralized
authority- Complex
governance systems
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Chile: Climate Change and Chile: Climate Change and Water ResourcesWater Resources
A decrease in yearly precipitation and increased evapotranspiration.
Increased aridity in the Norte Chico and central valley.
Increasing unbalances between supply and demand
Increment of water conflicts
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Chile: National Water Demand (mChile: National Water Demand (m33/s)/s)
Sector 1993 2015
Agriculture 6,550.7 9,925.4
Human Consumption
354.0 603.6
Industrial 639.6 1,580.4
Mining 546.0 799.2
Energy 19,236.6 172,138.0
Total 27,326.9 185,046.6
Source: Universidad de Chile, Informe Pais. Estado del Medio Ambiente en Chile, LOM Ediciones, 2002
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Has Chile the institutional capacity Has Chile the institutional capacity to deal with water scarcities?to deal with water scarcities?
Very restricted due to legal and political conditions
Access and use of water is defined by the Water Code of 1981, which has created a water market and limited the state’s power to regulate water resources.
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The Water Code’s coreThe Water Code’s core
Water rights:– separated from land rights– can be freely transferred, sold and bought.
Allocated water rights:– Granted by the national government– Not conditional on the type of use– No priority list– Successful for aggressive Ag development
Water conflict resolution:– Role of the state is very limited
Source: Galaz, V., Privatizing the Commons, Natural Resources, Equity and the Chilean Water Market, FLACSO, Santiago, 2003
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The Chilean Water Market: an The Chilean Water Market: an assessmentassessment
Positive:– Infrastructure
investments esp. Ag and Hydro
– Leasing of rights during drought
– Transfer of rights– Improved water
services
Negative– Conflict between
consumptive/ non-consumptive
– Hoarding/speculation of unused rights
– Concept of “stealing from poor”
Source: Galaz, V., Privatizing the Commons, Natural Resources, Equity and the Chilean Water Market, FLACSO, Santiago, 2003
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““Stealing Water from the Poor”Stealing Water from the Poor”
“The Chilean water market is characterized by the “law of the jungle”, where the powerful can do what they want with the water rights of the small”.
The incapacity of public and private institutions to resolve these conflicts.
The judicial system is too slow, too costly, and unpredictable.
Source: Galaz, V., Privatizing the Commons, Natural Resources, Equity and the Chilean Water Market, FLACSO, Santiago, 2003 O, Santiago, 2003
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Canada: Federal, Provincial, Local Canada: Federal, Provincial, Local water institutions:water institutions:
Environment (environment and trans-boundary flow) Watershed management agencies Health (public health) Natural Resources (ground water) Power generation Agriculture and Agri-Food (protection & rural water) Indian and Northern Affairs Fisheries and Oceans (inland and ocean fisheries) Parks, recreation Local municipalities (local gov’t) Local watershed groups (multiple stakeholders) NGOs (environment, ag, industry, activist) Citizens (landowners, farmers, private water supplies)
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Canada: local governmentsCanada: local governments
Communities are:– governed at arm’s length by provincial and national
governments– local RMs, towns are left to implement those regulations
as best they can, with the resources they have. Local governments:
– have significant local knowledge– forced by lack of resources to also become experts in all
areas of management: legislation, budgeting, environmental issues, and business
– their decisions have great impact on the future of the area– Are challenged to research and learn each issue - a
demanding expectation for those who are farming, ranching, or doing other work full-time
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Canada: The adaptive capacity of two Canada: The adaptive capacity of two small communities (preliminary findings)small communities (preliminary findings)
Community water conservation program Household water management
strategies Farm water management strategies Purchasing crop and hail insurance Community solidarity Diversifying crop varieties Diversifying income sources
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Canada: Community evaluation of Canada: Community evaluation of external governance institutionsexternal governance institutions
Widespread negative feeling toward government organizations
Complaints about:– the large number of agencies– lack of information about roles, functions– lack of a sufficient government understanding
of the local situation– application of province-wide regulations
Local government is not viewed as government
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Canada and ChileCanada and ChileSimilarities in water governanceSimilarities in water governance
Water is recognized as public good: governments grant water licenses and exercise degrees of legal, admin. control
Numerous formal/informal water agencies Water Acts, Regulations constitutionally enshrined
IWRM is practiced on highly-developed water infrastructure– key water demands include municipal,
agricultural and power generation
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Canada and ChileCanada and ChileContrasts in water governanceContrasts in water governance Canada relies heavily on government
management of water resources; in Chile the influence of government is more detached
Canada does not have a water market - water rights are not privately held and marketed economically; Chile’s Water Market is unique, and allows for a significant role of private sector investment, ownership and water resource management
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Canada and ChileCanada and ChileContrasts in water governanceContrasts in water governance
Canada’s multi-governance may have advantages for IWRM basin management but weaknesses for economic-good water management. Chile’s water market emphasis has strengths for infrastructure development but may have weaknesses for rural citizens and basin management
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The governance puzzleThe governance puzzle
Source:
Atlas of Saskatchewan,
1999
ALBERTA MANITOBASASKATCHEWAN
UNITED STATES
CANADA
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INSTITUTIONAL ADAPTIVE CAPACITY
EX
PO
SU
RE
VU
LNE
RA
BILITY
CLIMATE
Phys
ical
sci
ence
s Social sciences
WATER
Integration of sciences
SOCIETY
Rojas & Corkal,April, 2004
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AcknowledgmentsAcknowledgments
This work is funded by Social Sciences and Humanities Research Council, Major Collaborative Research Initiative
The authors are graterful to all members of our inter-disciplinary research team – it’s not easy blending social & physical science!
Go to PARC website for more Project Information:http://www.parc.ca/mcri/index.php