WATERSHEDS AS LEARNING LANDSCAPES:

POLICIES AND PRACTICES AROUND WATERSHED GOVERNANCE IN CANADA

Prateep Kumar NayakNatural Resources Institute, University of Manitoba, Canada

Introduction Resource governance dilemma and, in many cases, governance failure, can be attributed to deficiencies in learning processes and outcomes.

Governance: “...interrelated and increasingly integrated system of formal and informal rules [institutions], rule-making systems, and actor-networks at all levels of human society (from local to global) that are set up to steer societies towards preventing, mitigating, and adapting to global and local environmental change” (Biermann et al. 2009)

Learning: “process of social change in which people learn from each other in ways that can benefit wider social-ecological systems. as active social participation in the practices of a community dynamic interaction between people and the environment in the

construction of meaning and identity (Reed et al. 2010)

Introduction Focus on the nexus between governance and learning

using a watershed context. How the emergence of governance (adaptive) regimes

relates to the concept of learning across multiple levels.Governance processes affect learning outcomes.Learning can impact management and governance

processes. Both governance and learning as linked to each other

in a two-way feedback process. Learning outcomes help in dealing with resource management

problems and challenges.Governance arrangements and processes facilitate

transformative learning. ○ Both at individual and societal levels.

Key Tenets of Governance and Learning Processes

Attributes associated with governance Cross-scale linkages, Interaction, Coordination,

Collaboration, Networks Institutional arrangements – Bridging and Polycentric Diversity / Pluralism Flexibility, Monitoring Leadership Memory, Learning capacity, Self‐organization Dynamic learning

Attributes associated with learning

Interaction, Inclusion and Negotiation

Systems orientation, Integration

Reflection and reflexivity

Learning Conditions or methods

Learning outcomes

Individual and wider social learning

The Policy and Practice of Watershed Governance: Two Canadian Cases

Drawing from earlier presentations by Fred, Kate and Dave (John)

Bottom-up Governance: The case of PEI watershed groupsLevels Structural

ArrangementFunctional Arrangements Normative

ArrangementsProvincial

Water Management Division in the Ministry of Environment, Energy and Forestry

Responsible for the sustainable management, protection, and enhancement of the Province's drinking water, groundwater, inland surface water and coastal estuaries

Conservation Strategy 1987

A Guide to Watershed Planning on PEI

Environmental Protection Act 1988

Water Wells Act 2004

Right to Farm and the Pesticide Control Act 2009

Planning Act 2009

Regional

PEI Watershed Alliance (PEIWSA)

Improve and protect the environmental quality of Prince Edward Island watersheds, for the benefit of all Island residents

Empower Island watershed groups to achieve their goals by promoting cooperation, by serving their needs and by providing a strong, united voice in addressing Island-wide watershed issues

Watershed

31 Watershed Groups (WG)

Stream, watercourse, and wildlife habitat evaluation, restoration and protection

Public information and awareness Community-based watershed planning Technical guidance/input for communities

and residents

Top-Down Decentralisation for Watershed Governance: Manitoba Conservation Districts

Levels

Structural Arrangement Functional Arrangements Normative Arrangements

Provincial

Manitoba Conservation and Water Stewardship

Legislative Documents:Manitoba Conservation Districts Act 1976

Manitoba Conservation Districts Regulations

Manitoba Environment Act 1996

Manitoba Water Strategy 2003

Water Protection Act 2006

Manitoba Water Council (MWC)

Monitor the development and implementation of watershed management plans in the province

Coordinate the activities of advisory boards and similar entities that perform functions relating to water

Assist in reporting sustainability indicators relating to water

Regional

Conservation Districts Commission (CDC)

Advise the minister at his request in all matters relating to the Act and the administration and operation thereof

Give such advice and guidance to a board as may be requested by the board or as the commission deems advisable

Review in any year, the scheme, operations and budget of a board and make recommendations thereon to the minister.

Manitoba Conservation Districts Association (MCDA)

Advocacy to influence decision making Education to build and enhance relations with public and private partners Promotion of the identity of Manitoba Conservation Districts to create presence and visibility

Watershed and Municipality

Watershed Team (WT) Contribute technical information about the watershed Meets three to four times throughout a plan’s development

Project Management Team (PMT)

Represents the interests of all watershed stakeholders Undertakes development of the IWMP and its implementation Once a IWMP is implemented, the PMT is responsible for ensuring the plan is monitored and

evaluated, and reporting that progress back to the Watershed Team

Water Planning Authorities (WPA)

Takes on the responsibility to develop an Integrated Watershed Management Plan (IWMP) in accordance with the Water Protection Act

Submit annual report and operating budgets to the minister18 Conservation Districts

Conservation Sub-Districts Constituent parts of the CDS

Some Challenges Funding Topography Environmental: Coastal erosion and nitrate pollution Real good technical advice and leadership Cooperation between various provincial departments Dealings with the different agencies Struggling for visions for things you’d like to accomplish

Some Challenges You only have so many hours in a week and so much to do

It’s not hard to get a few core people, but to get a large part of the community involved is really difficult Bringing people into the process Engaging all the landowners (all stakeholders)

Keep educating (even in the absence of money) Building awareness of the issues

Cultural differences

Autonomy to sub-districts (further decentralization)

Learning Related

Patience – We really do not know the future (complex, uncertain and unpredictable)

Relationship between watershed groups and different sectors Understand that this is not just cleaning up a stream

Don’t ever underestimate public and community-based decision making It is a powerful tool for getting things done

Learning Related

Groups have different governances

I’d like to see us abandon the stream bed and really start to get very serious on the sources, and try to get those sources stopped

Enforcement is important - There is education at one end, but then there are people that just will not comply

Working with the government is difficult sometimes

‘…more you know, the more appreciation of the environment you have, and would probably understand your circumstances allowing you to act meaningfully’

Exploring the Governance-Learning Nexus

Governance and learning share common characteristics Changes in governance regimes and learning

processes are linked

Given their two-way feedback relationship, both can influence each other

 Importance of the individual and individual learning to these relationships

Exploring the Governance-Learning Nexus

Learning and governance are continuous and iterative

Power and political dynamics create learning mismatches across levels of governance

Can learning be a means to enhance adaptiveness in environmental governance?

Can (what) appropriate governance arrangements can facilitate learning?

Exploring the Governance-Learning Nexus

Learning through watershed governance

Governing watersheds through learning

Understanding Watersheds as Learning Landscapes

Governance and Learning

Nexus

Networks, redundancy

and leadership

Diversity, flexibility

and monitoring

Reflection and reflexivity

Memory, learning capacity and self‐

organization

Polycentric institutional / governance

arrangements

Integration

Dynamic learning

Systems orientation

Institutions: Regulative,

Normative and Cultural-cognitive

Inclusion and

negotiation

Complexity, uncertainty and change

Multi-level interaction, coordination and

collaboration

THANK YOU Canadian Water Network

Friends and colleagues in PEI and Manitoba –Watershed Groups and Conservation Districts

Provincial Governments of PEI and MB