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E D I T E D B Y J O A C H I M B L AT T E R A N D H E L E N I N G R A M
Reflections on Water
American and Comparative Environmental Policy
Sheldon Kamieniecki and Michael E. Kraft, editors
All rights reserved. No part of this book may be reproduced in any form by any
electronic or mechanical means (including photocopying, recording, or informa-
tion storage and retrieval) without permission in writing from the publisher.
This book was set in Sabon by Asco Typesetters, Hong Kong, in QuarkXPress.
Printed and bound in the United States of America.
TD345.R44 2001
333.91517—dc21 00-056862
Dedicated in memory of Albert E. Utton, an inspiration for cross-
border cooperation
Contents
List of Tables ix
List of Figures xi
Foreword xiii
Preface xv
I Concepts and Meanings
1 Emerging Approaches to Comprehend Changing Global
Contexts 3
Joachim Blatter, Helen Ingram, and Pamela M. Doughman
2 Expanding Perspectives on Transboundary Water 31
Joachim Blatter, Helen Ingram, and Suzanne Lorton Levesque
II Case Studies
3 The Confluence of Water, Patterns of Settlement, and
Constructions of the Border in the Imperial and the Mexicali
Valleys (1900–1999) 57
María Rosa García-Acevedo
4 Lessons from Lake Constance: Ideas, Institutions, and Advocacy
Coalitions 89
Joachim Blatter
5 The Yellowstone to Yukon Conservation Initiative: Reconstructing
Boundaries, Biodiversity, and Beliefs 123
Suzanne Lorton Levesque
6 Discursive Practices and Competing Discourses in the Governance
of Wild North American Pacific Salmon Resources 163
Kathleen M. Sullivan
viii Contents
This is the fifth volume published in our MIT Press book series American
and Comparative Environmental Policy. Reflections on Water represents
a major interdisciplinary and collaborative effort to advance our under-
standing of one of the most basic requisites for life on the planet, access
to fresh water. The book offers eight diverse and intriguing case studies
from around the world to illustrate new approaches to understanding
water resource issues, particularly in transboundary settings. The editors
and contributors focus on the multiple meanings of water and the effects
of such perspectives on policymaking through network analysis, dis-
course analysis, historical and ethnographic analysis, and the lenses of
social ecology. In combination, these approaches lead to a rich under-
standing of the multiplicity of forces affecting conflicts over transbound-
ary water resources. Such knowledge can substantially enhance the
capacity of citizens and policymakers to forge public policies grounded
in sustainable development, which itself seeks ambitiously to integrate
environmental, economic, and social goals and values.
At a time when water scarcity is increasing around the world and
approaching crisis conditions in many regions, this book’s emphasis on
developing integrative and interdisciplinary approaches to studying
water resources and conflicts is most valuable. The authors do not seek
to replace more conventional approaches to water resources and man-
agement but rather to supplement the considerable knowledge we have
gained from engineering, economics, and legal analysis. They hope to
provoke scholars and decision makers in the international water com-
munity to reconceptualize water and its management by giving greater
emphasis to social and cultural issues. The presentation of this argument
xiv Foreword
through elaborate case studies illustrates well the potential of this new
scholarship to assist citizens and decision makers in dealing with not
only water resources but other complex environmental challenges as
well. For the skeptics, the book includes both an introduction that places
the new approaches and methods within the context of changing global
needs and expectations and a final chapter that underscores some of the
limitations of these approaches as well as continuing research needs.
Reflections on Water illustrates well the kind of works we will include
in the series. We intend to publish manuscripts that examine a broad
range of environmental policy issues. We are particularly interested in
books that focus on interdisciplinary research as well as on the links
between policy and environmental problems, issues, and controversies in
either American or cross-national settings. Future volumes will analyze
the policy dimensions of relationships between humans and the envi-
ronment from either an empirical or a theoretical perspective. The series
will include works that assess environmental policy successes and fail-
ures, evaluate new institutional arrangements and policy approaches, and
help clarify new directions for environmental policy. We plan to publish
high-quality scholarly studies that are written for a wide audience that
includes academics, policymakers, environmental scientists and profes-
sionals, business and labor leaders, environmentalists, and students con-
cerned with environmental issues. We hope that these books contribute
to people’s understanding of the most important environmental prob-
lems, issues, and policies that society now faces and with which it must
deal well into the twenty-first century.
All life is touched by water, and humans as diverse as poets and military
strategists draw inspiration from it. How unfortunate, therefore, that
narrow perspectives and a limited range of disciplines dominate water
research. This book aims to liberate water from excessively rational and
utilitarian mindsets. Water has always had an emotional and symbolic
value for communities, and it increasingly provides impetus for the for-
mation of transnational networks and discourses. We explore here the
multiple meanings of water in a variety of transboundary settings in the
contemporary global context.
For an edited volume to transcend the frequent failings of uneven
contributions and lack of coherent focus, the book must emerge from a
common research endeavor. Such efforts take a great deal of time and
support. This project has a lengthy history and many contributors and
supporters, a number of whom are neither editors nor authors. Although
the genesis of the project extended even further back in time, the effort
to develop new approaches to transboundary water problems got a firm
start in a research conference at the Bellagio Study and Conference
Center, June 2–6, 1997. This exceptionally fruitful meeting was orches-
trated by the late Albert E. Utton, Director of the International Trans-
boundary Resources Center, to whom this book is dedicated. The
conference received funding from the Hewlitt and Ford Foundations as
well as the Rockefeller Foundation.
Grants from the University of California Institute on Global Peace and
Cooperation and the University of California at Irvine Global Peace
and Cooperation Studies funded the majority of the research, travel, and
translation. The Focused Research Group on International Environment
xvi Preface
Water can enlarge perception and challenge the mind. For instance, con-
sider the way objects on the floor of a pond seen through water appear
clear and sharp, their colors bright. At the same time, images reflected
from the surface of the pond can mirror perfectly the surrounding envi-
ronment of sky, clouds, vegetation, and the very eyes of the observer. Yet
water is more than a passive lens or looking glass. Water is an active
agent, changing all it touches. Water cuts canyons into the surface of the
earth, revealing the world’s most distant past. Water surges forward, cre-
ating new courses and possibilities yet to be appreciated by humans.
In spite of the transformational possibilities of water, water is usually
framed as a rather uninteresting issue and consigned to certain fixed, dis-
ciplinary frames for analysis. It is not that water is widely thought to be
unimportant. On the contrary, water is proclaimed to be the next global
crisis in the popular media and professional literature (Postel 1999).
Instead, its full potential as a subject for study is not being realized.
The purpose of this book is to unbind water from its present subject
matter constraints and to call attention to the ways water research can
reveal contemporary challenges to modes of governance and ways of
thinking. The focus here is upon transboundary water, which includes
border crossings of several types beyond those of political jurisdiction
that the term usually implies. New kinds of structures and relationships
are augmenting control over water through modern nation-states and
large bureaucratic structures. As we will argue later in this chapter, con-
temporary water is properly placed in a world of flows where influence
is streaming simultaneously toward global and local levels, while at
the same time nations retain significant influence pools. Other equally
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