Abstract
A dominant form of integrated water resources management (IWRM) assumes that existing parochial path dependencies need to be overcome to transform fragmented, contested regimes into the integrative design of IWRM. This paper is an exploratory study of stakeholder perceptions around China’s Yellow River, which has been hailed as a successful case of IWRM. We find that while water reforms have ostensibly achieved a programme that adheres to the formal discourse of IWRM, subjective perceptions of the stakeholders, as revealed by the Q methodology, still display elements of a localized, fragmented narrative, requiring constant negotiation. Primary elements of the discourse include the following positions: (1) localized, contextual approaches to governance persist; (2) market efficiency and environmental protection are seen as competing goals; and (3) technology creates new gains, but constant negotiation is needed to distribute them fairly. These narratives show that rather than “overturning” old paths, the water reforms created a deliberatory arena in which old and new ideas meld into what we refer to as a “thick” institutional narrative. Our work provides a new perspective on policy change, as well as the persistence of institutional life.
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Acknowledgments
The writers thank the National University of Singapore, Institute of Water Policy, for a research Grant to carry out research on this project, and Ms Koh Shi Ting and Mr Juan Antonio Arcilla for research assistance.
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Appendices
Appendix 1: Details of Q sort
Each factor has about 13 statements which the participants “strongly agree with”. Five are extracted to illustrate the key theme of each factor.
1 | 2 | 3 | 4 | 5 | 6 | 7 | 8 | |
---|---|---|---|---|---|---|---|---|
Factor 1: Environmental protection as policy goal | ||||||||
The Yellow River basin management organizations should pay more attention to the ecological protection and maintenance of healthy life of the river when handling the relationship between economic development and environmental protection. (13) | 2 | 2 | 2 | 1 | 1 | 1 | 0 | 1 |
Preservation of the ecological system is important for long-term stability. (14) | 2 | 1 | 0 | 0 | 0 | 2 | 2 | 0 |
The primary goal of a healthy Yellow River is to ease the conflicts between water supply and demand. To reach that goal, an optimal mechanism of water resources allocation should be developed. (20) | 2 | 0 | 2 | 0 | −1 | 1 | 0 | 2 |
The local governments have the responsibility to protect the ecological environment along with economic development in the Yellow River Basin. (24) | 2 | 1 | 2 | 0 | 1 | −2 | 1 | 2 |
The water shortage of the Yellow River will inevitably slow down the process of industrial modernization in the region and will also cause deterioration of the ecological environment of the river. (12) | 2 | 1 | −1 | −1 | 0 | −1 | −2 | −2 |
Factor 2: Competition for water | ||||||||
The lack of water along the Yellow River has led to lower crops yields and lower agricultural income for farmers. (3) | 1 | 2 | 0 | −1 | 0 | −2 | 0 | 1 |
A constant river flow maintains the healthy life of the Yellow River and ensures drinking water safety in urban and rural areas along the river. (6) | 0 | 2 | 0 | 2 | −2 | −1 | 0 | −1 |
When the interests of the river and the needs of the province conflict, the needs of the river should take priority. (57) | 0 | 2 | 2 | −1 | 1 | 0 | −1 | 1 |
National considerations should take priority over local ones in the management of the Yellow River Basin. (28) | 1 | 2 | 2 | −2 | 1 | 2 | 1 | 1 |
It is better to sacrifice the economic development of the river banks than to allow the water to run dry. (53) | 1 | 2 | −1 | −2 | 2 | 1 | 2 | 1 |
Factor 3A: Role of technology | ||||||||
We should use science to accelerate the modernization of the Yellow River management, while keeping a balance between water use for homes, industry and the environment. (11) | 2 | 1 | 2 | 2 | −1 | 0 | 0 | 0 |
Integrated water management of the Yellow River strengthens sustainable water use for the sake of sustainable economic and social development; meanwhile, it should strengthen ecological protection, pollution prevention and soil erosion control. (10) | −1 | 0 | 2 | 2 | 0 | −1 | 1 | 1 |
The Yellow River management should be governed by an integrated, scientific approach, and local governments should not be allowed to develop projects at will. (27) | 0 | 0 | 2 | 2 | 0 | −2 | 1 | 2 |
Ecological Protection of the Upper Yellow River has seen benefits go mainly to the lower reaches so the central government should establish a special fund for ecological compensation for the Upper Yellow River. (5) | −2 | 1 | 1 | 1 | 2 | 1 | 0 | 0 |
Climate change puts further stress on the balance between water supply and demand in the Yellow River Basin. (41) | −2 | −2 | 1 | −1 | 2 | −1 | −1 | 0 |
Factor 3B | ||||||||
We should use science to accelerate the modernization of the Yellow River management, while keeping a balance between water use for homes, industry and the environment. (11) | 2 | 1 | 2 | 2 | −1 | 0 | 0 | 0 |
The Yellow River management should be governed by an integrated, scientific approach, and local governments should not be allowed to develop projects at will. (27) | 0 | 0 | 2 | 2 | 0 | −2 | 1 | 2 |
If we do not effectively manage the Yellow River, the “hanging river” in the upper reaches is bound to lead to frequent drying up in lower reaches, threatening people’s lives, property and the economic development of the basin. (38) | −1 | 0 | 2 | 2 | 0 | 0 | 0 | 0 |
Ecological destruction of the Yellow River source has severe consequences for the livelihood of animal herders. (2) | −2 | −2 | −1 | 2 | 2 | 1 | 0 | 2 |
The work of the water utilities should be given higher priority. (69) | 0 | 2 | 1 | 1 | −1 | 2 | 2 | 0 |
Factor 4A: Distribution of gains | ||||||||
Ecological Protection of the Upper Yellow River has seen benefits go mainly to the lower reaches so the central government should establish a special fund for ecological compensation for the Upper Yellow River. (5) | −2 | 1 | 1 | 1 | 2 | 1 | 0 | 0 |
Irrigation using the yellow river has increased crop production, but the wasteful use of water in irrigation causes the river drying up in a long-term. (7) | −2 | 2 | 0 | −2 | 2 | 0 | −1 | −2 |
Less water in the Yellow River means wells running dry and ordinary people will problems finding drinking water. (34) | −2 | 1 | 0 | 1 | 2 | 0 | 0 | 2 |
Climate change puts further stress on the balance between water supply and demand in the Yellow River Basin. (41) | −2 | −2 | 1 | −1 | 2 | −1 | −1 | 0 |
The local governments should ensure that water allocated to each province should also be used to contribute to improving the ecological environment. (8) | 1 | 1 | −2 | 1 | 2 | −2 | 2 | 0 |
Factor 4B | ||||||||
The Yellow River water resources build a national agricultural base, since it provides sufficient water irrigation to the farmlands along the river. (9) | −1 | 2 | 0 | 0 | −1 | 2 | 1 | −2 |
Preservation of the ecological system is important for long-term stability. (14) | 2 | 1 | 0 | 0 | 0 | 2 | 2 | 0 |
When there is a conflict between provinces, the provinces should settle it between themselves. (65) | −2 | −1 | −2 | 0 | −1 | 2 | −2 | −2 |
When there is a conflict between provinces, the state should mediate. (66) | 0 | 0 | −1 | 0 | 1 | 2 | −2 | −2 |
The work of the water utilities should be given higher priority. (69) | 0 | 2 | 1 | 1 | −1 | 2 | 2 | 0 |
Factor 5A: Personal responsibility | ||||||||
The work of the water utilities should be given higher priority. (69) | 0 | 2 | 1 | 1 | −1 | 2 | 2 | 0 |
I know that the Yellow River used to run dry. (52) | 2 | −2 | −1 | 2 | 2 | 2 | 2 | 0 |
It is better to sacrifice the economic development of the river banks than to allow the water to run dry. (53) | 1 | 2 | −1 | −2 | 2 | 1 | 2 | 1 |
The Yellow River flood control ensures people’s safety, and overall national stability and development. (37) | 0 | 2 | 0 | 0 | 0 | −1 | 2 | 0 |
The Yellow River has life, and intrinsic value, and should be respected for that. (51) | 2 | 1 | 0 | 2 | 1 | 0 | 2 | 0 |
Factor 5B: National pride | ||||||||
Everyone has the responsibility to keep the Yellow River healthy since it would be shameful for the entire nation if it were to run dry. (36) | 1 | 0 | 0 | 2 | 1 | 0 | 2 | 2 |
Less water in the Yellow River means wells running dry and ordinary people will problems finding drinking water. (34) | −2 | 1 | 0 | 1 | 2 | 0 | 0 | 2 |
Water supply is the first task of yellow river governance. (45) | −1 | 2 | −1 | −1 | 0 | 2 | 0 | 2 |
The Yellow River drying up leads to uncertainty and anxiety in the lives of ordinary people. (32) | 1 | 0 | −2 | 0 | 1 | −1 | −1 | 2 |
The Yellow River is a river seeped in Chinese history and culture and it would be a tragedy if the river flow disappeared. (40) | 2 | −2 | −1 | 2 | 2 | 0 | 2 | 1 |
Appendix 2: Distinguishing statements for each factor (Z-scores in parentheses)
1 | 2 | 3A | 3B | 4A | 4B | 5A | 5B | |
---|---|---|---|---|---|---|---|---|
Factor 1: Environmental protection as policy goal | ||||||||
Less water in the Yellow River means wells running dry and ordinary people will problems finding drinking water. (34) | −2 (−1.43*) | 1 (0.68) | 0 (0.00) | 1 (0.35) | 2 (1.38) | 0 (0.00) | 0 (−0.33) | 2 (1.62) |
Ecological Protection of the Upper Yellow River has seen benefits go mainly to the lower reaches so the central government should establish a special fund for ecological compensation for the Upper Yellow River. (5) | −2 (−1.54*) | 1 (0.88) | 1 (1.09) | 1 (0.58) | 2 (1.86) | 1 (0.73) | 0 (0.10) | 0 (−0.37) |
Factor 2: Competition for water | ||||||||
My home is located near the Yellow River basin. (42) | 1 (0.65) | −2 (−1.35*) | 0 (−0.31) | 2 (1.59) | 0 (0.00) | 1 (0.73) | 0 (−0.02) | 2 (1.91) |
Factor 3A: Role of technology | ||||||||
Particularly in dry seasons, the local governments of the Yellow River Basin should follow the State’s coordination and give priority to key economic zones. (21) | −2 (−1.43) | −1 (−0.68) | 0 (0.31) | −2 (−1.24) | −1 (−0.67) | −2 (−1.46) | −1 (−0.79) | −2 (−1.62) |
It is better to sacrifice the economic development of the river banks than to allow the water to run dry. (53) | 1 (0.77) | 2 (1.35) | −1 (−0.63) | −2 (−1.33) | 2 (1.47) | 1 (0.73) | 2 (1.72) | 1 (0.59) |
Factor 3B | ||||||||
When there is a conflict between provinces, the provinces should settle it between themselves. (65) | −2 (−1.43) | −1 (−0.88) | −2 (−1.40) | 0 (0.00) | −1 (−0.95) | 2 (1.46) | −2 (−1.73) | −2 (−0.96) |
It is better to sacrifice the economic development of the river banks than to allow the water to run dry. (53) | 1 (0.77) | 2 (1.35) | −1 (−0.63) | −2 (−1.33) | 2 (1.47) | 1 (0.73) | 2 (1.72) | 1 (0.59) |
National considerations should take priority over local ones in the management of the Yellow River Basin. (28) | 1 (0.89) | 2 (1.35) | 2 (1.40) | −2 (−1.48*) | 1 (0.76) | 2 (1.46) | 1 (0.56) | 1 (0.37) |
Factor 4A: Distribution of gains | ||||||||
Ecological Protection of the Upper Yellow River has seen benefits go mainly to the lower reaches so the central government should establish a special fund for ecological compensation for the Upper Yellow River. (5) | −2 (−1.54) | 1 (0.88) | 1 (1.09) | 1 (0.58) | 2 (1.86) | 1 (0.73) | 0 (0.10) | 0 (−0.37) |
Factor 4B | ||||||||
The integrated approach has reduced the income of the Yellow River gate management officers, who also have to cope with the unhappiness of end-users when they do not get enough water. (18) | −1 (−0.89) | 0 (−0.10) | −1 (−0.54) | −2 (−1.75) | 0 (0.34) | 2 (1.46) | 0 (−0.36) | −2 (−1.91) |
The Yellow River floods are not something to be afraid of as the government has taken decisive action to avoid floods and drownings. (30) | −2 (−1.54) | −2 (−1.55) | −2 (−1.40) | −1 (−1.08) | −2 (−1.86) | 2 (1.46*) | −2 (−1.88 | 0 (−0.37) |
When there is a conflict between provinces, the provinces should settle it between themselves. (65) | −2 (−1.43) | −1 (−0.88) | −2 (−1.40) | 0 (0.00) | −1 (−0.95) | 2 (1.46) | −2 (−1.73) | −2 (−0.96) |
The Yellow River management should be governed by an integrated, scientific approach, and local governments should not be allowed to develop projects at will. (27) | 0 (0.23) | 0 (0.00) | 2 (1.40) | 2 (1.32) | 0 (−0.06) | −2 (−1.46*) | 1 (0.90) | 2 (1.25) |
The local governments have the responsibility to protect the ecological environment along with economic development in the Yellow River Basin. (24) | 2 (1.54) | 1 (0.58) | 2 (1.40) | 0 (0.28) | 1 (0.67) | −2 (−1.46*) | 1 (0.61) | 2 (1.55) |
Effective governance of the Yellow River allows the lives of residents along the river to flourish. (31) | 0 (0.12) | 0 (0.00) | 0 (0.00) | 1 (0.53) | 0 (0.00) | −2 (−1.46*) | 0 (0.37) | 0 (0.15) |
Factor 5A: Personal responsibility | ||||||||
None | ||||||||
Factor 5B: National pride | ||||||||
The Yellow River drying up leads to uncertainty and anxiety in the lives of ordinary people. (32) | 1 (0.42) | 0 (−0.20) | −2 (−1.71) | 0 (0.08) | 1 (0.54) | −1 (−0.73) | −1 (−0.62) | 2 (1.32) |
The Yellow River floods are not something to be afraid of as the government has taken decisive action to avoid floods and drownings. (30) | −2 (−1.54) | −2 (−1.55) | −2 (−1.40) | −1 (−1.08) | −2 (−1.86) | 2 (1.46) | −2 (−1.88 | 0 (−0.37) |
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Leong, C., Lejano, R. Thick narratives and the persistence of institutions: using the Q methodology to analyse IWRM reforms around the Yellow River. Policy Sci 49, 445–465 (2016). https://doi.org/10.1007/s11077-016-9253-1
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DOI: https://doi.org/10.1007/s11077-016-9253-1