C.
GIANSANTE,*
M.
AGUILAR,*
L.
BABIANO,**
A.
GARRIDO,***
A. G6MEZ,***
E.
IGLESIAS,***
W.
LISE,***
L.
MORAL,*
B.
PEDREGAL*
Ins i u ional
Adap a ion
o
Changing
Risk
o
Wa e
Sca ci y
in
he
Lowe
Guadalqui i
Basin*
ABSTRACT
His o ically,
he
Spanish
wa e
managemen
model's
p edominan
goal has
been
esou ce
augmen a ion.
This
mindse
has
had
impo an
consequences
o
he
sys em's
capaci y
o
cope
wi h
d ough s.
I
has
impac ed
he
sys em's
o e all
ulne abili y,
he
discou se
o
sca ci y,
he
concep ualisa ion
o
isk,
and
he
s akeholde s'
in e es s
and
hei
app oach
o
isk.
The
aim
o
his
a icle
is
o
p esen
he
adi ional
hyd aulic
pa adigm,
and
i s
cu en
c isis
and
implica ions
o
p esen
and
iu u e
isk
managemen ,
and
o explo e
s akeholde
and
ins i u ional
eac ions
and
adap a ion
o
changing
isk
scena ios.
The
adap a ion
p ocess
will
be
amed
wi hin
he
wide
con ex
o
mac o- ends, such
as
ma ke isa ion
and
e-scaling
o
ins i u ions
and
global
wa ming.
INTRODUCTION
TO DROUGHT
AND
SPANISH
SOCIETY
This
a icle
will
explo e
he
managemen
o
wa e
sca ci y
and
d ough
in
he
Lowe
Guadalqui i
Basin
wi hin
he
b oade
amewo k
o
he
socie al
and
ins i u ional
esponses o
clima e
change
and
o
he
inc eased possibili y
o
ex eme
hyd ological
e en s
in
Eu ope.
The i s
*
Depa men
o
Human
Geog aphy,
Facul ad
de
Geog a a
e
His o ia,
Uni e si y
o
Se ille,
Spain;
e-mail:
[email p o ec ed].
**
Depa men
o
An h opology,
Facul ad
de
Geog a ia
e
His o ia,
Uni e si y
o
Se ille,
Spain.
***
Depa men
o
Ag icul u al
Economics,
E.T.S.
Ingenie os
Ag 6nomos, Uni e sidad
Poli cnica
de
Mad id,
Spain.
*
Ins i u e
o
En i onmen al S udies
(IES),
V ije
Uni e si ei , Ams e dam
*
This
pape
is
pa
o
he
esea ch
p ojec
Socie al
and
Ins i u ional
Responses
o
Clima e
Change
and
Clima ic
Haza ds:
Managing
Flood
and
D ough
Risks
(SIRCH),
which
has
been
unded
by
he
En i onmen and
Cliam e Change
Resea ch
P og amme
o
he
Eu opean
Commission
(Con ac
no.
ENV4-CT97-0447).
Due o he
uniquely
Eu opean
loca ion
o
some
o
he
sou ces
ci ed in
his
a icle,
he
Na u al
Resou ces
Jou nal
was
no
in
a
posi ion
o
e i y
some
o
he
sou ces ci ed. None heless,
i
is hough
ha
he
in o ma ion
and
pe spec i es
will
be
o
in e es
o
he
eade
and
o
impo ance
in
he
ongoing
dialogue ega ding ansbounda y esou ces.
Fo
ques ions
ega ding
he
a icles
o
he
sou ce ma e ials,
please
con ac
he
au ho s.
NATURAL
RESOURCES JOURNAL
impo an
ac o
o no e
is
he
ma ked
spa ial
and
empo al
clima ic
a iabili y
o
he Spanish
clima e.
In
Spain,
he
adi ional
wa e
manage-
men
model,
"hyd aulic
pa adigm,"
has been
esou ce-o ien ed.
1
As
a
esul ,
he
o e all
spa ial
de elopmen
model
o
he
coun y,
including
ag icul u al,
u ban,
and
indus ial
sec o s,
is
based
on
he
social
econs uc-
ion
o
he
wa e
en i onmen .2
This
model
has
had
impo an
consequences
o he
wa e
sys em's
capaci y
o
cope
wi h
isk.
I
has
impac ed
he
sys em's
o e all
ulne abili y,
he
discou se
o
sca ci y,
he
concep uali-
sa ion
o
isk,
and
he s akeholde s' in e es s
and
app oaches o isk.
The
sys em
has
become
mo e ulne able
o ,
a
bes , main ained
i s
le el
o
ulne abili y
a e
each
d ough
episode
in
he
pas
ew
decades.
3
The
cu en
s a egy,
which a ou s
esou ce
augmen a ion,
has
caused
he
inc eased
ulne abili y.
Encou aged
by
he
misplaced pe cep ion
o
g ea e
secu i y,
abundance,
and
access,
wa e
"demand"
has
isen
as
addi ional
wa e
supply
has been
made
a ailable.
4
The
socio-economic
impac s
o
he
1990's
d ough
demons a e
he
s ain
on
he
wa e
sys em.
Se e al
million
u ban
Andalusian
consume s
expe ienced
se ice
cu s
o
a
maximum
o
12
hou s pe day and housands
o
i iga ion
a me s
wen
wi hou
any
i iga ion
wa e
o
h ee
consecu i e
yea s.
5
The
lack o
i iga ion
wa e
caused
di ec
losses
o
3
o
4.2
billion Eu os
and
also
caused
losses
o
he
20,000
a m
wo ke s
who
los
hei
jobs.
6
Due,
in
pa ,
o he
wa e
c isis
b ough
on
by
he
1990's
d ough ,
cu en
wa e
managemen
p ac ices
ha e
been
in ensely
deba ed
o e
he
las
decade.
Fu he mo e,
he
idea
ha
he
wa e
sys em
is
in
c isis
is
gaining
accep ance
among
bo h wa e
manage s
and
s akeholde s.
7
Bu ,
he
adi ional
pa adigm
s ill
has ins i u ional
ine ia
and
social
suppo
behind
i .
The
ension
be ween he
iew
ha
he
wa e
sys em
is
in
c isis
and
he
ins i u ional
ine ia
and
s ead as
social
suppo
has
esul ed
in
an
"uns able
s agna ion"
in
Spain's
wa e
policy.'
This
a icle
examines
he
cu en
wa e
managemen
pa adigm's
abili y,
o
cope
wi h p esen
and
u u e
isks
and
explo es
he
p ocess o
1.
Leand o
del
Mo al
&
Da id Sau ,
Changing
Cou se:
Wa e
Policy
in
Spain,
THE
ENVIRONMENT,
12-15,
July-Aug.
1999.
2.
Fo
he de ini ion
o
social
cons uc ion
o
he wa e
en i onmen ,
see
E ik
Swyngedouw,
Mode ni y
and
Hyb idi y:
The
P oduc ion
o
Na u e:
Wa e
and
Mode nisa ion
in
Spain
97-112 (1997)
(unpublished
epo ,
on
ile
wi h
au ho s).
3.
Monica
Aguila
e
al.,
D ough
Risk
in
he
Lowe
Guadalqui i
Basin:
Social
and
Ins i u ional
Responses
o
Clima e
Change
and
Clima ic
Haza ds,
in
SIRCH
PROJECT
FINAL
REPORT
(Feb.
2001).
4.
Id.
5.
EMASESA,
CRONICA
DE
UNA
SEQUJA
1992-1995
49-50
(1997).
6.
Id.
a
105.
7.
Aguila
e
al.,
sup a no e
3,
a
5.1.
8.
Id.
a
ch.
3.
[Vol.
42
INSTITUTIONAL
ADAPTATION
ins i u ional
adap a ion
o
changing
isk
scena ios.
We
es ed
he
adi ional
pa adigm's
abili y
o
adap
by
modelling
di e en
isk
scena ios.
These
scena ios
inco po a ed
he
possible
impac s
o
clima e
change
on
he
o e all
a ailabili y
o
wa e
esou ces
and
on
he
equency
o
ex eme e en s.
9
They
also
inco po a e
o he
mac o
ends
ha
gene a e
u u e
unce ain y."°
THE
INSTITUTIONAL
LANDSCAPE
Ins i u ions, p e iously de ined
as
egula ised
pa e ns
o
beha -
iou
ha
can
be
o mal,
in o mal,
s a egic,
o
ope a ional,"
a e
di icul
o
cap u e
because
o
he
di icul y
o
de ining
clea
bounda ies
and
sepa a ing
di e en
ope a ional
le els
a
he
global,
na ional,
egional,
i e basin,
and
local
le els.'
2
The e o e,
he
desc ip ion
o
wa e
managemen ins i u ions
in
his
sec ion
will
no
be
sys ema ic.
Ins ead,
we
will
p o ide
an ins i u-
ional
landscape
upon
which
i
will be
possible
o
obse e
he
p ocess o
ins i u ional
adap a ion and
change.
A
he
o mal,
legal
ins i u ional
le el,
he
co ne s one
o
Spanish
wa e
policy
is
he
1985
Wa e
Ac ,
which
es ablished
he
cu en
wa e
managemen amewo k
and
con e ed
a
key
ole
o
hyd ological
planning.
3
The
wo
main
aspec s o
his
legisla ion
a e
he
wa e planning
amewo k
and
he
inancial
and
economic
public
wa e
amewo k.
The
Wa e
Planning
F amewo k
The
main ins umen s
o
wa e
managemen
and
planning
es ablished
by
he
1985
Wa e
Ac
a e he
na ional
wa e plan,
Plan
Hid ol6gico
Nacional
(PHN),
and
he i e
basin
wa e
plans,
Planes
Hid ol6gicos
de
Cuenca
(PHCs),
o
Spain's
17
i e basins.
4
Th ough
he
echnical se ices
o
he
Minis y
o
En i onmen ,
Depa men
o
Wa e
9.
The
Spanish
clima e
change
deba e
is s ill
in
an
emb yonic s age,
bu ,
i
i has me i ,
i s implica ions
o
Spain's
wa e
sys em
could
be
eno mous.
F ancisco
J.
Ayala-Ca cedo,
De
la
poli ica
hid dulica
a
la
poli ica
de
agues
sos enible,
90
TEcNOAMBIENTE
5-9
(1999).
10.
Leand o del
Mo al
e
al.,
Global ends and
managemen
o
clima ic
wa e
isks,
in
SIRCH
FINAL
REPORT,
sup a
no e
8,
a
ch.
14.
11.
This
means
ha
ins i u ions/ ules
o
beha iou
can
in luence
he gene al
s a egy/pe spec i e
ha
should
be
adop ed
o
ackle
a
p oblem
(in
his
pa icula
case,
na u al
esou ces
managemen )
o ,
al e na i ely,
can
manda e
he
ope a ional ules
ha
should
be
applied.
12.
See
gene ally
SIRCH,
Socie al
and Ins i u ional
Responses
o
Clima e Change
and
Clima ic
Haza ds:
Managing
Changing
Flood
and D ough
Risk
(Ka en
Bakke
ed.,
1998).
Ins i u ions
can
also
be
desc ibed
as egula ised
pa e s
o
beha iou ,
which a e
socially
cons uc ed,
bo h
o mal
and
in o mal,
and
ela i ely s able.
13.
Ley De
Aguas,
B.O.E.,
1985, 189.
14.
Id.
a .
38.2,
71.1.
Summe
2002]
NATURAL
RESOURCES
JOURNAL
and
Coas s,
he cen al
go e nmen
is
in
cha ge o
d awing
up
he na ional
hyd ological
plan.
The
i e
basin
wa e
plans
(PHCs)
a e
d a ed
by
he
i e basin
au ho i ies.
Acco ding
o
wa e
legisla ion,
he main
goals
o
hese
documen s
a e
o
o ecas
u u e
wa e demands,
o design
plans
o
mee
hose
demands
(gene ally en
and
wen y-yea
planning
ho izons
a e
used), as
well
as
o
es ablish quali a i e
objec i es
o
he
basin's
su ace
wa e .
15
The
legal
amewo k
also
asse s
ha
Spain's
wa e
policy
should
coo dina e
wi h o he planning
policies
ha
may
a ec
hyd ological
plans."
The
o he
majo
planning
policies
ha
a ec
wa e
managemen
plans
a e
ag icul u al
policy
7 and
ene gy
policy."
8
The
legal
amewo k
also
equi es
ha
na ional
wa e
policy
no
only
coo dina e
wi h
bu
mus
be
compa ible
wi h
en i onmen al
conse a ion
policies.
9
The
p ocess
o
d a ing,
discussing,
and app o ing
na ional
and
egional
i e basin
wa e
plans
is
an
ex emely
long,
complex,
and
con inuous
p ocess.
A
i s
d a
o
he
na ional
wa e
plan
was p esen ed
in
Ap il
1993.20
This
d a
was
p emised
on
he
no ion
ha
he na ional
hyd ological
imbalance
be ween
wa e - ich
and
wa e -poo
egions
should
be
co ec ed
and p oposed
e-dis ibu ing
wa e
esou ces
be ween basins
ia
a
na ional
wa e
g id,
Sis ema
In eg ado
de
Equilib io
Hid aulico
Nacional
(SIEHNA).
1
The
1993
d a
also
p ojec ed conside able inc eases
in
wa e
demand
based
on
a
p ojec ed inc ease
in i iga ion
su ace o
600,000
ha
by
2012.
22
This
d a
was
widely
c i icized
by
a ious adminis a i e
sec o s
and
by
he
public.'
In
addi ion
o he
nume ous
and
a ied en i onmen al
objec ions,
he
Minis y o
Finance c i icised
he
plan
o
i s
lack
o
inancial
igou and
o
i s
ailu e
o
coo dina e
wi h
ela ed
sec o s.
24
Ag icul u al
15.
Real
Dec e o
de
29
de
Julio,
a .79.1,
R.C.L.,
1988,927.
16.
Id.
a .
95;
Ley De
Aguas,
B.O.E., 1985,
189,
a .
38.4.
17.
Th ough
he egional
compe ence
wi hin
he
amewo k
o
he na ional economic
objec i es
and
he
EU
Common Ag icul u al
Policy
(CAP).
18.
The
use o
la ge
olumes
o
wa e
o
ene gy
p oduc ion
pu poses (hyd opowe dams
and
cooling
sys ems)
can
gene a e
con lic s
wi h
o he
use
sec o s,
such
as
i iga ion and u ban
supply.
19.
Ley De
Aguas,
B.O.E.,
1985, 189,
a .
40(d).
20.
MINISTERIO
DE
OBRAS
POBLICAS
Y
TRANSPORTES,
PLAN HIDROLOGIcO
NACIONAL
MEMORIA
(1993).
21.
Id.
a
100-10.
22.
46
pe cen
in
domes ic
supply,
14
pe cen
in
i iga ion
ag icul u e
and
25
pe cen
in
indus y
o
he
yea
2012.
23.
Minis e io de
Medio
Ambien e,
Lib o
Blanco
del
Agua
19-20,
a
h p://www.mma.es/ echid/lib ojb/sin esis.pd
(Dec. 4,
1998);VIC OR
P
aR-DIAZ
ET
AL.,
POLITICA
Y
ECONOMIA
DEL
AGUA
EN
ESPA4A
42-51
(1996).
24. P REz-DIAZ
E
AL.,
sup a
no e
23,
a
57.
[Vol.
42
INSTITUTIONAL
ADAPTATION
expe s,
who
c i icized
he Plan,
we e
also
conce ned because his
d a
had
comple ely o e looked
a ious
mac o-economic ac o s
such
as
he
Gene al
Ag eemen
on
Ta i s
and
T ade
(GATT)
ea y.'
A
he
same
ime,
egional
go e nmen s in
"wa e
de ici "
i e
basins
we e
clamou ing
o
highe
ans e olumes.
26
Meanwhile, ou c y
in
wa e - ich
i e
basins agains
he
ans e
plan
g ew.
In
ac ,
one o
he "wa e - ich"
egions,
A ag6n,
whe e
mos
o
he ese oi s
o
he Py enean
moun ainous
egion
o
he
na ionwide
wa e
ans e sys em
would
be
loca ed,
has
campaigned
igo ously
agains
he
PHN
p ojec . As
a
esul
o
he
ex ensi e
c i icism,
he Minis y
o
Public
Wo ks
and
T anspo a ion
p epa ed
a
scena ios
analysis
documen
ha
sligh ly
modi ied he c i e ia
o
u u e
wa e
demand
scena ios
while
main aining
he
gene al
p io i ies
o
he
1993
d a .
27
Mos
impo an ly,
he Spanish Pa liamen
decided
ha
app o al
o
he
PHN
should
be condi ioned
on
he
app o al
o
bo h
a
na ional
i iga ion
plan
and
on
all
he i e
basins'
hyd ological
plans.'
The
yea s
ollowing
he publica ion
o hese
wo
o icial
documen s
we e cha ac e ised
by
ins abili y
and
s agna ion.
Du ing
his
pe iod,
which
coincided
wi h
he long
and
se e e
1991-1995
d ough ,
he
wa e
deba e
became
a
high
p o ile
poli ical issue.'
The
planning
p ocess
had
eached
an
impasse.
3
The
main
opposi ion
pa y
a
he
ime,
he
Pa ido
Popula
(PP),
blamed
he
planning
impasse
on
he
PSOE's
3'
inapp op ia e
wa e
managemen app oach?2
In
Ap il
1996,
a
new go e nmen ,
led
by
he
conse a i e
opposi ion
pa y,
Pa ido
Popula ,
was
elec ed
wi h
high
expec a ions.'
Rep esen a i es
o
he
newly
c ea ed Minis y
o
he
En i onmen ,
MIMAM,
p omised
apid
app o al
o
he
PHN
du ing
hei
e m.
The
mechanism
o
he
app o al
was
supposed
o be
enhanced
25.
Id.
26.
See,
o
example, discussion
o
he
Andalucia
egional
go e nmen 's
demands
o
highe ans e
olumes
in
Joan
Co omina ,
El
Plan
Hid ol6gico
Nacional
en
Andalucia
y
la
Di ec i e
Ma co
sob e
poli ica
deaguas
in
NUNOGRANDE,
PEDRO
ARROJO,
&JAViERMARTINEZGIL,
IL
CONGRESO
IeugIco
SOBRE
PLANIFICAION
Y
GESTION
DE
AGUAS
313-18 (2000),
a ailable
a
www.us.es/cibe ico.
27.
SECRETARIA
DE
ESTADO
DE
POL TcA
TERRITORIAL
Y
OBRAS
POBUCAS,
MINs KO
DE
OBRAS
POBuCAS,
TRANSPORTEYMEDIOAMBIENTE,
PLAN
HIDROLOGIcONACIONAL,
ANALISISDE
EscENARIos
(1994).
This
documen
main ained
he
no ion
o
na ional
hyd ological
imbalance,
SIEHNA,
and
he
p io i y
gi en
o
la ge-scale
in as uc u e
e sus demand managemen
and
con ol
and wa e
sa ing.
28.
Minis e io
de
Medio
Ambien e, sup a
no e
23,
a
410.
29.
VICTOR
P z-D Az
ET
AL,
sup a
no e
23,
a
59-67.
30.
Id.
a
69-71.
31.
The
PSOE
is
he
Spanish
socialis
pa y.
32.
Bo el
modi ica
el
Plan
Hid ol6gico
an e
las
c i icas
a
An ep oyec o:
El
PP
exige
1a
e i ada
del
p oyec o,
EL
PAIS,
Ma .
23,
1994.
33.
El
gobie no desliza
en
el
BOE
sin
deba e
un
miniplan
hid ol gico
de 216.000
millones,
EL
PAIS,
Sep .
8, 1998,
a
22.
Summe
20021

NATURAL RESOURCES
JOURNAL
dialogue.'
The
enhanced
dialogue
was o be
suppo ed
by
a
whi e
pape
on wa e .
The
whi e
pape
would
be
designed
o
each consensus
on
wha
c i e ia
and p io i ies
should guide he
subsequen
elabo a ion
o
wa e
plans.'
Bu ,
a
he
same ime,
he
Pa ido
Popula
was
a guing
ha
he
e y
na u e
o
he
wa e -planning
amewo k
needed
o
become
mo e
lexible
o
allow o
mo e
oom
o
economic
managemen
o
he
esou ce.
6
The
Pa ido
Popula
ne e
implemen ed he
o me
app oach.'
In
Augus
1998,
be o e
he
whi e
pape
on
wa e
was
published'
and
be o e
he
na ional
i iga ion
plan was
adop ed,"
he
go e nmen
app o ed
each
and
e e y
i e
basin
wa e
plan.'
As
app o ed,
he
plans
we e
i ually
he
same as
he
d a s
om
he
ea ly
1990s.
1
'
The
new go e nmen
jus i ied
i s
su p ising
decision
by
cha ac e izing he
wa e plans
as
non-binding
lis s
o
possible p ojec s.'
2
This
cha ac e iza ion
implied
a
signi ican change
in
he
ole
o hyd ological
planning,
a
change
unsuppo ed
by
any
legisla i e
e o m.
A
ew
mon hs
la e , in Feb ua y
2000,
he Minis y
o
Ag icul u e,
Food
and
Fishe ies,
MAPYA,
abled
he
na ional
i iga ion
plan
a e
a
b ie
ound
o
in o mal
con ac s
and
consul a ion
wi h
he
egions'
and
use s'
associa ions.'
Since
he
wa e
basin
plans
we e
app o ed,
he e
has
been
a
s iking
dec ease
in
planned
i iga ion
su ace:
he
1998
i e
basin
wa e
plans
en isioned
1,200,000
ha
o
new
i iga ion
su ace,
bu
he
na ional
i iga ion
plan
o
2000
educed
his
o
250,000
ha
o
new
i iga ion
su ace
34.
Bo el
modi ica
el
Plan
Hid oldgico
an e
las
c icas
al
An ep oyec o:
El
PP
exige
la
e i ada
del
p oyec o,
sup a
no e 32.
35.
Id.
36.
Id.
37.
Id.
38.
The
Whi e
Pape
on
Wa e ,
ha
was
only
eleased
by
he
Minis y
o
he En i onmen
(MIMAM)
a
he
end
o
he same
yea
(Decembe
1998)
a e
an
ex ensi e concep ual
and
his o ical
e ision,
s ill
held
as
alid he
high
p ojec ions
o
u u e
i iga ion
wa e demand
and
su aces
included
in
p e ious wa e planning
documen s.
In
addi ion,
i
ailed
o
p o oke
he
announced open
and
public
deba e,
especially
because
i
came
oo
la e
o
be
eally
ele an
in he discussion
on
he
i e
basin
wa e
plans.
See
gene ally
MINSTERIO
DE
MEDIO
AMBIENTE,
LIBRO
BLANCO
DEL
AGUA
EN
ESPAIRA
(1998).
39.
Ac ually,
a
i s
Na ional
I iga ion
Plan
was
abled
by
he o me
go e nmen
in
Feb ua y
1996
and
did
no
become
ope a ional
due
o he
change
in
go e nmen
in
sp ing
o
1996.
40.
Real
Dec e o
1664,
July
24,1998.
41.
They
had
been p e iously
discussed
and
endo sed
by
he
Na ional
Wa e
Council
(CNA)
in Ap il
1998,
wi h
he only
nega i e o es
om he
ep esen a i es
o
he
en i onmen al
o ganisa ions.
42.
Pe sonal
communica ion
wi h
Josd
Luis
Blanco,
Wa e
S a e
Sec e a y
(Ma .
1999).
43.
This
documen
was
mean
o
comply
wi h
he
Ma ch
22,1994,
decision o
he
Spanish
Pa liamen ,
which
u ged
he
go e nmen o p esen
a
Na ional I iga ion Plan
be o e
he
Na ional
Hyd ological
Plan
could
be
app o ed,
al hough
he
discussion
in
Pa liamen
occu ed
a e
he
app o al
o
he
i e basin
wa e plans.
[Vol.
42
INSTITUTIONAL
ADAPTATION
by
2008."
Fu he mo e,
he
new
250,000
ha
igu e
includes
138,365
ha
o
p e iously
planned
and
pa ially implemen ed
i iga ion
su aces
( egadios
en
ejecuci6n);
79,426
ha
o
i iga ion
su aces
jus i ied on
social
g ounds
( egad os
socials);
and
25,000
ha
o
p i a e
ini ia i e
i iga ion
su aces."
The
Minis y
o
En i onmen
abled
a
new
d a
o
he
PHN
in
Sep embe
2000.
This
d a
had
subs an ially educed
he
planned
olume
o
in e -basin
ans e s
and
concen a ed
he
wa e
ans e
bu den
on one
"dono "
basin,
he
Eb o
i e
basin.'
The
.1993
d a
o
he na ional wa e
plan
had
o iginally
en isioned
ana ion-wide
in e -basin
ans e
ne wo k
ha
would
ha e ans e ed
a
o al
o
3768
Mm
3.
The
2000
PHN
d a
elimina es
ans e s om
he Tagus
and
Dou o
basins,
which a e sha ed
wi h
Po ugal,
o
Medi e anean basins.
47
The
only ans e
he
2000
PHN
d a
con empla es
would
be
om
he
Eb o
i e
basin
o he
Medi e anean
basins.
4
Acco ding
o he
e ms o
he
2000
PHN,
he
Eb o
basin
would
ha e
o ans e
200
Mm
3
o
he
Ca alonia
basin,
400
Mm
3
o he
Segu a
basin,
300
Mm
3
o he
Ji ca
basin,
and
100
Mm
3
o he Su basin,
mos
no ably o
he
Alme ia
i iga ion
su aces.
49
The
o al
ans e ed
olume
in
he
2000
PHN
is
jus
o e
hal
o
he
ans e
olume
se
ou
in he
1993
d a .'
E en
so,
he
p oposal has
eopened
old
in e - egional
wounds
and
has
a oused
conside able
poli ical
opposi ion
om
he
egional go e nmen
o
A ag6n, he
Eb o
basin's
la ges egion."
The
Economic
F amewo k o
Spain's Wa e
Policy
The
economic
amewo k
o
Spain's
wa e
policy
has
adi ionally
been
based
on wo
main
ea u es:
a
gene ous
subsidy
sys em
and
a
wa e
igh s
egime.
The
subsidy
sys em has
allowed
he p oli e a ion
o
ex ensi e
s a e- unded
wa e
egula ion
schemes
and
he
wa e
igh s
egime equi es
44.
Minis y o
Ag icul u e,
Food
and
Fishe ies,
Plan
Nacional
de
Regad os
2000,
a
h p://www.mapya.es/indexa/busca.asp?si io=h p%3a2 %2 www2emapya%2ees%2
desa %2 pags%2 pn %2 ega%2eh m
(las
isi ed
Oc .
28,2002).
45.
Id.
46.
Minis y o En i onmen ,
2000,
a
h p://www.mma.es/ ec-hid/plan._hid o/
planhid o.h m.
47.
Id.
48.
Id.
49.
Id.
50.
The
1993
d a
planned
on ans e ing
1855
Mm3,
1.5
million
ac e- ee ,
o
wa e
o
wa e -poo
basins,
see
MINIS ERUO
DE
OBRAS
PO
UCAS
Y
TRANSPORTE,
sup a
no e
20,
he
new
d a
only
plans
o
ans e
1000
Mm
3,
0.81
million
ac e- ee ,
o
wa e
solely
om
he
Eb o
basin.
See
Minis y
o En i onmen ,
sup a
no e
46,
a
102-08.
51.
A ag6n
lide 6
el
"no"
al
ans ase
que
inundd
la
Pue a
del
Sol,
EL
HERALDO
DE
ARAGON,
Ma .
12,2001,
a ailable
a
h p://www.he aldo.es.
Summe
2002]
NATURAL RESOURCES
JOURNAL
[Vol.
42
all
use s
o
he
public
wa e
domain
52
o apply
o
a license
o use
wa e
ha
go e ns
he
e ms
o
ha
use.
The
i e
basin au ho i y'
can
g an
licenses
o
a
maximum
o
75
yea s
and
can
only
g an
licenses o
he
uses se
ou
in
he
licensing
documen .5
Bo h
he
subsidizing
and
he
licensing
sys em
ha e
been deba ed
and
pa ially
e ised in
ecen
yea s.
55
T adi ionally, Spanish
economic
wa e
egula ion
has
been
in
line
wi h
he
p inciples
o
lexible
supply
and
he
belie
ha
gene ous
s a e
subsidies
we e
necessa y
o
o e come
he
se ious
economic
and
social
de ici s a ec ing
Spain
a
he beginning
o
his
cen u y.'
The
1985
Wa e
Ac
es ablished s o age
cha ges
and
a es,
he
canon
de
egulaci6n
y
a i as.
57
The
income
om
hese
ees is
designed
o help
he
go e nmen
eco e
he
cos o
i s
in es men s
on
dams
and
o he
hyd ological
wo ks,
mainly
canals,'
as
well
as
o
co e
hei
ope a ion
and
main enance
cos s
s9
Despi e
a emp s
o
e ise
he
old
sys em
o
subsidies,
he
1985
Wa e
Ac
only succeeded
in
main aining
i ;
he
end
esul
o
he
cha ges
and
a es
is
o subsidise
bulk
wa e
by
abou
40
pe cen
o
o al
in es men .'
In
gene al,
hese cha ges
ha e
been
ha d
o
apply and
di icul
o
collec .
61 Fu he mo e,
he
unds
hey gene a e
a e
mani es ly
insu icien
52.
The
1985
Wa e
Ac
es ablished
ha
all
enewable
eshwa e --bo h
su ace
and
g oundwa e -is
pa
o
he public
domain.
53.
The
i e
basin
au ho i y
g an s
licences
based
on
a
gene al
o de
o
p e e ence
es ablished
by
he
Wa e
Law:
public
supply
(including
indus ies
connec ed
o
municipal
supply
ne wo ks);
i iga ion
and
ag icul u al
uses;
elec ic
supply; o he indus ial
uses;
ish
a ming; ec ea ional uses;
na iga ion
and
i e
anspo ;
and
o he
uses.
54.
Ley
De
Aguas,
B.O.E.,
1985,189,
a .
57.4.
55.
1999
Wa e
Ac ,
B.O.E.,
1999,298.
56.
The
co ne s one
o
his policy was
he
La ge
Hyd aulic
Wo ks
Ac
o
7
July
1911,
which
de ined ou
possible
a enues
o
ca ying
ou
hyd aulic
wo ks:
(1)
execu ion
by
he
p i a e
sec o ,
wi h
a
s a e
subsidy
o
up
o
30
pe cen
o
he
cos o
la ge-scale
hyd aulic
wo ks
in
addi ion
o
a
p emium paymen
(by
he
s a e)
"pe
li e
pe
second"
o
i iga ion
wa e
used;
(2)
execu ion
by
associa ions
o i iga o s,
wi h
a
subsidy
o
up
o
50
pe cen
o
he
cos ;
(3)
execu ion
by
he s a e,
wi h
he
suppo
o
he
i iga o s
a ec ed,
wi h
a
subsidy
o
up
o
50
pe cen
and
low
in e es
loans o
up
o
40
pe cen
(mos
common
choice); (4)
execu ed
en i ely
by
he
s a e.
57.
In
addi ion,
he
1985
Wa e
Ac
also
es ablished
he
wa e
domain
occupa ion
cha ge
(candn
de
occupacidn)
o
he
physical
occupa ion
o
pa s
o
he wa e
domain ( i e
beds
and
banks)
and
he
wa e pollu ion
cha ge
(candn
de
e ido)
o
he
p o ec ion
o
hose
wa e cou ses
ecei ing
pollu ing
discha ges.
58.
Ley
De
Aguas,
B.O.E.,
1985, 189,
a .
106.1
(canon
de
egulaci6n).
59.
Id.,
a .
106.2
( a i as
de
u ilizaci6n).
60.
All
wa e
acili ies
supplied
by
wa e wo ks
(dams,
channels,
e c.)
a e
buil
and
un
wi h public
subsidies.
This
subsidy
ises
o
90
pe cen
when he
condi ions o
he
Ac
o
1911
a e
applied.
"Bulk
wa e "
e e s
o
all
wa e
ha
is
anspo ed
in
la ge-scale
ne wo ks,
be o e
i
en e s
he
end-use dis ibu ion
ne wo ks.
In
he
case
o
d inking wa e ,
his
is
be o e
i is
ea ed
o
d inking wa e
pu poses.
61.
Minis y o
he En i onmen ,
1998,
sup a no e
38,
a
556.
INSTITUTIONAL
ADAPTATION
o co e
he
amo ized
cos
o
in es men
in
and
ope a ion
o
hyd aulic
sys ems.
2
In
addi ion
o he
cha ges
applied
o
bulk
wa e ,
u ban
and
ag icul u al
end-use s ha e
o
pay
ope a ion managemen
and
dis ibu ion
cos s
o
wa e
companies
o
o i iga ion
communi ies.'
In
mos i iga ed
zones,
wa e
p ices
a e
no
assessed
on he
basis
o
he
olume
o
wa e
used,
bu
as
a
pe
hec a e
cha ge.6'
Ra es
ange
om
6
o
198
$/ha.1
Due
o
his a iabili y
in
p ices
in
each
geog aphical
a ea
and
he
ac
ha
each
a me
applies
di e en olumes
o
wa e
pe
hec a e,
he
a e age
p ice
o
wa e ,
including
bulk
wa e
and
i iga ion
associa ion cha ges,
is
di icul
o calcula e.
Based
on
he
a e age
consump ion
o
abou
7000
m3
/ha,
a
ough
es ima e
o
he
p ice
pe
cubic
me e
is
0.0158
$/m3
(0,0167
Eu o/m);
howe e ,
his igu e a ies
wi h
c op
di e ences.'
In
he
a ious d a s
o
he
amendmen
o
he
1985
Wa e
Ac
(1997-1999),
se e al
p oposals
we e
made
o
modi y
di e en
aspec s o
he
wa e
a i
sys em.
6
'
Bu
he
only
change
in
he
inal
ex
o
he
amendmen
app o ed
in
1999
was
one
ha
in oduced
he
obliga ion
o
me e
wa e and
a
sys em
o incen i es
and
penal ies
o
use s
ha
de ia e
om
a
baseline
olume
o
wa e
use.'
The
opposi ion
o
business
o ganisa ions,
ag icul-
u al
associa ions,
and
pa icula ly
o
powe ul
hyd opowe
in e es
g oups
p e en ed
he
in oduc ion
o
mo e
adical
changes,
such
as ull-cos
eco e y
o
a
non- enewable
esou ce/en i onmen al
impac
su cha ge
o
wa e
use.'
While
he
a i
sys em has
no
signi ican ly
changed,
he
mechanisms
o
inancing
public
hyd aulic wo ks
a e
likely
o
be
a ec ed
62.
Minis y
o
he En i onmen ,
1998,
sup a
no e
38,
a
557.
The
amoun
is ixed
and
upda ed
annually, aking in o
accoun
ope a ion
cos s,
4
pe cen
o
he
alue
o
in es men s
made
by
he
S a e- he
echnical
amo isa ion
o
he
wo ks
and
ins alla ions--and
he
dep ecia ion
o
he
cu ency.
The
o al
pe iod
o echnical
amo isa ion
o
in es men s
is se
a
50
yea s
o
ese oi s
and
a
25
yea s
o canals.
63.
These cos s,
and
he
way
hey
a e
calcula ed,
a y
g ea ly.
In
domes ic
uses,
o
ins ance, p ices
a y g ea ly om one
place
o
ano he , depending
on se e al
ac o s:
wa e
municipal
policy,
bodies
in
cha ge
o
adminis a ion,
cos s
o
he
se ice,
le el
o
was e
wa e
ea men , and o he s.
64.
Jos9
MARIA
SUMPSI
E"
AL.,
ECONOMIA
Y POLICA
DE
GESTION
DEL
AGUA
EN
LA
AGRICULTURA,
a
148, 148-51
(1998).
65.
Id.
66.
Id.
67.
Consuelo Giansan e
e
al.,
L'"
olu ion
des
modali s d'alloca ion
de
la
esou ce
en
eau
en
Espagne,
48
REVUE
D'ECONOMIE
MERIDIONALE
(REM)
235,
235-48
(2000).
68.
Id.
a
240.
69.
So
a
he
p ices
paid
o
wa e
use
a e
only aimed
a
eco e ing-pa ially
o
comple ely- he
cos s
o p o ision,
anspo a ion,
o
ea men ,
bu
ne e
o
pay
o
he
esou ce
i sel ;
he
access
o which,
hough egula ed
by
a
wa e
igh
sys em,
is
conside ed o
be
ee
o
cha ge.
Summe
2002]
NATURAL RESOURCES
JOURNAL
esponsible
o
assis ing
he i e
basin
au ho i ies
wi h
he
cons uc ion
and
managemen
o
public
wa e
wo ks."9
The
c ea ion
o
such
companies
a
he
i e
basin
le el
is
based
on
a
con ac
(con enio)
be ween
he
s a e
adminis a ion
and
he
mixed
capi al
company 20
The
con ac
go e ns
cons uc ion
and
managemen
condi ions
o
wa e wo ks as
well
as
inancial
con ibu ions
made
by
he s a e
and
p i a e
sec o . Se e al
o
hese
mixed capi al companies
ha e al eady been
c ea ed; o example,
he
Aguas
de
la
Cuenca
del
Guadalqui i
S.A.'
2
was
se
up
in he
Guadalqui i
basin
in
1999.
This
legisla ion
e lec s
he
impac
o
global
changes
ha
will
be
explo ed
u he
in
he nex
sec ion.
THE
WIDER
CONTEXT
OF
CHANGE
The
ongoing
and
likely
u u e
changes
in
he
d ough
managemen
p ac ices
in
he
Guadalqui i
basin
a e
embedded in
he
gene al p ocesses
occu ing
a
he
global
scale,
he
mac o
ends
ha
a ec
he
basin
in
di e en
ways."
Ou
o
he
gene al
landscape
o
change,
i e
mac o
ends
ha
a e
pa icula ly
ele an
o
he
ield
o
wa e
managemen
can
be
iden i ied.
The
i s
mac o
end,
which
is obse able
bo h
in
Spain
as
well
as
in
o he
coun ies,
is
a
building
a mosphe e
ha
a ou s solu ions ha
inco po a e
"sca ci y
indica o s,"
ma ke ins umen s,
and
gi es
p i a e
business
a
la ge
ole,
wha
could
gene ally
be
de ined as
ma ke isa ion.'"
These
solu ions
include
economic
analysis
o
wa e
uses
and
ull
cos
eco e y,
bo h
o
which
would
change
he
cu en
concep
o
wa e
de ici
and
would
also change
how
d ough
coping mechanisms
a e
p io i ised."
These
solu ions
ha e
impo an
consequences
o
in as uc u e, which
is
119.
A .158,
Law
13/96
(auxilia y
egula ion
o
he
Gene al S a e
Budge
o
1997)
o
1996;
Ka en
Bakke ,
F om
s a e
o
ma ke ?:
Wa e
me can ilizacid6n
in
Spain,
34
ENV'T
&
PLAN.
A
767,
777-79
(2002).
120.
BAKKER
ET
AL.,
sup a
no e
82,
a
8.
121.
The
s a u es
o
he company
es ablish
as
one
o
i s
objec i es
he
"managemen
o
wo ks
and
wa e
esou ces, including
en i onmen al
managemen
o
aqui e s,
lagoons,
ese oi s,
i e s
and
s e ches
o
i e ,
as
well
as
he
p epa a o y
o
complemen a y
ac i i ies,
de i ed
om
he
o me
ones,"
hus
opening
he
ield
o
wa e
managemen
o
p i a e
egula ion.
122.
Following
he
s uc u al
heo y
o
A.
Giddens,
locale
is
a
consubs an ial
ac o
in
he
cons i u ion
o
social
ac ion. I
is
no
jus
a
me e
spa ial
pa ame e ,
a
physical
en i onmen
whe e
in e ac ions
happens,
i
is
o med
by
all
he
elemen s
mobilized
as
pa
o
he
in e ac ion.
See
gene ally
del
Mo al
e
al.,
sup a
no e
10.
123.
Bakke ,
sup a no e
119.
124.
A ojo,
sup a
no e
106.
[Vol.
42

INSTITUTIONAL
ADAPTATION
p esen ly s agna ing
due
o
inancial
cu backs."
2
A
he
same ime,
ma ke
ins umen s
a e gaining
legi imacy,
al hough
he
Spanish
people
s ill
ha e
s ong
objec ions
o
ea ing
wa e jus
like
any o he
commodi y.
26
As
a
second gene al
end,
decision-making
powe s
a e
being
ans e ed
in
wo
di e en
di ec ions.
They
a e,
mo ing
owa ds
he
egional
scale
and
owa ds
he
in e na ional
scale.
This
p ocess
has
been
de ined
as
e-scalingY1'
The
inc easing
poli ical ole
o
he egions
makes
wa e
policy
a
lashpoin
o
con on a ion
be ween
egional
and
cen al
go e nmen s."
l
Meanwhile, inc easing
in e na ional in e ac ion
is
also
impac ing Spanish
wa e
policy.
Fi s , he
global
end
owa ds
libe alising
he
economy
a ec s
ag icul u e
and wa e
policy
decisions
and
has
consequences
o
he
local
economy.'
29
A
he
same
ime,
in e na ional
poli ical
powe
cen es
like
he
Eu opean
Union
ha e
become
key
local
ac o s."
0
The
EU
has wo p ima y
wa e managemen
esponsibili ies.
I s
i s
ask
is
o
g an
subsidies
ha
pa ially
co e
he
cos s
o
la ge
wa e
wo ks."'
Bu
i has
also
made
a
gene al
commi men o sus ainable use
o
na u al
esou ces
and
is
esponsible
o
p o ec ing
he
en i onmen s
o
designa ed
si es
ha
may be ad e sely
a ec ed
by
such
wa e wo ks.
2
125.
The
educed
willingness
and
abili y
o
he s a e
o
und wa e wo ks
is
pa
o
a
gene al
end
o
educe
public
sec o
spending
and
o
de-in es
in
s a egic sec o s.
Bakke ,
sup a
no e
119.
126.
Rechazo
undnime a
la
e o ma de
la Ley
de
Aguas
p opues a
po
Isabel
Tocino,
LA
TIERRA,
July-Aug.
1997,
a
22;
Dia io
de
Sessiones
del Cong eso
de
Dipu ados,
17
junio
1999
(no.
247:
13157-13176);
30
de
sep iemb e
1999
(no.
263:13988-14003).
127.
E.
Swyngedouw,
Nei he
global
no
local:
globalisa ion
and
he
poli ics
o
scale,
in
THE
GLOBAL
AND
THE
LOCAL:
MAKING
THE
CONNECTION
(K.
Cox
ed.,
1997).
128.
This
is
exempli ied
by
he
con as be ween
he expansi e
app oach
o
he
i e
basin
wa e
plans-whe e
egional
go e nmen s
and
local
s akeholde s a e
mos
in luen ial--and
he
conse a i e
na ional i iga ion
plan,
which
is
mo e condi ioned
by
he
logic o
ma ke
libe alisa ion.
129.
Sumpsi,
sup a
no e
117.
130.
Asge
Olsen,
The
New
Wa e F amewo k
Di ec i e
o
he Eu opean
Union-Main
p inciples
and
obliga ions.
P ospec s
o
a
sus ainable
wa e
policy
o
he
coming
decades,
in
O'PORTO,
UNA
CITA
EUROPEA
CON
LA
NUEVA
CULTURA
DEL
AGUA:
LA
DIRECTIVA MARCO,
25
(2001).
131.
The
economic
and
social
cohesion
be ween
he
egions o
he Eu opean
Communi y
was
one
o
he
objec i es
included
in
he T ea y
o
Rome
in
1986.
As
a
complemen
o he
T ea y's
single
ma ke ,
opening
up
on ie s
would
expose
he mos
disad an aged
coun ies
o
u he
p oblems.
This
is
pu sued,
among o he ins umen s,
h ough
Eu opean
Regional
De elopmen
Funds
(ERDF)-75
pe cen
EU
and
25
pe cen
membe
s a e
con ibu ions-which
a e limi ed
o
less- a ou ed egions
(such
as
Andalusia)
and
a e
ocused
mainly
on
p oduc i e
in es men s
and
in as uc u e.
132.
A icle
6
o
he
T ea y o
Ams e dam
o
he Eu opean Union
s a es
ha
en i onmen al
p o ec ion
equi emen s
mus
be
in eg a ed in o
he
de ini ion
and
implemen a ion
o
communi y
policies.
Consequen ly, he Eu opean Commission
mus
ensu e ha
p ojec s
de eloped
unde
egional
policy
a e
espec ul o
he
en i onmen .
An
assessmen o
hei
Summe
2002]
NATURAL
RESOURCES
JOURNAL
The
hi d
mac o
end
ela es
o
ongoing,
wo ldwide
changes
in
how
na u e
is
ep esen ed,
pa icula ly ep esen a ions
o
he
cul u al
and
symbolic
alue
o
wa e .'
33
These
changes
a e
c ucial
in
Spain
and
in
he
Guadalqui i
basin
because
hese
alues a e
he co ne s ones
o
he
adi ional hyd aulic
pa adigm.
TM
The
adi ional
pa adigm
is
ounded
on
a
sys em
o
deeply
oo ed
alues
abou
he
ela ionship
be ween
na u e
and
socie y,
35
which
iews he
na u al
wa e en i onmen
as
a
hos ile
se ing
whose
splendou and
beau y
is
enhanced
by
human
in e en ion.
1"M
Ano he
co ne s one o
he
adi ional hyd aulic
pa adigm
is
he
no ion ha
na u e
is
an
obs acle
o
social
and
economic
p og ess
and
mus
be
ans o med
o achie e
modemisa ion.'1
Hence
he
ascina ion
wi h
in e -
basin
wa e
ans e s;
he
adi ional
iew
sees
hese ans e s
as-a
way
o
p og ess
by
o e coming hyd ological
imbalances,
a
na u al
obs acle
o
socio-economic
mode nisa ion."
The
ou h
mac o
end
is
inc eased
pa icipa ion
in
he
wa e
policy
a ena.'
In
pa icula ,
he
ansi ion
o
democ acy (in
1977-1978)
had
majo
impac s
on
he
poli ical,
social,
and
ins i u ional
cha ac e is ics
o
Spanish
li e."
4
While
his
end
has
allowed
a
g ea e
numbe
and
a ie y
o ac o s
o
eel
in ol ed
in
he
wa e
deba e,
he
inclusion/exclusion
p ocess is
dynamic
and
some
s akeholde s
con inue
o be
excluded.
4'
Finally,
he e
is
an
obse able
a emp
o
be e
coo dina e
di e en
sec o
and
go e nmen al
depa men
policies-a
leas
a
he
discu si e
le el,
bo h
in
Spain
and
in
Eu ope
as
a
whole.Y
Fo
example, he
need
o
en i onmen al
impac
mus
be
conduc ed
by
he membe
s a es conce ned.
Addi ionally,
DGXI
(En i onmen )
o
he Eu opean Union
is
esponsible
o he
d a ing
and
implemen a ion
o
a
numbe
o
Di ec i es
on
en i onmen al
p o ec ion
and
wa e ,
such
as
he
Wa e F amewo k
Di ec i e.
133.
Del Mo al,
sup a
no e
10,
a
4,
12.
134.
Id.
135.
Babiano, sup a
no e
98,
a
11-13.
136.
This is
how
human-buil wa e
landscapes
associa ed
wi h i iga ion (o cha ds and
domes ica ed
wa e )
come
o
be alued
as
ideal
and
posi i e
images o
de elopmen ,
o e iding
he possible nega i e
impac s
on
he
wide
na u al
en i onmen .
137.
E.
Swyngedouw,
Mode ni yand
Hyb idi y:
Regene acionismo, he
P oduc ion
o Na u e
and
he
Spanish
Wa e scape,
1890-1930,
89
ANNALS
ASS'N
AM.
GEOG.
443, 443-65
(1999);
Babiano,
sup a no e
98.
138.
Id.
139.
Del
Mo al,
sup a no e
10,
a
5,
19.
140. RAYMOND CARR
&
JUAN
PABLO
FUSI,
ESPARIA:
DE
LA
DICTADURA
A
LA
DEMOCRACIA
(1979); VicToR
P9REZ
DlAz,
LA
PRIMAcIA
DE
LA
SOCIEDAD
CIVIL
(1993)
141.
BAKKER
z
AL.,
sup a
no e
82,
a
27.
142.
A he
Eu opean
le el,
a
numbe
o
ini ia i es
a e
unde way
aimed
a
he coo dina ion
o en i onmen al
p o ec ion
wi h
o he de elopmen
and
sec o al policies.
See
EUROPEAN
CONSULTATIVE
FORUM
ON
ENVIRONMENT
&
SUSTAINABLE
DE .,
THE
EUROPEAN
SPATIAL
PERsPECnI E(1999),a
h p://www.eu opa.eu.in /conmm./ egional-policy/sou ces/doco ic/
[Vol.
42
INSTITUTIONAL
ADAPTATION
ho izon ally in eg a e
wa e
policy
and
ag icul u al
policy
is
an impo an
issue
in
Spain."
4
In eg a ion
is
impo an
enough
ha
in
1994
pa liamen
asked
he Spanish
go e nmen
o
se
ou
a
na ional i iga ion
plan
be o e
pa liamen made
any
decision
abou
a
holis ic
na ional
hyd ological
policy.'"
O
cou se his
is
no
he only
way
o
achie e
policy
in eg a ion;
poli ical
and
academic
discou ses
o en
ci e
spa ial
planning
as
ano he
means
o
achie ing
his
goal.
4s
PHYSICAL AND
SOCIO-ECONOMIC
BACKGROUND
OF
THE
BASIN
Physical
Cha ac e is ics o
he
Lowe
Guadalqui i
Basin
The
Guadalqui i
Basin
has
a o al
ca chmen
a ea
o
57,071
km
2
and
he i e
i sel
is
640
km
long.
The
sou ce
and
es ua y
o
he
i e
a e
bo h
loca ed
wi hin
he Spanish
egion-o
Andalusia,
bu
a
small
pa
o
he
ca chmen a ea
(abou
10
pe cen )
is loca ed
in h ee
o he
Spanish
egions,
Ex emadu a,
Cas illa-La
Mancha,
and
Mu cia
(Figu e
1).
In
i s
las
s e ches,
he
Lowe
Guadalqui i
Basin
(LGB)
co e s
an
a ea
o
17,085
km
2
ha
includes he
Andalusian
capi al,
Se ille
(Figu e
1).
The
mean
annual
p ecipi a ion
in he
Guadalqui i
basin
is
596
mm,
which
is
ela i ely
high
compa ed o he
cen al
Spanish
mese as
o
o
sou heas e n
Spain.
Howe e ,
he
main
ea u e
o
Andalusia
gene ally
and
o
he
LGB
is
spa ial
and
empo al i egula i y.
The
mean
annual
p ecipi a ion anges
om
abou
1500
mm
in
he
moun ainous
a eas
o
400-600
mm
in
he
Guadalqui i
dep ession.'"
The
lowlands
in
he
eas e n
pa
o
he
basin
ecei e
less
han
400
mm
o
mean
p ecipi a ion
a
yea .47
o icial/ epo s/pd /p32_en.pd ;
Cohesion
Funds
and
he
en i onmen ,
a
h p://www.
eu opa.eu.in
/
comm
/
egional-policy
/sou ces/
doco ic
/o icial/
communic/
en i /home.en.h m).
A
he
Spanish
le el,
he
Whi e
Pape
on
Wa e ,
see
Minis e io
de
Medio
Ambien e, sup a
no e
22,
can
be
in e p e ed
as an
e o
o
coo dina e di e en expe ises
and
policy
ields
ela ed
wi h
wa e .
Finally,
in
Andalusia he
c ea ion o
he
Consejo
Andaluz
del
Agua in
1996,
Dec e o
202/1995,
de
1
de
agos o,
and,
mo e
ecen ly
o
a
speci ic
Sec e a ia
o
Wa e
A ai s,
di ec ly
dependen
om
he
P idency
o
he
Andalusian
egional
go e nmen
(Conse i a
de
P esidencia
de
la
Jun a
de
Andalucia)
a e
seen
as
e o s
o
coo dina e he
wa e -
ela ed
esponsibili ies
o
he
depa men s
o Public Wo ks,
Ag icul u e,
and
En i onmen .
143.
I iga ion
ag icul u e
uses
abou
80
pe cen
o
he
o al
wa e
esou ces
in
Spain;
he e o e, he
ag icul u al
policy will necessa ily
g ea ly
a ec
wa e
use.
Minis y o
he
En i onmen ,
sup a
no e
38,
a
384419.
144.
Id.
a
410.
145.
Fede ico
Aguile a
Klink,
Hada
una
nue a
economia
del
agua:
cues iones undamen ales,
a
h p://habi a .aq.upm.es/bole in/n8/a agul.h ml
(May
16,2002).
146.
Aguila
e
al.,
sup a
no e
3,
a
13.
147.
Id.
Summe
2002]
540
NATURAL
RESOURCES JOURNAL
[Vol,
42
Figu e
1.
Map
o
he
Guadalqui i
basin wi hin
Andalusia
and
Spain
NI.
I ,k
i
d" '
i ' .l -0
1
n H
,, o I
ca
/
0
INSTITUTIONAL
ADAPTATION
This
a iabili y
is
agg a a ed
by
he
ac
ha
he
egion's mean
po en ial
e apo anspi a ion
is
in e sely
p opo ional
o
mean
annual
p ecipi a ion
wi h
ex emely
high
alues in he
d y
lowlands
(some imes
mo e
han
1000
mm)
and
lowe alues in he
we e
moun ainous
egions.
1"
Tempo al
i egula i y
has
wo
componen s,
seasonal
o in a-
annual
a iabili y
and
in e -annual
a iabili y,
and
is
simila ly
dis ibu ed
bo h
in he
d y
and
in he
humid
a eas
o
he
Guadalqui i basin.
14
The
in a-annual
a iabili y
o
p ecipi a ion
is
ypical o
he
Medi e anean
a ea."
5°
The
seasonal
pa e n
includes
a
d y
season
o
i e
o
six
mon hs
when e apo anspi a ion
exceeds
p ecipi a ion
and
a
ainy
win e
season,
whichb ings mos
o
he
annual
p ecipi a ion.'
The
ange, pe sis ence,
and
ex eme
alues o in e -annual
a iabili y
a e
also ex emely
high.
Acco ding
o
long
se ies
o
da a
om
me eo ological
s a ions,
he
p ecipi a ion alues
can
ange
om
800
mm o
1100
mm om
one
yea
o
ano he .
152
While
p ecipi a ion
can
a y
widely
om
yea
o
yea ,
i
is
also
ue
ha
yea s
wi h
ex eme
(ei he
low
o
high)
p ecipi a ion alues
end
o be
concen a ed
o e
ime.
This
concen a ion
agg a a es
he
e ec s
o
d ough s.
Las ly,
o en ial
p ecipi a ions
can
be
ex emely
in ense:
5
in
mos
o
he
Lowe
Guadalqui i basin
i
can
ain
up
o
150-200
mm
in
wen y- ou
hou s
(be ween
one- hi d
and
one-hal
o
he o al
annual
p ecipi a ion).15
4
The
mean
annual
enewable
o
na u al wa e
esou ces
55
a e
es ima ed
a
abou
7000
million
cubic
me e s/yea
(5.6
million
ac e-
ee /yea ).'"
Bu
his
a ies
widely
om
yea
o
yea
and
can
ange
om
1
o
17,000
million
cubic
me e s/yea
(13.6
million
ac e- ee /yea ).
1 5'
Fu he mo e,
he
spa ial
and
empo al
clima ic
a iabili y
mean
ha
only
a
po ion
o hese
na u al
esou ces
a e
ac ually
a ailable
a
he ime
and
in
148.
Id.
149.
Id.
150.
Id.
151.
Id.
152.
Id.
a
19.
153.
To en iali y
is
de ined as
he o al
p ecipi a ion
in
a
yea
(nam)
di ided
by
he
numbe
o
days
o
ain.
Id.
154.
Id.
155.
Fo
su ace
wa e ,
annual
enewable
o
na u al
wa e
esou ces
can
be de ined
as
he
long-
e m a e age
eshwa e
olume
supplied na u ally
by
he
hyd ological
cycle,
de i ed
om
he o al
un-o (su ace
and
unde g ound)
esul ing
om
ain all
o e
a
i e basin
e i o y
minus e apo anspi a ion.
156.
CONSEJERIA
DE
OBRAS
POBLUcAs
Y
TRANSPORTE
DE
LA
JUNTA
DE
ANDALUCA,
PLAN
DIREcTOR
DE
INFRAESTRUCTURAS
DE
ANDALUCIA
43
(1998).
157.
Id.
Summe
2002]

NATURAL
RESOURCES JOURNAL
he
place
equi ed.'"
These
a ailable
esou ces
( ecu sos
disponibles)
a e
ob iously
a ec ed
by echnological
cons ain s,
as
well
as
by socio-
economic
and
ins i u ional conside a ions.'" Mos
o
he
a ailable
wa e
esou ces
in
he
Guadalqui i
Basin"
6
a e
de i ed
om
su ace
wa e ,
161
while
only
a
small
po ion
comes
om
g oundwa e .
162
In
o de
o
deal
wi h
i s
i egula p ecipi a ion,
he Guadalqui i
Ri e
is
egula ed
h ough
a
ne wo k
o
ese oi s
h oughou
i s
basin."6
The
ese oi s
help o pa ially
con ol
he
na u ally
e a ic
Medi e anean
p ecipi a ion
egime
by
s o ing
win e
lows
o
la e use.
Wi h
mo e
han
60
ese oi s,
he
basin's
ese oi
capaci y
o als
6833
million
cubic
me e s/yea
(5.5
million
ac e- ee /yea )."'
Abou
one
hi d
o
his
olume
(2255
million
cubic
me e s/yea
65 o
1.8
million
ac e- ee /yea )
is
a ailable
as
a e age
annual
egula ed
low.'"
Mos o
he ese oi s
a e
loca ed in
he
Sie a
Mo ena
a ea,
whose impe meable
soils
and
opog aphic condi ions
make
i
ideal
o
wa e
s o age.
67
Impo an
Wa e -Use s
in
he
Lowe
Guadalqui i
Basin
The
mos
impo an
ac o in
he
wa e
esou ces
use
and planning
in
he
Guadalqui i basin
is
he
p ime
impo ance
o
i iga ion ag icul u e,
bo h
in
e ms
o
wa e
use'"
and
in e ms
o
con ibu ion
o
he
Final
Ag icul u al
P oduc ion
(PFA)
o
Andalusia.'"
Da a
on
he
basin's
i iga ion
158.
A ailable
wa e
esou ces,
o
he
a e age
annual
egula ed
low,
can
be
de ined as
he
a e age
wa e
olume
s o ed
in
he ese oi
in
a
yea .
I
is
de e mined
by
he
ese oi
capaci y,
i s
goals
and
managemen
pa e n,
including he
le el
o
gua an ee
o
he use
o
which
i
is
aimed
and
he
hyd ological egime o
he
i e
basin
in
which
i
is
loca ed,
aking
in o
accoun
he p e-exis ing ese oi s
and
o he human
modi ica ions.
159.
Tha is,
a ailabili y
depends
on
he
echnical capaci y
o
build
dams
and
in e -basin
ans e
sys ems
as
well
as
on
he
socio-economic
and
ins i u ional
ac o s
(legal
p o ision,
inancial
suppo ,
ag eemen s
be ween
egions,
e c.)
ha
allow
o
he ac ual
implemen a ion
o hese
echnical
measu es.
160.
A
o al o
2700
million
cubic
me e s/yea ,
equi alen
o
2.1
million
ac e- ee /yea
is
usually
a ailable.
161.
84
pe cen o
2255
million cubic
me e s/yea ,
equi alen
o
1.8
million
ac e- ee /
yea
is
a ailable
om
su ace
egula ion.
162.
16
pe cen o
437
million
cubic
me e /yea
(0.35
million
ac e- ee /yea )
comes
om
g oundwa e
abs ac ion.
163.
CONSEJERIA
DE
OBRAS
POBLICAS
Y
TRANSPORTE
DE
LA
JUNTA
DE
ANDALUCIA,
sup a
no e
156,
a
44.
164.
Id.
a
43.
165.
Id.
166.
Id.
167.
Id.
a
44.
168. 85
pe cen o
2847
million
cubic
me e /yea ,
equi alen
o
2.30
million
ac e- ee /yea .
169.
Wi h
an
i iga ion
su ace
ha
ep esen s
19
pe cen
o
he o al
ag icul u al
land,
his
sec o
con ibu es
abou
53
pe cen
o
he
Andalusian
PFA
(P oduc o
Final
Ag icola).
[Vol,
42
INSTITUTIONAL
ADAPTATION
su ace
is
dispa a e.
O icial.es ima es
ha e been
abou
668,000
ha,
bu
ano he
20
pe cen
o
he
su ace
migh
be
used
o
unlicensed i iga ion.
70
Wi hin he
basin's
i iga ion sys em, he
i iga ion
o
ice
paddies
in
he
Guadalqui i
i e es ua y
(abou
35,000
ha)
is
c ucial:
i s
impo ance
a ises
om i s
high
uni a y
-wa e
use
(9.6,ac e- ee /ha) and
i s loca ion
in
he
lowe
s e ches o
he
Guadalqui i
Ri e ,
which
is
a ec ed
by
he
ides.7'
F om Ap il
o
Sep embe ,
he
ice
i iga ion pe iod,
la ge
olumes
o
wa e
mus
be
eleased
om
he
ups eam
ese oi s
o
he basin o
lowe
he
salini y
in
he es ua y." Du ing
d ough s,
his
elease
o
wa e
c ea es
con lic
be ween
he
ice
g owe s
and
he
es
o
he
basin's
i iga ion
a me s.1
73
Al hough
he
u ban
sec o
demands
less
wa e
(12
pe cen
o
o al
demand)
han
he
i iga ion
sec o ,
i s
needs
a e also
c i ical
o
planne s
because
i
equi es
a
gua an eed
supply
o
high
quali y
wa e
yea - ound.
Th ee
wa e
companies,
EMASESA,
Alja a e
S.A.,
and
po en ially
he
Conso cio
del
Huesna,
supply
he
1.3
million
occupan s
o
he
Se ille
me opoli an
a ea
wi h
130-150
million
cubic
me e s
o
wa e /yea
o
0.10-
0.12
million ac e- ee o
wa e /yea .
74
The
Se ille
wa e
sys em
has
expe ienced
se ious
wa e
sho age p oblems
du ing
each
o
he
1972-1974,
1981-1983,
and
1991-1995
d ough s.
Du ing
he
las
d ough ,
in
addi ion
o
se e e
wa e
a ioning measu es
(be ween
6
and
12
hou s
a
day),
Se ille
had
o use low-quali y
wa e
om
he
Guadalqui i
Ri e .
75
While
he
i e
wa e
was
mixed
wi h
a ying
p opo ions
o
be e quali y
ese oi
wa e
o
g oundwa e ,
i s use
s ill
had
a
nega i e
impac
on
he
quali y
o
po able
wa e .
76
The
impo ance
o
accu a ely
an icipa ing
changes
in
demand
is
unde sco ed
by
he
pace
o
inc eased
demand
o e
he
pas
ew
decades.'"
While
indus ial
demand
ep esen s
only
a
mino
p opo ion
o
o al wa e
use, he e
has
been
a
conside able
inc ease
in ag icul u al
and
domes ic
demand
o e
he
pas
ew
decades.'
These
demands
ha e
been me
by
he
170.
Mo al
I ua e e
al.,
sup a
no e
104,
a
207,
210.
The
illegal
i iga ion
su ace
can
be
de i ed
om
he
di e ence
be ween
he
i iga ion
su ace
ci ed
in
wa e
managemen
documen s
(668,000
ha)
and
he
1999
Andalusian
In en o y
o
I iga ion Ag icul u e,
which
es ima es
he
o al
i iga ion
su ace
a
815,000
ha,
hus
including
illegal
(i.e.
unlicensed)
i iga ion
su aces.
171.
CONFEDERACION
HIDROGRAFICA
DEL
GUADALQUVIR,
PLAN
HIDROLOGICO
DEL
GUADALQUIR
50(1995).
172.
Id.
a 50.
173.
del
Mo al
I ua e
e
al.,
sup a
no e
104,
a
211.
174.
Giansan e
e
al.,
sup a
no e
98,
a
6.
175.
BAKKER
ET
A ,
sup a
no e
82,
a
28.
176.
See
id.
(discussing
lexibili y
in
wa e
quali y
s anda ds du ing
imes
o
d ough ).
177.
Minis y
o En i onmen , sup a no e
38,
a
339-42, 385.
178.
Id.
Summe
2002]
NATURAL
RESOURCES JOURNAL
esou ces
in
he
Basin's
ex ensi e
ne wo k
o
ese oi s."
The
o al
a ailable
wa e
esou ces
in he
Guadalqui i
basin ep esen
as
much
as
40
pe cen
o
he
o al
na u al wa e
esou ces.
8'
(See
Table
1.)
Bu ,
his
is
s ill
insu icien
o
mee
p esen
demand.
18'
P esen
demand
ou paces
a ailable
esou ces
in
he
Guadalqui i
i e
basin
by
241
million cubic
me e s
(0.2
million
ac e- ee /yea )
acco ding
o he
Andalusian Depa men
o
Public
Wo ks
and
T anspo .
" Fu he mo e,
d a
na ional
and
i e
basin
hyd ological
plans, and
o he
s a egic
planning
documen s,
p ojec
signi ican
inc eases
in
domes ic,
ag icul u al,
and
indus ial
wa e demand
bo h
in
he
Guadalqui i
i e
basin
and
in
he es
o
Spain.'
'
Unsu p isingly, demand
p ojec ions a e
he
mos
con o e sial aspec o
he
wa e
esou ces
planning
deba e in
Spain.
Table
1.
Basic
Da a
on
Wa e
Resou ces
in
he
Guadalqui i
Basin
Na u al
wa e
esou ces
5.6
million
ac e- ee /yea
To al
a ailable
wa e esou ces
2.1
million
ac e- ee /yea
-
Su ace
wa e
1.8
million
ac e- ee /yea
-
G oundwa e
0.35
million
ac e- ee /yea
To al numbe
o
ese oi s
60
Rese oi
capaci y
5.5
million
ac e- ee /yea
Modelling
he
Economic
Impac
o
D ough and
Cu en
Wa e
Managemen
S a egies
on
he
LGB
The
LGB
egion's
ema kable
a iabili y
has
his o ically
had
impo an
implica ions o
he
ins i u ions
ha mus
y
o manage
he
i egula i y
and
deal
wi h
he
isk
o
wa e
sca ci y.'
Bu
so
a ,
ew
e alua ions
o
he
socio-economic
impac s
o
d ough s
exis .
Fu he mo e,
179.
CONFEDERACION
HiDROGRAFICA
DEL
GUADALQUIVIR,
sup a no e
171,
a
72.
180.
CONSEJERIA
DEOBRAS
PBLICASYTRANSPORTE
DE
LA
JUNTA
DE
ANDALUCIA,
sup a
no e
156,
a
43.
181.
Id.
a
61.
182.
Id.
These
es ima es a e
pa
o
he
poli ical
deba e
on
wa e and
a y
acco ding
o
he
ci cums ances.
Fo
example,
in
a
ecen
documen
he Andalusian
egional
adminis a ion
accep s
he es ima e
o
he
Guadalqui i
Ri e Basin
Plan,
acco ding
o
which
he
wa e
de ici
in
1992
was
602
million
cubic
me e s
o
0.5
million
ac e- ee .
CONSEJO
ANDALUZ
DEL
AGUA,
ANDALUCIA
Y EL
PLAN
HIDROLOGICO
NACIONAL
(2000).
183.
CONFEDERACION HIDROGRAFICA
DEL
GUADALQUwIR,
sup a
no e
171,
a
51-63.
184.
Aguila
e
al.,
sup a
no e
3,
a
51-52.
[Vol.
42
INSTITUTIONAL
ADAPTATION
o he
han
some
pa ial
analyses o
he
u ban
supply
se ice
ailu es
and
d ough
impac s
on
he i iga ion
sec o ,
no
comp ehensi e
e o
has
been
made
o
comple ely
e alua e
he
economic,
impac
o
he
1991-1995
d ough ."
5
Fo
he
lowe
Guadalqui i basin,
howe e ,
a
ma hema ical
p og amming model
was
ecen ly
de eloped
o e alua e
he
economic
impac s
o
he
d ough ."
8
The
model
is
based on
ealis ic
assump ions abou
a me s'
abili y
o
an icipa e
wa e
sho ages
and labou
and
capi al
ma ke
igidi ies."
8 7
I
also
makes
assump ions
abou
how
a me s
e ise
hei
p oduc ion plans
as
new
in o ma ion
becomes a ailable."
In Table
218
we
summa ise
he
esul s
o
he simula ions
ca ied
ou
o
ep esen a i e
a ms
in
wo i iga ion
dis ic s
o
he
lowe
Guadalqui i basin.
The
ela ionship
be ween
social
d ough s,
ailu es
in
he
wa e
sys em
ha
impac
socie y,
and
me eo ological
d ough s,
p ecipi a ion
i egula i y,
is
non-linea
and depends
on
social,
ins i u ional,
and
physical
p ocesses.se
Run-o
de i ed
ese oi
in lows
la gely
depend
on
soil
mois u e
and
ain all
egimes.
1 91
Table
3
shows he
complex
links
be ween
pu ely
me eo ological
p ocesses
and
hyd ological
ou comes.
A
simple
compa a i e
analysis
o
he
da a
ega ding
he con e sion
o one
uni
o
ain all
in o
uni s
o
ese oi
in lows
be ween
he
yea
1989-1990
and
he
yea
1992-1993
shows
a
sha p
con as .192
In
1989-1990,1.41
uni s
o
ain all
gene a ed
one
uni
o
ese oi
in low,
bu
du ing
he
i s
yea o
he
1991-1995
d ough
32
uni s
o ain all
we e
equi ed
o
gene a e
a
uni
o
185. EMASESA,
sup a
no e
5.
186.
See
gene ally
E a
Iglesias
e
al.,
E alua ion
o
d ough
managemen
in
i iga ed
a eas,
(Oc .
19,2000)
(unpublished pape ,
on
ile
wi h
au ho s).
187.
Minis y o
he En i onmen ,
1998,
sup a no e
38,
a
345.
188.
Id.
a
340.
189.
As
used
in
Table
2,
"s ock"
s ands
o
he pe cen age
o
s o ed olumes
o e
s o age
capaci y
o
he
ese oi (s)
ha
se ice
each
i iga ion dis ic
a
he beginning
o
Feb ua y;
"wa e
allowance"
is
he
pe
hec a e
i iga ion
wa e
olume
supplied
in
each
i iga ion
season. Whe eas
he
p e ious
wo
a iables
a e
de i ed
om
ac ual
da a
on
he
decisions
made (wa e
allowance)
by
wa e
manage s
in
he
Guadalgui i
basin
based
on
speci ic
ese oi
le els
(s ock)- he
ollowing
a iables
a e
calcula ed by
he model. "Shadow
p ice"
ep esen s
he
dual
alue
associa ed
o he wa e
a ailabili y alloca ed
o
a me s
each
season,
"g oss
ma gin"
is
he
di e ence
be ween
o al
e enues and
a iable
cos s,
"ne
bene i s"
a e
de ined
as
he
di e ence
be ween
o al e enues
and
a iable
cos s,
and " alue
o
p oduc ion"
s ands
o
he ma ke
alue o
he
ag icul u al
ou pu .
Finally,
"hi ed
labou "
is
he
amoun
o
pe son-days
pe
hec a e
gene a ed
by
ex e nal
wo ke s.
190.
Minis y o
he
En i onmen ,
1998,
sup a
no e
38,
a
167,250.
191.
Minis y
o
he
En i onmen ,
PLANHIDROLOGICONACIONAL, ANALJISDE
LOS
SISTEMA
HiDRAuucos
210
(2000).
192. EMASESA,
sup a
no e
5,
a
53.
Sumnme
20021
NATURAL
RESOURCES
JOURNAL
agmen a ion.
1
The
main di isions in he
adi ional
wa e communi y
un
ac oss
he
ollowing
lines:
(1)
di e ences
be ween
legal
and
illegal
i iga ion a me s,;
2
(2)
di e ences
ela ed o he
size
o
ag icul u al
plo s;
(3)
di e ences
be ween
ups eam
and
downs eam
i iga ion
a me
in e es s;
(4)
di e ences
ela ed o
speci ic
wa e
equi emen s,
especially
o i iga ion
echnology;
(5)
di e ences
ela ed o he
c op ypes;
and
(6)
di e encesbe ween he
in e es s
o
su ace
wa e
and g oundwa e
use s.'
While
he
di e ences
in ag icul u al
plo -size
we e
an impo an
agmen a y
o ce
du ing
he
d ough
o
he
1990s,2m
a
p esen
he mos
salien
agmen a y
o ce
comes
om
di e ences
in
wa e demand.
Demand
is
di ec ly
ela ed
o
an
i iga o 's
le els
o
echnology
and
e iciency
and
may
be
a
key
impe us
o
u u e
change.m
The
echnological
di ide
wi hin
he
i iga ion
communi y
has
majo
implica ions
o
he
managemen
o
wa e
s ocks.
New
dis ic s
ha
ha e
high
e iciency
con eyance
and
dis ibu ion
sys ems
can
unc ion be e
wi h
limi ed
esou ces,
while
olde i iga ion
dis ic s need la ge
wa e
olumes o
unc ion
well.'
As
a
esul , dis ic s
wi h
newe
echnology
end
o
a ou
smalle
wa e
allowances
and
endo se
mo e
conse a i e
s a egies
o
managing
wa e
s ocks
while
dis ic s
wi h
olde equipmen
oppose
wa e
allowance
educ ions
because
hey
lack
he
echnology
o
adequa ely
adap
o
ha
change.'3
The
i iga ion sec o 's
dynamism
was
demons a ed
du ing
he
1999
i iga ion
season,
which
was
a
b eaking
poin
o
adi ional
wa e
alloca ion
p ac ices.'
As
a
esul
o a
e y
d y
au umn and
win e , he
wa e
egula ion
sys em
o
he
Guadalqui i basin
had
only
12,000
m3
/ha
o
wa e
le
a
he beginning
o
he
1999
i iga ion
season.' Ini ially,
he
Guadalqui i
i e
basin
au ho i y p oposed
eleasing
one- hi d
o
his
olume,
4000
m3
/ha,
du ing
he
cu en
season,
in
exchange
o
a
231.
del
Mo al
I ua e e
al.,
sup a
no e
104,
a
292-94.
232.
This
is
an
ex emely ele an
issue
due
o he
impo ance o
illegal
i iga ion (bo h
in
e ms o
o al su ace
and
wa e use)
and
lack
o
con ol
in
he
basin.
233.
Gene ally,
when
his was
possible,
a me s
op ed
o
he
d illing o
(mos ly
illegal)
wells
in
o de
o
cushion he
consequences
o
he
es ic ions
o
he
gene al
i iga ion
ban.
Gi en
he
almos
comple e
lack
o
con ol o
g oundwa e
abs ac ions,
he
Guadalqui i
i e
basin au ho i y
(CHG)
and
i s
pa icipa o y
bodies
almos enounced
conside a ion
o
he
g oundwa e
cycle,
excep
in
he
las
and mos
d ama ic
phases
o
he
las
d ough .
234.
del
Mo al
I ua e
e
al.,
sup a
no e
104,
a
294.
The
plo -size
spli
was
exempli ied
bes
by
he
deba e
on
he
alloca ion
o
wa e
acco ding
o
social
c i e ia.
235.
del
Mo al
I ua e
e
al.,
sup a
no e
104,
a
293.
236.
Id.
237.
Id.
a
295
238.
Id.
a
298-99.
239.
Minu es
o
he Wa e
Release
Commission (Ma .
1999)
(con iden ial
documen ,
on
ile
wi h
au ho s);
del
Mo al
I ua e
e
al.,
sup a
no e
104,
a
298-99.
[V/ol.
42

INSTITUTIONAL
ADAPTATION
gua an eed
i iga ion
supply
o
4000
m3
/ha
o
he
ollowing
wo
yea s.'
This
s a egy
would
ha e
educed
he
u u e, isk
o he i iga ion
communi y in
he e en
o
a
new
mul i-annual
d y
spell.
The
i iga ion
sec o ejec ed
his
p oposal
ou igh and p essu ed
he
i e
basin
au ho i y
in o
g an ing
a
6000
m3
/ha
wa e
allowance in
Ma ch
o
1999.4
In
July
o
1999,
his
olume
was
inc eased
o
8000
m3
/ha.
242
Fo
he
i s
ime
in
he
Guadalqui i
basin's
ecen
his o y,
he
decision
o
inc ease
he
i iga ion
wa e
allowance
ga ne ed
ha sh
social
and
poli ical c i icism.'
Al hough
his
s a ed
o
open
a
issu e
in he
hegemonic
discou se,
he
si ua ion
is s ill
e y luid.
All
o hese cha ac e is ics
pain
a
po ai
o
an
ex emely
dynamic
i iga ion
sec o
ha
exhibi s
di e gen
app oaches
o
wa e
alloca ion,
o
i s
collec i e
ba gaining
s a egies,
and
o
i s discou ses. I
is
impo an
o
no e
ha
al hough
wa e
alloca ion is
a
basic
unc ion
o
wa e
managemen ,
he
discou ses
a ou ing
wa e
e-alloca ion
as
an ins umen
o
cope
wi h
wa e
sca ci y
ha e
only
ecen ly
eme ged.
2'
The
wa e
e-
alloca ion
discou se
o en
diame ically
opposes
he
dominan
discou se,
which
a ou s
esou ce
augmen a ion
as
he
de ini i e
solu ion
o
Spain's
s uc u al
wa e
de ici .
2
Game
Theo y
Analysis
o
Fa ming
Sec o
Incen i es
and
S a egies
Using he
wa e
alloca ion
p oposals
and
p ac ices om
he
1999
i iga ion
season, we
used
game
heo y o
analyse
he
incen i es
and
s a egies
o
he
a ming
sec o
ega ding
wa e
allowances.'"
A
s a ic
wo-
agen
game
whe e
wo
a me s
compe e
o
wa e
esou ces
yielded
240.
Minu es
o
he
Wa e
Release
Commission,
sup a no e
239;
del
Mo al
I ua e e
al.,
sup a no e
104,
a
298-99.
241.
Minu es o
he
Wa e
Release
Commission,
sup a
no e
239;
del
Mo al
I ua e
e al.,
sup a
no e
104,
a
298-99.
242.
Minu es
o
he Wa e
Release
Commission,
(July
1999)
(con iden ial
documen ,
on
ile
wi h
au ho s); del
Mo al
I ua e
e
al.,
sup a
no e
104,
a
298-99.
243. A
local
newspape published
on
i s
on page
he
ollowing
headline:
"The
same
olume
as
a
six
yea
wa e
supply
o
he
ci y
o
Se ille
was di e ed
o
i iga ion
pu poses."
See
Des iada
pa a
egadlo
an a
agua
como
Se illa
consume
en
seis ailos,
DIARIO
DE
SEVILLA,
Sep .
1,
1999.
The
new
elemen
is
he
shi
in
ocus
om
a
claim
o
mo e
ese oi s-as
a
solu ion
o
he
d ough - o
he c i ique
o how
he
emaining
wa e
had
been
managed
and
alloca ed,
wi h
a special conce n
o
he possibili y
o
a
ailu e
in
he
u ban
supply
sys em.
244.
del
Mo al
I ua e
e
al.,
sup a no e
104,
a
299-300.
245.
The
concep o
s uc u al
wa e
de ici
and
he
ea men
o
unce ain y
wi hin
Spanish
wa e planning
is
analysed
in
Leand o
del
Mo al
I ua e
&
Consuelo Giansan e, Cons ain s
o
D ough
Con ingency
Planning
in
Spain:
he
Hyd aulic
Pa adigm
and
he
Case
o
Se ille, 8
J.
CONTINGENCIES
&
CRIsIS
MGmT.
93(2000).
246.
See
gene ally Wei ze
Lise
e
al.,
A
game
model
o a me s'
demands
o
i iga ion
wa e
om ese oi s
in
Sou he n
Spain
(Ma .
23,
2000)
(unpublished
pape ,
on
ile
wi h
au ho s).
Summe
2002]
NATURAL
RESOURCES JOURNAL
di e en
equilib ia
ac oss
he h ee
i iga ion
dis ic s
o which he
game
was
applied,
Bajo
Guadalqui i ,
El
Via ,
and
Genil-Cab a.
Fa me s
in
a
sel -
managed
i iga ion
dis ic
such
as
El
Via
end
o
be
conse a i e
and
sa e
wa e
in he
ese oi s
o
he nex
seasons.
Bu ;
in
cen ally
managed
i iga ion
dis ic s,
such
as
Bajo
Guadalqui i
and
Genil-Cab a,
a me s
end
o
demand
wa e
ins ead
o
sa ing
i .
247
Modeling a me s'
s a egies
as
a
epea ed
game
enabled
us
o
analyze
how
he
p e e ences
o a
high-demand
s a egy
depend
on
he
inhe en
isk
le el
o
he
hyd ological a iables.
Unde
he
cu en
condi ions,
a
epea ed
game
demons a es
ha
a
mo e
demanding
s a egy
is
op imal
o
a me s
in
bo h
ypes
o
i iga ion
dis ic s.
28 Howe e , an
ex eme
clima e
change
scena io
ha
subs an ially
inc eases
he isk
o
d ough
c ea es
an
incen i e o
a me s
o
become
mo e
conse a i e-
assuming
he e
a e
en o ceable
ules
o
p o ec
a me s'
wa e
igh s.
249
This
indica es
ha
a me s ac ually
do
eac
o
p esen
hyd ological isks,
bu
jus
no
enough
o
achie e
equilib ium
wi h
clima ic
pa e ns.
These
indings
suppo
he
hypo hesis
ha
mo e
anspa en wa e
igh s
ha
spell
ou
he
igh s
and
du ies
o
he
wa e
sys em
bene icia ies
may
c ea e
a
g ea e
incen i e o
a me s
o
accep
p oposals
ha
manage
wa e
s ocks
o e
ime,
such
as
he
one
made
by
he
Guadalqui i
i e
basin au ho i y
in
1999.'
Speci ically,
i
a me s'
wa e
igh s
we e
gua an eed
ac oss
seasons
hey
would
be
much mo e
willing
o
coope a e
wi h
mo e
conse a i e
s a egies
han
in
he
cu en
sys em
ha
pools
unused
wa e
igh s
alloca ions
om
p e ious
yea s
and
new
in lows
be o e
beginning
he
alloca ion p ocess o
a
new
yea ."
EVALUATING
THE WATER
ALLOCATION
DECISIONS
IN
THE
LOWER
GUADALQUIVIR
BASIN
To
e alua e he
e iciency
o
he
wa e
alloca ion
decisions
made
by
wa e
manage s
in
he
lowe
Guadalqui i
basin
in
he
1991-1998
pe iod,
we c ea ed
an
Economic
D ough
Managemen
Index
(EDMI)
and
applied
247.
Sel -managed
i iga ion
dis ic s
( o
example
El
Via )
a e
he e
de ined
as
hose dis ic s
whose
supplies
depend
exclusi ely
on
one
ese oi
and
a e only
aimed
a
i iga ion
pu poses.
On
he
o he hand,
cen ally
managed
i iga ion
dis ic s
( o
example
Bajo
Guadalqui i )
depend
on
a
la ge
numbe
o
ese oi s
h oughou
he
basin,
which a e
sha ed wi h
o he
i iga ion
dis ic s
and
wa e
use
sec o s ( o
example,
u ban
supply).
In
bo h
cases,
he
managemen
o
wa e
s ocks
is
supe ised
by
he
i e
basin au ho i y.
248.
Sel -managed
dis ic s
and
cen ally-managed
dis ic s.
249.
The
a me s
a e
acing
a
so-called
p isone 's
dilemma.
250.
Lise,
e
al.,
sup a
no e
246,
a
244.
251.
Id.
[Vol.
42
INSTITUTIONAL
ADAPTATION
i
o
da a
om he a ea.-
2
The
index
adds
an
economic
dimension
o
clima ic
and
hyd ologic
in o ma ion
and
can
assis
wa e
manage s
by
p o iding
in o ma ion
abou
he
economic
isk
o
hei
s a egies along
wi h
he
cos
o
educing
ha
isk.
The
main
appeal
o
he
EDMI
is
ha
i
combines
ou
key
pieces
o
in o ma ion in
an
easily
in e p e able
index:
(1)
he
s uc u al
cons ain s
o
a
supply
sys em
based
on
ese oi s,
(2)
he
s ochas ic
na u e
o
na u al
un-o s
lowing
in o he
s o age
acili ies,
(3)
he
ins i u ional
ules
ha
ha e
been
ollowed
by
wa e
manage s
du ing
he
pe iods
o
his o ical eco d,
and
(4)
he bene i s
acc uing
o
he
consump i e
use s.
An
EDMI
esul
uses
he
a io
o
he
p esen
use- alue
o
wa e
and
he
expec ed
use- alue
o
he
wa e
le
in
s ock
o
p o ide
a
measu e
o
he
oppo uni y
cos
o
employing
a
mo e
conse a i e,
wa e -sa ing
managemen
s a egy. An
EDMI
a io
o one
indica es
ha
he
wa e
managemen
s a egy
is
pe ec ly
e icien
because
he
oppo uni y-cos
o
sa ing he
wa e
equals
i s expec ed use- alue
o
he
ollowing
i iga ion
season.
I
he
EDMI
a io
is
less han
one,
he
cos o
sa ing
one
wa e
uni
is
less
han
he
expec ed
use- alue
o
he
ollowing
yea
and
e eals
ha
he
wa e
manage s
a e
ha ing
an
exceedingly
isky managemen
beha iou .
I
he
EDMI
a io
is
g ea e
han
one,
he
oppo uni y-cos
o
sa ing one
wa e
uni
is
g ea e
han
he
bene i s
i
would
gene a e
he
ollowing
yea
and
wa e
should
be
used
in
he
cu en
season.
Table
4
epo s
he
EDMI
a ios calcula ed
o
he
El
Via
(EV)
and
he
Bajo
Guadalqui i
(BG)
i iga ion dis ic s,
using
da a
a ailable
o each o
he
nine yea s om
1990
h ough
1998.
Table
4.
Ac ual EDMIs
o
he
EV
and
BG
Supply
Sys ems
(1990-1998)
Yea
EV BG
S ock
on Wa e
EDMI
S ockon
Wa e
EDMI
Feb.
1 (%
o
allowance
Feb.
1 (%
o
allowance
capaci y),
(ac e- ee /ha)
capaci y)'
(ac e- ee /ha)
1990
91
7.54
0.170 37
5.01
0.030
1991
60
5.88
0.650
26
4.42
0.080
1992
42
4.60
0.640
21
2.54
1.040
1993
13
0.62 3.820
15
0.06 36.180
1994
35
3,86
0.806
18
0.73 6,350
1995
9
0
9.540
11
0
11.890
1996
95
5.80 0.760 36
4.76
0.66
1997 92 5.90 0.182
89
6.39
0.007
1998
93
5.90
0.750
87
7.05
0.940
'Sou ce,
Unpublished
epo
iuix
i e
bas
252.
See
gene ally
E a
Iglesias
e
al.,
An
Economic
Managemen
Index o E alua e
I iga o s'
Vulne abili y o Wa e
Sho ages (Oc .
19,
2000)
(unpublished pape , on
ile
wi h au ho s).
Summe
2002]
NATURAL
RESOURCES JOURNAL
The
EDMI
alues
epo ed on
Table 4
show
se e al
cases
o
ine icien
managemen .
To
be
ai ,
please
no e
ha
he
EDMI
a ios
we e
compu ed based
on
a e age
in low
alues
ha
did
no
an icipa e he ea ly
1990s
d ough .
E en
so,
EDMI
a ios in
1991
a e
less
han
one
in
bo h
dis ic s, indica ing
a
need
o
lowe
wa e
allowances
in
he
1991
i iga ion
season.
The
ese oi
in lows
o
he
12
mon hs
ollowing
Feb ua y
1,1991,
we e
below a e age,
esul ing in
lowe
s ock
alues
on
Feb ua y
1,
1992,
han
in he
p e ious yea .
Howe e ,
he
EDMI
a io
o
he
Bajo
Guadalqui i
dis ic
hi
i s
op imal
alue
in
1992
wi h
a
wa e
allowance
o
2170
m3
/ha,
which
was
his o ically
low
bu
e icien .
El
Via 's
1992
and
1994
decisions
con as
sha ply
wi h
ha
e iciency.
The
1992 EDMI
a io
was
0.64;
he
1994
(a
yea
be ween. wo ex emely
d y
ones)
EDMI
a io
was
0.80.
Al hough
Bajo
Guadalqui i
EDMI' a ios
ha e been
e y
high
since
he
hyd ological
d ough
s a ed
in
1992
and
un il
i s
end
in
1995,
when
ain all
le els
eco e ed,
h oughou
he
d ough
pe iod no
ac ion
could
be
aken o
mo e
hem
close
o
one
simply
because
he e was
no
wa e
le
in
he ese oi s. Tha
said,
he
Bajo
Guadalqui i dis ic
in
1990
and
1991
was managed
wi h
EDMI
a ios
close
o
ze o,
when
s ocks
we e
a
37
and
26
pe cen
o
ese oi
capaci y
espec i ely.
I
wa e
manage s
had
eac ed
a
he
ime,
he
e ec s
o
he
se e e
1992
o
1995
d ough s
migh
ha e
been
pa ially
mi iga ed
o
pu
o
un il
he
las
wo
yea s
o
he
d ough
pe iod.
All
EDMI
a ios
a e
1996
a e
less
han
one
in bo h
i iga ion
dis ic s.
This
indica es
ha
bo h
sys ems
a e
unning
ine icien ly
and
a
e y
high
isk
le els.
These
esul s
also
indica e
ha ,
so
a ,
wa e
manage s
ha e aken
en i ely
oo
much
isk.
The
high
isk
le el
sugges s
ha
lowe
maximum
wa e
allowances
a e
accep able
and
ha
a
conse a i e,
wa e
sa ing
s a egy
should
be
implemen ed
as
soon
as
ese oi
ne wo k
wa e
le els
s a
o
d op.
The
EDMI
a ios
con i m
ou
ini ial
hypo hesis
ha
he cu en
ules
o
i iga ion
wa e
allowances
and
o
managing
ese oi wa e
s ocks
a e
highly
ine icien .
I
also
sugges s
ha
he
ecen
amendmen o
he
Wa e
Ac ,
which
imidly in oduces
wa e
ma ke s,
may
all
sho
o
expec a ions because
wa e
igh holde s
a e
no
gi en
su icien
gua an ees
o
owne ship
o e
he
esou ces
le in
he
ese oi .
This
unce ain y
makes
i
unclea
whe he
he
wa e
le will
be
a ailable
ei he
o
sale
in
he
ma ke
o
o
u u e
consump ion.
This
e ec i ely
limi s
he
ole o
he
ma ke
o
he
alloca ion o
he
esou ces
a ailable
in
a
single
i iga ion
season.
The
single
season
ocus
dis o s
sca ci y
signals,
which
may
gi e
incen i es
o
de e
consump ion
a
he
onse
o
d ough s and
so en
he
supply
a iabili y
inhe en
o he Medi e anean
clima e.
[Vol.
42
INSTITUTIONAL
ADAPTATION
CATALYSTS
AND
INHIBITORS
OF
INSTITUTIONAL
CHANGE
The e
a e
iden i iable
ca alys s
o change
wi hin
he
lowe
Guadalqui i
basin
ha
a e
likely
o
in luence
he
wa e
sys em's
abili y
o
cope
wi h
p esen and u u e
isks.
In
his
ega d,
e en
hough
clima e
change is
no
ye
a
majo ca alys
o change
in
Spain,
i
may
signi ican ly
a ec
u u e
wa e
managemen
scena ios.'
Clima e change
has
ei he
been
igno ed
o
w i en
o
as
an
en i onmen alis
conce n.
Al hough
i
has
ecen ly
a oused
g ea e
in e es ,'
i s possible
e ec s
con inue o
be
excluded om discussions
o
p esen
wa e
managemen
op ions.'s
This
a i ude
is
uelled
by
he pe cep ion
ha
he
exis ing
unce ain ies he
wa e
planning
p ocess
aces,
such
as
es ima ing
p esen wa e
esou ces,
p ojec ing
socio-economic
ends,
p ojec ing
wa e demands,
p edic ing
sho
e m ho izons,
lack
o
con ol,
and
lack
o
c edibili y
a e
g ea e
han
clima e
change
unce ain ies.'
In
poin
o
ac ,
wa e
mange s
end
o
iew
he
cu en
imbalance as
a
good
p oxy
o
an
in e media e
clima e
change
scena io.2
Howe e ,
in
he
sho
e m,
clima e change
is
no
likely
o
be
a
ca alys
o change, as
wha
is
pe cei ed
as
a
ch onic
wa e
de ici seems
o
be
a
mo e
u gen
issue o
ackle.
One o
he
ac o s
likely o
enhance
adap a ion
in he
d ough
managemen
p ac ices is
g owing public,
expe ,
poli ical,
and
media
awa eness
o
he con inuing
c isis
he
p esen wa e
sys em
aces.'
This
c isis
is
o en
blamed
on
he uncon olled expansion
o
i iga ed land
o e
he
pas
wo
decades.'
The
mos
ecen
d ough
has
played
a
key
ole
in
253.
Ayala,
sup a
no e
215.
254.
The
issue
o
clima e change
is conside ed
in
he
Whi e
Pape
on
Wa e
and
in
he
las
d a
o
he Na ional
Hyd ological
Plan
(Sep .
2000)
and
is
ecei ing
inc easing
a en ion
in
he
media
and
expe
ci cles.
255.
The
clima e
change
scena ios
ha e
no
been
conside ed
in
he
es ima e
o
u u e
a ailable
wa e
esou ces
in
any planning documen .
See
CONFEDERACION
HIDROGRARCA
DEL
GUADALQUI iR,
sup a no e
171.
256.
These
ideas
a e
de i ed
om
a
semina
on
clima e
change
o ganised
by
he
Se ille
SIRCH
eam,
o
which se e al
expe s and wa e manage s
om
he
basin
we e
in i ed.
See
SIRCH,
WORKSHOP ON
CLIMATE
CHANGE
AND
WATER MANAGEMENT
SCENARIOS
IN THE
GUADALQUIVIR BASIN
(June
6,2000)
(unpublished epo , on
ile
wi h au ho s).
257.
F om
his pe spec i e,
he
p oblems ela ed
o
clima e change
a e
pe cei ed
as
p esen
and
u gen .
This
pa adoxical
ela ionship
wi h
he
subjec
shows
he
e y
imp ecise
in o ma ion gene ally
a ailable
and
he
lack
o
e lec ion
ega ding
clima e
change. A
p esen ,
he
idea
ha
he a iabili y
o
ain all
and empe a u e
and
he pe sis ence
o
d y
spells ha e
inc eased
o e
he
las h ee
decades
in
he Guadalqui i i e basin has
been
accep ed
in
clima e
esea ch
and
wa e
managemen
ci cles.
258. See
gene ally,
Juan
L6pez
Ma os,
Los
p oblemas
del
agua
y su
ges i6n
en
el
e i o io
andaluz,
in
ll
CONGRESO
IB lCO
SOBRE
GEsTR)N
Y
PLANFICAcKiN
DEL
AGUA
(2000),
a ailable
a
www.us.es/cibe ico.
259.
Id.
a
256.
Summe
2002]

NATURAL
RESOURCES JOURNAL
inc easing
awa eness
o
he
weakness
o
he
p esen managemen
sys em.0
Al hough
ex eme
e en s
and
c ises
can
igge
change,
hey
exis
wi hin
a
speci ic
social-ins i u ional se ing.
In
Spain, he
backd op
is
a
"s uc u al
de ici " one
in
which
d ough s
a e
iewed
as
ci cums an ial
exp essions
o
a
ch onic
wa e
sho age.'
This
social
unde s anding
o
d ough s
as
a
symp om o
exp ession
o
ch onic
sho age
makes
i
easy
o
neglec
impo an planning
a eas like
con ingency
planning
and
c isis
managemen .
This
iew
has
also
made
i
easie
o
a ionalize
and
o
jus i y
bo h
a
dange ous
demand-hung y
mindse
262 and
a
igo ous
in as uc u e
building
s a egy
by
he
s a e.
2"
Howe e ,
he
pe asi e
con idence
in he
sys em's obus ness
ha
exis ed
be o e
he
1990's
d ough
con as s
sha ply
wi h
he
p esen
awa eness
o
ulne abili y.'
As
a
esul
o
ha d ough ,
wo
inno a i e
app oaches
ha e
gained
suppo and
may
enhance
u u e
adap a ion
o
unce ain y
and
isk.
The
wo
app oaches a e
d ough
con ingency
planning
and
he
ealloca ion
o
wa e
be ween
sec o s
and
use
g oups.'
The
la e
mechanism
alls
unde
he
mo e
gene al
ma ke isa ion
end,'
bu
hey
also
e lec
a
s onge
commi men
o
gua an eeing
a
basic
u ban
wa e
supply
in
d ough
si ua ions
e en
in he
ace
o
p essu e
om he
i iga ion
sec o .
267
Possibly he g ea es
po en ial
o
he
wa e
sys em
in he
lowe
Guadalqui i
basin o
adap
o
sca ci y comes
om
educed
i iga ion ha
could
esul
om
ag icul u al
policy
changes
o
wa e
a e
inc eases.
26
Al hough
ull
cos
eco e y,
FCR,
26
is
unlikely
in
ei he
he
sho
o
medium
e m,
some
p ice
inc eases
and
changes
in
he Common
Ag icul u al
Policy
(CAP),
which
would
libe a e signi ican
wa e
olumes,
260.
del
Mo al
I ua e
e
al.,
sup a
no e
104,
a
298-99.
261.
del
Mo al
I ua e
&
Giansan e, sup a
no e
245,
a
94-95.
262.
Id.
a
95-96.
A
simila
analysis
is
pe o med
on
discu si e
media ion
o
d ough s in
Cali o nia
in
L.
Ne a ez,
Jus
wai
un il
he e
is
a
d ough :
media ing en i onmen al
c isis
o
u ban
g ow h,
28
ANTIPODE
246-72 (1996).
263.
del
Mo al
I ua e
&
Giansan e, sup a
no e
245,
a
99-100.
264.
Id.
a
98.
265.
BAKKER
ET
AL.,
sup a
no e
82,
a
27,63.
266.
Discou ses
a ou ing
he
ealloca ion
o
wa e
acco ding
o
social
c i e ia
ha e
gi en
way
o he
in oduc ion o
ma ke ins umen s
as
he main
me hods
o
enhancing
lexibili y
and
e icien
esou ce
alloca ion.
267.
The
expe ience
o
he
1981-1983
and
1991-1995
d ough s-when
millions o
households
su e ed om
wa e
cu -o s
and
poo
wa e
quali y-and
o
he
1999
i iga ion
season-when
wa e
manage s'
decisions on
he
alloca ion o
wa e
o a me s
ha e
been
ha shly
c i icised-played
a
key ole.
268.
Sumpsi,
sup a no e
117.
269.
Abou
80
pe cen
o
he
alue o
p oduc ion
in
hal
o
he
600,000
ha
o
i iga ion
su aces
in
he
Guadalqui i
basin
comes
di ec ly om
subsidies o
he
Common Ag icul u al
Policy
(CAP)
and
only
abou
25
pe cen
o hese
i iga ion
su aces
would
be able
o
subsis
unde
a
scena io
o
ull cos
eco e y
(FCR).
[Vol.
42
INSTITUTIONAL
ADAPTATION
a e
e y
likely.'
These
changes,
howe e ,
a e
highly
dependen
on
ins i u ional a angemen s
and
a e
causing
and
will
con inue
o
cause g ea
social
esis ance.
27'
The
g ea e awa eness
o
ulne abili y,
he
p ospec
o
changes
in
wa e
use
pa e ns, and
he
p omo ion
o in e -sec o al
wa e
alloca ion
and
con ingency
planning no wi hs anding,
signi ican
po ions
o
he
adi ional
wa e pa adigm pe sis
unchanged
and
a e
poised
o
esis
change,
e en
when
i appea s
necessa y
o
cope
wi h
wa e
sca ci y.
The
main
sou ces
o
esis ance;
in he
Guadalqui i
basin
a e
aligned
wi h
a ious
ea u es
o
he
adi ional
wa e
policy
communi y.
The
adi ional
enginee ing
mindse and
long-s anding
suppo
o
s uc u al
solu ions
o
wa e
sca ci y
con inue
o
hinde
se ious conside a ion
o
o he
al e na i es,
such
as
empo a y
e-alloca ion,
con ingency
planning,
o managing
demand.
2'
In
pa icula , s uc u al
solu ion
suppo e s
iew
demand
managemen as
possible
and
e en
necessa y
bu
ul ima ely
insu icien
o
add ess
he
"s uc u al
de ici ."
' Addi ionally,
he
s ill
e y
low
wa e
p ices
and
lack
o
awa eness
o
en i onmen al impac s
p o ide
li le
incen i e
o
use s
o
choose
good
sca ci y
esponses
o
echnology
and
discou age
demand
educ ions.
274
The
implemen a ion
o
new
policy p e e ences
like
wa e
ma ke s,
me e ing,
and
p ice
incen i es
a e
also se iously
hampe ed
by
weak
managemen
and
a
gene al
lack
o
moni o ing
and
con ol
o e wa e
uses.'n
In
pa icula ,
he
p esen
licensing
sys em
p o ides
nei he
incen i e
no
legal
gua an ee
o
a
minimum
supply
o
wa e
o
he
ollowing
yea
(in e - empo al
alloca ion) o
i iga ion
a me s
who
a e willing
o
educe
wa e
consump ion
du ing
d ough s.
Also,
lack
o
ins i u ional
anspa ency
and
con lic
be ween
dis inc
pa s
o
he
adminis a ion
wi h
270.
Sumpsi,
sup a
no e
117.
271.
Los
agen es
sociales
echazan
la
asa
des inada
a
los
ges o es
de
agua,
EL
PAIS,
July
16,1998.
272.
In
pa icula , he
a i ude
o
he
Se ille
wa e
company
owa d
his
op ion
is
s ill
hesi an , despi e
he
ecen
legal
changes
opening
up
new
possibili ies
o
in e -use
ans e s
and
he inclusion
o his
op ion
in
he
1998
D ough
Manual.
A
he
same
ime,
wa e
conse a ion
measu es
a e
no
de eloped
wi hin
in eg a ed
p og ams
o
demand
managemen
bu
as
isola ed
measu es
wi hou
de ined
objec i es
and
calenda s.
On
he
o he hand,
he
s able
educ ion
o
demand would
ha e
clea
epe cussions
on
a
wa e company's
inancial
balance.
So
a ,
he
sus ained
low
le el
o
consump ion
ha
has
pe sis ed
in
Se ille
e en
a e
he
d ough
eme gencies
has
been
abso bed
by
wa e
p ice
inc eases.
Howe e ,
his
solu ion
has high
poli ical
cos s
o
he municipal
go e nmen
ha
mus
app o e
hem
and
esul s
in
he municipal
wa e
company's
ambi alen
a i ude.
See
EMASESA,
MANUAL
DESEQUA
(1998).
273.
See
Pla a o ma
del
Guadalqui i ,
a
h p://www.se sigloxxi.o g/pla a o ma
(Ma .
15,
2002).
274.
Id.
275.
P o esso Ramon Llamas
asse s
ha
he
s a e
o
unde g ound
wa e s
in Spain
is
in
chaos,
A ag6n P ess,
a
h p://www.ci ce.cps.uniza .es/spanish/wa e web/dossie .h ml
(June
14,
2001).
Summe
20021
NATURAL
RESOURCES
JOURNAL
di e en
poli ical
a ilia ions
and
be ween
he
adminis a ion
and
use s
o
ci izens also
con ibu e o he
main enance
o
he
s a us
quo. 6
Bu ,
o
all
he ea u es
o
he
adi ional
wa e
communi y,
he
social
hegemony
o
he i iga ion
sec o
is
he
mos impo an .
I explains
he
emphasis
placed
on
he
nega i e
e ec s
o
ull
cos eco e y
wa e
a i s
o
ag icul u e
as
well
as
he
sus ained
inc ease
in i iga ion
lands
2'
ha
ly
in
he
ace
o
mo e
gene al
ends
and
he
p e e ences se
ou
in
he
Na ional
I iga ion
Plan.
A e
eme ging om he las
d ough
s eamlined
and
s ong,
he
ag a ian
sec o
can
now
ely
on
a
well-consolida ed
s uc u e,
as
well
as
new
ad
hoc
p essu e
g oups and
alliances
o
push
i s
agenda.m
SOCIAL
AND
INSTITUTIONAL
ADAPTIVE RESPONSES
The
mos p omising
esponses o
wa e
sca ci y
a e
likely
o
esul
om
demand
managemen ,
con ingency
planning,
and
in e -sec o
and
in e - empo al
alloca ion
o
wa e
s ocks.
As
a
esul
o
hese
ca alys s
o
ins i u ional
change,
in
he
lowe
Guadalqui i
basin
inno a i e
wa e
managemen
p ac ices
(whose deg ees
o
de elopmen
a y)
ha e
eme ged.7
9
Fo
example,
demand
managemen measu es ha e been
p omo ed
wi h
g ea e
ene gy in he
Se ille
wa e
supply
sys em
since
he
mid-
1990s.
Simila ly,
a
gene al
downwa d
end
in
u ban
wa e
use could
be
ela ed o
inc eased
public awa eness
and
could
become
he
basis
o
a
long- e m
wa e
conse a ion
s a egy.'
As
ega ds
con ingency
planning,
he
main
de elopmen
in
his
ield
is
he elabo a ion
o
a
d ough
manual
by
he
Se ille
wa e
company.
82
The
manual
p oposes
c i e ia
o
de ining
276.
PWREZ
Diaz
E
AL,
1996,
sup a
no e
23,
a
61-64.
277.
To
a
la ge
ex en , his
inc ease
has
been
uncon olled-wi hou
he
co esponding
wa e
licences. In
some
cases
he
Andalusian
egional
go e nmen
has
o icially
suppo ed
i ,
hough.
One
o
he main
ac o s
behind
his
g ow h
is
he cu en
Eu opean
ag icul u al
subsidisa ion
policy.
278.
Al hough
hei
in as uc u e
agenda has domina ed
he discou ses
o
he
main
poli ical
pa ies
and
media,
none
o
he
wa e
schemes
ha
hey
we e
demanding
ha e
been
ca ied
ou
since
1995.
Thus,
a
pa adoxical
si ua ion
exis s in
which
an
appa en
social
and
poli ical
quasi-unanimi y
abou
he
need
o
hyd aulic
in as uc u e
exis s,
bu
he e
is
also
a eal
s agna ion
in
i s
implemen a ion.
279.
del
Mo al
I ua e
e
al.,
sup a
no e
104,
a
297-98.
280.
del
Mo al
I ua e
&
Giansan e,
sup a
no e
245,
a
99.
281.
Howe e ,
he u ban
de elopmen model
(subu banisa ion)
cu en ly
in
o ce
in
Se ille,
as
in
o he
Spanish
and
Eu opean
ci ies,
also
ep esen s
a clea obs acle
o
he
educ ion
o
u ban
wa e demand.
282.
See
EMASESA,
sup a no e
272.
[Vol.
42
INSTITUTIONAL
ADAPTATION
di e en
phases
o
a
d ough
acco ding
o
inc easing
se e i y
and
also
p oposes
co espondingly
se e e
conse a ion
measu es.2"
Bu
he esponse o
wa e
sca ci y
ha
lies
a
he
cen e o
he
ecen
wa e
deba e
conce ns
in e -sec o
and
in e - empo al
wa e
e-alloca ion.2"
This
esponse
came
o
he
o e on because
o
he
unequal dis ibu ion
o
wa e
esou ces
among
sec o s
wi h
di e en
le els
o
economic
and
social
s a us
and
because
o
he
1999
amendmen
o he
Wa e
Ac ,
which
p epa es
he
g ound
o
wa e
ans e s
be ween
use s.' The
idea
ha
hese
ans e s
may
inc ease
he
o e all
e iciency
o
wa e
alloca ion
is
beginning
o
be
accep ed,
albei
wi h
some
e icence.'
Bu
mo e
u moil
lies
ahead
as
he
in oduc ion
o
wa e
ma ke s
is
likely
o
elici
di e gen
eac ions
om di e en ly
si ua ed
i iga ion
a me s. Socio-demog aphic
ea u es, a m
size,
c op
ype,
echnology,
sou ce
o
supply,
and
geog aphical
posi ion
in
he
wa e
sys em will
all
impac
di e en
i iga ion
a me s
in
di e en ways
and
he
g oup
could
expe ience
mo e
ension,
especially
i
wa e
we e o
become
e en mo e
sca ce.'
CONCLUSIONS
In
he
Lowe
Guadalqui i
basin,
as
in
he
es
o
Spain,
a
esou ce-
o ien ed
wa e
managemen
model
wi h
deep
his o ical
oo s,
he
"hyd aulic pa adigm,"
has
domina ed
so
a .'
This
model
has
had
a
dis inc
impac
on
how
he
isk
o
wa e
sca ci y
is
pe cei ed
and
on
he
ulne abili y
o
he
wa e
sys em,
which
is
inc easing
as
a
esul
o
use s'
demand-hung y a i ude.
In
his
pa adigm,
d ough s
ha e
adi ionally
been
iewed
as
exp essions
o
a
"s uc u al
de ici ,"
a
pe manen
imbalance
be ween
wa e
demand
and wa e
supply.
This
iew
has
led
wa e
manage s
and wa e planne s o
neglec
he
c isis
managemen and
con ingency
planning
a eas. None heless,
he
idea
ha
he
wa e
managemen
sys em
aces
a
se ious
c isis
is
becoming
mo e
widesp ead
among
wa e
manage s
and
s akeholde s
alike. The
las
d ough
inc eased
awa eness
o
he
wa e
sys em's
ulne abili y
and
became
a
ca alys
o
social
pa icipa ion
in
he
wa e
deba e.
The
uncon olled
expansion
o
i iga ed lands
o e he
pas
wo
decades
also
had
impo an
ami ica ions
o
cu en wa e
alloca ion
283.
Minis y
o
he En i onmen ,
sup a
no e,
38,
a
839.
284. 1999
Wa e
Ac ,
B.O.E.,
1999,
298,
a .
61
bis.
285.
Id.
286.
del
Mo al
I ua e
e
al., sup a
no e
104,
a
299-300.
287.
Id.
a
292-94.
288.
This
e m
desc ibes
a
ype o
wa e
de elopmen
policy
ha
ad oca es
building
new
wa e
in as uc u e (dams
ha
make mo e
wa e
a ailable)
ins ead
o
managing
demand
(by
inc easing
wa e
e iciency
o
campaigning
in
a ou
o
wa e
sa ings).
Summe
2002]