The Challenge of Externally Generated Collaborative Governance: California's Attempt at Regional Water Management

Creating successful collaborative governance regimes is difficult, but can be especially hard when collaborations are externally generated by higher levels of government as opposed to self-generated by local agencies and stakeholders due to the lack of spontaneity. We analyze this problem as it applies to California's Integrated Regional Water Governance Program. Public administration theory indicates that a core element in a successful collaboration is empowering local leaders who share the collaboration's intended goal. However, the political concessions to local autonomy necessary to enact an externally generated collaboration can undermine its success. The tensions between maintaining local autonomy and creating a regional approach are inherently strong in a "layered collaborative governance" approach that acknowledges and accommodates local boundaries. Drawing on the concept of role differentiation, we hypothesize that the roles participants play in layered collaborative governance will frequently derive from their preexisting issue areas, geographic orientations, and power relations, but that program design incentives can influence which groups participate in the effort and how they engage. We test these hypotheses in the context of California's Integrated Regional Water Management (IRWM) program. We find evidence of role differentiation on grant leadership both with respect to the initial goal of regional collaboration as well as later efforts to address the water issues of disadvantaged communities.