Assessing water quality governance in Manitoba

Abstract

This thesis investigates the persistent governance challenges related to nutrient pollution and eutrophication in Manitoba, emphasizing phosphorus and nitrogen management. Despite decades of policy initiatives aimed at curbing nutrient pollution, eutrophication remains a significant environmental concern. Through qualitative methods such as key-informant interviews, document analysis, and policy reviews, the research examines how governance structures—including regulatory frameworks, voluntary programs, and participatory mechanisms affect nutrient management outcomes. The first manuscript identifies persistent epistemic, social, and political controversies underpinning Manitoba’s nutrient governance, particularly around problem definition, policy tools, and scientific credibility. Drawing from Science and Technology Studies (STS), the research highlights that these disputes reflect deeper power dynamics and social-political tensions, especially involving agricultural and industry actors. While Indigenous rights and governance are acknowledged as important, this manuscript notes they are not the central focus due to data and scope limitations. The second manuscript critically evaluates Manitoba's "hybrid" governance regime, which combines mandatory regulations and incentive-based voluntary approaches. It finds that, despite encouraging innovation and stakeholder engagement, the regime has not significantly reduced nutrient loading to Lake Winnipeg. Key barriers identified include weak enforcement, limited monitoring, resistance from agricultural actors, and insufficient support for marginalized groups such as Indigenous and small-scale farmers. The manuscript argues that successful governance must address underlying issues of power, knowledge hierarchies, and justice. Overall, the thesis concludes that Manitoba’s nutrient management issues extend beyond technical inadequacies, deeply rooted in persistent controversies, power asymmetries, and contested knowledge production. Effective governance therefore requires adaptive, inclusive, and justice-focused approaches. Strengthening genuine collaboration among government bodies, agricultural producers, environmental organizations, and Indigenous nations is essential. Enhanced monitoring and transparent enforcement mechanisms, participatory adaptive management, and targeted support for marginalized producers are crucial. Additionally, embedding controversy analysis and adaptive learning within governance structures transforms persistent disputes into opportunities for ongoing policy improvement, offering globally relevant insights for sustainable watershed governance.