Nature as infrastructure: Making and managing the Panama Canal watershed

Abstract

The Panama Canal requires an enormous volume of fresh water to function. A staggering 52 million gallons are released into the Atlantic and Pacific oceans with each of the 35–45 ships that transit the canal daily. The water that facilitates interoceanic transportation and global connection falls as rain across the watershed surrounding the canal and is managed by an extensive system of locks, dams, and hydrographic stations. These technologies – which correspond with the popular understanding of infrastructure as hardware – were largely constructed during the early 20th century. Since the late 1970s, however, administrators and other concerned actors have responded to actual and potential water scarcity within the canal system by developing a managerial approach that integrates engineered technologies and new techniques of land-use planning and environmental regulation across the watershed. Through this process, techno-politics and environmental politics have become increasingly inextricable in the transit zone. Whereas canal administrators previously emphasized the control of water in its liquid state, watershed management emerged as an attempt to manipulate water flows through the legal protection of forests and restriction of agriculture. As forested landscapes have been assigned new infrastructural functions (water storage and regulation), campesino farmers have been charged with a new responsibility (forest conservation) often at odds with their established agricultural practices. Consequently, I bring together scholarship on infrastructure in science and technology studies and political ecology in anthropology and geography to examine why, how, and to what effect landscapes around the canal have been transformed from agricultural frontier to managed watershed. I suggest that the concept of infrastructure is a useful theoretical tool and empirical topic for analyzing the politics of environmental service provision. By paying attention to the contingent history of engineering decisions and the politics embedded in the changing socio-technical system that delivers water to the canal, we can better understand the distributional politics of environmental service provision in Panama today.