I agree with you about the quagmire part; it delays things.
It's a bit difficult for me to suggest whether a major drought should be 60-40 or 90-10. I don't know. Living in Alberta perhaps colours my vision a bit, because this province can afford the 40% more readily than some of the other provinces. But I agree that it's something that should be nailed down ahead of time so that people understand the rules and so we can avoid this dragging out for years in terms of acting on some of these things.