Quantifying Targets for Rehabilitating Degraded Areas of the Great Lakes

/ One attempt to quantify targets for rehabilitating degraded aquatic ecosystems has been through a United States-Canada program to develop and implement comprehensive remedial action plans (RAPs) to restore beneficial uses in 42 Great Lakes Areas of Concern. The International Joint Commission has facilitated agreement on listing/delisting guidelines for determining when use impairments exist in areas of concern and when uses have been restored, while federal/state/provincial governments and local stakeholders have provided leadership in establishing quantitative targets for restoring uses and in determining how to achieve them. The listing/delisting guidelines have been instrumental in helping reach agreement on problem definition (lack of agreement on problem definition has historically been used as a reason to delay action) and reaching agreement on quantitative targets for restoring uses. Quantitative, ecosystem-based targets are being used to drive the RAP process, help organizations pursue a common mission of restoring uses, and help achieve greater accountability. As a priority, the target-setting process must also recognize the importance of establishing both short- and long-term milestones in order to measure and celebrate incremental progress in restoring uses.KEY WORDS: Use impairments; Restoring uses; Quantitative targets     

Implementing Ecosystem-basedManagement: Lessons from the Great Lakes

Under the US-Canada Great Lakes Water Quality Agreement, a Remedial Action Plan (RAP) Program was formalized to identify and implement actions needed to restore beneficial uses in the most polluted areas of the Great Lakes (i.e. Areas of Concern). It was further required that individual RAPs embody a systematic and comprehensive ecosystem approach (i.e. an approach which accounts for interrelationships among land, air, water and all living things, including humans, and involves user groups in comprehensive management). Careful review and analysis of the RAP Program offers an opportunity to gain a better understanding of ecosystem-based management for other watersheds, and to identify important principles and elements which contribute to effective implementation. Principles which are considered essential for effective implementation of ecosystem-based management include: (1) broad-based stakeholder involvement; (2) commitment of top leaders; (3) agreement on information needs and interpretation; (4) action planning within a strategic framework; (5) human resource development; (6) results and indicators to measure progress; (7) systematic review and feedback; and (8) stakeholder satisfaction. The Great Lakes RAP experience with ecosystem-based management also demonstrates the need for a transition from a traditional,command-and-control,regulatory approach of governmentalagencies toward a more co-operative,value-added,support-basedrole. Review of RAPs in all 42 Areas of Concern provides compelling evidence that successful application of ecosystem-based management is dependent on broad-based stakeholder involvement in decision making, along with strong partnerships which encourage collaboration, co-operation and adaptability in management actions.     

Institutional frameworks to direct development and implementation of great lakes remedial action plans

Locally designed, institutional frameworks are being used to develop and implement remedial action plans (RAPs) to restore beneficial uses in 43 Great Lakes areas of concern. A 1993 Canada-United States roundtable was convened to learn from case studies and to develop recommendations regarding essential characteristics of RAP institutional frameworks, guidance to ensure linkages to other related plans, and ways of embracing new institutional frameworks from RAP development to implementation. Major roundtable recommendations are: (1) RAP institutional frameworks should be empowered to pursue their mission of restoring uses. Empowerment would be demonstrated by: a watershed focus, inclusive and shared decision-making, clear responsibilities and sufficient authority, creative funding capability, flexibility and continuity in the process, an iterative process of continuous improvement, and commitment to education and outreach. (2) RAP institutional frameworks should be used as mechanisms to coordinate programs at the local level. Such local coordination should be complemented with governmental commitments to intra- and interagency coordination in work plans. (3) RAP institutional frameworks can help build the capacity of governments to achieve their goals. Therefore, governments must adopt long-term, visionary goals and commit to a customer-driven RAP process of continuous improvement.     

Citizen Advisory Groups in Remedial Action Planning: Paper Tiger or Key to Success?

In accordance with the Great Lakes Water Quality agreement and the Great Lakes Critical Protections Act, the Great Lakes States have developed (or are developing) remedial action plans (RAPs) for severely degraded areas of concern (AOCs). To provide citizen input into the planning process, state environmental agencies have established citizens' advisory groups (CAGs) for each AOC. These CAGs have been hailed as the key to RAP success, yet little is known about their role in the planning process. In this paper, we examine the constitution, organization and activities of CAGs in three Lake Michigan AOCs by comparing CAGs to municipal planning commissions, citizen advisory commissions and councils of government. We find that CAGs, like other advisory bodies, can provide public input into the planning process, foster communication between government agencies and special interest groups, and facilitate intergovernmental co-ordination. Also like other advisory bodies, however, CAGs can fail to represent all constituencies in the AOCs, have limited influence on agencies plans and activities, and lack the authority to assure the co-operation of local governments.     

The Great Lake’s future at a cross road

Some argue that a collective vision for the future of the Laurentian Great Lakes is embodied in the␣Great Lakes Water Quality Agreement (GLWQA). The GLWQA is a binational agreement, first signed in 1972 by Prime Minister Pierre Trudeau and President Richard Nixon, wherein the two countries (the Parties) commit to “restore and maintain the chemical, physical and biological integrity of the waters of the Great Lakes Basin Ecosystem.” Article X of the Agreement states that the Parties shall conduct a comprehensive review of the operation and effectiveness of this Agreement following every third biennial report of the [International Joint] Commission (IJC). The IJC’s 12th Biennial Report, released in 2004, triggered this important science, program, and policy review which commenced May 2006. This essay makes the case for a rigorous review, that explores deliberately the future scope of the Agreement to protect the world’s largest surface freshwater resource, and calls for innovation in the governance regime of this binational ecosystem.     

Environmental Health Policy: Analytic “Framing” of the Great Lakes Picture

/ The International Joint Commission (IJC) has overseen the implementation of the Great Lakes Water Quality Agreement between Canada and the United States for 25 years. Part of its mandate has been to facilitate international cooperation among a diversity of stakeholders focusing on the "waters" and the "ecosystem." In the 1970s policy focused on phosphorus reduction and individual contaminants, with some efforts (after 1978) to take an ecosystem (ecological perspectives) approach. In the last 15 years human health effects from (real and perceived) environmental causes have received considerable recognition. By contrast, less concern has been expressed for what is traditionally considered "environment" issues (such as protecting fish species). This shift at the policy level is well illustrated in the manner in which human health is increasingly used as a way for mobilizing environmental agendas. This paper analyzes nine IJC biennial reports to track how the framing of Great Lakes issues has shifted from concern for its waters to concern for human neurobehavior and reproductive systems. Frame analysis is used to conceptualize the controversies that are expressed through the Great Lakes policy documents. The analysis of the reports also reveals a shift in operational frames, used by the IJC to mobilize decision-makers into action.     

Assessing Risk in Operational Decisions Using Great Lakes Probabilistic Water Level Forecasts

/ A method adapted from the National Weather Service's Extended Streamflow Prediction technique is applied retrospectively to three Great Lakes case studies to show how risk assessment using probabilistic monthly water level forecasts could have contributed to the decision-mak-ing process. The first case study examines the 1985 International Joint Commission (IJC) decision to store water in Lake Superior to reduce high levels on the downstream lakes. Probabilistic forecasts are generated for Lake Superior and Lakes Michigan-Huron and used with riparian inundation value functions to assess the relative impacts of the IJC's decision on riparian interests for both lakes. The second case study evaluates the risk of flooding at Milwaukee, Wisconsin, and the need to implement flood-control projects if Lake Michigan levels were to continue to rise above the October 1986 record. The third case study quantifies the risks of impaired municipal water works operation during the 1964-1965 period of extreme low water levels on Lakes Huron, St. Clair, Erie, and Ontario. Further refinements and other potential applications of the probabilistic forecast technique are discussed.KEY WORDS: Great Lakes; Water levels; Forecasting; Risk; Decision making     

BOOK REVIEWS

Books reviewed in this articles:
The Energy Directory , (1974), Environmental Information Center, Inc.
Water for a City , by C. H. Weidner
Two Nations, One Lake — Science in Support of Great Lakes Management , Objectives and Activities of the International Field Year for the Great Lakes 1965–1973, prepared by John O. Ludwigson     

Managing mercury in the great lakes: an analytical review of abatement policies

Mercury, a toxic metal known to have several deleterious affects on human health, has been one of the principal contaminants of concern in the Great Lakes basin. There are numerous anthropogenic sources of mercury to the Great Lakes area. Combustion of coal, smelting of non ferrous metals, and incineration of municipal and medical waste are major sources of mercury emissions in the region. In addition to North American anthropogenic emissions, global atmospheric emissions also significantly contribute to the deposition of mercury in the Great Lakes basin. Both the USA and Canada have agreed to reduce human exposure to mercury in the Great Lakes basin and have significantly curtailed mercury load to this region through individual and joint efforts. However, many important mercury sources, such as coal-fired power plants, still exist in the vicinity of the Great Lakes. More serious actions to drastically reduce mercury sources by employing alternative energy sources, restricting mercury trade and banning various mercury containing consumer products, such as dental amalgam are as essential as cleaning up the historical deposits of mercury in the basin. A strong political will and mass momentum are crucial for efficient mercury management. International cooperation is equally important. In the present paper, we have analyzed existing policies in respective jurisdictions to reduce mercury concentration in the Great Lakes environment. A brief review of the sources, occurrence in the Great Lakes, and the health effects of mercury is also included.     

The Great Lakes Hydrography Dataset: Consistent,Binational Watersheds for the Laurentian Great Lakes Basin

Ecosystem‐based management of the Laurentian Great Lakes, which spans both the United States and Canada, is hampered by the lack of consistent binational watersheds for the entire Basin. Using comparable data sources and consistent methods, we developed spatially equivalent watershed boundaries for the binational extent of the Basin to create the Great Lakes Hydrography Dataset (GLHD). The GLHD consists of 5,589 watersheds for the entire Basin, covering a total area of approximately 547,967 km², or about twice the 247,003 km² surface water area of the Great Lakes. The GLHD improves upon existing watershed efforts by delineating watersheds for the entire Basin using consistent methods; enhancing the precision of watershed delineation using recently developed flow direction grids that have been hydrologically enforced and vetted by provincial and federal water resource agencies; and increasing the accuracy of watershed boundaries by enforcing embayments, delineating watersheds on islands, and delineating watersheds for all tributaries draining to connecting channels. In addition, the GLHD is packaged in a publically available geodatabase that includes synthetic stream networks, reach catchments, watershed boundaries, a broad set of attribute data for each tributary, and metadata documenting methodology. The GLHD provides a common set of watersheds and associated hydrography data for the Basin that will enhance binational efforts to protect and restore the Great Lakes.     

EFFECTS OF DIVERSIONS ON THE NORTH AMERICAN GREAT LAKES1

ABSTRACT: Water level fluctuations of the Great Lakes often have created regional controversies among the states and Canadian provinces that share this vast resource. Even though the 100-year range of their water levels is only four to five feet, episodes of high and low Great Lakes water levels have been a recurring problem throughout the twentieth century. The possibility of increased diversion and consumptive use has exacerbated the existing conflicts over how to manage this water resource. A research project evaluated the effects of interbasin diversion on the Great Lakes system and on the industries that depend on the maintenance of historical water levels, namely hydropower and commercial navigation. The simulation approach employed in this research and some of the important findings are presented. The approach is similar to that used in recent government studies of Great Lakes water level regulation. Several significant modifications were made specifically addressing the diversion issue. Aggregate annual impacts to hydropower and shipping resulting from a diversion of 10,000 cubic feet per second were found to vary from 60 to 100 million dollars. Increases in impacts as a function of diversion rate are nonlinear for the navigation industry.     

The role of agency goals and local context in Great Lakes water resources public involvement programs

As complex social phenomena, public involvement processes are influenced by contextual factors. This study examined agency goals for public involvement and assessed the importance of local context in remedial action planning, a community-based water resources program aimed at the cleanup of the 42 most polluted locations in the Great Lakes Basin. Agency goals for public involvement in remedial action plans (RAPs) were agency-oriented and focused on public acceptance of the plan, support for implementation, and positive agency-public relations. Corresponding to these goals, citizen advisory committees were created in 75% of the RAP sites as a primary means for public input into the planning process. Factors that influenced the implementation of public involvement programs in remedial action planning included public orientation toward the remediation issue, local economic conditions, the interaction of diverse interests in the process, agency and process credibility, experience of local leadership, and jurisdictional complexity. A formative assessment of “community readiness” appeared critical to appropriate public involvement program design. Careful program design may also include citizen education and training components, thoughtful management of ongoing agency-public relations and conflict among disparate interests in the process, overcoming logistical difficulties that threaten program continuity, using local expertise and communication channels, and circumventing interjurisdictional complexities.     

Flooding and erosion hazards on the ontario great lakes shoreline: a human ecological approach to planning and management

Understanding flood and erosion hazards in the context of developing coastal management plans requires an appreciation for variations in climate, geology, vegetation, land uses, human activities and institutional arrangements. On the Great Lakes, fluctuating water levels are characterized by temporal variations in their magnitude and frequency and their impact on flooding and erosion also differ from site to site. The traditional planning and management mechanisms in Ontario, through the use of emergency responses and land use setbacks, have been insufficient in resolving the rising costs of damage to property due to flooding and erosion along the Great Lakes shoreline. There is a need to develop an alternative management model with a focus on understanding hazards in the context of their natural and human components. A case study of the preparation of a resource survey for the Saugeen Valley Conservation Authority illustrates the development of a human ecological approach and its applicability in developing shoreline management plans for the Great Lakes.     

POSSIBLE DIVERSION OF MISSISSIPPI RIVER WATER TO TEXAS AND NEW MEXICO1

ABSTRACT .A summary is presented of remarks made at a conference held at Louisiana Tech University on the possibility of diverting some of the Mississippi River water to Texas and New Mexico. The Texas Water Plan which has initiated the diversion possibility is discussed and particular reference is made to the activities of the federal and state agencies directly responsible for determining various aspects of the diversion study. These agencies include the Texas Water Development Board, Texas Water Quality Board, Louisiana Department of Public Works, State Engineer's Office of New Mexico, Mississippi River Commission, and the Bureau of Reclamation.     

INTERNATIONAL MANAGEMENT OF THE GREAT LAKES-ST. LAWRENCE BASIN1

Neither Canada nor the United States attach much importance to the International Joint Commission (IJC) judging by the size of staffs and annual budgets. The Commission has been restricted to a relatively minor number of functions in the Great Lakes-St. Lawrence. It has investigated: the degree and causes of water and air quality deterioration; the effects of hydroelectric and navigation projects on water levels; the impacts of water-level fluctuations; and the feasibility of a deep waterway from the St. Lawrence to the Hudson River. Projects approved by the Commission have produced less than might be expected through no fault of the Commission. The Great Lakes Fishery Commission has promoted little international management. Budgetary limitations restrict its lamprey control program; institutional limitations restrict its ability to deal effectively with fishery problems. Commission responsibilities are limited to coordination and advisory functions. Since Canada and the United States have not chosen to refer most aspects of river basin management to international bodies, an institutional void exists in the Great Lakes Basin to consider these questions on a continuous basis. There is a need for expanded international cooperation.     

BIOGRAPHICAL SKETCH

A. I. Johnson, President-elect of AWRA, was elected President of the International Commission on Subsurface Water at the International Union of Geodesy and Geophysics meeting in Moscow in August. Mr. Johnson, who was a member of the U.S. delegation to the meeting, also presented a paper at the meeting on "Ground Water and the International Association of Scientific Hydrology, 1967-1970," and served as Rapporteur for the Symposium on Pollution of Ground Water.
HISTORICAL NOTE-In defiance of laws, international treaties, and the rights of other communities to live and prosper, the city of Detroit has for many years sent a constant torrent of human and industrial filth into the Detroit River and Lake Erie. Time and time again reports from engineers, commissions and governmental forces, all sounding the danger cry, have been received by the Detroit fathers, and have been tabled, prospects are evident… that 20 years from now will see Detroit still making a wallowing trough of the Great Lakes.     

MODELING HYDROLOGIC IMPACT OF WITHDRAWING THE GREAT LAKES WATER FOR AGRICULTURAL IRRIGATION1

ABSTRACT: Growing interest in agricultural irrigation in the Great Lakes basin presents an increasing competition to other uses of Great Lakes water. This paper, through a case study of the Mud Creek Irrigation District in the Saginaw Bay basin, Michigan, evaluates the potential hydrologic effects of withdrawing water for agricultural irrigation to the Great Lakes. Crop growth simulation models for corn, soybeans, dry beans, and the FAO Penman method were used to estimate the difference in evapotranspiration rates between irrigated and nonirrigated identical crops, based on climate, soil, and management data. The simulated results indicate that an additional 70–120 mm of water would be evapotranspirated during the growing season from irrigated crop fields as compared to nonirrigated identical plantings. Dependent upon the magnitude of irrigation expansion, an equivalent of about 1 to 5 mm of water from Lakes Huron-Michigan could be lost to the atmosphere. If agricultural irrigation further expands in the entire Great Lakes basin, the aggregated potential of water loss to the atmosphere through ET from all five Great Lakes would be even greater.     

A Decision‐Analytic Approach to Managing Climate Risks: Application to the Upper Great Lakes1

Brown, Casey, William Werick, Wendy Leger, and David Fay, 2011. A Decision‐Analytic Approach to Managing Climate Risks: Application to the Upper Great Lakes. Journal of the American Water Resources Association (JAWRA) 47(3):524‐534. DOI: 10.1111/j.1752‐1688.2011.00552.x Abstract: In this paper, we present a risk analysis and management process designed for use in water resources planning and management under climate change. The process incorporates climate information through a method called decision‐scaling, whereby information related to climate projections is tailored for use in a decision‐analytic framework. The climate risk management process begins with the identification of vulnerabilities by asking stakeholders and resource experts what water conditions they could cope with and which would require substantial policy or investment shifts. The identified vulnerabilities and thresholds are formalized with a water resources systems model that relates changes in the physical climate conditions to the performance metrics corresponding to vulnerabilities. The irreducible uncertainty of climate change projections is addressed through a dynamic management plan embedded within an adaptive management process. Implementation of the process is described as applied in the ongoing International Upper Great Lakes Study.     

BOOK REVIEWS

Book review in this Article
Resources Management in the Great Lakes Basin , edited by F. A. Butrico, C.J. Touhill, and I. L. Whitman.
Water Management - Basic Issues. Organization for Economic Co-Operation and Development     

ATMOSPHERIC CONTROLS OF WATER EXCHANGE IN GREAT LAKES BASIN1

ABSTRACT Existing meteorological controls of water exchange by precipitation and evaporation on the Great Lakes are almost entirely inadvertent and related to man's urban-industrial complexes and their effect upon precipitation processes. These inadvertent effects have led to 10 to 40% increases in precipitation in localized areas within the basin. Envisioned growth of urban-industrial complexes within the Great Lakes region should lead to more inadvertent weather modification in the Basin. The only existing planned weather modification efforts are those at Lake Erie which are attempting to eliminate by redistribution the concentration of lake-derived heavy snowfall along the south shore. It appears reasonable to assume that practical increases of lake precipitation on the order of 5-20% could be achieved on an operational basis over the Great Lakes in the next 10 years, but the time of accomplishment will depend on national priorities, international cooperation, and economic factors. These activities would certainly produce a sizeable increase in the water quantity of the Great Lakes and should result in an improvement in water quality. Operational methods of evaporation suppression applicable to the lakes are just not available. Meteorological controls to ameliorate certain undesirable lake-effect snowstorms are a near reality.