Documents on Water Law

Exotic Policy: An IJC White Paper On Policies for the Prevention of The Invasion of the Great Lakes by Exotic Organisms

Eric Reeves — Thu, 19 Nov 2009 13:27:25 PST

About ten years ago, the Great Lakes environmental community initiated the first action to counteract the worldwide spread of exotic organisms in ballast water. In 1988, in response to the discovery of the ruffe and the zebra mussel in the Great Lakes, the Great Lakes Fishery Commission and the International Joint Commission called upon the Canadian and United States Governments to act. In 1989, Canada issued the first voluntary ballast exchange guidelines. In 1990, the United States passed the first major piece of legislation on aquatic nuisance species, mandating consultations and studies on all pathways for aquatic invasions. And in 1993, the US Coast Guard issued the first set of mandatory regulations for controlling ballast water in the Great Lakes. The issue is now on the global agenda. The International Maritime Organization, under pressure from Canada, the United States, and Australia, has issued similar guidelines and begun to consider a mandatory international convention. The United States enacted a second major piece of legislation in 1996, making it a national issue, and Canada enacted legislation authorizing national mandatory regulations to control ballast water in 1998.

With support from the Great Lakes environmental community, and with valuable assistance from distant allies in Australia, a Great Lakes regional coalition of binational, federal, state, and provincial agencies seems to have made considerable progress on the problem of exotics in these last ten years. In terms of public education and political rhetoric, the effort has been a great success. We have seen the transformation of what was an arcane and poorly understood issue - an issue which was somewhat "exotic" in political terms even within the special culture of the environmental community - into an issue accepted as worthy of attention, even if still sometimes poorly understood, by the mainstream public and their political leadership. Moreover, the enactments of the first major pieces of legislation in the US and Canada, even if largely tentative and inchoate, have come relatively quickly in comparison to the history of legislative efforts on other forms of pollution.

But there are two reasons to be cautious about this apparent success. First, the nature of the problem is inherently acute. As a matter of biological reality, exotic invasions are irreversible. This is a form of pollution that can never be cleaned up, and new invasions compound the damage already done to a stressed ecosystem. Second, much of the progress in developing legal regimes is illusionary - or worse. Although the Great Lakes mandatory regulations issued in 1993 were an essential first step, they are fundamentally flawed. So is the design of the national regime being developed in the United States, especially because of an alteration in the terms of that legislation obtained by the shipping industry as it was rewritten from a Great Lakes to a United States regime. The international convention being negotiated at the International Maritime Organization in London sounds as though it would be a good thing. But it contains the same flaws - and one more. Under some versions of the convention under negotiation, it would prohibit the enforcement of stronger provisions enacted by national and subordinate governments. These are matters that require close attention.

Also, ballast water is not the only pathway for invasion. Although the state and provincial governments in the Great Lakes region have a wide array of legal authorities and programs for the control of exotics, they are far from being uniformly strong or consistent in their terms. There are substantial issues about some major vectors - aquaculture, bait transportation, and the aquarium trade - which beg for attention. There is an obvious need for better coordination of strategies and enforcement policies at the federal, binational, and regional levels.

Those are some of the points addressed in this paper. The purpose of this paper is also to provide a common body of facts and ideas to assist in the discussion of "exotic policy" - the public policy for dealing with the invasion of the Great Lakes by exotic organisms - at an IJC workshop to be held with the 1999 Great Lakes Water Quality Forum.(1) I attempt to sum up the essential biological, technical, legal, economic, and political aspects of this complex, newly emerging environmental issue. I try to do that in an objective and analytical manner. But I also try to be honest about my point of view, which is distinctly biased in favor of environmental conservation and the proposition that our current policies for the prevention of exotic invasions are inadequate. All that might be impossible. But I hope that this will, at least, provide a basis for stimulating discussion.

Boundary Waters Treaty

The United States of America et al. — Thu, 19 Nov 2009 13:23:59 PST

The treaty provides the principles and mechanisms to help resolve disputes and to prevent future ones, primarily those concerning water quantity and water quality along the boundary between Canada and the United States.

SECRETARIAL ORDER # 3206 Subject: American Indian Tribal Rights, Federal-Tribal Trust Responsibilities, and the Endangered Species Act

Secretary of the Interior et al. — Thu, 19 Nov 2009 13:20:20 PST

This Order is issued by the Secretary of the Interior and the Secretary of Commerce (Secretaries) pursuant to the Endangered Species Act of 1973, 16 U.S.C. 1531, as amended (the Act), the federal-tribal trust relationship, and other federal law. Specifically, this Order clarifies the responsibilities of the component agencies, bureaus and offices of the Department of the Interior and the Department of Commerce (Departments), when actions taken under authority of the Act and associated implementing regulations affect, or may affect, Indian lands, tribal trust resources, or the exercise of American Indian tribal rights, as defined in this Order. This Order further acknowledges the trust responsibility and treaty obligations of the United States toward Indian tribes and tribal members and its government-to-government relationship in dealing with tribes.

Principle 1. THE DEPARTMENTS SHALL WORK DIRECTLY WITH INDIAN TRIBES ON A GOVERNMENT-TO-GOVERNMENT BASIS TO PROMOTE HEALTHY ECOSYSTEMS.

Principle 2. THE DEPARTMENTS SHALL RECOGNIZE THAT INDIAN LANDS ARE NOT SUBJECT TO THE SAME CONTROLS AS FEDERAL PUBLIC LANDS.

Principle 3. THE DEPARTMENTS SHALL ASSIST INDIAN TRIBES IN DEVELOPING AND EXPANDING TRIBAL PROGRAMS SO THAT HEALTHY ECOSYSTEMS ARE PROMOTED AND CONSERVATION RESTRICTIONS ARE UNNECESSARY.

Principle 4. THE DEPARTMENTS SHALL BE SENSITIVE TO INDIAN CULTURE, RELIGION AND SPIRITUALITY.

Principle 5. THE DEPARTMENTS SHALL MAKE AVAILABLE TO INDIAN TRIBES INFORMATION RELATED TO TRIBAL TRUST RESOURCES AND INDIAN LANDS, AND, TO FACILITATE THE MUTUAL EXCHANGE OF INFORMATION, SHALL STRIVE TO PROTECT SENSITIVE TRIBAL INFORMATION FROM DISCLOSURE.

GREAT LAKES—ST. LAWRENCE RIVER BASIN WATER RESOURCES COMPACT

Thu, 19 Nov 2009 13:16:06 PST

The states of Illinois, Indiana, Michigan, Minnesota, New York, Ohio and Wisconsin and the Commonwealth of Pennsylvania hereby solemnly covenant and agree with each other, upon enactment of concurrent legislation by the respective state legislatures and consent by the Congress of the United States as follows:

ARTICLE 1: SHORT TITLE, DEFINITIONS, PURPOSES AND DURATION

ARTICLE 2: ORGANIZATION

ARTICLE 3: GENERAL POWERS AND DUTIES

ARTICLE 4: WATER MANAGEMENT AND REGULATION

ARTICLE 5: TRIBAL CONSULTATION

ARTICLE 6: PUBLIC PARTICIPATION

ARTICLE 7: DISPUTE RESOLUTION AND ENFORCEMENT

ARTICLE 8: ADDITIONAL PROVISIONS

ARTICLE 9: EFFECTUATION

GREAT LAKES—ST. LAWRENCE RIVER BASIN SUSTAINABLE WATER RESOURCES AGREEMENT

The State of Illinois et al. — Thu, 19 Nov 2009 13:11:49 PST

1. The objectives of this Agreement are:
a. To act together to protect, conserve and restore the Waters of the Great Lakes—St. Lawrence River Basin because current lack of scientific certainty should not be used as a reason for postponing measures to protect the Basin Ecosystem;
b. To facilitate collaborative approaches to Water management across the Basin to protect, conserve, restore, improve and efficiently and effectively manage the Waters and Water Dependent Natural Resources of the Basin;
c. To promote co-operation among the Parties by providing common and regional mechanisms to evaluate Proposals to Withdraw Water;
d. To create a co-operative arrangement regarding Water management that provides tools for shared future challenges;
e. To retain State and Provincial authority within the Basin under appropriate arrangements for intergovernmental cooperation and consultation;
f. To facilitate the exchange of data, strengthen the scientific information upon which decisions are made, and engage in consultation on the potential effects of Withdrawals and losses on the Waters and Water Dependent Natural Resources of the Basin;
g. To prevent significant adverse impacts of Withdrawals and losses on the Basin Ecosystem and its watersheds; and,
h. To promote an Adaptive Management approach to the conservation and management of Basin Water resources, which recognizes, considers and provides adjustments for the uncertainties in, and evolution of, scientific knowledge concerning the Basin’s Waters and Water Dependent Natural Resources.

The Great Lakes Charter Annex: A Supplementary Agreement to The Great Lakes Charter

Council of Great Lakes Governors et al. — Thu, 19 Nov 2009 13:07:27 PST

In agreeing to this Annex, the Great Lakes Governors and Premiers reaffirm their commitment to the five broad principles set forth in the Great Lakes Charter, and further reaffirm that the provisions of the Charter will continue in full force and effect. The Governors and Premiers commit to further implementing the principles of the Charter by developing an enhanced water management system that is simple, durable, efficient, retains and respects authority within the Basin, and, most importantly, protects, conserves, restores, and improves the Waters and Water-Dependent Natural Resources of the Great Lakes Basin. State and Provincial authorities should be permanent, enforceable, and consistent with their respective applicable state, provincial, federal, and international laws and treaties. To that end, and in order to adequately protect the water resources of the Great Lakes and the Great Lakes ecosystem, the Governors and Premiers commit to develop and implement a new common, resource-based conservation standard and apply it to new water withdrawal proposals from the Waters of the Great Lakes Basin. The standard will also address proposed increases to existing water withdrawals and existing water withdrawal capacity from the Waters of the Great Lakes Basin.

En acceptant la présente annexe, les gouverneurs des États et les premiers ministres des provinces du bassin des Grands Lacs réaffirment leur engagement envers les cinq grands principes mis de l’avant dans la Charte des Grands Lacs et confirment que les dispositions de la Charte demeurent en vigueur. Les gouverneurs et les premiers ministres s’engagent à mettre en oeuvre les principes de la Charte en élaborant un mode de gestion de l’eau amélioré qui soit simple, durable et efficace, qui maintienne et respecte les pouvoirs exercés autour du bassin et, au premier chef, qui protège, conserve, restaure et améliore les eaux du bassin des Grands Lacs et les ressources naturelles qui en dépendent. Les pouvoirs des États et des provinces doivent être permanents, exécutoires et conformes aux lois étatiques, provinciales et fédérales ainsi qu’aux traités qui leur sont respectivement applicables. À cette fin, et pour protéger adéquatement les ressources en eau et l’écosystème des Grands Lacs, les gouverneurs et les premiers ministres s’engagent à développer et à appliquer aux nouveaux projets de prélèvement d’eau du bassin des Grands Lacs une nouvelle norme commune de conservation basée sur la ressource. La norme portera également sur les projets d’augmentation des prélèvements existants et de la capacité existante de prélèvement d’eau du bassin des Grands Lacs.

The Great Lakes Charter: Principles for the Management of Great Lakes Water Resources

Council of Great Lakes Governors et al. — Thu, 19 Nov 2009 13:02:15 PST

The water resources of the Great Lakes Basin are precious public natural resources, shared and held in trust by the Great Lakes States and Provinces. The Great Lakes are valuable regional, national and international resources for which the federal governments of the United States and Canada and the International Joint Commission have, in partnership with the States and Provinces, and important, continuing an abiding role and responsibility. The waters of the Great Lakes Basin are interconnected and part of a single hydrologic system. The multiple uses of these resources for municipal, industrial and agricultural water supply; mining; navigation; hydroelectric power and energy production; recreation; and the maintenance of fish and wildlife habitat and a balanced ecosystem are interdependent. Studies conducted by the International Joint Commission, the Great Lakes States and Provinces, and other agencies have found that without careful and prudent management, the future development of diversions and consumptive uses of the water resources of the Great Lakes Basin may have significant adverse impacts on the environment, economy, and welfare of the Great Lakes region. As trustees of the Basin's natural resources, the Great Lakes States and Provinces have a shared duty to protect, conserve, and manage the renewable but finite waters of the Great Lakes Basin for the use, benefit, and enjoyment of all their citizens, including generations yet to come. The most effective means of protecting, conserving, and managing the water resources of the Great Lakes is through the joint pursuit of unified and cooperative principles, policies and programs mutually agreed upon, enacted and adhered to by each and every Great Lakes State and Province. Management of the water resources of the Basin is subject to the jurisdiction, rights and responsibilities of the signatory States and Provinces. Effective management of the water resources of the Great Lakes requires the exercise of such jurisdiction, rights, and responsibilities in the interest of all the people of the Great Lakes Region, acting in a continuing spirit of comity and mutual cooperation. The Great Lakes States and Provinces reaffirm the mutual rights and obligations of all Basin jurisdictions to use, conserve, and protect Basin water resources, as expressed in the Boundary Waters Treaty of 1909, the Great Lakes Water Quality Agreement of 1978, and the principles of other applicable international agreements.

Les ressources en eau du bassin des Grands Lacs constituent des ressources naturelles publiques de grande valeur partagées et tenues en fiducie par les États et provinces du bassin des Grands Lacs. Les Grands Lacs constituent de précieuses ressources régionales, nationales et internationales à l'égard desquelles les gouvernements fédéraux respectifs des États-Unis et du Canada et la Commission mixte internationale assument, de façon constante et en association avec les États et les provinces, un rôle et une responsabilité essentiels et constants. Les eaux du bassin des Grands Lacs sont reliées entre elles et font partie d'un même système hydrologique. Les multiples utilisations auxquelles se prêtent ces ressources sont interdépendantes et comprennent: l'alimentation en eau à des fins municipales, industrielles et agricoles; l'exploitation minière; la navigation; la production hydro-électrique et énergétique; les loisirs et le maintien de l'habitat du poisson et de la faune et de l'équilibre de l'écosystème. Des études menées par la Commission mixte internationale, par les États et les provinces du bassin des Grands Lacs et par d'autres organismes ont montré qu'à défaut d'une gestion sage et prévoyante, une éventuelle augmentation des dérivations et consommations des eaux du bassin des Grands Lacs pourrait avoir des effets défavorables appréciables sur l'environnement, l'économie et la prospérité de la région des Grands Lacs. À titre de fiduciaires des ressources naturelles du Bassin, les États et les provinces du bassin des Grands Lacs partagent collectivement le devoir de protéger, conserver et gérer les ressources renouvelables mais limitées que sont les eaux du bassin des Grands Lacs, pour l'usage, le bénéfice et la jouissance de tous leurs citoyens, y compris les générations à venir. Pour s'acquitter de ce devoir, le moyen le plus efficace consiste à élaborer collectivement des principes, des politiques et des programmes unifiés et coopératifs qui auront tous été convenus et adoptés et auront reçu l'adhésion de tous et chacun des États et provinces du bassin des Grands Lacs. La gestion des ressources en eau du Bassin est soumise à la juridiction, aux droits et aux responsabilités des États et provinces signataires. Une gestion efficace des ressources en eau des Grands Lacs requiert, dans l'intérêt des populations de la région des Grands Lacs, que cette juridiction, ces droits et ces responsabilités s'exercent dans un esprit constant de bonne entente et de coopération mutuelle. Les États et provinces du bassin des Grands Lacs réaffirment les droits et obligations réciproques de tous les gouvernements du Bassin d'utiliser, de conserver et de protéger les ressources en eau du Bassin, tel qu'il est énoncé dans le Traité des eaux limitrophes internationales de 1909, dans l'Accord relatif à la qualité de l'eau dans les Grands Lacs de 1978 et dans les principes de tous les autres accords internationaux pertinents.