 ecisions to emphasize sustainable development and to adopt an ecosystem approach, as well as funding constraints, have forced changes in Environment Canada's role and activities regarding freshwater resources. The benefits of this new orientation are expected to be improved capacity to link water more effectively to other resources and to ecosystem issues, and to more effectively apply human resources to inter-related problems. There is general appreciation across Canada of the rationale for this new orientation. Furthermore, around the world, many nations are seeking to ensure that they are able to address environmental concerns in a holistic manner.
At the same time, the one national and eight regional workshops organized by Canadian Water Resources Association (CWRA) and the Canadian Global Change Program (CGCP) have revealed significant concerns about some aspects of these changes. The adjustments have resulted in water becoming almost invisible in the federal government. People are unsure who is now responsible and providing leadership (in the federal government) for water issues. They also are worried that the outcome of this reorientation, along with recent downsizing in Environment Canada, will lead to insufficient capability in the federal system to understand and to deal with pressing water issues. A key concern is that by embracing the ecosystem approach, and thereby gaining a broader perspective, Environment Canada may have sacrificed the in-depth capacity related to water necessary to address major problems and, indeed, to full realization of the ecosystem approach.
There are other changes pending, as well, that may challenge maintenance of a coherent federal role in freshwater issues. The Canadian Council of Ministers of the Environment (CCME) has under way a "harmonization" exercise designed to streamline and better coordinate federal and provincial activities in environmental management. This can be expected to lead to further adjustments. The evolution of First Nations toward self government will result in the need for another set of government-to-government partnership arrangements for water issues.
In reviewing the role of the federal government and Environment Canada regarding water issues, the workshops focused on three main aspects: domestic, bilateral (Canada-U.S.A.), and international. In all three aspects, there is strong support for continuance of Environment Canada's roles in addressing freshwater issues.
Regarding domestic issues, there is general agreement that there is a role for the federal government to develop and improve capacity to implement an ecosystem approach within the geographical framework of river basins. A logical federal role should be in connection with the large interjurisdictional basins across Canada. In that regard, a real need exists to deal better with coastal areas, where freshwater and marine systems interact and where setting ecosystem and basin boundaries is a challenge.
Water quality is crucial for the well-being of all living things, and there is strong support for the federal government to have a role regarding national guidelines for water quality and standards for data collection and management. Furthermore, there is a strong belief that a national water quality data system should be linked to a data system for water quantity and related climatic, precipitation chemistry, and groundwater data. Environment Canada's role as national custodian of water-related data is strongly supported. Earlier and current CWRA consultations indicated a strong perception that Canada's water data networks are in crisis and rapid corrective actions are needed.
Regarding water as hazard, too much or too little water at the wrong times or places can create major human and economic stress. The federal government showed leadership in establishing the cooperative Flood Damage Reduction Program, and there is strong support for a continuing involvement to help maintain its benefits. Drought is a serious concern in the Prairies and elsewhere, and continued joint federal-provincial activity to reduce vulnerability to that hazard is needed. Accelerating global changes are expected to increase the frequency and severity of floods and droughts making further action on these issues very important to Canadians.
Many people across the country believe that water is symbolic of the heritage and culture of Canada. While there are differing opinions regarding the amount of support that should be given to the Canadian Heritage Rivers Program, there is a strong view that public sensitivity to water and related ecosystem components will be enhanced by such awareness programs. The essential role of freshwater as habitat also highlights those aspects of water less directly related to the economy, and is a reminder that humans have an obligation to consider the needs of other living things.
Finally, growing understanding of climate change indicates that the federal government needs to maintain the capacity to analyze the processes, patterns and impacts associated with climate and other global changes. This requires a much better understanding of the role of the hydrologic cycle in these changes. This work should also emphasize the consequences for aquatic systems and the development of guidelines for the adaptation of water management strategies.
Bilateral (Canada-U.S.A.) issues are important since most Canadians live in basins shared by the two countries. The federal government must have a national overview role for such issues, since decisions made in one situation are often used during negotiations as precedents in other situations and regions. The federal government must have access to the technical, legal, environmental, economic, and social expertise to ensure that it is well positioned, prior to negotiations with Americans, and in administration of existing agreements.
Key aspects with which Canada must be prepared to deal include bilateral agreements under review, such as those for the Niagara and Columbia rivers, water quality, including long-range transport of pollutants into Canadian water systems, introduction of exotic species (e.g. zebra mussels, Eurasian milfoil) from outside Canada, contamination from transboundary groundwater aquifers, and water export issues.
Regarding international issues other than those involving the U.S.A., Canada is signatory to various global conventions and agreements (Climate Change, Biological Diversity) and regional conventions that incorporate or impact upon water. The federal government must have the capacity to represent Canada's interests and positions in such situations and to ensure Canada fulfils its legal and moral obligations. There is a strong belief across the country that, despite its serious financial problems, Canada still is a relatively wealthy country and has a moral obligation to participate in sharing experience and assisting countries that are less developed.
There also is a strong belief that Canada needs to maintain the capacity to be involved in international scientific activities, in order to ensure that we are aware of the most recent developments especially on large-scale issues, as well as to expose our findings and experience to international scrutiny. There also appear to be overseas, commercial opportunities related to water technology and services. Capitalizing on these will require a new level of government-private sector-university collaboration not previously undertaken.
Canada also has the experience and expertise to assist other people and organizations with capacity building. A special opportunity for capacity building lies in Canadian participation in the proposed multisectoral World Water Council. There also is a general belief that Canada will need a national mechanism, such as a Canada Water Council, to be able to participate effectively and ensure systematic multisectoral national perspectives.
This report on the workshop consultations, while providing both general and specific direction, cannot be considered fully comprehensive. A continuing consultation process is needed as Environment Canada modifies its activities over the next few years.
These recommendations are designed to assist Environment Canada in sharpening the redirection of its water activities. With the possible exception of the now developing issue of the transfer of freshwater responsibilities from Fisheries and Oceans Canada to Environment Canada, these recommendations do not carry major resource implications. Rather, as these recommendations are in effect "steering" adjustments, they can be met through minor resource re-allocations and refocusing of current activities. It is critical for Environment Canada to appreciate that these recommendations, while not comprehensive, should be considered as contributions to the overall health of water activities in the Department. In other words, they all have merit. Together they contribute to sharpening the intent and eventually the impact of the Department's activities.
- Environment Canada must accept responsibility to ensure that federal legislative and other obligations continue to be met in one way or another while harmonizing actions between federal and provincial governments. Such obligations are defined by the BNA Act, the Boundary Waters Treaty, and Acts of Federal Parliament, and must take into account long-standing federal-provincial agreements and understandings.
- In adopting a "Vision" and establishing principles to guide federal actions, the many values of water, including its vital role for sustainable development in Canada, must be recognized. This should be expressed through a revised statement of Federal Water Policy (1987) and revisions to the Canada Water Act (1970) to reflect new perspectives and circumstances.
- Canada enjoys a large share per capita of the world's fresh water resources and must accept the international obligations related to the benefit this confers. This obligation requires the federal government to ensure appropriate assessments and stewardship of these waters.
- Environment Canada should act to strengthen federal interdepartmental coordination mechanism(s) on natural resources and environment with a working group on aquatic systems (or freshwater). The Department should also promote similar federal-provincial actions through CCME.
- Leadership through science and systematic data collection and management is an accepted role for Environment Canada that must be exercised.
- Environment Canada should take a leadership role in creating consortia of government (federal, provincial, territorial, and municipal), First Nations, universities and colleges, and the private sector to address a variety of water-based problems and issues, both domestically and internationally. (See also Recommendation 18)
Domestic Issues
- In addressing domestic water issues, an ecosystem approach based on geographical units of "nested river basins" should be adopted and promoted. In such an approach, Environment Canada should play its role in cooperation with the provinces by addressing water apportionment, aquatic ecosystem protection, and water quality in large interjurisdictional basins (e.g. Saskatchewan-Nelson and Great Lakes-St. Lawrence systems). This will provide the guidelines and framework within which complementary smaller basin planning and management can be encouraged and carried out at provincial and community levels, at progressively smaller sizes within the large basins. On the coasts, estuaries and coastal zones must be considered within a "nested basin" ecosystem approach.
- Freshwater ecosystem protection would be enhanced by Environment Canada accepting responsibility for federal aspects of freshwater fisheries, and this is recommended.
- A continued federal involvement, in cooperation with provinces, in flood damage reduction and drought loss limitation, is needed to reduce future federal obligations for disaster assistance and agricultural support. Projections of trends toward higher flood and drought losses lend urgency to these activities.
- Continuing Environment Canada support of water information and awareness programs is needed to ensure longer term positive attitudes toward stewardship of aquatic systems.
- Continuation of Environment Canada's initiatives regarding water demand and economic analysis is needed to ensure efficient allocation and use of water resources.
Bilateral Issues
- A high priority must be attached by the federal government to protecting Canada's interests under the Canada-U.S.A. Boundary Waters Treaty, and to ensure Canada meets its obligations to the U.S.A. To this end, a central Boundary Waters Unit is needed to ensure consistency and effective technical input to negotiation and administration of scientific agreements. Priority should be given to the Niagara and Columbia River Treaties now under review.
- Greater Environment Canada efforts are required in assessments and actions to limit transboundary air pollution having adverse effects on aquatic systems.
- An ecosystem approach should be promoted by Canada in all boundary and transboundary water quality issues, and the role of groundwater should be more adequately recognized.
International Issues
- The federal government, with its partners, should ensure effective participation and meeting of obligations under global and regional conventions and agreements that have impacts on freshwater.
- Analyses of freer trade implications for aquatic environments should be supported by Environment Canada.
- Environment Canada must play a central role in both science and policy development to limit rates of climate change and to support water management adaptation to all aspects of global change.
- Environment Canada and the Canadian International Development Agency (CIDA) should develop a multisectoral consortium approach to address international water issues.
- While insufficient information was available for definitive opinions, cautious support should be given to developing an effective multisectoral World Water Council and providing guidance on means of achieving the potential benefits, but avoiding large costs and overlaps. A counterpart Canada Water Council, also involving the private sector, should be considered.
Fundamental Supporting Infrastructure - Data and Science
- In " reengineering" water related measurement programs, Environment Canada must take into account earlier CWRA consultation results on the hydrometric program. In particular, it should ensure continued development and promulgation of national methods and procedures, to ensure data comparability and to ensure access to data for Environment Canada's as well as others needs. It must also give high priority to maintaining readily accessible, quality assured, national data archives. (Fees for processing data requests were reluctantly accepted as a necessity by most workshop participants). Access to such archives is essential to achieve many economic and environmental benefits and is necessary for environmental impact assessments under both federal and provincial legislation.
- In field measurements programs, federal obligations must continue to be fulfilled:
- at or near interjurisdictional boundaries and in boundary water;
- for assessing river contributions to estuaries, coastal zones, and the oceans;
- in relation to federal lands; and
- in reference networks of key multisectoral sites, for determining national trends of means and extremes. Hydrometric, ambient water quality, and aquatic ecosystem measurements must be complemented by climatic, precipitation chemistry, sediment, glacier, and ice measurements to understand and address interjurisdictional and global effects.
- Development of methods for more efficient and reliable collection, analysis, storage, retrieval, and dissemination of water-related data should be supported by Environment Canada.
- Environment Canada should continue to support State of Environment reporting, making use of national data archives.
- Provinces should be encouraged to maintain an appropriate share of water related observation programs, and to help ensure contributions of water users (e.g., hydro-electric commissions) to national data archives through conditions attached to water licenses and/or application of a portion of license fees to measurement programs.
- National (federal or federal-provincial) standards and guidelines affecting water, should be kept under continuing review, with special attention to security of underground storage tanks, drainage facilities and construction (National Building Code), drinking water, and other guidelines to protect the health of Canadians and aquatic and terrestrial ecosystems.
- A widely accepted and important role of Environment Canada is water-related research, both in natural and socio-economic sciences. Emphasis should be placed on research to meet operational and policy needs especially related to interjurisdictional issues and to fulfilment of requirements of international conventions.
- Consultation on freshwater research priorities should involve partners outside Environment Canada.
- Environment Canada should, with the granting councils, ensure support for water-related centres of excellence in Universities.
Reporting and Consultation
- A strong message from the workshops was that Environment Canada be requested by CWRA and CGCP to publicly report on progress toward implementation of these recommendations and other developments related to water. It is suggested that a first report be prepared by September 1996, and periodically thereafter, and that these reports could be used to help stimulate further consultations.
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