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Prairie Water Partnerships in Prairie Water Partnerships in GovernanceGovernance

Prairie Water Policy Symposium

International Institute for Sustainable Development

September 2005, Winnipeg, Manitoba

P.E. Adkins, P.Eng.

A/Director, Ag Water Directorate, AAFC-PFRA

Agricu lture and Agri-Food C anada

Prairie Farm R ehabilita tionAdm inistra tion

Agricu lture et Agroalim enta ire C anada

Adm inistra tion du rétablissem entagrico le des P ra iries

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OutlineOutline

What is Water GovernanceHow Does it work in CanadaWater Governance on the PrairiesFuture of Partnerships in GovernanceIntegrated Water Resource ManagementGaps in Governance

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Governance: Definitions Governance: Definitions

Governance is:– The “act, manner, function, or power of

government” (Webster’s)

Governance is the process of “governing”:– “to exercise authority over; rule, administer,

direct, control, manage, etc.”– formalizes “the maintenance of public order

and the promotion of the common welfare,” and, “orderly management”

– “embraces the relationship between society and its government”

– “encompasses laws, regulations, institutions, policies, programs, actions, & networks of influence”

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Water Consumption in Canada 1996

- Consumed

(Translation)

-Returned

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Water is Unique from a Water is Unique from a Governance Perspective…Governance Perspective… Freshwater is a unique environmental resource It is essential for:

– Society’s survival and well-being– Economic Development– Environmental health and sustainability

Water knows no boundaries, be they political or jurisdictional boundaries

Water is a cross-cutting resource that cannot be neglected by any aspect of society

Watershed is a critical planning unit to protect the environment and support development

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The Canadian Model:The Canadian Model:How we Govern our WaterHow we Govern our Water Water is a public good Provinces have constitutional authority over

natural resources including water:-Water rights allocation

-Rights are not privately held-Tradeable only in Alberta

-Flow regulation-Development regulation-Pollution control

Prairie provinces have each developed a “water strategy” – an important element

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The Canadian Model:The Canadian Model:How we Governs our WaterHow we Governs our Water Federal regulatory role in:

– Inter-provincial and international waters– Water on Federal Crown land– Fishery and fish habitat in all Canadian

waters– Navigable waters

Federal intervention in other areas is possible in the interest of “good governance”

Federal Water Policy - 1987

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Federal Institutions with Water Federal Institutions with Water Resource Responsibilities:Resource Responsibilities:

5NR: Five Natural Resource departments: – Environment (environment and trans-boundary flow)– Health (public health)– Natural Resources (ground water)– Agriculture and Agri-Food (protection & rural water)– Fisheries and Oceans (inland and ocean fisheries)

Other federal agencies:– Indian and Northern Affairs (First Nations water)– Transport Canada (navigation)– Foreign Affairs (trade & export)– Canadian Food Inspection Agency (bottled water) – Parks Canada is responsible for ecological integrity

and water and wastewater systems in national parks Plus 12 others!!!

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Agriculture & Agri-Food CanadaAgriculture & Agri-Food Canada

Agriculture Policy Framework– Water, air, land, biodiversity

Water Strategy under developmentNational Water Supply Expansion

Program (NWSEP)– Water development and studies

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Provincial Institutions with Water Provincial Institutions with Water Resource Responsibilities:Resource Responsibilities:

Natural resource departments: – Environment – Health– Natural Resources– Watershed Authority/ Drinking Water or

Water Services/Corporations– Agriculture

Other departments and crown corporations

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Other Institutions Other Institutions with Water Resource Responsibilities:with Water Resource Responsibilities:

Municipalities (water, wastewater, environment) Health Districts (heath inspectors and water/wastewater safety) First Nations (water, wastewater, environment) Environmental agencies:

– Watershed groups (stakeholder interests and environment)– Conservation Authorities

Other agencies and industry groups– Agricultural groups (specialty focus: e.g. irrigators, cattle, dairy, field

crop, etc. )– Industry and Industry-supported groups (water and wastewater

discharge) Non-government organizations

– Greenpeace, Sierra Club, etc. Private landowners:

– private water and wastewater supplies All Citizens have personal responsibilities to safeguard and protect

the environment (water, land and air) from contamination

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Water on the Prairies…Water on the Prairies…Context of GovernanceContext of Governance

Semi-arid agricultural areas are the most populated

Lack of precipitation drives irrigated agriculture (60% of Canadian total in Alberta)

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Water on the Prairies…Water on the Prairies…Context of GovernanceContext of Governance

Driven by dry climate and the rather complex institutional arrangements, governance of water on the prairies is characterized by partnerships!

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Examples of Water Governance on Examples of Water Governance on the Prairies…the Prairies…

IJC – Canada/US Boundary Waters Treaty 1909

• Environment Canada lead• International Red River Board

Non-profit Organizations – Red River Basin

Commission AAFC - PFRA partnership with the prairie

provinces since 1935– Technical and financial support to water development, and

regulatory/management efforts, including specific Programs

Prairie Provinces Water Board (PPWB) since 1948

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Prairie Provinces Water BoardPrairie Provinces Water Board

Initial Mandate– Address emerging challenges of

inter-jurisdictional water management– Focussed on “highest and best

economic use”– With increasing demands on the

resource, approach became problematic

Change required…

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Prairie Provinces Water BoardPrairie Provinces Water Board

Master Agreement on Apportionment (MAA) 1969 – “equitable sharing of available Prairie water

resources”– Flexible agreement to help address new

challenges over timeeg. -Natural flow determination for

apportionment-Drainage issues-Groundwater-Water quality

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Prairie Provinces Water BoardPrairie Provinces Water Board

Membership:

Senior officials from Environment Canada, Water agencies in each of three provinces, AAFC-PFRA– PFRA coordinating role 1948 to 1973– EC lead administrative and funding

role since 1973; provides chair person and executive director

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Prairie Provinces Water BoardPrairie Provinces Water Board

Responsibilities:– Ensure equitable apportionment, and

protection, of inter-provincial waters in accordance with MAA

– Forum to exchange information to prevent and resolve conflicts

– Promote cooperation in inter-provincial water management

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Prairie Provinces Water BoardPrairie Provinces Water Board

Committees:– on Hydrology (COH)– on Water Quality (COWQ)– on Groundwater (COG)

Roles – to support operations

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Future of Prairie Water Future of Prairie Water Partnerships in Governance…Partnerships in Governance…

MUST CONSIDER:

Increasing climate variability and climate change

In-stream ecological water needs Water demand management / conservation Increasing potential for conflict over water use /

competing uses Increasing importance of water quality Expanding role for PPWB? More complete adoption of the principles of

Integrated Water Resource Management(IWRM) as a governance tool …

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“A process that promotes the coordinated development and management of water, land and related resources in order to maximize the resultant economic and social welfare in an equitable manner without compromising the sustainability of vital ecosystems.”

Global Water Partnership

What is IWRM?

Issues/opportunitiesFact Sheets/MediaDemos/WorkshopsScientific Papers

Concepts

Products/ProcessesDemos/Workshops

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Integrated Water Resource Integrated Water Resource Management - IWRMManagement - IWRM

“a process that promotes the coordinated development and management of water, land, and related resources in order to maximize the resultant economic and social welfare in an equitable manner without compromising the sustainability of vital ecosystems”

(GWP TEC Paper 4, 2000)

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Integrated Water Resource Integrated Water Resource Management - IWRMManagement - IWRM

More simply put:

– the preferred approach to managing land and water resources in balance with human, industrial, agricultural and environmental needs

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IWRMIWRM

Federal leadership role for ECIWRM is an internationally accepted

process for management of the earth’s water resources

Canada has international commitments to implement –

World Summit on Sustainable Development (WSSD)

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Institutional Gaps in Prairie Water Institutional Gaps in Prairie Water GovernanceGovernance

Agriculture and Water agencies are often not at the table together

Need a new Federal Water PolicyStronger Federal leadership /

facilitation / support (eg. IWRM)

More united approach to water from Federal departments

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QUESTIONS?QUESTIONS?