Professional Documents
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GREAT LAKES
WATER QUALITY
INTERNATIONAL JOINT COMMISSION
FINAL REPORT
Prepared by
The International Joint Commission Pursuant
to Article 7 (1) (k) of the 2012 Great Lakes Water NOVEMBER 28, 2017
Quality Agreement
snoopymysp - Fotolia / Adobe Stock
COMMISSIONERS
Lana Pollack
Gordon Walker
Rich Moy
Benot Bouchard
Richard Morgan
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Sergey Kucherov / Adobe Stock
The dialogue was robust. The public raised more than 65 issues
and provided insight and advice. While the Commission did not
research or incorporate in its recommendations all the publics
concerns, it found much value in the insights of those who
contributed during the open comment period.
November 2017 5~
For the last 45 years, since the initial signing and the Health Professionals Advisory
of the Agreement, the governments of Board of the IJC, as well as the public
both great nations have recognized their and indigenous peoples. The Commission
responsibilities, as trustees of the lakes on strongly encourages a continuing dialogue
behalf of their citizens, to protect, defend and engagement with all groups to sustain
and restore the multiple values of these the restoration, maintenance and protection
freshwater jewels. This report is a direct of the lakes for future generations.
outgrowth of their commitment to be Commissioners hope that this report
accountable to the public for the fulfillment will be an important part of this dialogue.
of these responsibilities. The Agreement
has evolved since 1972 to reflect a changing The governments of Canada and the
scientific understanding of the lakes, United States and Great Lakes civil
a growing binational relationship, and society as a whole are living with the costly
emerging challenges such as climate change. consequences of past failures to anticipate
environmental problems. In making this
Why is the Commission charged with assessment of progress, the Commission
preparing this report? Since the 1978 viewed matters through the prism of
revision of the water quality agreement, the prevention, how lessons learned from the
International Joint Commission has served past are used to avoid current and future
as an independent assessor of the progress problems. Actions by the governments to
made by the two governments in achieving implement the GLWQA were reviewed
the Agreements objectives. not just with respect to what existing water
quality issues were addressed but also
The Commission wishes to acknowledge with respect to actions taken to prevent
other governments deeply concerned with new degradation of water quality from
the health of the Great Lakes. Amongst these occurring. The Commission urges both
governments are Tribal, First Nations and countries to adhere to the prevention
Mtis governments. These governments and principle they wisely incorporated in the
their peoples need to be engaged as rights 2012 revision to the GLWQA. A number
holders with recognition and appreciation of of recommendations provided in this report
their governance, identity, cultures, interests, offer specific examples of how this can be
knowledge and traditional practices. implemented.
GordonWalker
Gordon Walker Lana Pollack
Lana Pollack
CanadianSection
Canadian SectionChair
Chair United StatesSection
United States SectionChair
Chair
Commissioners from left to right: Richard Morgan, Benot Bouchard, Lana Pollack (U.S. Chair), Gordon Walker (Canadian Chair), and Rich Moy
The conditions and management challenges of the waters shared by the United States and Canada have
evolved since the Boundary
Richard Morgan Waters Treaty (BWT) was signed in 1909. Laws, regulations, policies,
Richard Morgan
programs, partnerships, and scientific understanding have substantially advanced in the last century,
CanadianCommissioner
Canadian Commissioner
and new threats, not imagined at that time, now confront transboundary water resources. As a treaty
organization with more than a century of experience in binational problem solving, the International
Joint Commission is best positioned to fulfill its obligations to governments by focusing its work within
the five strategic priorities of its 2015-2020 Strategic Plan.
November 2017 7~
M. Burrows
EXECUTIVE SUMMARY
The International Joint Commission (IJC or Commission)
is charged by the 2012 revision of the Great Lakes Water
Quality Agreement (referred to throughout this report as
GLWQA or Agreement) to submit a triennial assessment
of progress regarding Great Lakes water quality to the
United States and Canadian governments (the Parties to
the GLWQA). Pursuant to Agreement Article 7.1 (k) the
Assessment of Progress Report is to include:
i. a review of the Progress Report of the Parties;
ii. a summary of public input on the Progress Report
of the Parties;
iii. an assessment of the extent to which government
programs and measures are achieving the General
and Specific Objectives of this Agreement;
iv. consideration of the most recent State of
the Lakes Report; and
v. other advice and recommendations, as appropriate.
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Significant challenges include the increase
in harmful algal blooms in Lake Erie, the
slow pace in addressing chemicals of mutual
concern, and the spread of previously
introduced invasive species. Governments
also need to pay additional attention to
infrastructure investments that are essential
to eliminate the discharge of untreated or
insufficiently treated waste into the Great
Lakes and reduce risks to human health.
Vasily Merkushev - Fotolia
The IJC firmly believes that achieving the
GLWQAs purpose and objectives will
happen only if all sectors of the Great
This is the IJCs first triennial report under
Lakes community are involved. Article 7
the 2012 GLWQA. In submitting it to the
of Agreement requires the Commission to
Parties, the Commission believes it will also
consult on a regular basis with the public,
be useful to other orders of government, and
increase awareness of the lakes inherent
all people who care about the well-being of
value, and prepare a summary of public input
the lakes.
on the Progress Report of the Parties. The
The IJC finds much to commend in the IJC conducted extensive public engagement
Parties work under the GLWQA. In this activities to meet these requirements and
first triennial cycle of implementation, the to solicit views from the public on a draft
Parties successfully met deadlines to develop of this report released in January 2017. The
priorities for science and action, propose a Commission received input at thirteen public
nearshore framework, and set phosphorus meetings, roundtables and listening sessions,
load reduction targets for Lake Erie. The through the online democracy platform,
2012 GLWQA also galvanized new energies Participate IJC, and its newsletters, social
and activity over a larger span of issues media and website, and via email and letters.
than was covered by previous versions All comments were carefully considered in
of the Agreement. the production of this triennial assessment
of progress report.
Progress toward meeting the GLWQAs
general objectives includes accelerated Article 2 of the GLWQA sets forth a set
restoration of contaminated Areas of of 16 principles and approaches the Parties
Concern, the development of binational agree to use in Agreement implementation.
habitat conservation strategies, the absence The IJC views three as especially
of newly introduced aquatic invasive species, important: prevention, foremost, followed
and comprehensive reporting on groundwater by accountability and engagement. The
science. But more work needs to be done. Commission identified progress on each of
these three principles and approaches, but
PROTECTING
IMPLEMENTING HUMAN HEALTH
THE GLWQA
The IJC finds that governments have not
The IJC finds that the 2012 GLWQA demonstrated sufficient progress toward
galvanized new energies, activity and achieving the human health objectives in
binational cooperation. The Parties are their implementation of the GLWQA.
to be commended for authoring the new The human health objectives are those
GLWQA, giving it momentum and related to the drinkability, swimmability
harmonizing implementation activities. and fishability of the Great Lakes. The
In just three years, the Parties have Parties could improve their approach to
made remarkable progress formalizing and success in addressing human health
mechanisms by which the new GLWQA objectives by enhancing focus on objective
can be implemented and meeting deadlines achievement, increasing coordination among
for initial Agreement commitments. jurisdictions and improving accountability.
CONTROLLING
NUTRIENTS
RESPONDING TO
CLIMATE CHANGE
The Great Lakes have been a site of human activity since time immemorial. We
humbly ask permission from all our relatives, our elders, our families, our children,
the winged ones, the four legged, the swimmers and all the plant and animal
nations, to work on their behalf for the protection of the waters. We are stewards
of the Great Lakes to which we are deeply connected knowing that our health as
a people is intricately tied to the health of the lakes. Our first medicine is water,
because life would not be possible without the blessings of the waters. The Great
We gather in peace and honor our duty to work for the protection of the Great
Lakes. We bring our minds together as one, and we give greetings and thanks to
each other as relations. We acknowledge the spirit and support of our clans as we
work to protect the lakes We give thanks for when we are able to come together to
speak for the waters. And we ask in a humble and a good way for everyone to have
the strength and courage to carry forward the actions detailed in this report. Now
our minds are one. We remember to give thanks and offer respect for all those who
have gone on before us and those yet to come. And on behalf of our children, we say,
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schankz - Fotolia
1. INTRODUCTION..............................................................23
4. CONSIDERATION OF STATE
OF THE GREAT LAKES REPORT............................... 59
5. ASSESSMENT OF PROGRESS
TOWARD GENERAL OBJECTIVES...........................67
1. Drinking water............................................................ 68
2. Swimming and recreational use......................... 77
3. Consumption of fish and wildlife...................... 82
4. Pollutants.......................................................................87
5. Wetlands and other habitats.............................. 95
6. Nutrients.....................................................................100
7. Invasive species....................................................... 109
8. Groundwater............................................................ 120
9. Other Materials, Substances
and Conditions........................................................... 124
Technical Appendix
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csterken - Fotolia
1.
INTRODUCTION
The International Joint Commission (IJC or Commission) is
a binational organization created by Canada and the United
States in the Boundary Waters Treaty of 1909 (the Treaty).
Under the Treaty, the two countries cooperate to prevent and
resolve disputes relating to the use and quality of many lakes
and rivers along their shared border. The Great Lakes Water
Quality Agreement (GLWQA or Agreement) assigns the IJC
an independent advisory role in assessing progress, engaging
the public and providing scientific and policy advice to help
the two countries restore and maintain the chemical, physical
and biological integrity of the waters of the Great Lakes.
ending in 2012.
In this report, the IJC presents a review Cover of the draft report of the first Triennial
of the PROP (Chapter two), a summary Assessment of Progress on Great Lakes
Water Quality by the International Joint
of public input (Chapter three) and Commission, January 2017.
considers the most recent SOGL report
A REVIEW OF THE
PROGRESS REPORT OF
THE PARTIES
The GLWQA requires that the IJCs triennial assessment of
progress include a review of the Progress Report of the Parties
(PROP), produced by the governments of Canada and the
United States as Parties to the GLWQA. This chapter assesses
the quality of the PROP in meeting reporting requirements
and demonstrating implementation of the principles and
approaches established in Article 2.4 of the GLWQA that are
relevant to reporting. The full list of reporting requirements
and applicable principles and approaches is found in the
Technical Appendix, along with a more detailed review
of the PROP.
PUBLIC ENGAGEMENT
The PROP is a clear, readable catalogue To further improve reporting, the IJC
of actions. Overall, the PROP in itself recommends that:
represents a large step forward in The Parties set clear, time-bound
accountability under the GLWQA. targets for action and also longer-
However, coordinated release of the SOGL term aspirations for improvements in
report with the PROP is essential in order to the status and trends of Great Lakes
conduct a proper assessment of governments indicators as measured by science-based
progress. Accountability would be further indicators.
improved over time with the addition of In future reporting cycles, the Parties
clear, specific, time-bound commitments coordinate the timing of the Progress
for implementation goals and management Report of the Parties and the State of
actions. The report would also benefit from a the Great Lakes report and release the
more critical evaluation of the effectiveness reports sufficiently before the Great
of programs and measures by the Parties Lakes Public Forum to ensure informed
themselves, a greater demonstration of discussion at the Forum.
coordination outside of federal, state and The next Progress Report of the
provincial agencies, particularly with Parties, expected in 2019, and those
indigenous governments, and greater focus following include reporting on how
on and communication of the PROP as a the recommendations in this triennial
public engagement tool. assessment of progress are being
addressed.
3.
SUMMARY OF PUBLIC
INPUT ON PROGRESS
The IJC believes strongly that public engagement is the
foundation of effective public policy and that achieving
the Great Lakes Water Quality Agreements (GLWQA or
Agreement) purpose and goals will only happen if all sectors
of the Great Lakes community are involved. Because of this
belief, and the fact that Article 7 of the GLWQA requires
the Commission to consult on a regular basis with the public,
increase awareness of the lakes inherent value, and prepare a
summary of comments on the Progress Report of the Parties
(PROP), the IJC conducted several public engagement
activities as part of its triennial assessment of progress under
the GLWQA. Input was received at thirteen public meetings,
roundtables and listening sessions, through the IJCs online
democracy platform, Participate IJC, and its newsletters, social
media and website, and via email and mailed letters.
The Parties agree that, pursuant to Article IX of the Boundary Waters Treaty,
the Commission shall have the following responsibilities:
1. (g) consulting on a regular basis with the Public about issues related to the
quality of the Waters of the Great Lakes, and about options for restoring and
protecting these waters, while providing the Public with the opportunity to
raise concerns, and tender advice and recommendations to the Commission
and the Parties;
(h) engaging with the Public to increase awareness of the inherent value of
the Waters of the Great Lakes, of the issues related to the quality of these
waters, and the benefit of taking individual and collective action to restore
and protect these waters;
(k) providing to the Parties, in consultation with the Boards established
under Article 8, a triennial Assessment of Progress Report that includes:
(ii) a summary of Public input on the Progress Report of the Parties;
Four meetings were held in fall 2016 the thoughts about the status of Great Lakes water
public comment session at the Parties quality. Their comments reflect the specific
Great Lakes Public Forum in Toronto, perspectives and priorities of each community,
two public meetings in Toronto, Ontario reinforcing the adage that we may think
and Milwaukee, Wisconsin and a scientific globally but we are most likely to act locally
roundtable in Milwaukee to obtain input about the issues that most affect our individual
on the PROP report as well as participants lives. At the same time, some also discussed
perceptions of progress to restore and protect issues that impact the entire watershed and
the lakes. Nine additional sessions were held illustrate the need for an ecosystem approach
in March 2017 in six communities around to Great Lakes management.
the basin to hear what people felt about
Agreement progress as well as the IJCs draft Videos of these sessions were uploaded to
assessment report. In total, more than 1,000 Participate IJC, an online democracy tool
people participated in these sessions. that provides detailed information and
opportunities for input and dialogue on
Each meeting was unique in its design various IJC initiatives, including activities
to provide a variety of opportunities for under the GLWQA. This tool allows people
participants to comment on the PROP and to record their comments on the website and
the IJCs draft report, to learn about local also to view other peoples comments and
and regional innovative programs addressing presentations made at the public meetings.
Great Lakes issues, and to provide their
Public Meetings
Before the Commission traveled around the In Toronto, the evening public
basin to hear from the public, it coordinated meeting focused on waterfront
with local experts, governments and regeneration, the areas remedial
organizations to organize meetings that action plan, wastewater treatment
focused on issues most relevant to their and particularly combined sewer
community and region. Most meetings were overflows, toxic substances, and fish
designed so participants could divide into habitat. During the IJCs public
small groups to develop recommendations comment session at the Great Lakes
on key issues. In larger meetings the Public Forum, statements reflected
sessions focused on brief presentations and a variety of topics, including climate
providing ample time to hear everyones change, indigenous rights, reductions
views. While complete summaries of each in nutrient loads into Lake Erie,
meetings discussions and recommendations nuclear waste, storage and transport,
are available in the Summary of Public radionuclides, protecting natural
Comment Appendix, highlights of the heritage, wetlands preservation,
themes and key issues at each public session and public engagement in Great
hare highlighted here. Lakes issues.
Seventy topics were raised by the public. A complete list is available in the Summary of
Public Comment Appendix. The top 25 topics by frequency of mention throughout the TAP
public engagement process are included here.
Great Lakes residents connect to the lakes entire lake basins that make this indicator
according to where they live and how they can appear rosier than what they feel is actually
or cannot use and enjoy them. Their desires for occurring. Several Great Lakes organizations
safe drinking water, safe beaches for recreation and an Ontario municipality noted that source
and tourism, and fish safe to eat were water quality is reported on in Canada while in
prominent themes throughout all meetings the United States only the quality of drinking
as well as in individual letters and emails. water after treatment is reported. The United
States lacks a national database for the quality
Safe Drinking Water of source water used as a public drinking water
supply. These and other commenters felt such
Throughout the Great Lakes region, the measures should be identical in both countries
public overwhelmingly felt that clean, safe to ensure parity in drinking water quality
drinking water should be the highest priority. and to effectively assess progress to meet the
The emergencies in Toledo in 2014 and in Agreements objective that the waters of the
Flint, Michigan starting in 2015, gave them Great Lakes be a source of safe, high quality
clear evidence of this reality. Infrastructure drinking water.
improvements in wastewater treatment and
especially combined sewer overflows are
crucial, particularly in urban areas. Consistent
regulations and regional plans for sewage
discharge are needed across the states
and provinces to deal effectively with this
basinwide issue.
Petition via email from 56 New York residents, People in urban communities such as
April 4-9, 2017 Detroit and Milwaukee raised concerns
about access to clean drinking water due
to issues of affordability, treatment and
distribution. Residents in Sault Ste. Marie,
Several individuals and representatives
Sarnia, and Detroit also expressed the view
of municipal governments and
that corporations are allowed to extract
nongovernmental organizations said that
water for further distribution at a cheaper
public education is essential to engage
rate than residents pay for treated water.
communities in local and regional drinking
water and recreation issues. Residents need
to learn how water is treated, where to Safe Water for Recreation and for
access information about the quality of their Fish and Wildlife Consumption
drinking water, how to recognize sewage
Opportunities to swim, fish and enjoy other
overflows and contact authorities. Residents
water-based recreation are key concerns
also need to know how to participate in
throughout the basin, and many commenters
decisions about infrastructure improvements
do not feel that governments adequately
and support development of green
focus restoration efforts to reflect these
infrastructure, which was proposed as often
important benefits of the lakes. However,
more cost effective than traditional water
some people remarked that many beaches
treatment options.
are now open where swimming would not
By visiting several Great Lakes have been considered safe 20 years ago due
communities, the IJC also learned about to the quality of the water. Sewer bypass
innovative municipal efforts to protect and overflow discharges continue to impact
and restore water quality. In Milwaukee water quality and recreation opportunities
and Toronto, for example, respective in large urban centers as well as small
Watercentric and One Water approaches shoreline communities. Many people want
are helping communities to develop water infrastructure improvements and consistent,
basinwide sewage discharge regulations that advisories and closings and fish advisories
ultimately will eliminate sewage discharges are also needed, which should be used to
and increase green infrastructure to capture track trends in specific locations where
stormwater and protect recreational water swimming or fishing is not allowed regularly.
uses. In the interim, several people in One joint project mentioned by government
Toronto and Milwaukee said effective researchers between US EPA, the US
advance communication is essential to warn Geological Surveys Great Lakes Observing
residents of combined sewer overflows and System and Wisconsin Sea Grant holds
that they should know how to report sewage promise to predict real-time water quality
discharges to authorities. conditions and increase the accuracy of beach
closure notifications. People living around
Lake Erie and Lake Ontario, particularly
YOUR VOICE Toronto, believe that both types of advisories
must be communicated more broadly in
Ive fished and boated in Lake Erie affected communities using a wide variety of
for more than 70 years. We must push traditional and social media methods.
harder to help the sewer authority
eliminate combined sewer overflows Participants in the Detroit roundtable
and reduce pollution runoff. These session discussed the linkages between
efforts must be funded. human health, quality of life and Great
Lakes water quality. Several felt that
Richard Smith, Public Meeting on the Great
Lakes, Buffalo, New York, March 28, 2017
social science indicators should be created
that measure how and when people can
and cannot use Great Lakes waters for
recreation, and that reflect quality of life
Many people at the public meetings in for Great Lakes communities. These might
Toledo, St. Catharines, Detroit and Buffalo include rates and locations of combined
said that consistent basinwide rules for beach sewer overflows, frequency and location of
Legacy, New and Emerging Toxic For example, some commenters said that
Contaminants data is not reported accurately or on a
timely basis and is not widely available
Please do everything you can to make and to the public to understand actual levels
keep the Great Lakes free of chemicals and of toxic substances released into the lakes
toxic pollution. This emailed statement from from point and nonpoint sources, such as
Karin Sletten-Farjo was echoed strongly the atmosphere, mining and hydrofracking
throughout the basin for legacy, new and activities, current and legacy industrial sites,
emerging contaminants. While some people urban stormwater runoff and groundwater.
recognized the significant steps that have Public awareness of emerging contaminants
been taken over the past 30 years to control such as pharmaceuticals in wastewater, flame
and eliminate direct inputs of persistent toxic retardants and microplastics including
substances by governments and industry, microbeads found in personal care products,
particularly in Areas of Concern, many decaying plastics, and fibers from clothing
people and nongovernmental organizations has grown because of recent studies and
doubt that current monitoring, control and new detection technology. Many meeting
prevention actions are adequate to preserve participants called for increased research to
public health and the environment let alone identify sources and impacts as well as controls
uphold the GLWQAs principle of the virtual and prevention strategies for these emerging
elimination of persistent toxic substances.
People said the importance of wetlands and habitats on a watershed basis. This might
their preservation cannot be understated include a goal to restore and protect 40
because they provide vital ecological percent of historic wetlands of a watershed,
habitat and improve water quality by or committing to buffer strips with natural
slowing the runoff of nutrients and filtering vegetation along both sides of streams
pollutants. For example, a nongovernmental within a watershed.
organization in northwestern Ohio is
creating small-scale wetlands adjacent
to agricultural land as a way to slow the
transport of nutrients into receiving waters
and thus improve water quality. Another
organization suggested that this could be
duplicated in other tributaries throughout
the Great Lakes region, which collectively
contribute 48 percent of annual inflow
into the lakes. Another suggestion was
for governments to commit to adopting
minimal thresholds to protect natural AV Zejnati (Phragmites)
Although many of the topics raised by Specific public reactions to the PROP
the public in their comments are related included:
to the PROP, limited input was received One nongovernmental Great Lakes
specifically about the report during the organization applauded the Parties
IJCs public comment sessions, at the Great efforts to produce Progress Reports
Lakes Public Forum or in subsequent of the Parties as well as State of the
correspondence. In the small number of Great Lakes reports preceding the
comments received on the report, the IJCs triennial reviews. It suggests that
most common response was the need to the intent of each report and how the
translate data into wording the public public should best provide comment is
can understand, and explaining the many important to clarify.
acronyms that are not familiar to the broader Several people and groups in the
community. Second, commenters felt that Lake Erie basin feel that the lakes
publicity about the report and the Forum domestic action plans lack detail. The
was virtually nonexistent to the general plans must include programs, policies
public, which reflects poorly on the Parties and protections that successfully meet
commitment to meaningful communications nutrient reduction targets. Without
and outreach. They suggest the Forum these, the plans will fail to achieve the 40
was a lost opportunity for the Parties to percent reduction goal, just as voluntary
share their progress toward meeting the attempts to control nutrient pollution
GLWQAs objectives, and the importance have failed elsewhere.
of the evolving science and monitoring The PROP states that expanding edge-
programs that assess the state of the lakes. of-field monitoring is underway in
Given the wealth of information provided the United States, but results are not
in the PROP on Agreement progress provided. Edge-of-field monitoring is
and the value of science and monitoring used to assess the quantity and quality
programs, people said the report provides of agricultural runoff and evaluate
ample argument that financial and program conservation practices that aim to
support is essential to continue progress in reduce sediment and nutrient loss.
these programs.
R. Bejankiwar
CONSIDERATION OF
STATE OF THE GREAT
LAKES REPORT
OVERVIEW
STATE OF THE GREAT LAKES 2017 STATE OF THE GREAT LAKES 2017
HIGHLIGHTS REPORT TECHNICAL REPORT
An overview of the status and trends of the Great Lakes ecosystem Indicators to assess the status and trends of the Great Lakes ecosystem
Indicators
The Parties developed State of the Great Lakes reporting to assess the status of the
Great Lakes. On page two of the SOGL report, the Parties describe how they used
indicators and sub-indicators in their assessment, as follows: The governments of
Canada and the United States, together with their many partners in protecting the
Great Lakes, have agreed on a set of nine indicators of ecosystem health. These
indicators are in turn supported by 44 sub-indicators, measuring such things as
concentrations of contaminants in water and fish tissue, changes in the quality and
abundance of wetland habitat, and the introduction and spread of invasive species.
https://binational.net/wp-content/uploads/2017/06/SOGL_17-EN.pdf
The SOGL reports set out the status of each sub-indicator and summary indicator
as poor, fair, good or undetermined. Trends in sub-indicator and indicator levels are
described as deteriorating, unchanging, improving or undetermined. In this TAP report,
these government assessments of indicator and sub-indicator status and trends are
shown relative to each general objective in Chapter five.
Considering the need to communicate key In 2016, the SAB-SPC issued a report on
aspects of Great Lakes status and trends indicators that followed a rigorous process
more clearly and concisely, the Science to select eight ecosystem measures deemed
Priority Committee of the IJCs Science most communicable to the public. The
Advisory Board (SAB-SPC) developed SAB-SPC recommended that this process
another process to use scientific data that be repeated on a regular basis, perhaps every
tells meaningful and compelling stories to six to nine years as lake conditions, public
the public about the Great Lakes ecosystem. interest and data availability change over
time. The SAB-SPC also recommended that
the exercise be expanded to include human
health measures.
5.
ASSESSMENT OF
PROGRESS TOWARD
GENERAL OBJECTIVES
The GLWQA requires the IJCs Triennial Assessment of
Progress (TAP) report to include an assessment of the extent
to which programs and other measures are achieving the
general and specific objectives of the Agreement. This chapter
assesses selected programs and measures in the context of their
contribution to achieving the GLWQAs general objectives
and considering the State of the Great Lakes (SOGL) report.
Additional assessment of and background detail regarding
programs and measures related to the GLWQAs general
objectives are presented in the accompanying Technical
appendix report.
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1. DRINKING WATER
General Objective 1:
SOGL Indicator
Summary of the status and trend of the State of the Great Lakes
Drinking Water sub-indicator for the Great Lakes (Source: SOGL, 2017)
Overview
Treatment technologies and care on the part clean water is of particular importance
of drinking water system operators help to to indigenous peoples, not just for the
deliver clean, safe water an overwhelming protection of human health, but also for the
majority of the time. However, the important role water plays in their cultural
rare occasions when drinking water is practices and teachings.
compromised such as the microcystin
contaminations that happened in Toledo The absence of a SOGL indicator for source
and Pelee Island in 2014 can have tragic water quality is a significant gap in ensuring
consequences for the health and livelihood the safety of drinking water and in the
of those impacted. Preventing further assessment of progress for this objective.
compromises of Great Lakes drinking Protecting source water for drinking water
water systems requires continued vigilance, supplies, rather than simply treating water
foresight and investment and needs to after it is withdrawn, is consistent with
be of utmost importance in GLWQA the prevention approach in the GLWQA
implementation. Furthermore, access to and an important part of source-to-tap
Microdac - Fotolia
And the US Center for Disease Controls Drinking Water Advisory Communication
Toolbox. https://www.cdc.gov/healthywater/pdf/emergency/drinking-water-advisory-
communication-toolbox.pdf
Improvements in indicator
reporting
GENERAL OBJECTIVE 2
The Waters of the Great Lakes should allow for swimming and other recreational use,
unrestricted by environmental quality concerns.
SOGL Indicator
Summary of the status and trend of the State of the Great Lakes Swimming
and Recreational use sub-indicator and each Great Lake (Source: SOGL, 2017)
Overview
Public beaches of the Great Lakes are open in 2013, where the IJC recommended that the
and safe for swimming an average of 96 governments develop binational, standardized,
percent of the season in the United States and basinwide surveillance and monitoring
78 percent of the season in Canada. However, protocols and adopt binational standardized
analysis of trends and comparison between criteria for beach postings. Because recreation
countries is difficult because monitoring is a prime way that people identify with the
and criteria that support beach closing Great Lakes, water quality monitoring at
decisions vary across jurisdictions. In Canada, beaches and maintaining and improving
for example, Ontario uses more stringent healthy recreational opportunities is key to
standards that result in additional beach engaging the public in the protection of the
closings. This difficulty in comparing data was Great Lakes.
noted in the 16th Biennial Report by the IJC
The public beaches of the Great Lakes Determining the extent to which
and connecting waterways are a source of programs and measures are achieving
recreation to many of the 40 million residents the GLWQAs recreational use general
of the basin and to tourists as well. Coastal objective is complicated by the lack of a
and in-lake recreation in the Great Lakes specific corresponding annex that directly
has many benefits. However, swimming, supports the implementation and reporting
boating and beach use also have the potential of programs to achieve this objective.
to adversely affect human health through Numerous GLWQA activities relate to
exposure to biological hazards such as bacteria beach health and indirectly work to protect
or viruses, which may be present in the water. and improve recreational water quality:
Epidemiological studies have shown several work under Annex 1 includes improvement
adverse health effects, including gastrointestinal of beaches at Areas of Concern (AOC);
and respiratory infections, to be associated with recreational water quality is considered
recreational water in marine and freshwater under Annex 2; lakewide management, and
systems polluted by human and animal waste. design and monitoring of the indicator for
These effects can result in a significant burden beach health to support SOGL reporting
of disease and economic loss. Sources of falls under Annex 10 (Science). However,
this fecal pollution include combined sewer this level of indirect attention is insufficient
overflows (CSOs), sanitary sewer overflows, considering the importance of recreational
urban and agricultural stormwater runoff, as water quality to the Great Lakes public.
well as septic system discharge and leakage.
YOUR VOICE
I recently moved to the St. Catharines area
and was pleasantly surprised that the Lake
Ontario water at the Port Dalhousie Beach
was clear. I even chose to swim in it last
summer. I also swam at Crystal Beach in
Lake Erie. Ten, fifteen or twenty years ago
I wouldnt have dreamed of swimming
in either of these two lakes. But, because
of the monitoring and cleanup of the
Great Lakes, I felt comfortable enough to
submerge myself in these waters.
GENERAL OBJECTIVE 3
The Waters of the Great Lakes should allow for human consumption of fish and wildlife
unrestricted by concerns due to harmful pollutants.
SOGL Indicator
Summary of the status and trends of the State of the Great Lakes Fish
Consumption sub-indicator and each Great Lake (Source: SOGL, 2017)
Overview Background
The Parties efforts since the 1970s have Many people in the Great Lakes basin
resulted in steep declines in legacy chemicals consume fish from the Great Lakes. Legacy
in commonly consumed Great Lakes fish. toxic substances and emerging contaminants
However, fish consumption advisories have triggered health advisories
remain in place for some species in all recommending limited human consumption
Great Lakes and a lack of standardized of some species in some locations. Fish
methodologies for collection, analysis consumption advisories exist for particular
and reporting of data across jurisdictions fish species in each of the Great Lakes.
undermines creation of a reliable indicator. These advisories vary across the region and
are most notable for long-lived top predators
that have more fat, such as walleye, lake
trout and salmon. Polychlorinated biphenyls
(PCBs) are responsible for the majority of
advisories, followed by mercury and dioxins.
Consumption of Wildlife
GENERAL OBJECTIVE 4
The Waters of the Great Lakes should be free from pollutants in quantities or concentrations
that could be harmful to human health, wildlife, or aquatic organisms, through direct
exposure or indirect exposure through the food chain.
SOGL Indicator
Toxic Chemicals for the overall Great Toxic chemical concentrations in open
Lakes Basin: status fair, trend unchanging water: status good, trend unchanging.
to improving. Atmoshperic deposition of toxic chemicals:
status fair, trend improving.
Sub-indicators across the basin: Toxic chemicals in sediment: status fair,
Chemicals in Great Lakes herring gull eggs: trend improving.
status good, trend improving. Toxic chemicals in Great Lakes whole fish:
status fair, trend improving.
Summary of the status and trends of the State of the Great Lakes Toxic
Chemicals sub-indicators and each Great Lake (Source: SOGL, 2017)
Overview
The IJC values the principle of prevention, so chemicals of mutual concern (CMCs) was a
progress to prevent pollutants from entering positive step in the new approach to chemicals
the lakes weighs heavily in the Commissions under the 2012 GLWQA, delays in identifying
assessment of the extent to which programs CMCs and the failure to complete binational
and measures are achieving objective 4. strategies for action in the first three years of
Although the development of procedures and the Agreement means that no new binational
processes to nominate and scientifically review actions to prevent the input of pollutants
YOUR VOICE
The pollution of the Great Lakes and
Stramyk its detrimental effects on the populace
are well documented and supported by
scientific data. The longer we discuss
without corrective action the larger the
into the lakes have been implemented. As
problem becomesInaction is equivalent
governments work to target CMCs for
to poisoning our offspring.
action in the next triennial cycle, they should
implement the GLWQA principles of zero Jim Clark, Erie Pennsylvania, email,
January 24, 2017
discharge, virtual elimination, accountability
and public engagement, as well as Extended
Producer Responsibility.
Figure 1. Levels of PCBs have declined in herring gull eggs and fish
(Source: Draft State of the Great Lakes Report as presented at the Great Lakes
Public Forum)
Recommendations
To improve progress toward achievement The Parties adopt and extend policies
of the pollutants objective, the IJC and programs based on the principles
recommends that: of Extended Producer Responsibility
The Parties accelerate work on binational (EPR) on a broad range of products,
strategies for elimination or continual including flame retardants, to prevent
reduction of chemicals of mutual introduction of toxic and non-toxic
concern with clear timelines set and contaminants into the Great Lakes.
met for strategy development and The Parties should include status reports
implementation. on EPR programs and policies in the
The Parties develop strategies that have at triennial Progress Report of the Parties.
their core the principle of zero discharge.
1a.$$Canada$ 1b.$$US
, Applies"Canadian&Process&to"identify" , Applies US Framework/Process to
proposed"Canadian"chemicals$ identify proposed US chemicals
, Provides"identified"chemical"names"to"C3$ , Provides identified chemical names to
, $ C3
2.$$Chemicals$of$Mutual$Concern$Sub8Committee$(C3)$ 3.$$Chemicals$of$Mutual$
, Combines"US"and"Canadian"chemical"names"to"produce"a" Concern$Extended$Sub8
single"C3"Proposed"Chemical"Set Committee$(EC3)
, Provides"Proposed"Chemical"Set"to"Identification"Work" , Provides"available"
Group data"and"
, Informs"the"CMC"Extended"Sub,Committee"(EC3)"of" information"on"
Proposed"Chemical"Set" relevant"activities"
for"chemicals"in"the"
Proposed"Chemical"
4.$$Identification$Task$Team$(ITT)$ Set"
, Applies"Binational&Considerations&for&Identifying&CMCs"to" , Provides"technical"
Proposed"Chemical"Set and"other"advisory"
, Provides"findings"and"rational"for"outcomes"in"a"summary" support"to"ITT"as"
report"as"recommendations"to"the"C3 requested"
, Seeks"expertise"of"EC3"as"needed , Provides"feedback"
on"recommended"
CMCs"to"C3"
5.$$Chemicals$of$Mutual$Concern$Sub8Committee$(C3)
, Reviews recommendations from the ITT and determines
which chemicals will be proposed as CMCs for
considerations by the GLEC
, Seeks feedback from EC3
, Nominates CMCs to GLEC
6.$$Great$Lakes$Executive$Committee$(GLEC)$
, Recommends"CMCs"to"the"Parties
1"
2" Figure 5.4.3. Summary of Annex 3s Process for Recommending Chemicals of Mutual Concern to the Parties
3" challenges that were encountered. This evaluation provided members of the ITT with an
4" opportunity to identify issues and provide feedback and suggestions regarding the process for
5" consideration by the C3.
6" This incorporation of an adaptive management mechanism in this process by the Parties is
7" commendable. Nevertheless, several challenges remain in this area.
8" As noted, a work plan for Annex 3 was developed that specifically committed the C3 to identify
9" and designate two separate sets of CMCs and to develop Binational Strategies for the CMCs
10" identified along with starting work on the implementation of those strategies where applicable
~94 11" First Triennial
(United States and Canada, Assessment
2013). These of Progress
commitments areonalso
Great Lakes and
reflected Water Quality in the
reinforced
12" 2014-2016 Priorities for Science and Action for Annex 3 that the Parties officially agreed to and
5. WETLANDS AND OTHER HABITATS
GENERAL OBJECTIVE 5
The Waters of the Great Lakes should support healthy and productive wetlands and
other habitats to sustain resilient populations of native species.
SOGL Indicator
Habitats & Species for the overall Great Sub-indicators across the basin:
Lakes Basin: status fair, trend unchanging. Coastal Wetlands: status fair,
trend unchanging.
Aquatic Native Species: status fair,
trend unchanging.
Summary of the status and trends of the State of the Great Lakes Wetlands
and Other Habitats sub-indicators and each Great Lake (Source: SOGL, 2017)
component sub-indicators (phytoplankton and was estimated that over half of Great Lakes
Diporeia, a small shrimp-like crustacean) show wetlands have been lost basinwide, with losses
a deteriorating trend in three or four of the of up to 90 percent in some areas. Aquatic
lakes, whereas lake sturgeon populations habitat connectivity is the only sub-indicator
are improving in all five lakes. showing improvement for all five lakes.
gordo25 - stock.adobe.com
GENERAL OBJECTIVE 6
The Waters of the Great Lakes should be free from nutrients that directly or indirectly
enter the water as a result of human activity, in amounts that promote growth of algae
and cyanobacteria that interfere with aquatic ecosystem health, or human use of the
ecosystem.
Nutrients & Algae for the overall Great Cladophora: status fair to poor, trend
Lakes Basin: status fair, trend deteriorating. undetermined.
Harmful Algal Blooms: status fair, trend
Sub-indicators across the basin: deteriorating.
Nutrients in Lakes: status fair, trend Water Quality in Tributaries: status poor
deteriorating. to fair, trend unchanging.
Summary of the status and trends of the State of the Great Lakes
for Nutrients sub-indicators and each Great Lake (Source: SOGL, 2017)
The success of the domestic action plans The IJC further notes that domestic action
is critical to restoring water quality in plans need to include enforceable standards
Lake Erie and to protecting the waters for and regulatory actions. The plans must also
millions of people who rely on the lake for show timelines for the implementation of
their drinking water. If domestic action actions, project leads, or teams responsible
plans are not sufficiently rigorous and rely for expected deliverables and outcomes and
solely on incentive-based and voluntary quantifiable performance metrics in order to
approaches, they are unlikely to deliver the ensure accountability.
phosphorus loading target reductions. The
Parties have stated that they are evaluating The PROP provides information about
existing programs in Canada and the United on-the-ground US activities during the first
States to identify opportunities to maximize triennial cycle, especially on agricultural
phosphorus reduction and may propose lands, and expected phosphorus loading
new programs or approaches to manage reductions to be achieved. However,
phosphorus loadings. Careful analysis comparable detail is not provided for
of agricultural programs, especially the Canadian programs. The report also provides
effectiveness of promoting voluntary adoption little discussion of declining nutrient levels
of best management practices, is critical. in the open waters of most of the lakes, and
no plans are provided to address the issue.
The high nearshore nutrient levels and
Algae growth in Lake St. Clair from nutrient inputs from Thames River basin, which then flow
into Lake Erie. (Source: NASA 2015)
Figure 5: Comparison of Total Phosphorus (TP) Tributary Loads to Lake St. Clair and Lake Erie
Sources: Michigan Sea Grant, M. Maccoux, Contractor ECCC, S. Wortman, USEPA, D. Obenour,
NCSU, M. Evans, USGS.
The western basin of Lake Erie experienced numbers of animals, generating significant
a particularly severe HAB in 2011. The quantities of animal waste. The Sierra Club,
IJC 2014 LEEP report noted that half of Michigan Chapter reports that between the
the loadings to Lake Erie that year came US states of Michigan, Indiana and Ohio
from tributaries draining agricultural areas there are146 CAFOs in the watershed of the
and rural communities. One of the major western Lake Erie basin, housing almost 12
sources of nonpoint loadings of phosphorus million dairy, hog and poultry animals. Their
to Lake Erie is agricultural operations, estimated waste output is over 2,385 million
including the application of fertilizers and liters (630 million gallons) annually.
manures to the land. A significant source
of nutrient inputs to the western Lake Ohio legislation to curb the application of
Erie basin is concentrated animal feeding animal waste on frozen, snow-covered or
operations (CAFOs). These are livestock saturated ground is a positive step towards
confinement facilities that house large reducing nutrient runoff from CAFOs
GENERAL OBJECTIVE 7
The Waters of the Great Lakes should be free from the introduction and spread of
aquatic invasive species and free from the introduction and spread of terrestrial
invasive species that adversely affect the quality of the Waters of the Great Lakes.
SOGL Indicator
Invasive Species for the overall Great Lakes Dreissenid Mussels: status fair to poor,
Basin: status poor, trend deteriorating. trend improving to deteriorating.
Sea Lamprey: status fair to good, trend
Sub-indicators across the basin: improving.
Impacts of Aquatic Invasive Species: status Terrestrial Invasive Species: status poor,
poor, trend deteriorating. trend deteriorating.
Summary of the status and trends of the State of the Great Lakes
for Invasive Species sub-indicators and each Great Lake (Source: SOGL, 2017)
Comments received by the IJC during The Great Lakes Aquatic Nuisance
its public consultation process support Species (ANS) Panel - With funding
providing resources to identify sources and from the USFWS and staff support from
locations of infestations, improve mechanical the Great Lakes Commission, this panel
and chemical controls, and expand public plays an important role in preventing
and eliminating invasive species in the
awareness campaigns to share how invasive
Great Lakes region. The Great Lakes
plants are spread and can be controlled. An
ANS Panel was created as a regional
intensive, well-focused, binational control and
advisory panel for the U.S. ANS Task
eradication program for effective basinwide
Force by the Nonindigenous Aquatic
practices and new tools that can control Nuisance Prevention and Control
and eradicate Phragmites could draw public Act of 1990. The panel is binational,
support. Such a program could identify new with members representing U.S. and
control technologies and methodologies Canadian federal agencies, the eight
that may be used to control and eradicate Great Lakes states and the provinces of
other invasive plants. It was notable that the Ontario and Qubec, nongovernmental
comments about Phragmites as an invasive organizations, local communities, tribal
species came largely from Canadians. authorities, commercial interests, and
the academic community. Working
Other watch list species are also getting with subcommittees of the Great Lakes
closer to the Great Lakes, such as Tench Executive Committee, it helps achieve
(Tinca tinca), a fish found in the Richelieu progress towards the goals established
in the Great Lakes Water Quality
River in Quebec, a tributary to the St.
Agreement. For more information see:
Lawrence River that may be moving
http://www.glc.org/work/glpans.
upstream from the Quebec section of the St.
Lawrence River.
GENERAL OBJECTIVE 8
The Waters of the Great Lakes should be free from the harmful impact of contaminated
groundwater.
Summary of the status and trends of the State of the Great Lakes
for Groundwater sub-indicators and each Great Lake (Source: SOGL, 2017)
Figure 9: Generalized Groundwater - Surface Water Interactions (A) under natural conditions
and (B) affected by pumping (Source: USGS, 2000)
General Objective 9
The Waters of the Great Lakes should be free from other substances, materials or
conditions that may negatively impact the chemical, physical or biological integrity of
the Waters of the Great Lakes.
(CSMI) (part of Annex 10) and microplastics. locations where valued uses of the lakes
could not be enjoyed due to specific
environmental impairments. These are
Areas of Concern (AOCs)
termed beneficial use impairments (BUIs).
Areas of Concern (AOCs) are locations Fourteen types of BUIs are listed in the
where environmental impairments resulting GLWQA. Two examples include restrictions
from local human activities prevent certain
on fish consumption due to contaminant
uses of the lakes. These impacts are termed
beneficial use impairments, or BUIs. Since concentrations, and loss of fish and wildlife
AOCs were created by the governments habitat. Once all the BUIs that apply to a
under the 1987 GLWQA, 43 AOCs have particular AOC are remediated and delisted
been identified in the Great Lakes basin 26 (or removed), the AOC is considered
in the United States, 12 in Canada, and five
cleaned up and can be delisted (or
that are binational and shared between both
countries. Each AOC has a defined set of removed) from the list of AOCs.
AV Zejnati
When the IJC held its public input sessions around the Great Lakes basin, it heard
from many individuals, stakeholders and organizations about local water quality
challenges in the nearshore area and along the tributaries that bring water to the
lakes. However, there were also stories of local successes where local stewardship
has greatly improved environmental quality. Turnout and participation in the
IJCs call for public input showed the degree of interest and enthusiasm for Great
Lakes protection and local action. The challenge is how to harness and focus this
enthusiasm to move from a story of local impact to a story of local stewardship
success.
Lake
Huron
2017
Lake Lake
Superior Ontario
2021
FIVE YEAR 2019
CSMI FIELD
YEAR CYCLE
Lake Lake
Michigan Erie
2020 2019
ADVICE ON
CRITICAL ISSUES
The GLWQA states that the IJC Triennial Assessment of
Progress report may include other advice and recommendations,
as appropriate. This chapter discusses and provides advice
and recommendations on a number of critical issues that dont
neatly align with a single GLWQA objective. These include
implementation of the 2012 Agreement, human health, climate
change, and engagement.
olenyok - Fotolia
135~
1. IMPLEMENTATION OF targets. The first reporting cycle under the
Agreement shows notable progress on
THE 2012 AGREEMENT accountability. Although the presentation
and content of the Progress Report of the
The Great Lakes are a precious resource Parties (PROP) should be improved in
shared by two great nations. Though future rounds of reporting to make it a better
each nation can work individually on tool for public engagement, its creation and
the restoration and maintenance of the publication are praiseworthy.
Great Lakes, they make the best progress
when they work with each other and with
their states, provinces and other orders YOUR VOICE
of government, including indigenous
governments. In a review conducted in 2006, Reports tend to be critical and make
the IJC found that the 1987 GLWQA was the case for where actions are needed
no longer an important driver for programs or failures occurred. Ok, I can accept that
and actions in the Great Lakes. The 2012 as a method to push improvements. But
GLWQA has addressed many of the gaps, we, must recognize success, we must
deficiencies and issues associated with build upon actions that have delivered,
the 1987 version and provided innovative we must say thank you to the people
approaches and commitments across a much and groups who have volunteered,
greater range of issues. More binational please acknowledge the positives.
attention than ever before is being given
to Great Lakes aquatic invasive species, David Shortt, Sarnia, Ontario, letter via email,
March 27, 2017
habitats and species, and climate change,
with full GLWQA annexes dedicated to
these areas. This is in addition to annexes on
topics such as pollutants and nutrients that Work under the Agreement is conducted
remain of high importance to the lakes and through binational annex committees and
the communities on their shores. task teams under the leadership of the
Great Lakes Executive Committee. The
In this first triennial cycle of GLWQA PROP shows evidence of the extensive
implementation, the Parties devoted binational, interagency and intergovernmental
considerable effort to institutionalizing cooperation on issues addressed in the
processes and procedures and meeting GLWQA Annexes. Coordination with
deadlines for initial GLWQA commitments. indigenous governments could be better
For example, the Parties successfully met demonstrated. On GLWQA objectives where
deadlines for developing priorities for specific annexes do not exist, such as the
science and action, proposing a nearshore objectives for drinkability, swimmability and
framework, and setting targets for Lake fishability, the degree of coordination, focus
Erie binational phosphorus load reduction
2. HUMAN HEALTH
The Commission has consistently expressed fish consumption, drinking water and
concern about the need to increase attention swimming. Developing indicators of disease
to the human health implications of the resulting from Great Lakes environmental
quality of Great Lakes waters. In its 16th exposures that reflect the best science and
biennial report, the IJC observed, One of communicate meaningful information
the most vital concerns of the public is the to the public is an important task for the
safety or risk to human health of exposure governments. The 2012 Agreement refers to
to Great Lakes contaminants through the importance of human health protection.
michaeljung - stock.adobe.com
When used together, land use plans and respond to extreme storm events, especially
zoning ordinances can protect the health as related to combined sewer overflows,
of the communities environment and its planning, zoning and adaptation.
residents. These tools can be used to achieve The Parties enhance reporting on progress
goals such as decreasing the volume and toward achievement of the GLWQAs
increasing the quality of stormwater runoff human health objectives by collecting and
to the lakes and helping coastal communities reporting on health data specific to the
adapt to changes in lake levels. waters of the Great Lakes. The Parties
should display binational health and
Recommendations environmental data on an ecosystem rather
than domestic basis to facilitate public
To improve progress toward achievement understanding and enable the analysis of
of the human health objectives, the IJC affected populations and the distribution
recommends that: of impacts, such as beach closings.
The Parties establish an accelerated The Parties fix their fragmented approach
and fixed period of time by which zero to achieving the GLWQA human health
discharge of inadequately treated or objectives by developing mechanisms to
untreated sewage into the Great Lakes enhance focus on objective achievement,
will be effectively achieved and dedicate increase coordination among jurisdictions
sufficient resources to accomplish the and improve accountability, including
task. more specific goals and timelines and
To reduce human exposure to untreated a formalized approach to eliminate the
and inadequately treated sewage, the silo effect across the Agreement annex
Parties increase funding directed to committees.
infrastructure improvement and provide
support to communities to proactively
and systematically improve the capacity to
Looming over all challenges to the Great Biodiversity in general is being affected by
Lakes is the unprecedented threat of climate change by shifting many species
climate change. Although its effects cannot distributions, and outpacing their adaptive
be precisely forecast, climate change capacities. As one example, the Commission
will continue to alter profoundly the has learned that climate change may be
characteristics of the ecosystem. altering the traditional range of manoomin
(wild rice) in the Great Lakes due to
Phenomena observed in the Great Lakes warming winters and changing water levels,
over the last several decades have been linked affecting indigenous peoples culture, health
to climate change, including reduced winter and well-being.
ice cover, altered stratification patterns,
increased summer temperatures, and more Although there is near unanimous scientific
frequent and intense storms. Climate change consensus that climate change is occurring,
has emerged as a stressor to fish populations there continues to be uncertainty in
in large lakes, driven by processes including establishing cause and effect linkages in
warmer temperatures throughout the water the Great Lakes with climate change, and
column, less ice cover, longer periods of quantifying climate-induced effects is one of
stratification, and increased bottom hypoxia. the grand challenges for Great Lakes research.
Figure 10: Ice coverage of the Great Lakes fluctuates from year to year but there is a
downward trend over the past 40 years, possibly due to global climate change. (Source: SOGL
2017 Technical Report)
Annex 9 of the GLWQA (Climate Change Agency (NOAA) developed and released a
Impacts) commits the Parties to identify, basinwide Water Level Dashboard in 2014.
quantify, understand, and predict the The dashboard is an interface for visualizing
climate change impacts on the quality of the projected, measured, and reconstructed
Waters of the Great Lakes, and to sharing surface water elevations on the earths largest
information that Great Lakes resource lakes. The dashboard reflects relationships
managers need to proactively address these between hydrology, climate, and water level
impacts. The annex also commits the Parties fluctuations in the Great Lakes.
to coordinating actions where appropriate
with water quantity management actions
taken by or in conjunction with the IJC.
One of the most important actions the To better understand the capacity of
governments have taken to fulfill the governments to confront the realities of
Agreements commitments on climate climate change, a project completed under
change was publication in 2015 of the State the auspices of the IJCs Great Lakes Water
of Climate Change Science in the Great Lakes Quality Board looked at climate projections
Basin Report. The report captures available and their likely environmental impacts in
science on impacts of climate change in the Great Lakes region. The project also
the Great Lakes basin and inventories the examined the preparedness of governments
climate change assessment methods applied for adaptation and resilience. Analysis
in the region. It also includes a companion from the project found that although most
database with summaries of more than 250 jurisdictions have a climate change policy or
recent climate change studies. plan in place, mitigation is more common
than climate change adaptation or resiliency
planning. Newer plans are placing greater
YOUR VOICE focus on adaptation measures and their
implications for water quality. In most cases,
All the stakeholders need to adaptation planning remains a distinct
acknowledge climate change and the activity, not fully integrated into broader
need to adapt to it. Climate change is an government planning. Most adaptive actions
environmental justice issue for citizens are not adopted in light of climate change
across the globe which will only increase alone. It is therefore important to integrate
over time. climate change adaptation initiatives
with other programs, such as resource
Katie McKibben, Public Meeting on the Great
Lakes, Toledo, Ohio, March 23, 2017 management and sustainable development,
coastal zone management, watershed
management, and community development.
In implementing Annex 9, the
Municipalities in particular will face
Parties have satisfactorily addressed
formidable water quality challenges resulting
the science commitments related to
from climate change. With more frequent
climate change impacts, cooperated
and intense storms, municipal combined
successfully on numerous measurement
sewer overflows can be expected to increase,
Climate-related
Projections in the
Great Lakes Region Likely Environmental Impacts
Warmer air Less ice cover; less stratification and oxygen distribution in the
temperatures (esp. lakes
warmer nights; More lake evaporation year-round (trending to lower lake levels)
warmer winters: up by 25 percent since 1980
even warmer water
More favorable conditions for algae and bacteria
temperatures)
Loss of habitat and/or increased stress for cool and cold-water
fish
Increased likelihood of heat waves and urban heat-island effects;
heat-related illnesses
More warm weather pests, including invasive species
Stress on livestock and crops; reduced productivity
Loss of valued ecosystem services (flood buffers, water filtration,
erosion stabilization, coastal habitat including nesting/nursery
areas) from coastal erosion, damage to streamside habitat; loss of
important populations
Challenges to coastal water infrastructure (drinking water intake
and discharge disposal infrastructure not easily adaptable to high
lake level variability)
Exposed contaminated areas from lower levels, dredging harbors
to support shipping in low water years
Risks for coastal development during low water years and
hardening shorelines
More precipitation Increased polluted runoff, especially from intense spring storms
and more extreme Sediment and nutrient flushes; rapid increased loading in Great
precipitation events Lakes watersheds and the lakes themselves
Algal blooms oxygen depletion, dead zones, cyanobacteria
Loss of safe drinking water supplies
Degraded wetlands and coastal habitat
IJC WQB Emerging Issues Work Group, Climate Change and Adaptation in the Great Lakes (2017)
7.
FINDINGS AND
RECOMMENDATIONS
This first IJC assessment of progress under the 2012 GLWQA
finds many accomplishments by the Parties and other
governments. The GLWQA is once again a framework for
meaningful binational effort to restore and protect the Great
Lakes. However, in some instances the Parties have moved slowly
in implementing actions. In other instances, the Parties have not
yet fully embraced the GLWQA principles in their activities.
M. Myre
157~
The most important of these principles, The Parties are to be commended for
in the judgment of the IJC, is prevention. building accountability mechanisms into the
Preventing harm to Great Lakes water 2012 GLWQA and for implementing them
quality is not only a duty of good ecological in the first triennial work cycle. However,
stewardship but also sound public health accountability can be further improved as
and fiscal policy. The Parties should do more we move forward. Second, the Commission
to anticipate problems and forestall them agrees with the GLWQA drafters that
through action. A surge in dissolved reactive public engagement is vital. In preparing this
phosphorus in western Lake Erie, raw or report, the IJC consulted with the Great
poorly treated sewage flushing into the lakes, Lakes public across the basin and considered
and contamination by flame retardants that all of the input received in formulating
replaced earlier toxins are examples of issues these findings and recommendations.
that the Parties could have averted, had there The Great Lakes public must be engaged
been forward looking policies at that time. more thoroughly by the governments if
To achieve GLWQA objectives, the Parties implementation of the GLWQA is to have
need to do a better job of preventing harm. maximum impact.
Two other GLWQA principles weigh This chapter presents key findings from the
heavily in the IJCs analysis. First, the IJCs first triennial assessment of progress, as
Commission strongly supports the well as recommendations for moving boldly
accountability envisioned by the GLWQA. into the next triennial cycle and beyond.
The Commission finds that the 2012 meeting deadlines for initial Agreement
GLWQA galvanized new energies, activities commitments. The Commission salutes the
and binational cooperation over a larger span Parties for these achievements.
of issues than were addressed under previous
versions of the Agreement. The Parties are Recommendation
to be commended for authoring the new
GLWQA, for giving it momentum and To continue and improve successes in
for harmonizing implementation activities GLWQA implementation, the IJC
amongst not just two countries, but eight recommends that:
states, two provinces and indigenous nations The governments financial investment
and hundreds of municipalities. In just three in improving the water quality of the
years the Parties have made remarkable Great Lakes continue at current or
progress formalizing mechanisms by which higher levels.
the new GLWQA can be implemented and
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Recommendations
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To achieve steep reductions in phosphorus
loadings and harmful algal blooms and
improve progress toward achievement of the
nutrients objective, the IJC recommends that:
The IJC finds that the water quality of western Domestic action plans to achieve
and central Lake Erie remains unacceptable. phosphorus loading reduction targets
The Commission is investigating several include details on timeline, who is
nutrient-related topics and looks forward responsible for actions, expected
to providing its advice on those topics to deliverables, outcomes and quantifiable
governments in the current triennial cycle. In its performance metrics in order to assure
2014 report, A Balanced Diet for Lake Erie, the accountability.
Commission included 16 recommendations for The Parties further act on advice from
consideration by the Parties. The Commission the IJCs 2014 report on Lake Erie,
reiterates several of those recommendations and most notably with respect to the need
calls for accountability in domestic action plans. for enforceable standards governing the
The Commission acknowledges the progress application of agricultural fertilizer and
that has been made by the Parties consistent animal waste, along with better linkage
with several of the recommendations, including between agricultural subsidies and farm
setting phosphorus reduction targets for the operator use of conservation practices
western and central basins. In particular, the IJC that are demonstrably effective at
commends the participative approach used by curbing phosphorus runoff.
5. INVASIVE SPECIES
NOAA
Recommendations
A changing climate has been influencing
the Great Lakes for some time. Further To better consider and adapt to climate
climatic change is built into the future, change impacts, the IJC recommends that:
thanks to inexorably rising carbon dioxide The Parties demonstrate global
concentrations in the atmosphere and the leadership by jointly developing, in
consequences of these concentrations for cooperation with other government
temperature and precipitation regimes. A jurisdictions, including indigenous
wide variety of water quality-related impacts governments and organizations in the
will occur, ranging from more favorable Great Lakes, a binational approach to
conditions for the growth of algae and climate change adaptation and resilience
bacteria to increases in polluted runoff from in the Great Lakes.
intense storms. Such dramatic change poses The Parties invest in a binational
significant challenges to governments at all vulnerability assessment, defining
levels and to communities across the basin. the risks posed by climate change
and providing technical support for
The GLWQA charges the Parties to measures to adapt to climate change, to
consider climate change impacts on the engage stakeholders and all orders of
integrity of the waters of the Great Lakes government, and to identify priorities
and in Agreement implementation. It for responsive actions in the Great
further challenges the Parties, in cooperation Lakes region.
and consultation with state and provincial The Parties recognize the impacts of
governments, Tribal Governments, First climate change on water infrastructure
Nations, Mtis, municipal governments, and provide support to communities to
watershed management agencies, other proactively and systematically improve
local agencies and the public, to use their the capacity to respond to extreme
domestic programs to address climate storm events, especially as related to
change impacts to contribute to the combined sewer overflows, planning,
achievement of the GLWQAs objectives. zoning and adaptation.
Under the GLWQA, the Parties agreed to typically recognized and should factor in
be guided by principles and approaches that consideration of environmental justice as a
include engagement, which is defined as key objective. Reaching out to nontraditional
incorporating Public opinion and advice, as populations and indigenous governments
appropriate and providing information and could provide lessons on how to address
opportunities for the Public to participate in many of the problems facing the Great
activities that contribute to the achievement Lakes basin.
of the objectives of this Agreement.
Recommendations
The Commission finds that the Parties
have not fully incorporated robust public To better uphold the principle of
engagement into their activities. For example, engagement in GLWQA implementation,
the Parties are not showing sufficient the IJC recommends that:
urgency in confirming their approach to The governments accelerate and deepen
public engagement and related activities their approach to public engagement in
for Lakewide Management. Additionally, Lakewide Action and Management Plans
Lakewide Action and Management Plan (LAMPs), including inbasin opportunities
(LAMP) partnerships took more than three for participation and the use of social media
years to begin establishing their outreach and and online engagement mechanisms.
engagement work groups after disbanding The Parties include more opportunities
the existing committees. Without robust for public engagement with diverse
engagement, connections do not always communities and more thoroughly
exist between GLWQA processes and many engage Tribal, First Nations and Mtis
affected communities. governments in GLWQA implementation,
incorporating greater contributions from
Looking to the future, the Commission these groups in the triennial Progress
finds that the IJC and the Parties should Report of the Parties (PROP).
reach beyond the limits and audiences
helgidinson - Fotolia
List of Figures
FIGURE 1. Levels of PCBs have declined in herring gull eggs and fish..................... 89
4Rs Right fertilizer, Right rate, Right GLEC Great Lakes Executive
time and Right place Committee
PROP Progress Report of the Parties SWPP Source Water Protection Plan
Glossary
AQUATIC INVASIVE SPECIES (AIS) BASIN The region or area of which the
As defined in the Great Lakes Water surface waters and groundwater ultimately
Quality Agreement, AIS refers to any non- drain into a particular course or body of
indigenous species, including its seeds, eggs, water.
spores, or other biological material capable
of propagating that species, that threatens BENEFICIAL USES Uses and benefits
or may threaten the diversity or abundance of Great Lakes water quality and ecosystem
of aquatic native species, or the ecological resources, as identified in the Great Lakes
stability, and thus water quality, or water Water Quality Agreement. They include fish
quality of infested waters, or commercial, and wildlife health and habitat, drinking
recreational, or other activities dependent on water, and recreation.
such waters.
BENEFICIAL USE IMPAIRMENT
AREA OF CONCERN (AOC) A (BUI) Under the Great Lakes Water
location designated by the Parties under Quality Agreement, a BUI is a reduction in
the Great Lakes Water Quality Agreement the chemical, physical or biological integrity
where environmental impairments resulting of the waters of the Great Lakes sufficient to
from local human activities prevent certain cause any of the 14 identified impairments.
uses of the lakes. These impacts are termed These impairments include: restrictions
beneficial use impairments, or BUIs. on the human consumption of fish and
wildlife; eutrophication or undesirable algae;
ASIAN CARP A type of fish native to restrictions on drinking water consumption;
Asia that has been introduced to the United and beach closings.
States. Asian carp are regarded as highly
invasive species in the US and Canada BIOACCUMULATIVE The
and capable of causing severe economic, accumulation of a substance, such as a
ecological or human health harm. They toxic chemical, in the tissues of a living
include the following species: bighead organism. Bioaccumulation takes place
carp (Hypophthalmichthys nobilis), black within an organism when the rate of intake
carp (Mylopharyngodon piceus), grass carp of a substance is greater than the rate of
(Ctenopharyngodon idella) and silver carp excretion or metabolic transformation of
(Hypophthalmichthys molitrix). Hybrids of that substance. Definition derived from The
silver and bighead carp also exist. Definition American Heritage Science Dictionary.
derived from the Michigan Department of
Natural Resources.
GREAT LAKES
WATER QUALITY
INTERNATIONAL JOINT COMMISSION
FINAL REPORT