GEOG 310 Portfolio

Overview

In this resource governance evaluation report, we will be observing the Lake Erie eutrophication problem through multiple levels of governance. This ecological issue has been existent for several decades, and the future of this ecosystem depends on the actions of the binational Governments of Canada and US, provincial governments of Ontario and Ohio, and the local communities, specifically speaking the farmer community utilizing the land around Lake Erie for agricultural purposes.

Governance Frameworks?

Great Lakes Water Quality Agreement

The binational GLWQA requires US and Canada to reduce phosphorus levels in lake Erie to prevent algae blooms.  The target will be organized February 2016, and domestic action plans for both countries will be composed by February 2018. Proposed targets include maintaining cyanobacteria biomass at levels that do not produce concentrations of toxic substances that can endanger a healthy human or ecosystem (Great Lakes Water Quality Agreement Nutrient Annex Subcommittee, 2015).

In binational.net, the organization presents a governance wheel illustrating how the consultation process alternates between the two countries through multiple occasions during the three-year span (United States Environmental Protection Agency and Environment Canada, 2009). The Lake Erie Lakewide action and management plan is one of the association’s works: it includes the publication of a nutrient management strategy, construction of the Lake Erie Biodiversity Conservation Strategy, and funding of local events to address lake priorities through GLRI, a US organization that cooperates with Canada, mentioned later in this post.

Canada-Ontario Agreement on Great Lakes Water Quality and Ecosystem Health

This federal-provincial agreement was amended on 2014 and has a supportive role to the GLWQA (Government of Canada and Province of Ontario, 2014). It declares aims of setting time-regulated goals and commitments, legally strengthening cooperation between the national and provincial level. In the agreement, engaging communities and first nations are identified as an crucial factor for the protection of the lake, specifically advocating the importance of raising awareness in the local community, promoting appreciation for the lakes and educating the Great Lakes community. The agreement further guarantees inclusion of First Nations representatives in meetings regarding this issue.

Great Lakes Restoration Initiative

The GLRI is a federally funded project in the US, where federal agencies are offering grants to local and governmental agencies to carry out clean-up projects and restoration measures. During the first five years of the Great Lakes Restoration Initiative, the appointed agencies and their partners made efforts to reduce the largest anthropogenic non-point source of phosphorus inputs to the Great Lakes, which is the runoff of fertilizers from farming lands (Great Lakes Restoration Initiative, 2015). They also provided the local farmers technological and financial aid to prevent the excessive run-off of nutrients and regulate soil erosion.

Fertilizer Canada

Fertilizer Canada is an informal institution that claims to represent the fertilizer industry in Canada. In response to the proposed phosphorus reduction targets, the institution advocates the 4R Nutrient Stewardship, a BMP (Best Management Practice) that aims the use of fertilizers from the right source, at the right rate, time, and place (Whyte, 2015). According to the organization, cite-specific application of this model though the help of Certified Crop Advisors will lead to responsible use of fertilizers in ecological terms. It has the authority to funding research programs for a practical application of the BMP, in addition to
offering knowledge to the government about what to consider when setting phosphorus targets.

Evaluation of Governance Structures: transparency, accountability, and participation

Great Lakes Water Quality Agreement

The transparency of the agreement can be explained in a positive light, assessing the highly legible documentation presenting clear objectives and future plans, elaborated by diagrams, figures and graphic representations of the governance process. Participation of the citizens, for now, can be performed by offering advices and proposals through the website. For stakeholders the committee have frequent webinars that promote assertive engagement. Accountability can be reassured to an extent considering the US Canada cooperation for this project, and there are observers within both countries including the Canadian Environmental Law Association; however international accountability was not observable.

Side note: International Joint Commission (US and Canada)

The International Joint Commission is an independent binational organization established by Canada and US to resolve boundary water issues.  For this environmental problem, they issued a report on recommended phosphorus targets for US and Canadian governments (International Joint Commission Lake Erie Ecosystem Priority (LEEP), 2014). Although this is not a binding regulation or policy, it is a dense report made through scientific research and public consultation; it is notable that this was published through the support of the GLWQA, demonstrating a high level of credibility to the engagement aspect of GLWQA.

Canada-Ontario Agreement on Great Lakes Water Quality and Ecosystem Health

The agreement document itself is written in formal administrative wording and structure, becoming a hindrance to the transparency of the consensus. The Government of Ontario website (http://www.ontario.ca/page/canada-ontario-great-lakes-agreement)  provides a summarized and easily accessible overview of the agreement. The provincial website is more enlightening for the citizens; however there is no lucid explanation of the actual measures taken/planned to take based on this agreement, or an progress report on the accomplishments. An environmental registry notice where citizens were able to post comments about their ideas had been active during 2014 for a certain period (Government of Ontario, 2014). Participation at the moment is unavailable, however according to the website the comments and public consultation accumulated over the two months are currently considered by the Ministry for decision-making. The government may or may not heed the advice but the citizens did have a chance to participate. Accountability can be observed to a credible extent, from the  Government of Ontario offering methods to appeal and challenge the decision.

Great Lakes Restoration Initiative

Its assertion in offering a wide range of opportunities for stakeholders including the local community and First Nations supports its positive attitude towards participation for the citizens to provide input for the government. Furthermore, through the federal registry the citizens may receive alerts for upcoming teleconferences of the Great Lakes Advisory Board (USEPA and EC, 2009). The institution encourages participation of actual stakeholders, and emphasizes engagement with local farmers through so-called PES – payments for ecosystem services – further backing up their supportive attitude towards inclusion. Detailed pictorial reports, along with navigable and user-friendly websites boost the transparency of this committee. Accountability of this organization is high, from the accumulated research, close contact with both US and Canadian projects, evident in its appearance in the LAMP report discussed above.

Fertilizer Canada

Although it is a non-federal informal organization, they own a fairly informative and interactive website, insisting environmentally friendly use of fertilizers. The 4R Nutrient Stewardship is explained in detail encouraging local Canadian farmers, a significant player in the restriction of phosphorus levels, to regulate their fertilizer use through professional advice. Through social networking services such as Twitter and LinkedIn, the institution emphasizes engagement and participation, along with transparency of their actions and latest news. Accountability is low, though they have a loose connection with the federal level.

Side note: Other Agricultural Institutions in Canada

NFU-O, the National Farmers Union Ontario had a letter response to the Great Lakes Protection Act 2015, acknowledging and supporting the movement, without mentioning  policies or measures in particular (Eatwell, 2015). In the official NFU website, the Great Lakes eutrophication problem was not mentioned in a significant manner. Canadian Federation of Agriculture,  claiming itself as the largest farmer’s organization, and Agricultural institute of Canada had nothing in particular to claim about the issue. Here we see a passive attitude of the farming industry of the problem especially in Canada.

Ending Remarks

Current efforts to counteract the eutrophication of Lake Erie can be referred as widely distributed and regulated throughout both the federal and provincial fields, but assertive action from the farmers, a community that is inevitably connected with the fundamental cause of this problem, seem to be lacking. However the legislative policies are not perfect either, regardless of their transparencies and willingness to accept participation from local community, from a gap in definitive regulations to limit levels of fertilizers. What we will be looking forward to is a close cooperative relationship between legislation and the agricultural industry aiming to achieve clearly stated and realistic goals proposed and supported both by the government and the citizens of Canada and US.

References

Eatwell, K. (2015). Re: EBR Registry Number: 012-3523, Great Lakes Protection Act 2015. Retrieved from http://www.nfuontario.ca/wpr/response-to-the-great-lakes-protection-act-2015/

Government of Ontario. (2014). Environmental Registry – 8th Canada-Ontario Agreement on Great Lakes Water Quality and Ecosystem Health. Retrieved November 3, 2015, from http://www.ebr.gov.on.ca/ERS-WEB-External/displaynoticecontent.do?noticeId=MTE5NzYx&statusId=MTc5MTcz#

Government of Canada, & Province of Ontario. (2014). Canada-Ontario Agreement on Great Lakes Water Quality and Ecosystem Health. Environment Canada and the Ontario Ministry of the Environment and Climate Change. Retrieved from http://ec.gc.ca/grandslacs-greatlakes/default.asp?lang=En&n=B903EE0D-1

Great Lakes Restoration Initiative. (2015). Great Lakes Restoration Initiative Report to Congress and the President Fiscal Years 2010–2014. Retrieved from http://greatlakesrestoration.us/index.html

Great Lakes Water Quality Agreement Nutrient Annex Subcommittee. (2015). Recommended Binational Phosphorus Targets to Combat Lake Erie Algal Blooms. Retrieved from http://www2.epa.gov/glwqa/factsheet-recommended-binational-phosphorus-targets-combat-lake-erie-algal-blooms

International Joint Commission Lake Erie Ecosystem Priority (LEEP). (2014). A Balanced Diet for Lake Erie Reducing Phosphorus Loadings and Harmful Algal Blooms. Retrieved from http://www.ijc.org/en_/leep/report

Lake Erie LAMP. (2013). Lake Erie Lakewide Action and Management Plan Annual Report 2013. Retrieved from http://ec.gc.ca/Publications/default.asp?lang=En&xml=35127176-E6E1-437F-A3B7-5D5B1A34982F

United States Environmental Protection Agency, & Environment Canada. (2009). Binational.net Canada-United States Collaboration for Great Lakes Water Quality. Retrieved November 3, 2015, from http://binational.net/

Whyte, G. (2015). Fertilizer Canada Response to Bill 66, Great Lakes Protection Act, 2015. Retrieved from http://fertilizercanada.ca/ontario-great-lakes-protect-act-submission/

Research question: What are the past measures taken in the case for Lake Erie, and are there other regulations that took place around the world in a similar instance?

 

Bosch, N. S., Allan, J. D., Selegean, J. P., & Scavia, D. (2013). Scenario-testing of agricultural best management practices in Lake Erie watersheds. Journal of Great Lakes Research, 39(3), 429–436. doi:10.1016/j.jglr.2013.06.004

This article discusses BMP (Best Management Practice) implementation in Lake Erie in reduction of phosphate levels, concluding that application of three strategies simultaneously extracted the best results. As it claims that the effectiveness of the measures rely heavily on the geographical patterns of the region, we may be able to construct methods of monitoring depending on the area. Cited by 21, this paper may not act as a foundation to our investigation, but as supporting material.

Goucher, N., & Maas, T. (2014). CLEAN, NOT GREEN: Tackling Algal Blooms in the Great Lakes. Retrieved from http://freshwaterfuture.org/algae-blooms-in-lake-erie/

This report by the NGO Freshwater Future alarms the public of the negative effects of algal blooms in Lake Erie through graphic photos of the lake, simultaneously promoting the reduction of phosphate levels and cooperation with various communities. It is an effective promotional and persuasive report, but subjectivity cannot be disregarded. Mentioning the past successful efforts made in mitigating the blooms, the report concludes with a light note, but this may be misleading considering that industrial agriculture is still prevailing around the Lake Erie coasts. It is a useful resource in making estimations of value claims and how environmental NGOs would play a role in the solution of this wicked problem.

Government of Ontario. (2012). pwqmn_rawdata_2012.xls. Provincial (Stream) Water Quality Monitoring Network. Retrieved       from http://www.ontario.ca/data/provincial-stream-water-quality-monitoring-network.

This is a data assessment of the chemical composition of the Great Lakes in 2012. The validity and accuracy of the data is high, considering that it is governmental data. It lacks of data for the periods when regulations with the US government took place, but will become a useful resource in observing a trend in recent-year phosphate levels. This dataset is connected to an interactive online map that can inform the chemical composition of water in the selected area, giving visual stimulation as well as raw information.

Government of Ontario. (2012).GLIS_2002_2012_WATER_CHEMISTRY. Water chemistry (Great Lakes nearshore areas). Retireved from http://www.ontario.ca/data/water-chemistry-great-lakes-nearshore-areas

This is a dataset including measurements of phosphate levels around the coastlines of the Great Lakes. Along with the other dataset focused on the water quality monitoring network, it will be utilized in relation to considering which past measures are geographically applicable to the specified area.

Great Lakes Commission. (2014). Review of In-stream Nonpoint Source Control Methodologies to Reduce Erosion and Sedimentation and Abate Phosphorus Loadings to the Great Lakes. Retrieved from http://glc.org/docs/2014-review-in-stream-bmp-erosion/

This grey literature consists of a review of measures taken in the past throughout Canada and US to reduce non-point source pollution and phosphorus levels. Each method is evaluated through case studies, and presents both merits and demerits of the measure, as well as its value in cost, effectiveness and how successful the technological integration was. Compared to the other NGO report, the objectivity of the report and variety of citations used suggests that it will be an useful resource to explore the possible mitigation methods that could be implemented in Lake Erie.

Gulati, R. D., Dionisio Pires, L. M., & Van Donk, E. (2008). Lake restoration studies: Failures, bottlenecks and prospects of new ecotechnological measures. Limnologica – Ecology and Management of Inland Waters, 38(3-4), 233–247. doi:10.1016/j.limno.2008.05.008

This paper accumulates studies about bio-manipulation for lakes in north-western Europe, indicating their weaknesses such as inadequate reduction in phosphate levels. Cited by 74 papers according to Google Scholar, this article is useful in identifying the cons of past measures. It should be note that the study focuses on cases in Europe, not Canada, and discusses issues with local species that cannot be entirely applied to the Lake Erie incident.

Lasse H. Pettersson, D. P. (2013). Monitoring of Harmful Algal Blooms. Berlin: Springer-Verlag Berlin Heidelberg. doi:10.1007/978-3- 540-68209-7_

This book focuses on the analysis of the harmful algal species, later evaluating geographic information sciences as an effective monitoring method of algal blooms. In p.124 there is a brief mention of the algal bloom in Lake Erie in 1995, claiming that employment of LANDAT TM developed algorithms that detected cynobacterial blooms in the lake. This information, and other case studies of instances where GIS technology made estimations and models of past algal bloom incidents, suggests that implementing technology is a possible measure. The recent date implies a level of validity and applicability, though there is a low number of this literature being cited by other articles.

McGucken, W. (2000). Lake Erie Rehabilitated: Controlling Cultural Eutrophication 1960s-1990s. Akron: The University of Akron Press. Retrieved from http://muse.jhu.edu/books/9781935603160

This book highlights the history of algal control during the 1960s-1990s in Lake Erie. Not only does it identify specific measures taken by the federal institutions, but also explains in detail the process in which the Canadian and U.S. government struggled in meeting goals and reaching a mutual conclusion through the negotiations. The detailed description of each measure and its development will aid our analysis of past measures and its pros and cons, along with its political outcomes. As it is a fairly recent book, it is reliable to an extent; for confirmation it should be used simultaneously with governmental documents aobut the regulations that took place in the past.

Murrey, G. R. Bill 6 An Act to protect and restore the Great Lakes-St. Lawrence River Basin (2015). 2nd reading June 4th 2015, 41st Legislature, 1st Session. Government of Ontario. Retrieved from http://ontla.on.ca/web/bills/bills_detail.do?locale=en&Intranet=&BillID=3115

This is the pdf version of the currently proposed bill of the Great Lakes Act, still being processed through legislation in the Government of Ontario. The authenticity of the resource is undoubted, and will be utilized as reference to what the federal viewpoint is of this issue of lake water protection. Operational definitions will aid our understanding, while we are able to evaluate whether or not the current situation of the algal bloom can be solved through this regulatory attempt.

Paerl, H. W., Xu, H., McCarthy, M. J., Zhu, G., Qin, B., Li, Y., & Gardner, W. S. (2011). Controlling harmful cyanobacterial blooms in a hyper-eutrophic lake (Lake Taihu, China): The need for a dual nutrient (N & P) management strategy. Water Research, 45(5), 1973–1983. doi:10.1016/j.watres.2010.09.018

In this peer-reviewed article, the authors propose a management strategy including the regulation of both nitrogen and phosphorus levels. Through seasonal analysis of the hyper-eutrophic Lake Taihu in China, they conclude that long-term mitigations will be the most effective in this case. This artcle is significant, considering that a comparison with the article by Wang. H & Wang. H (2009) claiming alternate methods of reduction will lead to more interesting insight in which is more applicable for the situation in Lake Erie.

Wang, H., & Wang, H. (2009). Mitigation of lake eutrophication: Loosen nitrogen control and focus on phosphorus abatement. Progress in Natural Science, 19(10), 1445–1451. doi:10.1016/j.pnsc.2009.03.009

This is a journal article that explores the mitigation of algal blooms in the Yangtze lakes in China, claiming the scientists must loosen their fixation in reducing levels of nitrogen, and instead, make an effort to control phosphorus abatement. Specific examples are given in how the methods will be implemented. The journal article is cited by a fair number of scholars, therefore proving to be useful. It should be compared with the other journal article also written by Chinese scholars that propose a different method for regulation.

Wilson, R. S., Howard, G., & Burnett, E. A. (2014). Improving nutrient management practices in agriculture: The role of risk-based beliefs in understanding farmers’ attitudes toward taking additional action. Water Resouces Research, 50(8), 1–12. doi:10.1002/2013WR015200.Received

This is a research article aimed to assess the attitude of farmers in Northwest Ohio, targeting the individuals who are taking voluntary measures to reduce nutrient loss. Though this article has not yet been cited, which is evidence of its vulnerability in validity, it gives an insight about in what situation would the farmers be willing to take action in protecting Lake Erie from the algal blooms. Value claims between the agricultural dimention and the federal aspect often differ; this article may give a hint to the merits of environmental protection the government should promote.

In recent years, the algae bloom in the US Great Lake, most manifestly seen in Lake Erie, has rapidly expanded their territory. Reported cases of drinking water becoming toxic from high level of microcystin and large-scale deficiency of oxygen leading to reduction of marine life is becoming a serious concern. This mind map aims to deconstruct the multiple dimensions of this biological and human induced “wicked problem” to gain a scope of this phenomenon.

The mind map mainly highlights on the possible causes of the problem, as well as measures already taken in the past and the consequences brought by the algae bloom.

The problem is not as simple as it seems; levels of phosphate washed down from agricultural lands are the main nutritional foundation for the algae, so reduction of the run-off of fertilizers would be a logical, science-based solution. However, as this is a “wicked” problem, the simple scientific solution cannot possibly eliminate the multiple causes of this case. Wicked problems consist of two uncertainties: Scientific and value-based. The algae bloom problem indeed includes uncertainties and unknown factors in both of these dimensions.

In the scientific side of this problem, the causes are not only the phosphate levels. As written in the mind map, the introduction of alien species – namely the Zebra and Quagga mussels have contributed to the increase of algae levels. Their diet do not include the blue algae in the lakes, and so cannot act as a stopper of the plant. Also, the climate change in recent years have risen the temperatures of the water and atmosphere, accelerating the algae bloom, along with the heavy rain that increases run-off of fertilizers. These ecological conditions complexly intertwine and lead to difficulty in pointing to a fundamental solution even in scientific terms.

It could be said that the negotiations of values could be a more complex dimension. The current measures taken by the government only consists of voluntary measures, asking the agricultural institutions to reduce their use of phosphates in response to the pressures from environmental institutions. Though there are benefits for farmers to cooperate in this environmental movement, the expected economic loss from inefficient agriculture has not been helpful in reducing the amount of fertilizer use. As much as the local residents are relying on the Great Lakes as an important source of water and values it as a tourism site, the agricultural field sustains the state economically, and forceful regulations will lead to negative consequences. However, the algae bloom will not have an positive impact on the agricultural industry either, considering that the great lakes are the water source for irrigation.

In this wicked problem, the key is to explore a possible solution that considers both the interests of the public and the agricultural industry, as well as carefully examining the several ecological conditions affecting the rise in algae levels.

References

Roelofs, Ted. ‘Bridge : Algae Bloom, The Sequel, Spells Big Trouble For Lake Erie’. Bridgemi.com. N.p., 2015. Web. 25 Sept. 2015.

Torregrossa, Mark. ‘Harmful Algae Bloom Now Starting To Form In Lake Erie’. MLive.com. N.p., 2015. Web. 25 Sept. 2015.