(2014) water without borders: the columbia river treaty renegotiation and transboundary water...
TRANSCRIPT
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Water without Borders:The Columbia River Treaty Renegotiation and
Transboundary Water Governance
Border Policy Research InstituteWestern Washington University
January 23, 2013
Dr. Emma S. NormanAssistant Professor of Geography
Department of Social Sciences
Environmental and Energy Policy Program
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Questions…
• What does the CRT tell us about changing governance patterns?
• Are borders ‘softening’ or ‘thickening’
• Lessons learned?
• Why does it matter?
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CRT 101• 1961 / Ratified in 1964
• Constructed 4 dams
• Flood Control
• Cost Sharing
• Shared Energy / Benefits
• Mechanisms for Cooperation
• Possible Termination:
• 2024 / 2014 (Sept. 16)
• Treaty ‘Modernization’
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When does the story start?
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Now
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Many Entry Points
• Act 1: People and Place: Knowing the River
• Act 2: Harnessing Energy
• Act 3: Treaty Making / ‘Sharing’ Power
• Act 4: Rethinking Power
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Many bends in the river:How I came to my questions…
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Knowledge of, connection to Place
Chief Joseph of the Nez Perce TribeMarmes Rock Shelter (1967)
Human inhabitants dating back 11,230 years ago
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c. 1900
Sceneries of
Columbia River,
Drying salmon,
Celilo Falls,
Oregon". No.
10541, B.W.
Kilburn
Company.
James Davis
photo
The Great Provider
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Knowing / Naming the ‘Big River’:Wimahl, Nch’i-Wàna, swah'netk'qhu, Columbia
Map of Lew and Clark, Across the Western Portion of N.
America, published 1814
Robert Gray, Named the Columbia river, in 1792
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Social Power / Power of Maps
David Thompson:
map-maker, trader, explorer
“. . .in their power”
• upstream / downstream
protocol. . .
• know your neighbors. . .
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Dipnet fishing at the Cul-De-Sac of Celilo Falls (Columbia River) circa 1957, Oregon,
USA. United States Army Corps of Engineers.
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Harnessing the Columbia River Creating the Discourse
,
folk singer Woody Guthrie
“Roll on Columbia. . . . “
Commissioned by Bonneville
Power Authority
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Borders, Politics, Power
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Crisis and Political Mobilization:Columbia River Flood, 1948
Vanport, OR
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Treaty Now and Then
What the Treaty Does
• Coordinates Flood Control
• Generates Energy
• Generates Revenues
• Cost-Sharing
• Federal Controlled / Acted
Grievances
• Loss of Ecosystems (Salmon Habitat)
• Inequitable Cost-Share
• Lack of Indigenous Rights
• Lack of Community Participation & Decision Making and Participation
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Changing Ecology
John Day Dam Fish Ladder Slackwater Pools
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Changing Governance Mechanisms
1st meeting of the International Joint Commission, 1912
International Watersheds Boards, 2012
Round Table Discussion on Water Security, 2011
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Different Eras
• Cooperative
Development
• Comprehensive Management
• Sustainable
Development
• Participatory
– Projects of mutual benefit
– 1944 – 1964
– i.e. Columbia River dam
- Linking environment and economy- 1986 – 2000 / current
- Increased local participation
• 2000 - current
• i.e. Watershed Boards
-Issue – based-1965 – 1985
i.e. Great Lakes WaterQuality Agreement/Annex
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Renegotiation Process
Regional Recommendations ~ 3 years
Federal Review
~ 9 months
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Renegotiation Process
Inclusion of Indigenous Groups
Inclusion of Citizen Groups
Greater Consideration for Ecosystems
Provisions for adaptation to Climate Change
? ? Maintains Similar Flood Control Provisions
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Modernized TreatyRegional Recommendations (BC) Post 2024
• Better address the region’s need for a reliable and economically sustainable
hydropower system;
• Continue to provide a similar level of flood risk management to protect public safety
and the region’s economy;
• include ecosystem-based function as a third primary purpose of the Treaty, to
ensure a more comprehensive approach throughout the Columbia Basin watershed;
and
• create the flexibility within the Treaty that is necessary to respond to climate change,
changing water supply needs, and other future potential changes in system operations
while continuing to meet authorized purposes such as navigation.
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Modernized TreatyRegional Recommendations (US) Post 2024
• Greatest Possible Shared Benefits - Continued Cooperation of Operations of Treaty
Reservoirs;
• Health of ecosystem should be a shared benefit and shared cost of the U.S. and
Canada;
• All operations based on ‘best available science’ and ‘measurable outcomes’.
• create the flexibility within the Treaty that is necessary to respond to climate change,
changing water supply needs, and other future potential changes in system operations
while continuing to meet authorized purposes such as navigation.
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Modernized Treaty Categories
• Hydropower
• Flood Risk Management
• Ecosystem Based Function
• Water Supply
• Navigation Recreation
• Climate Change
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Ecosystem Based Function
• 2. “A modernized Treaty should recognize and minimize adverse effects to tribal, First Nations, and other cultural resource in Canada and the United States. To the extent there are adverse effects……Federal Columbia River Power Systems Cultural Resources Program.
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Other Transboundary “Hotspots”Continued Lessons”
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Flathead River Basin
Issue: Different Priorities / Asymmetrical Governance
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St. Mary and Milk Rivers
“Spite Canal” – Alberta / Montana
Issues: Cost Share / Benefit / Failing Infrastructure /
Communication Breakdown
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Red River Basin / Devils Lake
Devils Lake, 1984
Devils Lake, 2009
Issues: Flooding, Diversion, Lack of Communication, Unilateral Action
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Great Lakes / Freshwater Nation
Issues: Ecosystem Degradation – Extraterritorial Pollution
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What CRT tells us about governance patterns
• Greater need for…
• Inclusion of Indigenous treaty rights, land claims, and self–governance
• Consideration of environmental provisions
• Aligning governance mechanisms with increased public expectations for public involvement and regional representation.
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Are borders ‘softening’ or ‘thickening’?
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Lessons Learned…
• Know your neighbor
• Keep communicating (in times of non-crisis)
• Think Systemically / Holistically
• Power (like water) comes in many forms
• Learn from the Past
• Be prepared for the future
Think like a river….
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Why does it matter?
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More Questions & New Projects
What is the the ‘right’ scale for water governance?
Negotiating Water Governance:Why the Politics of Scale Matter (Ashgate, 2014)
How can shared governance lead to self-determination and decolonization?
Governing Transboundary Waters: Canada, the United States and Indigenous Communities (Routledge, 2014)
Polly Spenner, 2012, Collage #5
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Thank you!
www.waterwithoutborders.info
Drs. Alice Cohen and Karen Bakker
Legal Consul: John Shurts and Richard Paisley
Border Policy
Research
Institute
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Harnessing Energy
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http://www.crt2014-2024review.gov/Files/Draft%20Regional%20Recommendation,%20Final,%20092013.pdf