international joint

NEW INTERNATIONAL STUDIES ON GREAT LAKES LEVELS AND FLOWS

The material here in has been compi led t o ass is t i n t e r e s t e d pe r sons i n becoming f ami l i a r w i th t he na tu re and s cope of s t u d i e s t o be under taken by t h e I n t e r n a t i o n a l J o i n t Commission a t t h e r e q u e s t of the governments of Canada and United S ta tes .

INTERNATIONAL JOINT COMMISSION United S ta t e s and Canada

Washington July 1 5 , 1 9 7 7 O t t a w a

. N E W S R E L E A S E C O M M U M I Q U E INTERNATIONAL JOINT COMMISSION COMMISSION MUTE INTERNATIONALE Ottawa Off ice T e l : ( 6 1 3 ) 995-2984 Washington Office T e l : ( 2 0 2 ) 296-2142 FOR RELEASE J u l y 15 , 1977

NEW INTERNATIONAL STUDIES ON GREAT LAKES LEVELS AND FLOWS The United States and Canadian Governments have asked the Internat ional

J o i n t Commission ( I J C ) t o s t u d y f u r t h e r t h e p o s s i b i l i t i e s of improving the management of l e v e l s a n d flows of t h e waters i n t h e Great Lakes Basin System.

Under t h e Boundary Waters Trea ty of 1 9 0 9 , which p rov ides t h a t t h e Governments may refer q u e s t i o n s t o t h e I J C fo r examina t ion and r epor t , two matters on the Great Lakes water system were forwarded t o t h e Commission f o r s t u d y . They are:

a. To de te rmine t h e p o s s i b i l i t i e s f o r l i m i t e d r e g u l a t i o n of Lake E r i e

and t h e c o n s e q u e n t e f f e c t s t h r o u g h o u t t h e Great Lakes Basin: b. To e x a m i n e t h e e f f e c t s o f e x i s t i n g a n d p r o p o s e d d i v e r s i o n s o f water

w i t h i n , i n t o , o r o u t o f t h e Great Lakes Basin; and the effects on Great Lakes ' l e v e l s a n d flows f r o m e x i s t i n g o r r e a s o n a b l y f o r e s e e a b l e p a t t e r s n of consumpt ive uses .

Having received the References from the Governments, the Commission has o u t l i n e d i t s p l a n s t o f u l f i l l t h e Governments ' requests t h a t I J C submi t r epor t s on t he above matters no l a te r than March 1, 1 9 7 9 . These are:

1. The appointment of t w o i n t e r n a t i o n a l b o a r d s of e x p e r t s t o make the n e c e s s a r y s t u d i e s on which t h e Commission w i l l base i t s f i n a l r e p o r t s . A f u l l roster of Board matters a n d t h e i r p r e s e n t a f f i l i a t i o n s i s a t t a c h e d .

2 . The release of d i r e c t i v e s t o t h e Boards o u t l i n i n g t h e Boards ' r e s p o n s i b i l i t i e s a n d s e t t i n g f o r t h p r o c e d u r e s a n d g u i d e l i n e s f o r t h e Boards to follow. The d i r e c t i v e s a r e a lso a t t a c h e d .

3 . The h o l d i n g of p u b l i c h e a r i n g s , i f w a r r a n t e d , o n t h e p l a n n i n g of these s t u d i e s . The Commission b e l i e v e s t h a t such hea r ings might assist it i n o r g a n i z i n g a n d c a r r y i n g o u t i t s i n q u i r i e s i n a t h o r o u g h a n d e f f e c t i v e manner, w i t h o p p o r t u n i t y f o r p a r t i c i p a t i o n by t h e genera l publ ic and provin- c i a l , s ta te , and local governments. If s u f f i c i e n t i n t e r e s t by t h e p u b l i c i s shown, h e a r i n g s w i l l be planned t o take place a t a n e a r l y s t a g e of the

s tuciy . . . 2

2

Following t h e i s s u a n c e of the Commiss ion ' s d i rec t ive t o the Boards , each Board w i l l p r e p a r e a P l a n of Study for t h e Commission's approval. The p l a n s w i l l b e d i s c l o s e d t o t h e p u b l i c f o r comment.

4 . The Commission i s now making a v a i l a b l e t h e R e f e r e n c e l e t te rs from the Governments t o t h e I J C , t h e I J C d i r e c t i v e s t o the Boards, and some background material on l i m i t e d r e g u l a t i o n o f Lake Erie, and on Great Lakes d ivers ions and consumpt ive uses . A l l are attached.

The Commission i n v i t e s a l l c o n c e r n e d i n t e r e s t s t o comment on t h e references a n d d i r e c t i v e s , a n d t o s u b m i t a n y o t h e r r e l e v a n t i n f o r m a t i o n t h a t would be h e l p f u l t o t h e Commission and Boards i n the conduc t of t h e s e s t u d i e s . The Commission encourages the t ransmit ta l of comments so t h a t it can determine

whether t h e e x t e n t o f p u b l i c i n t e r e s t w a r r a n t s p u b l i c h e a r i n g s a t t h i s s t a g e . On complet ion of t h e Boards' r e p o r t s i n 1978 , p u b l i c h e a r i n g s w i l l be

he ld by t h e Commission t o rece ive v iews on t h e r e p o r t s . With t h e b e n e f i t of t h e Boards' t e c h n i c a l r e p o r t s a n d p u b l i c review, t h e Commission w i l l make i t s own r e p o r t s t o t h e Governments.

The I n t e r n a t i o n a l J o i n t Commission, a pe rmanen t b i l a t e ra l g roup , composed of three Canadians appoin ted by the Governor-Genera l in Counci l and three Amer icans appoin ted by the Pres ident , acts as a s i n g l e body seek ing common s o l u t i o n s i n t h e j o i n t i n t e r e s t a n d i n a c c o r d a n c e w i t h t h e r u l e s a n d p r i n c i p l e s of t h e Boundary Waters T r e a t y of 1909. Implementation of t h e I J C ' s recommend- a t ions depends on t h e d e c i s i o n s of t h e two Governments, usually a f te r c o n s u l t - a t i o n . I n t h e g r e a t m a j o r i t y of r e f e r e n c e s t o t h e Commission, i t s recommend- a t ions have been accepted by the Governments.

- 30 -

INTERNATIONAL LAKE E R I E REGULATION BOARD

United States S e c t i o n

Br ig . Genera l Rober t L. Moore

N o r t h C e n t r a l D i v i s i o n

C h i c a g o , I l l i n o i s 60605

(Chairman)

I U S Corps of Engineers

Wayne S. Nichols D i v i s i o n of Water Ohio Department of Natural

Columbus, Ohio 43224 Resources

W. T. Olds, Jr U S F i s h & W i l d l i f e S e r v i c e D e p a r t m e n t o f I n t e r i o r Washington, D.C. 20240

Terence P . Curran New York Department of

Albany, New York 12233 Environmental Conservat ion

Canadian Sec t ion

D. M. Foulds (Chairman)

I n l a n d Waters Directorate F i s h e r i e s & Environment Canada Toronto , Ontar io M4V 1P5

Roy Walker O n t a r i o Hydro Toron to , On ta r io M5G 1x6

Fernand San te r r e Hydro Quebec Montreal , P. Q . J . E . Bryant C a n a d i a n W i l d l i f e S e r v i c e F i s h e r i e s & Environment Canada Ottawa, O n t a r i o K1A OB7

3

INTERNATIONAL GREAT LAKES DIVERSION AND CONSUMPTIVE USES STUDY BOARD

Uni ted S ta tes Section Canadian Sec t ion

B r i g . General Robert L. Moore

North C e n t r a l D i v i s i o n U S Corps of Engineers Chicago, I l l i n o i s 60605

(Chairman)

William D. Marks Bureau of Environmental

Department of Natura l Resources Lansing, Michigan 48909

P r o t e c t i o n

Peter L. Wise I l l i n o i s D e p a r t m e n t of

D i v i s i o n of Water Resources Chicago, I l l i n o i s 60610

T r a n s p o r t a t i o n

C . H. McConnell Department of Environmental

Commonwealth of Pennsylvania Harr i sburg , Pennsylvania 17120

Resources

Norton James (Chairman)

I n l a n d Waters Directorate F i s h e r i e s & Environment Canada O t t a w a , O n t a r i o K l A OE7

R . M. Smi th Coast Guard Waterways Development Transport Canada O t t a w a , O n t a r i o K1A ON7

Grant H . Milles Water Resources Branch M i n i s t r y of the Environment Toronto , Ontar io M4V 1P5

Bertrand Bouchard Hydraulic Development Service Department of Natura l Resources Quebec Ci ty , Quebec G1S 4N6

Roy Walker O n t a r i o Hydro Toronto, O n t a r i o M5G 1x6

James D. Hebson Federal Power Commission N e w York, New York 1 0 0 0 7

4

THE NATURE O F THE PROBLEM

Because t h e Great Lakes o f f e r a e s t h e t i c a t t r a c t i o n s i n a d d i t i o n t o power and t r a n s p o r t a t i o p many settlements have developed on the banks of t h e r i v e r s a n d o n t h e s h o r e l i n e s of t h e lakes o v e r t h e y e a r s . For a number of r easons many o f t h e s e com- mun i t i e s have f a i l ed t o comprehend t h e t h r e a t i n h e r e n t i n t h e un- c o n t r o l l a b l e a n d u n p r e d i c t a b l e n a t u r a l forces t h a t d i c t a t e t h e behaviour of t h e Great Lakes System.

The l e v e l s of t h e Great Lakes are n e v e r c o n s t a n t . Wind and changes in p r e c i p i t a t i o n c a u s e l a r g e v a r i a t i o n s . S i n c e man c a n n o t i n f l u e n c e t h e s e n a t u r a l forces, he must l i v e i n harmony with them. A bet ter and more d e t a i l e d u n d e r s t a n d i n g o f t h e n a t u r a l factors t h a t control t h e l e v e l s o f t h e Great Lakes and t h e f lows of their Connecting Channels i s needed so t h a t a l l can r e c o g n i z e t h e l i m i t a t i o n s of man’s i n t e rven t ions .

The h i g h d e g r e e o f n a t u r a l r e g u l a t i o n t h a t e x i s t s i n t h e Great Lakes has c rea ted undue re l iance on a s t ab le r eg ime o f water l e v e l s a n d h a s d u l l e d t h e r e a l i z a t i o n t h a t v a g a r i e s of na tu re , such as storms, f lood and drought , w i l l c a u s e t h e levels t o f l u c t u a t e . S i n c e t h e i r r e g u l a r c h a n g e s from extreme low t o e x t r e m e h i g h l a k e l e v e l s occur ove r a per iod seldom less t h a n a decade, and o f t e n l o n g e r , it i s n o t ea sy f o r the shore l ine owner , w i t h l i t t l e knowledge o f h i s to r i c f l uc tua t ion , t o r ecogn ize t he c h a n g e s t h a t w i l l i n e v i t a b l y o c c u r i n t h e fu tu re . The re i s u n f o r t u n a t e l y a tendency among indiv idua ls and governmenta l a g e n c i e s t o i g n o r e or f o r g e t p u b l i s h e d r e c o r d s .

T h o s e i n t e r e s t s a f f e c t e d by the i n e v i t a b l e v a r i a t i o n s i n t h e l e v e l s of t h e Great Lakes f a l l i n t o f o u r g e n e r a l c a t e g o r i e s : s h o r e p r o p e r t y , f i s h a n d w i l d l i f e , n a v i g a t i o n a n d h y d r o - e l e c t r i c power. Shore property interests i n c l u d e p o r t f a c i l i t i e s , m a r i n a s , r ec rea t iona l deve lopmen t s , home a n d c o t t a g e p r o p e r t i e s , i n d u s t r y and municipal f a c i l i t i e s . Shore p r o p e r t y i n t e r e s t s would g e n e r a l l y b e n e f i t most by t h e s t a b i l i z a t i o n of water l e v e l s a n d a r e d u c t i o n o f t h e extremes of both h igh and low l e v e l s . N a v i g a t i o n i s best se rved by h ighe r lake l e v e l s w h i l e h y d r o - e l e c t r i c power i n t e r e s t s p r e f e r t h e maintenance of minimum flows as l a r g e as p o s s i b l e p a r t i c u l a r l y d u r i n g p e r i o d s of h igh demands f o r power. Fish and w i l d l i f e i n t e r e s t s are d i v i d e d o n s t a b i l i z a t i o n of water l e v e l s . T h e s e d i v e r g e n t i n t e r e s t s compound t h e d i f f i c u l t i e s a s s o c i a t e d w i t h h igh and l o w water l e v e l s . The socio-economic effects caused by l o w l e v e l s , a l t h o u g h less dramatic t h a n t h e damage caused by storms d u r i n g p e r i o d s of h igh water l e v e l s , are also c o s t l y .

5

BACKGROUND

The References

I n 1 9 6 4 , the governments of Canada and U S a s k e d t h e I J C t o r e s o l v e a number of b a s i c q u e s t i o n s c o n c e r n i n g t h e Great Lakes water l e v e l s . A f t e r a t e n y e a r (1964-1974) t e c h n i c a l i n v e s t i g a - t i o n by t h e Commiss ion ' s In t e rna t iona l Great Lakes Levels Board a n d a f t e r 2 2 p u b l i c h e a r i n g s , and du r ing wh ich t he re were normal as w e l l as extremely high and extremely low water l e v e l s i n t h e Great Lakes Bas in , the I J C r e l e a s e d i t s r e p o r t i n J u n e , 1976.

The Commission was asked t o s t u d y f irst of a l l t h e v a r i o u s factors w h i c h a f f e c t t h e f l u c t u a t i o n s o f t h e lake l e v e l s a n d t o de termine whether t h e f l u c t u a t i o n i s p r i m a r i l y a n a t u r a l process o r due t o m a n ' s i n t e r v e n t i o n . I t d e t e r m i n e d t h a t f l u c t u a t i o n s are p r i m a r i l y c a u s e d b y n a t u r e , a l t h o u g h m a n ' s i n t e r v e n t i o n has r e s u l t e d i n some m o d i f i c a t i o n s .

The second ques t ion posed t o t h e Commission was whether i t i s p r a c t i c a b l e a n d i n t h e p u b l i c i n t e r e s t t o f u r t h e r r e g u l a t e t h e l e v e l s o f t h e Great Lakes t o b r i n g a b o u t a more b e n e f i c i a l r a n g e o f s t a g e f o r t h e v a r i o u s i n t e r e s t s u s i n g t h e L a k e s . S i n c e t h e Great Lakes a l r eady posses s a h i g h d e g r e e o f n a t u r a l r e g u l a t i o n , t h e Commission concluded t h a t o n l y a l imi t ed r educ - t i o n i n t h e range of water l e v e l s is p r a c t i c a l . Major r e d u c t i o n s i n f l u c t u a t i o n i n a n y o n e l a k e would r e s u l t i n much wider v a r i a - t i o n s i n o u t f l o w s a n d w o u l d n e c e s s i t a t e e x t r e m e l y c o s t l y r e g u l a t o r y works and remedial measures and could cause se r ious e f fec ts ups t ream and downst ream.

A w ide a r r ay of p o s s i b l e r e g u l a t i o n p l a n s were examined. These ranged f rom doing no th ing t o mob i l i z ing a v a s t amount of i n t e r n a t i o n a l t e c h n o l o g i c a l s k i l l s a n d c o n s t r u c t i o n r e s o u r c e s t o ach ieve more c o m p l e t e c o n t r o l o f t h e l e v e l s a n d flows i n a l l t h e Great Lakes. The r e p o r t described t h e Commiss ion ' s i nves t iga t ion i n t o t h e f e a s i b i l i t y of a d d i t i o n a l b u t l i m i t e d r e g u l a t i o n i n v o l v - i n g c o n s i d e r a t i o n o f r e g u l a t i o n p l a n s f o r a l l f i v e l a k e s ; a fou r - l ake r e g u l a t i o n p l a n ( a l l b u t E r i e ) ; a t h r e e - l a k e p l a n fo r Lakes S u p e r i o r , Erie and Ontar io; and a t w o - l a k e r e g u l a t i o n p l a n f o r Lakes Supe r io r and On ta r io . These plans encompass t h e b e n e f i c i a l a n d a d v e r s e e f f e c t s o f r e g u l a t i o n c o n t r o l a n d t h e a t t e n d a n t economics.

The Commission concluded t h a t p r o t e c t i o n from high and l o w water l e v e l s c a n n o t b e a c h i e v e d from lake r e g u l a t i o n a l o n e . P r o t e c t i o n i s best d e r i v e d from s y s t e m a t i c management u s i n g a l l of t h e tools a v a i l a b l e . These tools i n c l u d e n o t o n l y lake r egu la - t i o n b u t a l so encompass carefu l p lanning of r e s i d e n t i a l , r e c r e a t i o n a l a n d i n d u s t r i a l a c t i v i t i e s a l o n g t h e s h o r e l i n e t o a s s u r e wise u s e of v u l n e r a b l e areas.

6

To assist in the expansion of knowledge to reduce fluctuations, the Commission recommended that it be authorized to study and determine: environmental and other effects of limited regulation of Lake Erie; the effects of existing or new diversions into or out of the Great Lakes Basin; the effect of future consumptive use of water on Great Lakes levels and flows.

In response to the Commission's recommendations, the governments of Canada and the United States on February 21, 1977, requested the International Joint Commission to undertake the recommended studies. Two letters, identified as "the References", which detail the requests follow:

7

The s e c r e t a r y of State f o r E x t e r n a l Affairs

S e c r g t a i r e d ' E t a t a u x A f f a i r e s e x t 6 r i e u r e s

Ottawa, Ontar io

February 21, 1977 K 1 A OG2

Dear M r . Chance,

I have the honour to inform you t h a t t h e Governments of Canada and t h e U n i t e d States have agreed , pursuant t o Article I X of t h e Boundary Waters Trea ty o f 1 9 0 9 , and i n l i g h t of t h e first recommendation contained i n t h e I n t e r n a - t i o n a l J o i n t C o m m i s s i o n ' s r e p o r t of May 7, 1 9 7 6 , e n t i t l e d " F u r t h e r R e g u l a t i o n o f t h e Great Lakes", prepared under an October 7 , 1964 Reference from Governments, t o r e q u e s t t h e Commission t o unde r t ake a s tudy t o de te rmine t he p o s s i b i l i t i e s f o r l i m i t e d r e g u l a t i o n of Lake E r i e , t a k i n g i n t o a c c o u n t t h e a p p l i c a b l e o r d e r s o f a p p r o v a l of t h e Commission and t h e recommendations of the Canada-Quebec s t u d y of f l o w r e g u l a t i o n i n t h e M o n t r e a l r e g i o n . I n p a r t i c u l a r , t h i s s t u d y s h o u l d e x a m i n e i n t o a n d r e p o r t upon t h e effects of s u c h l i m i t e d r e g u l a t i o n w i t h r e s p e c t to:

Domestic water s u p p l y a n d s a n i t a t i o n ; Naviga t ion ; Water supply for power g e n e r a t i o n a n d i n d u s t r i a l p u r p o s e s ; A g r i c u l t u r e ; S h o r e p r o p e r t y , b o t h p u b l i c a n d p r i v a t e ; Flood control;

F i s h a n d w i l d l i f e , a n d o t h e r e n v i r o n m e n t a l a s p e c t s ; P u b l i c r e c r e a t i o n ; a n d Such o ther effects and impl ica t ions which t h e Commission may deem a p p r o p r i a t e a n d r e l e v a n t .

... 2

M r . D . G . Chance S e c r e t a r y , C a n a d i a n S e c t i o n I n t e r n a t i o n a l J o i n t Commission S u i t e 850, Burns ide Bui ld ing 151 Slater Street OTTAWA, O n t a r i o

2

The Commission, c o n s i s t e n t w i t h t h e p r i n c i p l e of sys t emic r e g u l a t i o n o f t h e Great Lakes, which i s endorsed by the t w o G o v e r n m e n t s , s h o u l d c o n s i d e r s u c h e f f e c t s i n l i g h t of a n t i c i p - a t ed impac t s t h roughou t t he B a s i n , i n c l u d i n g t h e i n t e r n a t i o n a l and Canadian reaches o f the S t Lawrence River.

I n t h e e v e n t t h a t t h e Commiss ion should f ind tha t new or a l tered works o r other measures examined pursuant t o t h i s Reference would be economica l ly and envi ronmenta l ly p rac t icable i n l i g h t of t h e above stated c o n s i d e r a t i o n s , i t s h a l l estimate t h e costs of such works o r measures and ind ica te how t h e v a r i o u s i n t e r e s t s o n either s ide o f the boundary would be b e n e f i t e d o r a d v e r s e l y a f f e c t e d t h e r e b y . The Commission s h a l l l i k e w i s e cons ide r t he need fo r r emed ia l o r compensating works, or non- s t ruc tu ra l app roaches , t o p r o t e c t i n t e r e s t s p o t e n t i a l l y a d v e r s e l y a f f e c t e d by the p roposed r egu la to ry works or measures , and t h e approximate costs thereof. The Commission sha l l f u r t h e r c o n s i d e r as a p p r o p r i a t e how such costs might be appor t ioned between t h e two Governments o r c o n c e r n e d i n t e r e s t s i n e a c h count ry .

I n t h e c o n d u c t o f i t s i n v e s t i g a t i o n a n d t h e p r e p a r a t i o n o f i t s r e p o r t , t h e Commission sha l l make use of informat ion and t e c h n i c a l data h e r e t o f o r e a v a i l a b l e o r which may become a v a i l a b l e i n e i t h e r c o u n t r y d u r i n g t h e c o u r s e o f i t s i n v e s t i g a - t i o n . I n a d d i t i o n , t h e Commission s h a l l s e e k t h e assistance, as r e q u i r e d , o f s p e c i a l l y q u a l i f i e d p e r s o n n e l i n Canada and the Un i t ed States. The Governments s h a l l make a v a i l a b l e o r , as n e c e s s a r y , s e e k t h e a p p r o p r i a t i o n of t h e f u n d s r e q u i r e d t o p r o v i d e t h e Commission promptly with the resources needed t o discharge t h e o b l i g a t i o n s u n d e r t h i s R e f e r e n c e f u l l y w i t h i n the s p e c i f i e d time p e r i o d . The Commission s h a l l d e v e l o p as e a r l y as p r a c t i c a b l e cost p r o j e c t i o n s f o r t h e s t u d i e s u n d e r r e f e r e n c e f o r t h e i n f o r m a t i o n of Governments.

The Governments r e q u e s t t h a t t h e Commission, upon t h e a v a i l - a b i l i t y of adequate funding , p roceed wi th these s t u d i e s as e x p e d i t i o u s l y as p r a c t i c a b l e a n d r e p o r t t o Governments no la ter t h a n March 1, 1 9 7 9 .

An i d e n t i c a l l e t te r i s b e i n g s e n t t o the S e c r e t a r y of t h e United States Sec t ion of t h e Commission by t h e Uni ted States Department of S ta te .

Yours s i n c e r e l y ,

Don J a m i e s o n

The S e c r e t a r y of S ta te fo r E x t e r n a l A f f a i r s

S e c r e t a i r e d ' E t a t a u x A f f a i r e s e x t e r i e u r e s

Ottawa, O n t a r i o K1A OG2

February 21, 1 9 7 7

Dear Mr. Chance,

I have the honor t o i n f o r m you t h a t t h e Governments of Canada and t he Un i t ed S t a t e s have ag reed , pu r suan t t o Ar t ic le I X of t h e Boundary Waters T r e a t y of 1 9 0 9 , and i n l i g h t of t h e second recommenda t ion con ta ined i n t h e I n t e r n a t i o n a l J o i n t C o m m i s s i o n ' s r e p o r t e n t i t l e d " F u r t h e r R e g u l a t i o n of the Great Lakes" , i n response t o the October 7 , 1964 Reference from Governments, t o r e q u e s t t h e Com- m i s s i o n t o examine i n to and r epor t upon t h e e f f e c t s o f e x i s t i n g a n d p r o p o s e d d i v e r s i o n s w i t h i n , i n t o o r o u t o f t h e Great Lakes Basin, and t h e e f f e c t s of consumptive uses on Great Lakes water l eve l s and f l ows .

The Governments are concerned about t h e i n c r e a s i n g demand f o r water t o meet the needs of domest ic and municipal supply and s a n i t a t i o n , n a v i g a t i o n , i n d u s t r y , power g e n e r a t i o n , i r r i g a t i o n a n d o the r such u ses , wh ich w i l l h a v e i n c r e a s i n g l y s i g n i f i c a n t socio- economic and environmental impact on a l l i n t e r e s t s i n t h e Great Lakes Basin.

Dur ing pe r iods of extreme lake l e v e l s , a t t e n t i o n i n b o t h c o u n t r i e s has focused on t h e na ture and effects of t h e v a r i o u s d i v e r s i o n s w i t h i n , i n t o a n d o u t o f t h e Basin. The Governments c o n s i d e r f u r t h e r s t u d y o f t h e s e i m p o r t a n t h y d r o l o g i c a l f e a t u r e s i m p o r t a n t i n t h e c o n t e x t of the Commiss ion ' s on-going e f for t s t o promote a g r e a t e r u n d e r s t a n d i n g of t h e Great Lakes system and t o i n v e s t i g a t e p o s s i b i l i t i e s of e n h a n c e d l e v e l s r e g u l a t i o n c o n s i s t e n t w i t h t h e conc lus ions o f t h e Commission's Report.

I n l i g h t of t h e f o r e g o i n g , a n d w i t h r e f e r e n c e t o t h e follow- i n g s p e c i f i c cr i ter ia : . . .2

M r . D . G. Chance S e c r e t a r y , C a n a d i a n S e c t i o n I n t e r n a t i o n a l J o i n t Commission S u i t e 850, Burns ide Bui ld ing 151 Slater Street OTTAWA, O n t a r i o

2

(a ) Domestic wa te r supp ly and s an i t a t ion ; (b) Naviga t ion ; (c ) Water supply for power g e n e r a t i o n a n d i n d u s t r i a l

purposes ; ( d ) A g r i c u l t u r e ; (e) Shore p r o p e r t y , both public a n d p r i v a t e ; ( f ) F lood con t ro l ; (9) F i s h and w i ld l i f e , and o the r env i ronmen ta l a spec t s ; ( h ) P u b l i c r e c r e a t i o n ; a n d (i) Such o t h e r e f f e c t s a n d i m p l i c a t i o n s w h i c h t h e

Commission may deem a p p r o p r i a t e a n d r e l e v a n t ,

t h e Commission i s reques t ed t o examine i n t o and r epor t upon t h e fo l lowing matters which have, o r may h a v e , m a t e r i a l e f f e c t s o n wa te r l eve l s and f l ows of t h e B a s i n , i n c l u d i n g t h e i n t e r n a t i o n a l and Canadian reaches o f the S t Lawrence River:

1. E x i s t i n g a n d r e a s o n a b l y f o r e s e e a b l e p a t t e r n s o f consumptive uses of Great Lakes waters;

2 . E x i s t i n g d i v e r s i o n s , i n c l u d i n g t h e Welland Canal and t h e New York State Barge Canal , and federa l ly , s t a t e o r p r o v i n c i a l l y s p o n s o r e d or approved proposed new or c h a n g e d d i v e r s i o n s , w i t h i n , i n t o or o u t o f t h e B a s i n ; a n d , i n p a r t i c u l a r ,

3. E x i s t i n g d i v e r s i o n s a t Chicago and a t Long Lac/Ogoki, and the proposed study and demonstration program au thor i zed by Un i t ed S t a t e s P.L. 94-587 a f f e c t i n g t h e ra te of d i v e r s i o n a t Chicago.

The Commission, upon t h e a v a i l a b i l i t y of adequate funding , should proceed w i t h t h e above s tud ie s as e x p e d i t i o u s l y as p r a c t i c a b l e , a n d r e p o r t t o Governments by March 1, 1 9 7 9 , and o n a n i n t e r i m basis i f deemed a p p r o p r i a t e .

I n t h e conduct of i t s i n v e s t i g a t i o n a n d t h e p r e p a r a t i o n of i t s r e p o r t , t h e Commission s h a l l make use of informat ion and t e c h n i c a l data heretofore a v a i l a b l e or which may become a v a i l a b l e i n e i t h e r c o u n t r y d u r i n g t h e c o u r s e of i t s i n v e s t i g a t i o n s . I n a d d i t i o n , t h e Commission s h a l l seek t h e a s s i s t a n c e , as r e q u i r e d , of s p e c i a l l y q u a l i f i e d p e r s o n n e l i n Canada and the United States. The Governments s h a l l make a v a i l a b l e o r , as necessa ry , seek t h e a p p r o p r i a t i o n of t h e funds r equ i r ed t o p r o v i d e t h e Commission promptly w i t h the r e sources needed t o d i s c h a r g e the o b l i g a t i o n s under t h i s Reference f u l l y w i t h i n t h e s p e c i f i e d time p e r i o d . The Commission s h a l l d e v e l o p as e a r l y as p r a c t i c a b l e cost p r o j e c t i o n s f o r t h e s t u d i e s u n d e r r e f e r e n c e f o r t h e i n f o r m a t i o n of Governments.

., . . 3

3

An i d e n t i c a l l e t t e r i s b e i n g s e n t t o t h e S e c r e t a r y of t h e U n i t e d S t a t e s S e c t i o n of t h e Commission by t h e U n i t e d S t a t e s Department of State .

Yours s i n c e r e l y ,

Don Jamieson

BACKGROUND (Cant ' d )

Limi ted Regula t ion of Lake E r i e

SEO P l a n s - Three approaches t o t h e c o o r d i n a t e d r e g u l a t i o n of Lakes Super ior , Erie and On ta r io were i n v e s t i g a t e d by t h e Commiss ion ' s In t e rna t iona l Great Lakes Levels Board. The f i r s t i n v o l v e d r e g u l a t i o n of Lake E r i e w i t h channel enlargements and a c o n t r o l s t r u c t u r e i n t h e upper Niagara River . The second invo lved channe l en l a rgemen t on ly i n t h e upper Niagara River w h i l e t h e t h i r d a p p r o a c h i n v o l v e d i n c r e a s i n g t h e ou t f lows from Lake Erie dur ing pe r iods o f above -ave rage supp ly by d i v e r t i n g a d d i t i o n a l o u t f l o w t h r o u g h t h e Welland Canal, t h e N e w York S ta te Barge Canal o r the Black Rock Canal. The Black Rock Canal d i v e r s i o n was chosen as t h e most p romis ing . In t h i s scheme, a d ive r s ion channe l t h rough Squaw I s l a n d w i t h a g a t e mechanism t o con t ro l f l ow wou ld pe rmi t i nc reased flows t o b y p a s s t h e shallows s e c t i o n i n t h e Upper Niagara River which na tura l ly cont ro ls the ou t f lows from the Lake. The p l a n s p r e p a r e d b y t h e Board t o r e p r e s e n t t h e t h r e e a p p r o a c h e s i n n u m e r i c a l o r d e r are: P l a n SEO-33 i n t he r i v e r , a c o n t r o l s t r u c t u r e combined w i t h dredging: P l an SEO-901, w i th on ly r i ve r channe l en l a rgemen t ; and P l an SEO-42P, u t i l i z i n g a c o n t r o l l e d d i v e r s i o n t h r o u g h Squaw I s l a n d . P l a n SEO-42P i s a t r i a l p l a n r e p r e s e n t a t i v e of a concep t , no t a r e f i n e d p l a n .

I n r e s p o n s e t o a r e q u e s t from I J C , t h e U S Corps of Engineers prepared a r e f i n e d a d a p t a t i o n o f t h e Squaw I s l a n d d i v e r s i o n p l a n , coded as SEO-l7P, and p r e s e n t e d i t a t a p u b l i c h e a r i n g i n C l e v e l a n d i n 1 9 7 4 .

For a d d i t i o n a l b a c k g r o u n d i n f o r m a t i o n o n l i m i t e d r e g u l a t i o n of Lake Erie, see "Fur ther Regula t ion of t h e Great Lakes" ( I J C , 1 9 7 6 ) pages 37-48.

13

BACKGROUND (Cont 'd )

Diversions and ConsuinPtive Uses

Consumptive water u s e s a f E e c t t h e water supply t o t h e Great

Lakes j u s t as d i v e r s i o n s i n t o or o u t o f t h e B a s i n s d o . D i v e r s i o n s

must be s t u d i e d i n r e g a r d t o the i r e f f i c a c y i n l o w e r i n g h igh

l e v e l s a n d r a i s i n g l o w levels without undue harm to power and

n a v i g a t i o n i n t e r e s t s , s h o r e p r o p e r t y i n t e r e s t s , a n d f i s h a n d w i l d -

l i f e .

E x i s t i n g o r New Dive r s ions - Works c o n s t r u c t e d by man have t r ans - f e r r e d a l i m i t e d amount of water i n t o a n d o u t of t h e Great Lakes Basin. The Ogoki and Long Lac D i v e r s i o n s s l i g h t l y i n c r e a s e t h e n a t u r a l s u p p l i e s t o Lake Supe r io r , wh i l e t he Ch icago D ive r s ion s l i g h t l y r e d u c e s t h e water supply t o Lakes Michigan and Huron. They o n l y a f f e c t t h e water l e v e l s of Lakes Michigan, Huron and E r i e b e c a u s e t h e Lake Super ior and Lake O n t a r i o r e g u l a t i o n p l a n s t ake accoun t o f these c o n s t a n t d i v e r s i o n s . The Welland Canal through which some of the ou t f low f rom Lake Eri.e b y p a s s e s t h e N i a g a r a R i v e r , s l i g h t l y lowers t h e l e v e l s o f t h e u n r e g u l a t e d l a k e s . The New York S ta te Barge Canal divers ion, wi thdrawn f rom t h e N i a g a r a R i v e r , h a s v i r t u a l l y no e f f e c t o n t h e l a k e s .

The o p e r a t i o n o f t h e p r e s e n t Long Lac and Ogoki Diversions commenced i n 1939 and 1943, respec t ive ly . They d i v e r t water i n t o t h e Lake Super ior Bas in f rom the Albany River Bas in , which under n a t u r a l c o n d i t i o n s w o u l d f l o w i n t o t h e Hudson Bay. The sum o f t h e s e d i v e r s i o n s h a s a v e r a g e d a b o u t 5400 c f s . T h i s amount r e p r e s - e n t s s e v e n p e r c e n t of t h e average ou t f low from Lake Super ior and t w o and one-ha l f percent of t h e o u t f l o w from Lake E r i e . During t h e e a r l y y e a r s of World War 11, t h e United States agreed t h a t C a n a d a c o u l d u t i l i z e 5000 cfs o f t h e water d i v e r t e d from t h e Albany Basin a t Niagara Fa l l s . The notes exchanged between the t w o Governments i n 1 9 4 0 concern ing t h i s s u b j e c t were confirmed i n Article I11 of t h e Niagara Trea ty of 1950.

The Long Lac D i v e r s i o n c o n s i s t s of a conc re t e ove r f low dam on t h e Kenogami River which d i v e r t s t h e n a t u r a l flow i n t o Long Lac. From there i t flows through a f i v e - m i l e c h a n n e l b u i l t across t h e c o n t i n e n t a l d i v i d e t o convey t h e water from Long Lac to t h e Aguasabon River, a t r i b u t a r y t o Lake S u p e r i o r . There i s a c o n c r e t e r e g u l a t i n g dam a t t h e sou th end o f t h i s channe l . S ince 1 9 4 0 an

14

ave rage of 1400 c f s h a s b e e n d i v e r t e d i n t o Lake Superior . The remainder of t h e water supply t o Long Lac h a s b e e n s p i l l e d down t h e Kenogami River t o Hudson Bay. The d i v e r t e d water i s used t o g e n e r a t e e l e c t r i c i t y a t a power p l a n t n e a r t h e mouth o f t h e Aguasabon River.

The Ogok i D ive r s ion t r ans fe r s water from t h e Ogoki River i n t o Lake Nipigsn which i s w i t h i n t h e Lake Supe r io r Bas in . I t augments t h e n a t u r a l water supply t o Lake Nipigon. Wabsose D a m on t h e Ogoki River ra i ses t h e w a t e r l e v e l so t h a t most of t h e flow i s r e d i r e c t e d across t h e summit, through a c h a i n sf small lakes t o L i t t l e Jackfish R ive r , and t hence i n to Lake Nipigon. A darn a t the summit c o n t r o l s t h e amount of water t h a t i s d iver t .ed . The d i v e r s i o n has v a r i e d from zero t o 1 6 , 0 0 0 cfs w i t h a long- term average of 4 0 0 0 cfs . For v a r i o u s r e a s o n s , t h e d i v e r s i o n has been closed o r reduced over 25 times s i n c e i t began opera t ion i n 1943.

Lake Nipigon has a w a t e r s u r f a c e a r e a o f 1 7 4 0 squa re miles and a p r e s c r i b e d o p e r a t i n g r a n g e of nea r ly s even feet . The average local i n f l o w i n t o Lake N i p i g o n , e x c l u d i n g t h e d i v e r s i o n i s 8900 c f s . The ou t f low i s c o n t r o l l e d by a powerhouse a t P ine Por t age , t he uppe r most of t h r e e h y d r o - e l e c t r i c p l a n t s o n t h e Nipigon River. A minimum ou t f low of 8000 cfs i s r e q u i r e d so t h a t t h e Town o f N ip igon , l oca t ed on a wide reach of the Nip igon River, c a n o b t a i n i t s water supply . Flows i n e x c e s s of 2 0 , 0 0 0 c f s e n d a n g e r t h e rai lway and highway br idges a t Nipigon.

Dur ing the h igh water p e r i o d of 1951-53, Ontario Hydro v o l u n t a r i l y r e d u c e d t h e q u a n t i t y o f water d i v e r t e d from t h e Ogoki River. For seve ra l mon ths i n each o f t hose yea r s d ive r s - i o n s were s topped . O n t a r i o Hydro a g a i n r e d u c e d d i v e r s i o n s d u r i n g t h e h i g h w a t e r s u p p l y p e r i o d of 1972-74 . The ou t f low from Lake Nipigon was l i m i t e d t o i t s n a t u r a l l o c a l i n f l o w . A l l of t h e water d i v e r t e d from t h e Ogoki River w a s s to red i n Lake N ip igon t o b e released t o Lake Superior a t a l a te r date. When i t s l e v e l reached the upper l i m i t i n 1 9 7 4 , t h e d i v e r s i o n from t h e Ogoki was s topped . An average of 13,000 c fs was directed to t h e n o r t h f o r three months.

The Chicago Diversion has t r a n s f e r r e d water from L a k e Mich igan i n to t h e M i s s i s s i p p i R i v e r B a s i n since 1848. Water i s d i v e r t e d a t three l o c a t i o n s : a t Wilmette through t h e Nor th Shore C h a n n e l i n t o t h e no r th b ranch of t h e Chicago River ; a t Chicago through t h e Chicago River which i s closed by a lock t o p r e v e n t f l o w from t h e R i v e r e n t e r i n g Lake Michigan: and a t Calumet Harbour through t h e Calumet River and t h e c h a n n e l i n t o t h e Sani ta ry and Ship Canal . The pr imary purpose of t h e d i v e r s i o n i s t o d i l u t e t h e sewage e f f l u e n t of t h e Chicago S a n i t a r y District

15

a n d d i v e r t i t into t he Miss i s s ipp i R ive r Bas in . The Chicago San i t a ry and Sh ip Cana l i s also u s e d f o r n a v i g a t i o n . The d i v e r t e d water is used by hydro -e l ec t r i c p l an t s a t Lockport and Marseilles, I l l i n o i s .

E f f e c t i v e March 1, 1 9 7 0 , by a d e c r e e of t h e U n i t e d States Supreme Cour t da t ed June 12, 1967 , t h e maximum a l l o w a b l e d i v e r s i o n for Lake Michigan a t Chicago i s 3200 cfs, i n c l u d i n g domest ic pumpage.

The o r ig ina l e igh t - foo t Wel l and Cana l was opened i n 1 8 2 9 . I t w a s t h e f i r s t comple te navigable l ink be tween Lakes Erie and O n t a r i o . S i n c e t h e n t h e c a n a l has undergone severa l en la rgements . The Welland Canal connects Lake E r i e a t Port Colborne , Ontar io abou t 1 8 miles w e s t of t h e head of the N iaga ra R ive r , w i t h Lake O n t a r i o a t Po r t Weller, O n t a r i o . I t p r e s e n t l y d i v e r t s a n a v e r a g e of 7000 c fs fo r naviga t ion and for g e n e r a t i o n of power a t DeCew Fa l l s Power P l a n t a n t h e Niagara Escarpment. By i n c r e a s i n g t h e n a t u r a l d i s c h a r g e f r o m Lake E r i e , t he Welland Canal has lowered t h e water l e v e l of Lake E r i e and s l i g h t l y l o w e r e d t h e l e v e l s of Lakes Michigan and Huron.

The N e w York S ta t e Barge Canal sys tem d iver t s water from t h e Niagara R ive r a t Tonawanda, New York. The average divers ion i s about 700 cfs . I t s pr imary use i s f o r t h e o p e r a t i o n of the E r i e Canal . The water i s u l t i m a t e l y d i s c h a r g e d i n t o L a k e O n t a r i o t h r o u g h s e v e r a l t r i b u t a r y streams as fa r east. as Oswego, New York.

Consumptive Use - Consumptive u s e is t h a t p o r t i o n of t h e water, w-thheld f rom the Great Lakes Bas in , and no t re turned t o i t . Consumptive use includes water used by crops through i r r i g a t i o n , i n c o r p o r a t e d i n t o m a n u f a c t u r e d p r o d u c t s , l o s t by i n d u s t r i a l p r o c e s s e s a n d thermal power g e n e r a t i o n .

The consumptive u s e of water i n any one l ake bas in no t on ly reduces t h e n e t water supp ly t o t h a t lake, b u t a l s o r e d u c e s t h e water supp ly t o a l l the downstream lakes. Consumptive use of water i s a direct r e s u l t of i n c r e a s e d e v a p o r a t i o n a n d t r a n s p i r a - t i o n .

Water i s needed for t h e product ion of thermal power. O f an es t imated wi thdraw1 of 33,700 cfs f o r c o o l i n g p u r p o s e s , approximate ly 180 c fs i s l o s t by evapora t ion . The consumptive u s e f o r i r r i g a t i o n i s about 1 4 5 cfs. Indus t ry wi thdraws about 1 6 , 5 0 0 c fs and consumptively u s e s 660 cfs . Withdraw1 of water for m u n i c i p a l a n d r u r a l u s e i s abou t 7700 cfs. A l l b u t 1285 cfs i s r e t u r n e d t o t h e Great Lakes. The t o t a l present consumpt ive use of w a t e r i n t h e Great Lakes Basin i s e s t i m a t e d t o be 2770 cfs. I t i s expec ted t h a t t h e consumptive use of water w i l l rise to

1 6

6000 c f s i n t h e y e a r 2000 and t o 13 ,000 c f s by t he yea r 2030. Th i s w i l l lower t h e l e v e l s o f a l l t h e Great Lakes.

For add i t iona l background i n fo rma t ion on d ive r s ions and consumpt ive uses , see " F u r t h e r R e g u l a t i o n o f t h e Great Lakes" ( I J C , 1976), pages 22,23 . T h i s p u b l i c a t i o n i s a v a i l a b l e f o r i n s p e c t i o n a t p u b l i c a n d u n i v e r s i t y l i b r a r i e s i n t h e Great Lakes area and a t t h e offices o f t h e I n t e r n a t i o n a l J o i n t Commission.

17

THE DIRECTIVES TO THE NEW BOARDS

Having formed an Internat ional Lake Erie Regula t ion S tudy Board and an In t e rna t iona l Great Lakes Diversions and Consumptive Uses Study Board t o assist i n t h e r e q u e s t e d s t u d i e s , t h e I n t e r n a - t i o n a l J o i n t Commission issued t h e f o l l o w i n g d i r e c t i v e s o u t l i n i n g r e s p o n s i b i l i t i e s a n d p r o c e d u r e s f o r t h e Boards' guidance.

The d i r e c t i v e s are as follows:

18

DOCKET 1 0 3

INTERNATIONAL J O I N T COMMISSION

DIRECTIVE TO THE

INTERNATIONAL LAKE E R I E REGULATION STUDY BOARD

1. The Governments of t h e United States and Canada have forwarded t h e attached Reference , da ted February 2 1 , 1 9 7 7 , t o t h e Commission for examinat ion and repor t pursuant to Article I X of t h e Boundary Waters T r e a t y o f 1909 .

2 . The Commission e s t a b l i s h e d t h e I n t e r n a t i o n a l Lake E r i e Regula- t ion Study Board on May 3 , 1 9 7 7 , t o unde r t ake , t h rough appropr i a t e governmental o r o t h e r a g e n c i e s i n t h e U n i t e d States and Canada, t h e n e c e s s a r y i n v e s t i g a t i o n s a n d s t u d i e s a n d t o a d v i s e t h e Commiss- ion on a l l matters which it must cons ider in making i t s r e p o r t s t o Governments under t h e a t t ached Re fe rence .

3 . The Board s h a l l u n d e r t a k e a s tudy t o d e t e r m i n e p o s s i b i l i t i e s f o r l i m i t e d r e g u l a t i o n o f Lake Erie, t a k i n g i n t o a c c o u n t t h e a p p l i c a b l e O r d e r s of Approval of t h e Commission and t h e recommenda- t i o n s o f t he Canada-Quebec s t u d y o f f l o w r e g u l a t i o n i n t h e M o n t r e a l r e g i o n . C o n s i s t e n t w i t h t h e p r i n c i p l e of s y s t e m i c r e g u l a t i o n o f t h e Great Lakes , t h e s tudy should inc lude an examinat ion of the effects throughout t h e Great Lakes Bas in , i nc lud ing t h e in t e rna t iona l and Canad ian reaches of t h e S t Lawrence River, of such l imi t ed r e g u l a t i o n o n :

domestic water supp ly and s an i t a t ion ; n a v i g a t i o n ; water supply for power gene ra t ion and i ndus t r i a l pu rposes ; a g r i c u l t u r e ; shore p r o p e r t y , both p u b l i c a n d p r i v a t e ; f l o o d c o n t r o l ; f i s h and w i l d l i f e , and other env i ronmen ta l a spec t s ; p u b l i c r e c r e a t i o n : a n d such other matters as t h e Commission may i n d i c a t e t o t h e Board d u r i n g t h e cour se of t h e s tudy .

4 . I f t h e Board f inds t h a t new or a l t e r e d works or o ther measures examined i n t h e cour se of t h i s study would be economically and e n v i r o n m e n t a l l y p r a c t i c a b l e i n l i g h t of t h e c o n s i d e r a t i o n set f o r t h i n paragraph 3 above, it s h a l l estimate t h e costs of such works or measures and ind ica te how t h e v a r i o u s i n t e r e s t s o n e i t h e r s i d e o f t h e boundary would be b e n e f i t e d or a d v e r s e l y affected thereby . The Board s h a l l l i k e w i s e c o n s i d e r t h e n e e d for remedia l o r compensating works, o r non- s t ruc tu ra l app roaches , t o p r o t e c t i n t e r e s t s p o t e n t i a l - l y a d v e r s e l y affected the reby . The Board s h a l l likewise c o n s i d e r

19

t h e need for remedial. o r compensating works, o r n o n - s t r u c t u r a l approaches , t o p r o t e c t i n t e r e s t s p o t e n t i a l l y a d v e r s e l y a f f e c t e d by any proposed regulatory works or measures , and the approximate ly costs thereof. The Board s h a l l a l so c o n s i d e r as a p p r o p r i a t e haw such costs might be appor t ioned be tween the t w o Governments or c o n c e r n e d i n t e r e s t s i n e a c h c o u n t r y .

5 . The s t u d y s h o u l d i n c l u d e c o n s i d e r a t i o n of works o r o t h e r measures which might be r e q u i r e d i n t h e i n t e r n a t i o n a l a n d Canadian reaches of t h e S t Lawrence River t o accommodate f lows r e s u l t i n g from limited r e g u l a t i o n of Lake E r i e .

6 . The Board s h a l l p repare and submit f o r Commission approval by J u l y 22, 1 9 7 7 , a p l a n of s t u d y for t h e i n v e s t i g a t i o n s t h a t i t proposes t o under take , and a schedu le of t h e e s t i m a t e d time and c o s t s i n v o l v e d i n the complet ion of each of t h e necessa ry phases of the s tudy and submiss ion of a f i n a l r e p o r t t o t h e Commission. I n p r e p a r i n g i t s p l a n of s t u d y p t h e Board should be guided by t h e f o l l o w i n g c o n s i d e r a t i o n s :

a ) P rov i s ion shou ld be made for t h e i n v e s t i g a t i o n of a l l envi ronmenta l impacts of l imited r e g u l a t i o n of Lake Erie,

b ) The Board s h a l l ac t as a u n i t a r y b o d y , c a r r y i n g o u t i t s i n v e s t i g a t i o n s j o i n t l y i n both c o u n t r i e s as a co- o r d i n a t e d a n d i n t e g r a t e d e f for t , and

p u b l i c i n f o r m a t i o n a n d p a r t i c i p a t i o n t h r o u g h o u t t h e c o u r s e of t h e s t u d y .

c ) P rov i s ion shou ld be made , where appropr ia te , fo r

7 . The Board s h a l l c a r r y o u t t h e p r o g r a m s i n a c c o r d a n c e w i t h t h e p lan o f s tudy approved by t h e Commission. I f i t a p p e a r s t o t h e Board a t any time i n t h e c o u r s e of i t s i n v e s t i g a t i o n s a n d s t u d i e s t h a t t h e programs should be modif ied, it s h a l l so a d v i s e t h e Commission and r e q u e s t i n s t r u c t i o n s .

8. The Board s h a l l submit i t s f i n a l r e p o r t a n d a p p e n d i c e s , i f any, i n t h e n e c e s s a r y q u a n t i t y for p u b l i c d i s t r i b u t i o n , t o the Commission no l a t e r than September 1, 1978.

9 . I n the conduct of i ts i n v e s t i g a t i o n a n d i n t h e p r e p a r a t i o n o f i t s r e p o r t o r r e p o r t s , the Board should make use of in fo rma t ion a n d t e c h n i c a l da ta heretofore available, o r which may become available d u r i n g t h e c o u r s e of t h e i n v e s t i g a t i o n . The Board's a t t e n t i o n i s s p e c i f i c a l l y drawn t o t h e F ina l Repor t of t h e I n t e r n a - t i o n a l Great Lakes Levels Board, t h e r e p o r t of t h e U S Army Corps of Engineers on P lan SEO 17P and t h e r e p o r t of t h e I n t e r n a t i o n a l J o i n t Commission on Further Regulation of t h e Great Lakes.

20

1 0 . The Board w i l l cons is t o f a United States Sec t ion and a Canad ian Sec t ion , each h a v i n g f o u r ( 4 ) members. The Commission w i l l appoin t one member of each Sec t ion t o be Chairman of t h a t S e c t i o n . A t t h e r e q u e s t of any member, t h e Commission may approve i n each case a n a l t e r n a t e member t o a c t i n t h e p l a c e and s t ead of such member whenever the sa id member, f o r a n y e x c e p t i o n a l r e a s o n , i s n o t a v a i l a b l e to a c t as a member of t h e Board.

11. Members of t h e Board, and of i t s committees and working groups, whether o r n o t employed by departments o r a g e n c i e s of government, are n o t r e p r e s e n t a t i v e s o f t h e i r e m p l o y e r s . They s e r v e i n a pe r sona l and p ro fes s iona l capac i ty unde r t he d i r e c t i o n o f t h e Commission, and their employers o r s u p e r i o r off icers are n o t committed i n any way by t h e a c t i o n s o f t h e i n d i v i d u a l members o r of t h e Board.

1 2 . The Chairmen of t h e two S e c t i o n s s h a l l be j o i n t Chairmen of t h e Board and s h a l l b e r e s p o n s i b l e fo r ma in ta in ing p rope r l i a i s o n b e t w e e n t h e Board and t h e Commission and between t h e i r r e s p e c t i v e s e c t i o n s of t h e Board and t h e cor responding s e c t i o n s of t h e Commission.

1 3 . Each Chairman s h a l l e n s u r e t h a t t h e other members of h i s S e c t i o n of t h e Board are informed of a l l i n s t r u c t i o n s , i n q u i r i e s a n d a u t h o r i z a t i o n s r e c e i v e d f r o m t h e Commission; a l so of a c t i v i t i e s u n d e r t a k e n by o r on behalf of the Board , p rog res s made and any deve lopments a f fec t ing such progress .

1 4 . A Chairman, a f t e r c o n s u l t i n g t h e o t h e r members of h i s Sec t ion o f t he Boa rd , may a p p o i n t a S e c r e t a r y of t h a t S e c t i o n and a P u b l i c I n f o r m a t i o n O f f i c e r of t h a t S e c t i o n . Under t he g e n e r a l s u p e r v i s i o n o f t h e C h a i r m a n , t h e s e i n d i v i d u a l s s h a l l c a r r y o u t s u c h d u t i e s as are a s s i g n e d t o him by t h e Sec t ion .

15 . The Board may e s t a b l i s h s u c h committees and working groups as may be r e q u i r e d t o d i s c h a r g e i t s r e s p o n s i b i l i t i e s e f f e c t i v e l y and may e n l i s t t h e coope ra t ion of federal , p r o v i n c i a l or s ta te depar tments o r a g e n c i e s i n t h e United States and Canada. The dut ies and composi t ion of any such committees s h a l l be s u b j e c t t o p r i o r a p p r o v a l by t h e Commission. The Board should consider and advise t h e Commission whether i t would be d e s i r a b l e t o a p p o i n t a c o o r d i n a t o r t o a s s i s t t h e Board i n i t s i n v e s t i g a t i o n i n view of t h e s e v e r e time cons t r a in t s imposed on the s tudy . Board and Committee members w i l l make their own a r r angemen t s fo r reimbursement of n e c e s s a r y e x p e n d i t u r e s fo r t r a v e l .

1 6 . The Board s h a l l m a i n t a i n l i a i s o n w i t h t h e I n t e r n a t i o n a l Great Lakes Dive r s ions and Consumptive Uses Study Board, t h e I n t e r n a t i o n a l Lake Superior Board of C o n t r o l , t h e I n t e r n a t i o n a l

21

Niagara Board of Control a n d t h e I n t e r n a t i o n a l S t Lawrence River Board of Control so t h a t e a c h may be aware o f a n y a c t i v i t i e s of t h e other Boards which may b e u s e f u l t o it o r may have a b e a r i n g on i ts a c t i v i t i e s .

1 7 . The Chairmen s h a l l keep t h e Commission cu r ren t ly i n fo rmed of t h e B o a r d ' s p l a n s a n d p r o g r e s s a n d of any deve lopments , ac tua l o r an t i c ipa t ed , wh ich are l i k e l y t o impede, delay o r o t h e r w i s e a f f e c t t h e c a r r y i n g o u t o f t h e B o a r d ' s r e s p o n s i b i l i t i e s .

1 8 . The Chairmen s h a l l submit, a t least semi-annual ly and more o f t e n i f n e c e s s a r y , r e p o r t s t o t h e Commission d e s c r i b i n g t h e p r o g r e s s t h a t has been made and any problems tha t have a r i sen i n t h e i n v e s t i g a t i o n . A l l s u c h r e p o r t s s h a l l b e s e n t t o t h e Secretaries o f t h e Commi,ssion. Regular semi-annual reports shou ld be submi t t ed a t least two weeks p r i o r t o the Commission's Apr i l and October meet ings .

1 9 . I f , i n t h e o p i n i o n o f t h e B o a r d , t h e r e i s a lack of c l a r i t y or p r e c i s i o n i n a n y i n s t r u c t i o n , d i r e c t i v e or a u t h o r i z a t i o n received f rom the Commission, the matter s h a l l . b e r e f e r r e d promptly t o t h e Commission f o r a p p r o p r i a t e a c t i o n .

20 . Documents, l e t t e r s , memoranda and communications of every k ind i n t h e o f f i c i a l records of t h e Commission are p r i v i l e g e d a n d become a v a i l a b l e fo r p u b l i c i n f o r m a t i o n o n l y a f t e r release by t h e Commission. The Commission c o n s i d e r s a l l documents i n t h e o f f i c i a l r e c o r d s o f t h e Board or of any of i t s committees t o be s i m i l a r l y p r i v i l e g e d . A c c o r d i n g l y , a l l s u c h d o c u m e n t s s h a l l be so i d e n t i f i e d a n d m a i n t a i n e d i n s e p a r a t e f i l es . They s h a l l become a v a i l a b l e for p u b l i c i n f o r m a t i o n o n l y a f t e r Commission approva l .

2 1 . I n i t s d e a l i n g w i t h t h e p u b l i c a n d t h e news media, the Board s h a l l obse rve t he p r inc ip l e s o f t he a t t ached documen t s on P u b l i c R e l a t i o n s P o l i c y d a t e d 27 July 1973 and 20 September 1 9 7 4 of t h e Commission as supplemented by t h e p r o v i s i o n s o f t h e s t u d y p l a n of the Board when approved by the Commission.

10 May 1 9 7 7

William A. B u l l a r d David G . Chance

J o i n t Secretaries I n t e r n a t i o n a l J o i n t Commission

2 2

Docket 1 0 4

INTERNATIONAL J O I N T COMMISSION DIRECTIVE TO THE

INTERNATIONAL GREAT LAKES DIVERSIONS AND CONSUMPTIVE USES STUDY BOARD

1. The Governments of the Un i t ed States and Canada have forwarded the a t t ached Re fe rence , da t ed Februa ry 21, 1 9 7 7 , t o t h e Commission fo r examina t ion and r epor t pu r suan t t o Article I X of t h e Boundary Waters T r e a t y of 1 9 0 9 .

2. The Commission e s t a b l i s h e d t h e I n t e r n a t i o n a l Great Lakes Divers ions and Uses Study Board on May 3 , 1 9 7 7 , t o unde r t ake , th rough appropr ia te governmenta l o r o t h e r a g e n c i e s i n t h e United S ta t e s and Canada , t he necessa ry i nves t iga t ions and s tud ie s and t o a d v i s e t h e Commission on a l l matters which i t m u s t c o n s i d e r i n making i t s r e p o r t s t o Governments under t h e a t t ached Re fe rence .

3 . The Board s h a l l u n d e r t a k e a n i n v e s t i g a t i o n of t h e f o l l o w i n g matters which have, o r may have, material e f f e c t s o n water l e v e l s and flows i n t h e Great L a k e s B a s i n , i n c l u d i n g t h e i n t e r n a t i o n a l and Canadian reaches o f the S t Lawrence River:

( a ) e x i s t i n g and r e a s o n a b l y f o r e s e e a b l e p a t t e r n s of consumptive uses of Great Lakes waters:

(b) e x i s t i n g d i v e r s i o n s , i n c l u d i n g W e l l a n d C a n a l a n d t h e New York S ta t e Ba rge Cana l , and f ede ra l , s t a t e o r p r o v i n c i a l l y s p o n s o r e d or approved proposed new or c h a n g e d d i v e r s i o n s , w i t h i n , i n t o o r o u t of t h e b a s i n , a n d i n p a r t i c u l a r ;

(c ) e x i s t i n g d i v e r s i o n s a t Chicago and a t Long Lac/ Ogoki , and the proposed s tudy and demonstrat ion program au thor ized by Uni ted S ta tes P.L. 94-587 a f f e c t i n g t h e ra te of d i v e r s i o n a t Chicago.

In conduc t ing t h i s i n v e s t i g a t i o n , t h e Board s h a l l examine t h e e f f e c t s o f t h e a b o v e o n :

( a ) domest ic water s u p p l y a n d s a n i t a t i o n ; (b) n a v i g a t i o n ; (c ) water s u p p l y f o r power g e n e r a t i o n a n d i n d u s t r i a l

(d) a g r i c u l t u r e ; (e ) shore p r o p e r t y , both p u b l i c a n d p r i v a t e ; (f) flood c o n t r o l ; (9) f i s h and w i l d l i f e , and other envi ronmenta l

purposes ;

a s p e c t s ;

2 3

( h ) p u b l i c r e c r e a t i o n ; a n d (i) s u c h o t h e r matters as t h e Commission may i n d i c a t e

t o t h e Board d u r i n g t h e c o u r s e o f t h e s t u d y .

4 . I n i t s s tud ie s t he Boa rd shou ld n o t e t he conce rns of t h e Governments expressed in t h e R e f e r e n c e a b o u t t h e i n c r e a s i n g demand for water t o meet t h e needs of domest ic and municipal s u p p l y a n d s a n i t a t i o n , n a v i g a t i o n , i n d u s t r y , power g e n e r a t i o n , i r r i g a t i o n a n d o t h e r s u c h u s e s , w h i c h w i l l have i nc reas ing ly s igni f icant soc io-economic and envi ronmenta l impact on a l l i n t e r e s t s i n t h e Great Lakes Basin.

5. The Board should i n p a r t i c u l a r assess t h e effects of v a r y i n g t h e rate of e x i s t i n g d i v e r s i o n s d u r i n g p e r i o d s o f e x t r e m e l e v e l s o n t h e Great Lakes.

6 . The Board s h a l l p r e p a r e and s u b m i t f o r Commission approva l by J u l y 2 2 , 1 9 7 7 , a p l a n o f s t u d y for t h e i n v e s t i g a t i o n s t h a t i t proposes t o under take , and a schedu le of t h e e s t i m a t e d time and cos t s i nvo lved i n t h e complet ion of each of t h e necessa ry phases of the s tudy and submiss ion of a f i n a l r e p o r t t o t h e Com- m i s s i o n . I n p r e p a r i n g i t s p lan o f s tudy , t he Boa rd shou ld be guided by t h e f o l l o w i n g c o n s i d e r a t i o n s :

(a ) P rov i s ion shou ld be made f o r t h e i n v e s t i g a t i o n of a l l e n v i r o n m e n t a l i m p a c t s o f t h e matters under i n v e s t i g a t i o n as d e s c r i b e d i n p a r a g r a p h s 3 , 4 and 5 o f t h i s d i r e c t i v e ,

( b ) The Board s h a l l a c t a s a u n i t a r y b o d y , c a r r y i n g o u t i t s i n v e s t i g a t i o n s j o i n t l y i n b o t h c o u n t r i e s as a c o o r d i n a t e d a n d i n t e g r a t e d e f f o r t , and

( c ) P r o v i s i o n s h o u l d b e made, w h e r e a p p r o p r i a t e , f o r p u b l i c i n f o r m a t i o n a n d p a r t i c i p a t i o n t h r o u g h o u t t h e c o u r s e o f t h e s t u d y .

7 . The Board s h a l l c a r r y o u t t h e programs i n a c c o r d a n c e w i t h t h e p l a n of s tudy approved by t h e Commission. I f it appears t o t h e Board a t any t i m e i n t he cour se of i t s i n v e s t i g a t i o n s a n d s t u d i e s t h a t t h e p r o g r a m s s h o u l d b e m o d i f i e d , it s h a l l so a d v i s e t h e Commiss ion and reques t ins t ruc t ions .

8 . The Board s h a l l submit i t s f i n a l r e p o r t , a n d a p p e n d i c e s , i f any, i n t h e n e c e s s a r y q u a n t i t y for p u b l i c d i s t r i b u t i o n , t o t h e Commission no l a t e r than September 1, 1978 .

9 . I n t h e conduct of i t s i n v e s t i g a t i o n a n d i n the p r e p a r a t i o n of i t s r e p o r t or r e p o r t s , t h e Board should make u s e of in fo rma t ion and t echn ica l da t a heretofore avai lable , o r which

2 4

may become a v a i l a b l e d u r i n g t h e c o u r s e of t h e i n v e s t i g a t i o n . The B o a r d ' s a t t e n t i o n i s s p e c i f i c a l l y drawn t o t h e F ina l Repor t o f t h e I n t e r n a t i o n a l G r e a t L a k e s Levels Board, and the Report of t h e I n t e r n a t i o n a l J o i n t Commission o n F u r t h e r R e g u l a t i o n of t h e Great Lakes.

1 0 . The Board w i l l c o n s i s t of a United States Sec t ion and a C a n a d i a n S e c t i o n , e a c h h a v i n g f i v e ( 5 ) members. The Commission w i l l appo in t one member of each Sec t ion t o be Chai rman of tha t Sect ion. A t t h e r e q u e s t o f a n y member, t h e Commission may approve i n each case a n a l t e r n a t e member t o a c t i n t h e p lace and stead of such member whenever the sa id member, f o r any except iona l reason , i s n o t a v a i l a b l e t o a c t as a member of t h e Board.

11. Members of the Board, and of i t s committees and working groups, whether or n o t employed by departments o r agenc ie s of government, are n o t r e p r e s e n t a t i v e s of t h e i r e m p l o y e r s . They s e r v e i n a pe r sona l and p ro fes s iona l capac i ty unde r t he d i rec t ion of t h e Commission, and their employers o r s u p e r i o r o f f i c e r s are not commit ted in any way by t h e a c t i o n s o f t h e i n d i v i d u a l members of t h e Board.

1 2 . The Chairmen of t h e t w o S e c t i o n s s h a l l be j o i n t Chairmen of t h e Board and s h a l l b e r e s p o n s i b l e f o r m a i n t a i n i n g p r o p e r l i a i s o n between the Board and the Commission and between their respect ive s e c t i o n s o f t h e Board and the cor responding sec t ions o f the Commission.

1 3 . Each Chairman s h a l l e n s u r e t h a t t h e other members of h i s S e c t i o n of the Board are informed of a l l i n s t r u c t i o n s , i n q u i r i e s a n d a u t h o r i z a t i o n s r e c e i v e d from t h e Commission; a l so of a c t i v i t i e s u n d e r t a k e n by o r on beha l f o f the Board , p rogress made and any deve lopments a f fec t ing such progress .

1 4 . A C h a i r m a n , a f t e r c o n s u l t i n g t h e o t h e r members of h i s Sect ion of t h e Board, may a p p o i n t a S e c r e t a r y of t h a t S e c t i o n a n d a Public In fo rma t ion Officer of t h a t Sect ion. Under the g e n e r a l s u p e r v i s i o n o f t h e Cha i rman , t hese i nd iv idua l s s h a l l c a r r y o u t s u c h d u t i e s as are a s s i g n e d t o them by t h e S e c t i o n .

15. The Board may es tab l i sh such committees and working groups as may be r e q u i r e d t o d i s c h a r g e i t s r e s p o n s i b i l i t i e s e f f e c t i v e l y a n d may e n l i s t t he c o o p e r a t i o n of federal , p r o v i n c i a l o r s ta te d e p a r t - ments o r a g e n c i e s i n t h e United States and Canada. The d u t i e s a n d composi t ion of any such committees s h a l l be subject t o p r i o r approva l by t h e Commission. The Board shou ld cons ide r and adv i se t h e Commission whether it would be d e s i r a b l e t o a p p o i n t a coordinator t o assist the Board i n i t s i n v e s t i g a t i o n i n v i e w of t h e s e v e r e time cons t ra in ts imposed on t h e s t u d y . Board and Committee members w i l l make t h e i r own arrangements f o r reimbursement of n e c e s s a r y e x p e n d i t u r e s for t r a v e l .

I

25

1 6 . The Board s h a l l m a i n t a i n l i a i s o n w i t h t h e I n t e r n a t i o n a l L a k e E r i e Regula t ion S tudy Board , the In te rna t iona l Lake Super ior Board o f Con t ro l , t h e I n t e r n a t i o n a l Niagara Board of Cont ro l and t h e I n t e r n a t i o n a l S t Lawrence River Board of C o n t r o l , so t h a t each may be aware o f a n y a c t i v i t i e s of the o ther Boards which may be u s e f u l t o i t or may have a b e a r i n g o n i t s a c t i v i t i e s .

1 7 . The Chairmen s h a l l k e e p t h e Commission cu r ren t ly i n fo rmed o f the Board ' s p lans and progress and of any deve lopments , ac tua l or a n t i c i p a t e d , w h i c h are l i k e l y t o impede, delay o r o t h e r w i s e a f f e c t t h e c a r r y i n g o u t of t h e Board's r e s p o n s i b i l i t i e s .

1 8 . The Chairmen s h a l l s u b m i t , a t least semi-annually and more o f t e n i f n e c e s s a r y , reports t o t h e Commission d e s c r i b i n g t h e p r o g r e s s t h a t has been made any any problems that have a r i s e n i n t h e i n v e s t i g a t i o n . A l l s u c h r e p o r t s s h a l l be s e n t t o t h e Secretaries of t h e Commission. Regular semi-annual reports should be submi t t ed a t least two weeks p r i o r t o the Commission 's Apri l and October meet ings.

1 9 . I f , i n t h e o p i n i o n of t h e Board, there i s a lack of c l a r i t y or p r e c i s i o n i n a n y i n s t r u c t i o n , d i r e c t i v e o r a u t h o r i z a t i o n r e c e i v e d from t h e Commission, t h e matter s h a l l be referred promptly t o t h e Commission fo r a p p r o p r i a t e a c t i o n .

2 0 . Documents, l e t te rs , memoranda and communications of every k i n d i n t h e o f f i c i a l r eco rds o f t he Commission are p r i v i l e g e d a n d become avai lable fo r p u b l i c i n f o r m a t i o n o n l y a f te r release by t h e Commission. The Commission c o n s i d e r s a l l documents i n t h e o f f i c i a l records of t h e Board or of any of i t s committees t o be s i m i l a r l y p r i v i l e g e d . A c c o r d i n g l y , a l l such documents sha l l be so i d e n t i f i e d a n d m a i n t a i n e d i n s e p a r a t e f i l es . They s h a l l become ava i lab le fo r p u b l i c i n f o r m a t i o n o n l y a f t e r Commission approval.

2 1 . I n i t s d e a l i n g w i t h t h e p u b l i c a n d t h e news media, the Board s h a l l observe t h e p r i n c i p l e s of the a t t ached documen t s on Pub l i c R e l a t i o n s P o l i c y d a t e d 27 Ju ly 1973 and 20 September 1974 of t h e Commission a s supplemented by the p r o v i s i o n s of t h e s t u d y p l a n of t h e Board when approved by t h e Commission.

I s sued t h i s 1 0 May 1 9 7 7

William A. Bul la rd David G. Chance J o i n t Secretaries

I n t e r n a t i o n a l J o i n t Commission

2 6