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A River Runs Through It: the Future of the Columbia River Treaty, Water Rights, Development, and Climate Change , 29 Ga

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A River Runs Through It: the Future of the Columbia River Treaty, Water Rights, Development, and Climate Change , 29 Ga Georgia State University Law Review Volume 29 Article 2 Issue 4 Summer 2013 September 2013 A River Runs Through It: The uturF e of the Columbia River Treaty, Water Rights, Development, and Climate Change Scott cKM enzie Follow this and additional works at: https://readingroom.law.gsu.edu/gsulr Part of the Law Commons Recommended Citation Scott cKeM nzie, A River Runs Through It: The Future of the Columbia River Treaty, Water Rights, Development, and Climate Change , 29 Ga. St. U. L. Rev. (2013). Available at: https://readingroom.law.gsu.edu/gsulr/vol29/iss4/2 This Article is brought to you for free and open access by the Publications at Reading Room. It has been accepted for inclusion in Georgia State University Law Review by an authorized editor of Reading Room. For more information, please contact [email protected]. McKenzie: A River Runs Through It: The Future of the Columbia River Treaty, A RIVER RUNS THROUGH IT: THE FUTURE OF THE COLUMBIA RIVER TREATY, WATER RIGHTS, DEVELOPMENT, AND CLIMATE CHANGE Scott McKenzie TABLE OF CONTENTS INTRODUCTION ................................................................................. 922 I. PHYSICAL AND POLITICAL HISTORY OF THE COLUMBIA RIVER BASIN AND TREATY .................................................................. 923 A. Early History Of The River And Basin ................................ 924 B. The Columbia River Treaty: Creation, Management, And Impacts ............................................................................... 928 II. GOVERNANCE ISSUES: THEORETICAL AND PRACTICAL ............... 932 A. Western Water Law And Development ................................ 933 B. Competing Uses, Conflicted Jurisdictions ........................... 936 1. Anadromous Fish and the Aquatic Environment ........... 936 2. Agricultural Irrigation and Drinking Water .................. 941 C. Climate Change And The Columbia River Basin ................ 943 D. The Evolution Of International Law .................................... 945 1. Equitable Apportionment, No Significant Harm and Timely Notification ....................................................... 946 2. Basin-Wide Management ............................................... 948 III. THE FUTURE OF THE COLUMBIA RIVER TREATY ........................ 950 A. A Transboundary Water Management Organization For The Columbia ..................................................................... 951 B. The TWMO Uses Public And Scientific Input To Guide Its Management .................................................................. 954 CONCLUSION .................................................................................... 957 921 Published by Reading Room, 2013 1 Georgia State University Law Review, Vol. 29, Iss. 4 [2013], Art. 2 922 GEORGIA STATE UNIVERSITY LAW REVIEW [Vol. 29:4 INTRODUCTION The Columbia River Treaty (Treaty) has served successfully as an instrument for flood control and hydropower in the Columbia River Basin (Basin) since 1961.1 Today, different uses such as restoring fish populations, agricultural irrigation, and providing drinking water demand a share of the Basin’s shrinking water supply.2 As early as 2014, negotiations for the next Treaty can begin.3 The United States and Canada will need to update the instrument and transition from a focus on disaster mitigation and electrical production to a flexible basin-wide, transboundary water-management organization that can dynamically balance new goals for the use of the Basin’s water.4 These changes will challenge the administration of the Columbia River (River) to renew its openness to input from stakeholders in the jurisdictions that are tied together in the common course in the Basin. Proposed changes to the Treaty will attempt to harmonize fishermen, farmers, and consumers of drinking water and electricity by bringing federal and state law into consensus with international water law.5 The first section of this paper reviews the political, economic, and environmental development of the Basin and Treaty.6 The second section looks at water governance in the Western United States and under international law.7 The third section concludes that instead of adhering to the rigid policies in the original Treaty, the United States and Canada would be better served by creating a transboundary water-management organization that will manage the Basin as a single unit and rely on input from the public and the scientific community to allocate water.8 These changes will put the Treaty in 1. Matthew McKinney et al., Managing Transboundary Natural Resources: An Assessment of the Need to Revise and Update the Columbia River Treaty, 16 HASTINGS W.-NW. J. ENVTL. L. & POL’Y 307, 321 (2010). 2. Id. at 309, 314. 3. See id. at 320. 4. See generally id. (discussing the need to revise and update the Columbia River Treaty). 5. See generally id. 6. See infra Part I. 7. See infra Part II. 8. See infra Part III. https://readingroom.law.gsu.edu/gsulr/vol29/iss4/2 2 McKenzie: A River Runs Through It: The Future of the Columbia River Treaty, 2013] A RIVER RUNS THROUGH IT 923 line with trends in international water law and make the Treaty flexible enough to adapt to newer uses that have become increasingly important since its inception. I. PHYSICAL AND POLITICAL HISTORY OF THE COLUMBIA RIVER BASIN AND TREATY The River originates at Columbia Lake in British Columbia, Canada, and flows for 480 miles before crossing the international border and entering Washington State. 9 It joins with its largest tributary, the Snake River, and empties into the Pacific Ocean after passing through Oregon.10 The Basin is one of the largest basins in North America.11 The Basin encompasses 259,000 square miles and is 730 miles at its widest point.12 It is about 85% in the United States and 15% in Canada and covers parts of seven American states and one Canadian province.13 The River’s water level varies tremendously along the journey and during different seasons. At the international boundary line, water measurements have ranged from 680,000 cubic feet per second (cfs) to 12,900 cfs.14 This fluctuation has a number of causes, including seasonal snowmelt and the differential topography between 9. CAN. DEP’TS OF EXTERNAL AFFAIRS & N. AFFAIRS & NAT’L RES., THE COLUMBIA RIVER TREATY AND PROTOCOL: A PRESENTATION 15 (1964) [hereinafter CANADA]. 10. Id. The Snake River covers an equally impressive 1,225 miles. Id. 11. David R. Gilbert & Randolph R. Sleight, The Riddle of the River: How David Thompson Explored and Mapped the Middle and Upper Columbia River, in GREAT RIVERS HISTORY: PROCEEDINGS AND INVITED PAPERS FOR THE EWRI CONGRESS AND HISTORY SYMPOSIUM 28 (Jerry R. Rogers ed., 2009). The Columbia is the fourth-largest river in North America. Its length and volume are surpassed only by the Mississippi, Mackenzie, and St. Lawrence rivers. CANADA, supra note 9, at 14. 12. CANADA, supra note 9, at 15. The total size of the Basin is about the size of Texas. Jeffrey T. Payne et al., Mitigating the Effects of Climate Change on the Water Resources of the Columbia River Basin, 62 CLIMATIC CHANGE 233, 234 (2004). 13. Bernt Matheussen et al., Effects of Land Cover Change on Streamflow in the Interior Columbia River Basin (USA and Canada), 14 HYDROLOGICAL PROCESSES 867, 869 (2000). The states and provinces the River covers are Oregon, Montana, Idaho, Nevada, Wyoming, Utah, Washington, and British Columbia. Despite the small size of the Basin in Canada, approximately 30% the total river flow originates there. CANADA, supra note 9, at 15. 14. CANADA, supra note 9, at 15. At Revelstoke, another point along the River, the difference between the highest and lowest recorded streamflows was a shocking ninety-nine times greater. Id. at 16. Published by Reading Room, 2013 3 Georgia State University Law Review, Vol. 29, Iss. 4 [2013], Art. 2 924 GEORGIA STATE UNIVERSITY LAW REVIEW [Vol. 29:4 mountains, plains, and forests. 15 For example, there is far less precipitation in the rain shadow of the Cascade Mountains than along the Pacific Coast. Unfortunately, in its natural state, the River’s mercurial flow causes significant flooding and difficulty maximizing the tremendous hydropower potential.16 A. Early History Of The River And Basin The modern period of development in the Basin is less than 250 years old.17 In this short time, there have been a surprising number of treaties focused on state ownership of the area.18 An early British 15. Matheussen et al., supra note 13, at 870. The rate of precipitation ranges from a torrential 2,500 mm/year in the Washington Cascades to only 200 mm/year in the Columbia River Plateau and Snake River Plain. Id. A large amount of the precipitation comes in the form of snow. Melting in the spring and summer significantly contributes to the Columbia River and its tributaries. Id. Based on hydrological factors, the Basin can be broadly broken into “Eastern” and “Western” sections with The Dalles in Oregon acting as a dividing line. Alan F. Hamlet & Dennis P. Lettenmaier, Effects of Climate Change on Hydrology and Water Resources in the Columbia River Basin, 35 J. AM. WATER RESOURCES ASS’N 1597, 1598 (1999). 16. See CANADA, supra note 9, at 16. 17. See Gilbert & Sleight, supra note 11, at 28. The Columbia River was likely first sighted by Spanish explorers. Id. In 1775, it was described by Spaniard Bruno de Heceta and was found on maps. Id. Early explorers had difficulty going up the river due to its strong currents, which limited their ability to map it extensively. Id. In 1792, the river was named
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