"The Fraser Basin is a place where social well-being is supported by a vibrant economy and sustained by a healthy environment."

Vision of the Fraser Basin Council

Introduction

The Fraser River Basin is the fifth largest river basin in Canada, encompassing an area of 238,000 km 2. It is 1325 kilometers in length, flowing through diverse terrain, starting in the Rocky Mountains, crossing though vast forested areas, plateaus, canyons, rolling uplands, wetland and estuaries, and finally discharging into the Strait of Georgia (see Figure 2). ³⁶ It comprises the Greater Vancouver agglomeration and most of its hinterland.

The Basin is of great environmental, economic and social value. It boasts an extraordinary range of environments and spectacular natural beauty, and is the most economically productive part of British Columbia. It is home to 2.7 million people, and activities in the Basin contribute 80% of the province's gross domestic product and 10% of Canada's gross national product.

The Basin's forests cover nearly three times the area of New Brunswick, and its farms, ranches and orchards comprise half of all British Columbia's agricultural lands. There are eight major producing mines, as well as some of the province's most spectacular natural beauty and recreational opportunities. ³⁷

During the 1980s, it became evident that exposure to industrial and agricultural pollutants, over-fishing and rapid urbanization were compromising the environmental health of the Basin. ³⁸ As a result, challenges related to water management began to surface, including: water supply, pollution control, fisheries management, flood control, hydropower production, navigation and wetlands management. ³⁹

Although the situation seemed bleak at the time, environmental management agencies believed that the watershed could still recover if the proper steps were taken. By 1990, the Government of Canada had identified the Fraser River Basin as a major freshwater system requiring priority action. Federal, provincial and local governments were concerned about the future of the Basin, and in 1992 signed a formal agreement launching the Fraser Basin Management Program, in which the signatory parties committed to work together for five years as the Fraser Basin Management Board to develop a program to ensure the economic, environmental and social sustainability of the entire Fraser Basin. ⁴⁰

The major focus of the Board was the creation of a draft Basin Plan, which was circulated for public input. Using the input they received, the Board then developed the Charter for Sustainability, a strategic plan for achieving sustainability in the Fraser River Basin. Rather than being a legally binding document, the Charter for Sustainability was designed as a guide to those interested in advancing the economic, environmental and social health of the Basin in an integrated and cooperative manner.

The Fraser Basin Management Program was an innovative and challenging experiment in managing for sustainability in a watershed. As its five-year mandate came to an end, the Board realized that its model of collaborative governance could be further enhanced. The Board suffered from a lack of transparent reporting mechanisms and independence from government, and failed to receive the funding necessary to satisfy its budgetary requirements. There was also a need to actually implement the Charter for Sustainability. As a good faith agreement to work toward the social, economic and environmental sustainability of the Fraser Basin, the Charter embodied a watershed-based approach to achieving sustainability, and outlined four strategic directions for activities: understanding sustainability; caring for ecosystems; strengthening communities; and improving decision making. ⁴¹

The Board articulated the need for an organization that was independent of specific governments to oversee implementation of the Charter. It would draw on representatives from the four levels of government, as well as from various geographical and sectoral interest groups. It would be funded by federal, provincial and local governments, and other sources of funding, through not-for-profit status. In response, a new entity known as the Fraser Basin Council was legally established as a not-for-profit, charitable, non-government organization in June 1997. ⁴²

The Fraser Basin Council (FBC)

The Fraser Basin Council embodies an innovative governance model that brings together multiple sectors and interests in a collaborative, sustainability-centered context, in an effort to promote the common good. To ensure that a broad diversity of perspectives is heard with respect to any sustainability issue, the Council's Board of Directors consists of representatives of four orders of Canadian government (federal, provincial, local and First Nations), the private sector and civil society (see Appendix B: Fraser Basin Council Organizational Chart). ⁴³

This consensus-based governance model provides an effective means to overcome the limitations of the traditional hierarchy of multiple jurisdictions operating independently in a common bioregion and 'top-down', narrowly-focused approaches to governing. ⁴⁴ The FBC model represents the first of its kind in Canada and has served as an example for other organizations in the Basin, throughout the province, nationally and internationally. Because the Council's model is highly adaptive and flexible, it can be applied to most any watershed. Occasionally, the Council is invited to present its model in different jurisdictions around the world, where new models for watershed management are being sought. To date, the Council has given presentations in Russia, the Philippines, and Brazil. ⁴⁵

The Council's 36-member Board of Directors collectively represents different economic, social, and environmental perspectives. Past and current Directors include environmental advocates, mayors and regional district directors, senior federal and provincial government officials, First Nations leaders, business executives and individual residents of the Basin – including entrepreneurs, homemakers, farmers, ranchers, doctors, lawyers and scientists. This multi-interest model provides a valuable mechanism for developing a shared understanding of widely differing perspectives and fostering collaboration in ways that support social, economic and environmental priorities. By establishing a forum in which senior members of major federal and provincial government agencies meet on a regular basis, it provides a venue for cross-jurisdictional collaboration on issues that demand such collaboration in order to be resolved. The inclusion of local government, First Nations and non-governmental members likewise creates expanded opportunities for each group.

Since its inception, the Council has directly facilitated the development of solutions to a wide range of sustainability issues both within and outside the Basin. While it will continue to provide this important service, it recently made a strategic decision to assist other organizations in implementing a similar approach to governance and issue resolution. ⁴⁶

The Council does not have a legislated mandate. Rather, its actions are guided by the consensus of its Board of Directors and the multi-interest groups convened by the Council to tackle specific issues. However, participants that do have legislated mandates often choose to help implement a given consensus through appropriate use of applicable regulatory tools.

Primarily, the Council conducts its business through the work of five standing committees: operations; staffing/ financial operations/ audit; constitution and council director recruitment; sustainability fund; and communications. Specific projects are overseen by five regional committees, and also by issue-specific task committees. These committees provide the structure upon which the Council operationalizes the Charter. ⁴⁷

Although the Fraser Basin cannot be defined as an urban region per se, the fact that the Fraser Basin Council is focused on resolving issues between an urban region and its hinterland makes it worthy of assessment in this study. There is value in applying the United Nation's Principles of Good Governance to the FBC as a means of assessing the model though a 'sustainability lens':

Sustainability – In line with the FBC's vision, governments, NGOs, and individuals work together to identify ways in which they can contribute to building vibrant communities, and developing strong and diverse economies, while maintaining the air, water, land and bio-diversity that make up the Basin's ecosystems. It is specifically mandated to promote the region's sustainability.

Subsidiarity – The Council conducts its business primarily though the work of groups that it convenes and committees that oversee specific projects and provide the structure by which the council operationalizes the Charter. It does not itself govern but works in between the various orders of government and First Nations, bringing them to the same table on common issues.

Equity – By ensuring equal representation and utilizing a multi-stakeholder model, the FBC ensures that all sectors and regions have equal opportunity to be involved in the Council's deliberations. It has been successful in engaging representatives of First Nations, minority and disadvantaged groups in active roles within the FBC and its programs, projects and policies. Twenty-four percent of the members are women.

Efficiency – The Council does not deliver programs or services. It provides research, facilitation and educational services in a general manner so as to influence policies or the attitudes and behavior of the public. Governments were made part of the Council's management structure in an effort to allow for greater influence on government policy and programs than is normally generated through traditional non-governmental organizations. The Council is designed to minimize duplication of effort and facilitate harmonization and collaboration among diverse Basin interests.

Transparency and accountability – In its early phase as the Fraser Basin Management Plan, the organization was not as open as it is today. Full Board meetings are now open to the general public, and participation and involvement are actively encouraged. Furthermore, the Council has developed a web site from which many pertinent documents are available to anyone with access to the Internet. The recently published State of the Fraser Basin Report enables residents to monitor the state of the basin in a number of different dimensions. ⁴⁸ Moreover, the indicators themselves were developed through extensive public consultation.

Civic engagement and citizenship – A variety of methods are used to involve the public, such as open houses and public forums, public notices, mailings of plans to stakeholders, and public meetings with interested parties. Advancement of public awareness also occurs through educational brochures distributed mainly through local governments' planning and development departments, regional libraries and in response to public requests.

Security of individuals and their living environments – By attempting to arrest and reverse the deteriorating conditions within the basin and prevent flooding, the Council is working for the security of individuals and their living environments. However, it does not have a mandate for emergency preparedness nor other matters relevant to urban security. This is an area where further collaboration makes sense.

<< previous | next >>