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A NATIONAL PARTNERSHIP
Canada's water resource serves a diverse and complex ecosystem. The
management of this resource has evolved as a cooperative endeavour between the
federal and provincial governments. The national hydrometric
program is a good example of this cooperation. This program provides for the
collection, interpretation, and dissemination of surface water quantity data and
information -- information that is vital to meet both water management and
environmental needs across the country.
Today the need for this information is greater than ever: not only have the
water management and environmental issues increased tremendously over the past
125 years, but they are more complex and may have international implications as
well.
Our hydrometric program is carried out under formal agreements signed between
Environment Canada and each of the provinces and Indian and Northern Affairs representing the territories in 1975, under the
Canada Water Act. The agreements provide for the collection of surface water
quantity and sediment data on a national basis, with costs shared according to
specific interests and needs.
The federal and provincial partners meet annually to review and
adjust the hydrometric program according to need. The cooperative nature of the
program has allowed the partners to work together for the benefit of all. The
program's flexibility has permitted it to adapt to the changing needs of water
management in each part of the country, and will now help it to address the
emerging needs for environmental conservation and protection.
Perhaps most important of all has been the commitment of the partners -- to
maintain national standards, develop hydrologic expertise, implement efficient
modern technology, and provide water resource data and information to all those
who need it.
As a result, these agreements continue to provide an efficient and necessary
service to the various governments, private industry, and the Canadian public,
an excellent example of governments working together for a common goal.
THE HYDROMETRIC NETWORK
Currently, there are 2953 active water level and streamflow stations being operated under the federal-provincial and federal-territorial cost-sharing agreements.
Data for 1432 of the 2953 active stations are transmitted in near real-time (see table for summary of active stations).
An additional 5428 hydrometric stations are no longer active, but their data are stored with the active station data in the national HYDAT database.
Most of the stations are located in the southern half of the country where
the population and economic pressures are greatest. As a result, the
adequacy of the network to describe hydrologic characteristics, both spatially
and temporally, decreases significantly to the north. Hydrometric stations are
located on lakes, rivers, and streams of many sizes, ranging from drainage
basins as small as a few hectares to large watersheds like the Mackenzie Basin
(1 680 000 km 2 ).
At each station, water level data are recorded continuously, either on graph
paper using a mechanical (analogue) recorder, or in digital form using an
electronic recorder, or "data logger". The determination of the rate of flow, or
discharge, of a river requires several measurements of water depth and velocity
across the river to yield the average discharge. Streamflow measurements can be
made from a bridge, by wading the stream, by boat, or from a cableway strung
across the river. Such measurements are done periodically to define a
relationship between water level and discharge, which is used to generate a time
series of streamflow data from the recorded water level data.
The monitoring technology is currently a mix of ageing analogue water level
recorders and modern digital recorders. Approximately 45% of the network has now
been fitted for telemetry in support of real-time data processing and
dissemination. Real-time technology has helped to significantly improve the
efficiency of operation through the continuous monitoring of the sensors at
remote stations. This has enabled the efficient scheduling of repair and
maintenance visits.
The demand for real-time hydrometric data is growing. Daily decisions
involving the operation of dams and reservoirs depend on such real-time data.
These decisions are taken to manage water quality and water supply in the many
towns and cities that depend on surface water sources. Flood forecasting centres
and hydropower companies rely on such data to prepare accurate and up-to-date
forecasts.
Nearly 80 percent of the active hydrometric stations were constructed to
serve a specific water management purpose at a specific site. However, over time
the data from many of these stations will be used to address numerous other
water-related issues. The other 20 percent of the hydrometric stations are
strategically located to document hydrological characteristics and processes
required to understand the regional hydrology.
Some monitoring stations are required for determining the quantity of water
crossing the Canada/USA border or water levels in a shared water body. These are
referred to as international gauging stations ( IGS ).
Some of today's most pressing issues, such as climate change, require a
knowledge of long-term hydrological trends that is gained only through the
analysis of long-term data sets. The Reference Hydrometric Basin Network (RHBN)
is a sub-set of the national network that has been identified for use in the
detection, monitoring, and assessment of climate change. It is part of Canada’s
contribution to the Global Climate Observing System (GCOS).
A national modernization strategy is in place with the goal of providing more
efficient and effective data acquisition, processing and dissemination, and
providing these services in real-time. Under this strategy, automated
state-of-the-art technology is being introduced to all aspects of the field,
office, and data delivery elements of the hydrometric program.
References
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Scott, D., T. R. Yuzyk and C. Whitney, 1999: The Evolution of Canada’s
Hydrometric Network: A Century of Development. In Partnerships in Water Resource
Management, Proceedings of the CWRA 52 nd Annual Conference, Nova
Scotia, June 1999.
Glossary
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hydrometric: pertaining to the measurement of hydraulic parameters of
water bodies, which may be flowing above or below ground, or quasistatic in
lakes, reservoirs and underground formations.
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streamflow: The quantity of water flowing past a point on a river in a
unit of time. Common units are litres/second or cubic metres per second.
"Streamflow" is often used interchangeably with "discharge".
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drainage basin: The area enclosed by a topographic divide such that
surface runoff drains by gravity into a river, lake or other water body.
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watershed: same as drainage basin.
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THE AGREEMENTS AND HOW THEY WORK
Canada's national hydrometric program is driven by cost-sharing agreements
between the federal government and the provinces. It is similar
to the programs of other developed countries in terms of technology and methods
used. But its centralized approach to data collection, processing, and
distribution, and the principle of cost-sharing represent a goal toward which
many other nations are striving.
Surface water quantity measurement began in Alberta and Saskatchewan in 1894.
From that small start grew a nationally coordinated system to collect and
disseminate streamflow, water level, and sediment data. The activities were
funded first by the federal government and later through ad hoc arrangements
with provincial departments, Crown corporations, and to a minor degree, the
private sector. The program has been continuously operated, in general, by the
federal government over the past 90 years, except in Quebec, where the province
took over the responsibility in 1963. About 100 stations are operated by other
provincial agencies.
In 1975, Environment Canada negotiated formal, identical water quantity
survey agreements with the ten provinces and the Department of Indian and
Northern Affairs representing the Yukon and Northwest Territories. These
agreements were written at a time when all levels of government were becoming
concerned about inflation and deficits. At the same time, interest was high in
natural resource management and environmental issues.
The Mandates for Water Management: Who Does What?
What are the rights and responsibilities of the different governments
concerning water?
The federal government has jurisdiction over fisheries, navigation,
federal lands (including aboriginal territories), relations with foreign
governments, and interjurisdictional waters. These responsibilities also
entail substantial water management programs that are national in scope.
The federal government has, over time and with provincial partnership,
taken on water-related activities of national significance, such as data
collection and research, with provincial support. The federal government
also gives financial help to provincial programs, under the regional
development programs.
The provinces have jurisdiction over property, civil rights, and the
management and sale of public lands; this jurisdiction includes the
management of water within a provincial boundary. Matters such as water
supply, flood control, water level, drainage, and pollution control are
administered by provincial government agencies. In 1982, an amendment to
the Constitution Act gave them jurisdiction over electricity-generating
works. Thus the provinces have considerable control over their waters.
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How The Agreements Are Administered
Under the agreements administrators (usually federal and provincial civil
servants) set up a coordinating committee (again, both federal and provincial)
in each province and territory to plan and oversee network operations.
The provincial and territorial coordinators are responsible for identifying
their own government needs, as well as the needs of the private
sector.
How Costs Are Shared
Each gauging station is designated as federal, federal-provincial/territorial
or provincial/territorial, according to national classification guidelines
agreed to by all parties. The federal government pays for the
operational costs initially and then recovers the appropriate share from each
party based on the station designations. For example, those gauging stations
designated as regional water quantity stations are considered shared
responsibilities. Such stations are intended to describe the hydrologic
character of each region of the country, and the costs are shared on a 50/50
basis by the federal and provincial or territorial governments
Operating Party
While the federal government operates nearly 2300 of the over 2700 stations
currently active, the agreements provide that either Canada or a province may
construct and/or operate water quantity survey stations with costs being shared
according to the established rules.
The Province of Quebec became the operator of its network in 1963 and
continued to be under the 1975 agreement. The federal government remains the
operator of the network in all the other provinces and territories.
Network Adjustments
While the existing network provides the essential inputs to sustainable water
management, it requires continuous adjustment to provide the information needed
to meet current needs. Provision for such adjustment is provided for in the
agreements. The cost-sharing partners identify the adjustments through a process
of network planning that considers client needs, resource restrictions, and
federal-provincial/territorial agreements.
National Standards
National standards and guidelines are developed by all the partners in
consultation. All data must be collected in such a way as to conform to national
standards so that data from across the country are comparable, compatible, and
of sufficient accuracy. This is especially important for the purposes of water
apportionment, interjurisdictional issues, litigation, and planning and design
of water facilities.
Access to Hydrometric Data
Under the agreements, the federal government publishes the data that have
been collected according to national standards. Data not collected to meet
national standards are not considered to be under the agreements, but they are
often published as "contributed data." All data are stored in the national HYDAT
database.
What are some of the benefits of the water quantity agreements?
• a cooperative approach to water resource assessment
• reliable, accessible data across the country
• extensive consultations on the need for and use of data from each
station
• costs shared according to need
• exchanges of information and expertise
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WHY WE NEED SURFACE WATER DATA
Accurate information on the condition and trends of a country's water
resource--surface and groundwater; quantity and quality--is required as a basis
for economic and social development, and for maintenance of environmental
quality through a proper perception of the physical processes controlling the
hydrological cycle in time and space.... almost every sector of a nation's
economy has some requirement for water information, for planning, development,
or operational purposes. --WMO/UNESCO Report on Water Resources Assessment, p.
16.
Canada has 9 percent of the world's renewable water, although it has only 7
percent of its landmass. It seems that we have more than our fair share. But
this fact is misleading: about 60 percent of Canada's fresh water drains to the
north, while 85 percent of the population lives within 300 kilometres of our
southern border. In other words, much of our water is not where it is needed
most, in the heavily populated areas. And even in areas where water is
plentiful, it is fast becoming polluted and unusable. In addition, there is
periodic drought in certain regions, such as the Prairies. In fact, Canada is
not as rich in water as it seems: water may very well become the issue in this
century that energy was in the last.
Canada's water supply not only has limits, it also has many competing uses.
The need for drinking, cooking, washing, and other domestic uses is obvious, but
water is also essential to the pulp and paper and agricultural industries; it is
a source of hydroelectric energy; it serves as a medium of transportation, as a
recreational and tourism base, and as an aesthetic asset of which many Canadian
communities are proud. The continued availability of surface water is an
essential ingredient of Canada's future development.
With so many competing uses and a finite amount of water, we need to manage
it in the best possible way, so that there is enough water, and of sufficient
quality, for everyone. To make sound decisions we need reliable data. The box
below summarizes the people involved in water management and indicates their
needs for data.
Principal Uses of Hydrometric Data In Canada
- Aquatic Ecosystem Research
- Climate Change Research
- Environmental Impact Studies
- Fisheries Management
- Flood Forecasting
- Floodplain Management
- Forest Management
- Hydro-Electric Power Generation
- Infrastructure planning and design
- Interjurisdictional Water Apportionment
- International Relations
- Irrigation and Drainage
- Operation of Dams and Reservoirs
- Recreation (e.g. boating)
- Regional resource inventories
- Regional water management
- Sediment Studies
- Transportation/navigation
- Water quality studies
- Water Resource Assessment/inventory
- Water Resources Research
- Water supply studies
- Watershed studies
We can use water without depleting its supply. But water is a fundamental
component of a complex ecosystem - its maximum sustainable yield depends on how
we exploit it within the system. Evidence of overexploitation and environmental
stress is abundant. Pollution from human activities destroys aquatic life and
threatens human health. Misuse of the water resource causes widespread
degradation of soils, disrupts the supply of potable water, and generates
massive economic losses. To be aware of the extent of these problems and to
manage them, we need baseline data.
Being such a large country, Canada covers many different geographical
regions. As a result, the hydrologic characteristics vary significantly across
the land, as shown in Figure 2. Water and environmental issues are directly
related to the hydrologic and socioeconomic conditions of each region. The
management of those issues therefore requires an understanding of the regional
hydrology. Measurements are the only reliable indicator of the status and trends
of the available surface water across the country and as such are essential for
making decisions that concern water.
As pressures on our water increase, the need for reliable hydrologic data and
information becomes more urgent. The data collected by Environment Canada and
its partners make it possible to manage this vital resource and the environment
that it nourishes.
Sustainable Development
The overall objective of the federal water policy is to encourage the use of
freshwater in an efficient and equitable manner consistent with the social,
economic, and environmental needs of present and future generations. --Federal
Water Policy, Environment Canada, 1990.
It is becoming clear that we must not only manage water as carefully as any
other valuable resource, but we must also keep it unimpaired for future
generations. We must not endanger the natural systems that support life on earth
- the atmosphere, the waters, the soils and other living beings.
This is the concept of sustainable development, increasingly viewed as the
essential management philosophy for all our environment and resources. Endorsed
by Canadian environmentalists, business leaders, and government officials, this
concept is now being incorporated in water resource programs and activities
across the country. To manage water in a sustainable way, we need to
• develop a better understanding of the physical, chemical, and biological
components of aquatic systems;
• improve our knowledge about how atmospheric and terrestrial changes
impact on water;
• apply this knowledge appropriately to anticipate and prevent environmental
degradation from occurring.
The challenge for water data collection programs of all types will be to
ensure that the data and information produced contribute to the achievement of
these three objectives as fully as possible.
WHO NEEDS SURFACE WATER DATA AND WHY?
Water Management
-- Federal and provincial government agencies,
control boards and conservation authorities, and private and public
hydropower agencies all use water data to operate discharge structures, to
control reservoir levels, to divert water into irrigation canals, and to
control town water supply withdrawals and sewage discharge. These
activities have serious and far-reaching financial and social
implications, and should be based on the best possible data and
information. Flow forecasting is a major use of water level and streamflow
data, enabling maximum hydroelectric power generation and flood warning
and protection.
Planning
-- Scientific, engineering, and planning professionals use
streamflow and sediment data to analyze problems, project future
conditions, determine impacts, assess alternatives, and set policy for
planning of a variety of large-scale water and other resource
projects.
Environmental Assessment
-- Environmental consultants and interest
groups often need surface-water and sediment data and information; while
some require only a general indication of water availability in an area,
others need precise records to assess critical concentrations of
pollutants and toxic chemicals.
Research
-- Professionals and scientists engaged in water-related
research use water data as the basis of understanding fundamental
hydrologic relationships and water balance. This research is vital to
Canada's long-term interests and cannot be carried out using
approximations: high quality, accurate information is essential. Research
into evaporation processes, for example, is important in water-short
Prairie regions, and research into ice problems is necessary for flood
hazard reduction programs throughout the country. And the potential
impacts of climate change on water supplies need to be understood so that
appropriate changes can be made in water management.
Government
-- Many of the federal government's responsibilities
depend on accurate surface water and sediment data for proper execution.
For example, activities associated with fisheries, forestry, navigation,
international relations, agriculture, federal lands, sovereignty, and
apportionment all rely on water data and information. In fact, the Federal
Water Policy lists 25 issues of national concern, and surface water data
play a basic role in addressing all but one of these. Provincial
governments, as the actual owners and stewards of the resource, operate
programs such as irrigation, pollution control, and licensing that are
even more dependent on surface water data.
International
-- The exchange of water-related and technology data
between countries helps their water agencies to accurately determine the
effects of meteorological and land-base disturbances; to make
technological improvements to their individual data-gathering methods and
systems; to facilitate discussion of events and advances by having
comparable measurements; and to allocate water, when necessary, between
the countries.
Public Uses
-- Many private citizens and citizens' groups want
access to water-related information for a wide range of situations, from
planning recreational activities to preventing property damage caused by
erosion or flooding. General information on the state of a region's
surface water conditions, as well as site-specific data, are extremely
important to this client group.
Design and Construction
-- Professional engineers must have
accurate water data for a variety of hydraulic design projects such as
dams, reservoirs, pipelines, and canals. Safety during project
construction, and economic performance during their lifespan, are
important criteria for these clients, clients, who depend on site-specific
data, supplemented by regional information, to meet their
needs.
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