Cumulative effects are any changes to the biophysical environment as well as changes on health and socio-economic conditions, physical and cultural heritage, and other matters that are caused by an action in combination with other past, present, and future human actions (CEAA 1994, Hegmann et al. 1998). Cumulative effects management means addressing the impacts of the uses in a particular area through one integrated plan. It means integrating decision making around land use, water use, and air quality — as much as possible.As a way to address rapid landscape change in Alberta, brought on by multiple uses of the land by oil and gas, forestry, agriculture, recreation (e.g. off-road vehicle activity), and urban and peri-urban development, the Alberta government is using a new approach for the province called cumulative effects management. This approach will be a central piece for implementing the Land Use Framework and other proposed legislation.

Alberta Environment stated, "despite existing environmental standards, the cumulative effects of current and future growth could potentially affect the quality of Alberta's environment" (AENV 2007). Acknowledgement of these problems led the Government of Alberta to unveil Towards Environmental Sustainability: Proposed Regulatory Framework for Managing Cumulative Effects in October 2007.

This proposed plan emerged to address growing concerns that the cumulative effects of Alberta's rapid growth and development are threatening current and future air, land and water resources. Some parts of the province are already experiencing the negative impacts of cumulative environmental effects such as water shortages in the South Saskatchewan River Basin and the loss of critical irreplaceable wetland habitat throughout the province. But will the plan be enough to protect Alberta's natural value and ensure high quality of life for future Albertans?

Overview of Cumulative Effects Management Framework

The Cumulative Effects Management document outlines a broad approach to address cumulative effects on the environment including air, land, water, and biodiversity. It includes a proposal for new legislation to enable a reformed environmental management regulatory framework that addresses cumulative effects as part of regular business, rather than as an "add on" at the end of a project design.

The focus on cumulative effects management is intended to assist the province in moving away from managing impacts of development on a project-by-project basis to a system that considers all the potential impacts of both regulated and un-regulated projects within a region and considers impacts across air, land and water in an integrated manner.

Key points discussed in the document include:

A Results-based Approach

A "results-based" approach governed by setting objectives reflective of risks and values of all human activity on the environment and by using these objectives as management directives.

Proposed Legislative Framework

The document acknowledges that the current system is limited in its ability to address cumulative effects. The purpose of the legislation would be to establish an environmental management system that sets environmental quality objectives and management strategies to achieve those objectives.

Development of Environmental Sustainability Objectives (ESOs) and Environmental Sustainability Strategies (ESSs)

The core of the proposed legislative framework is the establishment of Environmental Sustainability Objectives (ESOs) and Environmental Sustainability Strategies (ESSs). The document states that objectives "would establish quantitative, measurable levels of ambient environmental quality for planning areas. The strategies would identify actions to achieve ESOs and provide guidance for implementing actions."

Integration

The framework as a whole is underpinned by the notion of integration. An integrated approach to cumulative effects that transcends environmental "compartments" of government will be required to move towards environmental sustainability.

Solution Lacks Substance

While Alberta Environment's commitment to cumulative effects management is commendable, several fundamental substantive issues must be addressed to meaningfully tackle the problem of cumulative effects. These deeper, longer lasting issues must be addressed before the introduction of new legislation.

New legislation must specifically and meaningfully address governance issues

 

Change the status quo

Statements suggesting that the proposed legislative framework would "not" replace existing regulatory requirements indicate to us the Government of Alberta is not willing to confront the reality that a governance overhaul, including new regulations, is necessary to truly manage cumulative effects in this province.

Substantive procedural change and integration across government departments

"Linking" mandates of individual government departments and "encouraging" collaboration will not bring about the substantive changes necessary to effectively tackle cumulative effects issues.

Regulatory Backdrops Required

A new governance model for cumulative effects management can only happen within a governance structure with a strong regulatory backbone that ensures the accountability of multiple decision makers.

Collaborative decision-making process must be foolproof

Collaborative decision making will be a fundamental and difficult part of establishing ESOs and ESSs. Balanced public involvement will create more meaningful and acceptable objectives and strategies. In the event a collaborative fails to effectively address cumulative impacts, a legislative backstop will be critical in ensuring the process moves forward. A back-up plan, such as government action should the collaborative process fail, is not discussed in the framework.

Sources:

Alberta Environment. 2007. Towards Environmental Sustainability: Proposed Regulatory Framework for Managing Environmental Cumulative Effects. Website to access?

Canadian Environmental Assessment Act (CEAA). 1994.

Hegmann, G., C. Cocklin, R. Creasey, S. Dupuis, A. Kennedy, L. Kingsley, W. Ross, H. Spaling and D. Stalker. 1998. Cumulative Effects Assessment Practitioners Guide. Prepared by AXYS Environmental Consulting Ltd. and the CEA Working Group for the Canadian Environmental Assessment Agency, Hull, Quebec.

Turner, B. C., G. S. Hochbaum, F. D. Caswell, and D. J. Nieman. 1987. Agricultural impacts on wetland habitats on the Canadian Prairies, 1981-85. Transactions of the 52nd North American Wildlife and Natural Resources Conference 52:206-215 and Watmough, M., D. Ingstrup, D. Duncan, and H. Schinke. 2002. Prairie Habitat Joint Venture Habitat Monitoring Program Phase 1: Recent habitat trends in NAWMP targeted landscapes. Canadian Wildlife Service, Environment Canada, Technical Report Series No. 391. Edmonton. 94p.