Canadian First Nation Towns DRR Preparedness

Transcription

1 Abstract The State of DRR at the Local Level Canadian First Nation Towns DRR Preparedness Jay Sagin 1, Barbara Schindelka 2 1 University of Saskatchewan, SENS, Global Institute for Water Security, jay.sagin@usask.ca 2 University of Saskatchewan, Gwenna Moss Centre for Teaching Effectiveness, Canadian First Nations communities are very vulnerable to different emergency events. These communities are often located along water bodies and are subject to water fluctuations including floods and droughts. The flooding of these water bodies often impacts the community s landfill, creating environmental hazards for people, flora and fauna. Two settlements, the Cumberland House Cree Nation Indian Reserve (henceforth CHCNIR) and the Village of Cumberland House (henceforth VCH), are located in the Cumberland Marshes within the Saskatchewan River Delta (henceforth SRD). The CHCNIR and the VCH are both located downstream on the Saskatchewan River and west of the Saskatchewan River Basin (henceforth SRB). The delta, 10,000 square kilometers in size, is the largest inland river delta in North America and one of the most biologically diverse habitats in Canada, with an abundance of fish, waterfowl and game. The SRD is a Canadian Important Bird Area (hereforth IBA) and is of global significance, as half a million waterfowl breed in the area each year. The SRD floods frequently in the spring and also experiences summer droughts. The CHCNIR and the VCH have both expressed concerns regarding their shared landfill, which is located in an area that was originally intended for agriculture use. In the 1950s the Prairie Farm Rehabilitation Administration (henceforth PFRA) drained approximately five percent of the delta for agricultural use, which included Goose Lake and connected Cumberland marshes. The drained area was not used as intended and all attempts at agriculture were not successful. The drained Goose Lake is currently used as the landfill for the CHCNIR and the VCH. All refuse, from paper and plastic to toxic batteries and construction waste is disposed of in this area. The landfill is not isolated and does not have surface and ground water monitoring stations. It is located upstream from the CHCNIR and the VCH, and all these areas are prone to flooding. The local people are concerned that the landfill is a hazard to surface and groundwater. In this review we will present the current stage of the landfill hazard investigation, the community members concerns, and the historical hydrological changes in the SRD. Scenarios to reduce the risk posed by the landfill will also be discussed. This is part of a targeted, long term effort to mitigate and provide relief from the potential hazards posed by the current state of the landfill. The review may also be useful for other First Nations reserves and municipalities that have similar hazards associated with their landfills. The goal of our project is to adapt the United Nations My community is getting ready campaign s ten-point essentials for making communitries sustainable as a reasonable solution. To proper Disaster Risk Reduction (henceforth DRR) programs for Canadian First Nations communities, including the DRR Landfill hazards elimination (henceforth DRR-L) need to be prepared. Keywords: Landfill, drained Goose Lake, surface and groundwater pollution, Cumberland House Cree Nation Indian Reserve, Village of Cumberland House, Saskatchewan River Delta 1

2 The State of DRR at the Local Level Contents: 1. Introduction 2. The landfill hazard on the drained Goose Lake and marshes 3. Capacity building for the landfill hazard mitigation 4. Conclusion Acknowledgments References 1. Introduction Solid waste disposal in Canadian First Nations communities has been identified as a major threat to environmental and human health (Zagozewski et al., 2011). To date, the impact of current and historical waste disposal sites in First Nations communities has not been properly addressed. Several Saskatchewan First Nations communities have expressed concern regarding the unregulated management practices for solid waste disposal in their communities, and although the Minister of Aboriginal Affairs and Northern Development Canada [formerly Indian and Northern Affairs Canada (henceforth INAC)] assumes the responsibility for the operation of First Nation community waste dumps and landfills and has a fiduciary responsibility for their waste disposal, most waste sites in operation remain unregulated (Bharadwaj et al., 2008). An abundance of research is available on the potential human and environmental health effects from substandard waste management practices (Rushten, 2003). Canadian First Nations communities have long-standing concerns about the potential environmental and human health effects of ineffective and absent waste management practices. The majority of western nations have environmental policies, regulations, statutes, mechanisms and agencies to evaluate potential waste management impacts, to monitor the continued effects of current waste management practices, and to adjudicate environmental damage concerns (Meske, 1993; Hamer, 2003). Although several agencies and policies have been developed to protect people from environmental hazards in Canada, no equivalent mechanisms exist at present within the terms of self-government agreements to enable First Nations people to control environmental impacts on their lands (Bharadwaj et al., 2008). Current provincial and national legislations state that a geological site selection process must determine the location of landfills for off-reserve communities; however, some landfill sites in First Nations communities do not consider this process. Consequently, First Nations landfill sites (or community dump sites, as they are referred to), are frequently established in inappropriate sites. Furthermore, they are often built without modern leachate collection systems and engineered liners (Bharadwaj et al., 2005). Many First Nations dump sites are located near surface water features with permeable silty and sandy soils in geologically unacceptable areas (Bharadwaj et al., 2005; Bharadwaj et al., 2008). Also, community dump sites that have been abandoned have not been appropriately sealed for the prevention of vertical penetration of water into wastes, nor are they monitored for toxic gas emissions (Dillon, 1983; Bharadwaj et al., 2005; Bharadwaj et al., 2008). To date, there are nor records kept of locations and numbers of active and inactive Saskatchewan First Nation community dumping sites or current and historical waste disposal practices (Dillon, 1983; 2

3 The State of DRR at the Local Level Bharadwaj et al., 2005; Bharadwaj et al., 2008). As previously mentioned, the implications of improper waste disposal practices on environmental and human health in First Nations communities have not been adequately investigated. The potential contamination of surface and groundwater from current and historical dump sites on reserves was named as a top priority by the Health Canada Regional Environmental Health Officer for Saskatchewan, and the Saskatoon Tribal Council (henceforth STC) Health and Family Services in 2010 (Zagozewski et al., 2011). This is a critical issue because First Nations, like most other communities in Saskatchewan and Canada, rely on local surface and groundwater supplies for their drinking water. Previous groundwater analyses of backyard waste disposal pits as well as active and inactive community dumps in select First Nations communities in Saskatchewan indicate that the health-based Canadian Drinking Water Quality (henceforth GCDWQ) guidelines were exceeded in analyzed water samples (Bharadwaj et al., 2005). Specifically, the parameters that exceeded the GCDWQ guidelines included arsenic, barium, chloride, iron, lead, manganese, sulphate, coliform bacteria, and dissolved solids (Bharadwaj et al., 2005). These analyses demonstrate the risks posed to groundwater quality in waste disposal areas. Soil and ash samples that were collected from an active community dump site were chemically analyzed and indicated the presence of furans and dioxins at concentrations far exceeding the Canadian Council of Ministers of the Environment (henceforth CCME) soil quality guidelines (CCME, 2005). The community from which soil samples were collected is at risk from exposure to dioxin and furan levels that exceed the safety guidelines. The concerns of this particular community are not isolated. In our research, numerous First Nations peoples have expressed increasing alarm regarding the implications of environmental contaminants on the health of the environment and community members. The CHCNIR and the VCH share a dump site, which is located on the SRD (Fig.1). Many people are concerned about this dump site. 2. The landfill hazard on the drained Goose Lake and marshes on SRD Preliminary investigation of the dump site located on the drained Goose Lake and the SRD marshes indicates that the dumpt site can be considered an active open-air waste disposal dump (Fig.1 and 2). Everything from paper and plastic to toxic batteries and construction waste is dumped in this area, as shown in the photos (Fig. 2). Discussions with community members and a visit to the waste disposal site revealed that the area was once covered by Goose Lake (Fig.1 and 3). The waste site is located in an area close to surface water features, and was built without engineered liners and leachate collection systems. The landfill does not have an isolation system and surface and ground water monitoring stations. Therefore, the active waste disposal site is technically a dump site rather than a proper landfill. The shared dump site is located in an area that was originally intended for agricultural use. In the 1950s, the Prairie Farm Rehabilitation Administration (henceforth PFRA) drained approximately five percent of the SRD for agriculture. The drained area included Goose Lake and connected Cumberland Marshes (Fig.3). Figure 3 shows a SRD map created in Goose Lake and the Cumberland Marshes are located on the right side of the map. The drained area was not used as intended. All attempts to develop agriculture were not successful. The drained area soon become the communities dump site. It is located upstream from the CHCNIR and the VCH, and is prone to flooding. 3

4 The State of DRR at the Local Level Many people are concerned that it is a hazard for the surface and groundwater, people, floura and fauna in the SRD. The SRD area has a relatively flat topography with higher ground to the north of the SRD and Cumberland Lake (Fig.4 and 5). Over a distance of approximately 120 km, the elevations decrease gradually, progressing west 275 meters to east 260 meters through the SRD (Fig.1, 3 and 5). The average floodplain gradient of the area is ((PFRA, 1954a, 1954b, 1956; Morozova and Smith, 2000). The Saskatchewan Water Security Agency (WSA) regularly checks the SRD area because of flooding concerns (Fig.1 and 4). The PFRA (1977) noted that the SRD area is underlain with limestone (Interlake Formation of Ordovician and Silurian age) at a shallow depth (Fig.6). The limestone rests upon Precambrian rocks of the Canadian Shield. Glacial till covers the limestone and lacustrine clay and silt rest upon the glacial till left behind from Lake Agassiz, a post-glacial lake, which once covered the Cumberland House area. Deltaic deposits containing sand, silt and/or clay remained as the lake drained (WSA, 2002). The dump site is at an elevation of meters (Fig.5) and the CHCNIR is at an elevation of meters. As the CHCNIR is lower in elevation, pollution and contaminants are carried by flood waters towards the settlement. Consequently, the CHCNIR community is concerned that their ground water supply may be impacted due to the higher elevation and nature of the dump. 3. Capacity building for the landfill hazard mitigation The DRR-L project is adopting a Community- Based Participitore Researcvh (henceforth CBPR) approach. This approach is community-situated, collaborative, and action - oriented (Israel et al., 2003). Community members and researchers share control of the research agenda through active and reciprocal involvement in the research design, implementation, and dissemination. The research is based on the principles outlined in Ownership, Control, Access and Possession (OCAP). The process and results are useful to community members in order to make positive change to promote equity and to contribute to the strengthening of sustainable community development. This work in the CHCNIR and the VCH focuses on the DRR, hazards and impact of water on human and environmental health. In-person survey questionnaires, as well as interviews with community leaders, the water treatment officer, the health officer, and First Nations Elders examine how the quality of the surface, groundwater, and drinking water may be affecting the physical and cultural health of the community members and surrounding environment. Preliminary analysis indicates that there may be a direct relationship between the dump site and the poor quality of the groundwater used as one of the community s drinking water sources. Specifically, members have expressed concern that leachate from the shared dump site is penetrating one of the water treatment plant s groundwater source. Community leaders posit that contamination from the dump site is carried into residential areas during the nearly-annual floods. The research involves the chemical analyses of waste disposal leachate, ash, soil, subsurface gas, and groundwater as well as a comprehensive hydrological assessment. These studies will help to understand better the impacts of the historical and current waste disposal practices on environmental and human health in First Nations communities. During initial discussions, it was agreed that community Elders would be interviewed in focus groups on topics of waste disposal and health. Through these interviews, the First Nation Elders provided information on past and present waste disposal site hazards in their communities. The First Nation Elders also spoke of health issues 4

5 The State of DRR at the Local Level related to waste incineration at the active waste site due to its proximate location to community housing. The Elders indicated water quality was a major concern for the people on the CHCNIR and there was a need for waste to be cleaned up and moved off the community. The purpose of this DRR-L project is to provide both the CHCNIR and the VCH with the information required to obtain funding for remediation, monitoring and management of their DRR, waste hazards and future regulatory initiatives. The project involves collaborative efforts among the CHCNIR, the VCH, the School of Public Health from the University of Saskatchewan, Global Institute for Water Security and Northland College. Community involvement, knowledge transfer, and education are central goals of the project. Various strategies for DRR, waste hazards management are under review with community members and leaders. Recommendations include adaptation of UN DRR programs, waste reduction methods and education through workshops with community youth and adults, dump tracking education initiatives with community youth in a classroom setting by using global positioning system (GPS) and geoinformation system (GIS), the cessation of waste incineration, remediation and continuous monitoring of the active waste site, control and separation of hazardous waste materials, and the attainment of stable, long-term funding. 4. Conclusion The DRR, waste hazards elimination efforts are in the development for the First Nation communities. The detrimental effects of human and environmental exposure to low levels of toxic chemicals through the contamination of drinking water via groundwater sources and surface waters are proven. However, implementations of DRR, waste hazards programs, are critical issue for First Nations communities with limited resources. Comprehensive and appropriate DRR, waste hazard solutions include numerous activities, such as reduction, modification, segregation, recycling, treatment, and disposal - all of which have different levels of cost and complexity. It is recommended that First Nations communities, in partnership with federal and/or provincial departments, consider these various strategies for DRR, waste hazards management. The engineering and operation of First Nations landfill sites should be on par with regulatory standards to mitigate the risk to human and environmental health. The hazards posed by unregulated landfills/dump sites in First Nations communities should be considered an issue of DRR because they are as detrimental to the health of communities as floods, droughts, earthquakes, and other disasters. The hazards faced by the CHCNIR and the VCH are not unusual and can be found in other First Nations communities in Canada. It is imperative that communities have access to knowledge and the methodology to improve the DRR programs. Interviewees in the DRR-L project agreed that it would be reasonable to prepare for emergencies in advance and to involve more communities members in DRR activities. Many were eager to adapt, learn and implement the United Nations My community is getting ready in their respective communities. The UN experience in the implementation of similar programs with the same issues in other places will be helpful. Ultimately, this project can serve as a pilot for the adaptation and implementation of the United Nations My community is getting ready program in other First Nations communities. 5

6 The State of DRR at the Local Level Acknowledgements This work is supported by the CHCNIR, the VCH, the Schools of Public Health and Environment & Sustainability at the University of Saskatchewan, and the Global Institute for Water Security. References Bharadwaj, L.,Judd-Henrey, I.,Nilson, S.,Parenteau, L.,Tournier, C., & Watson, D. (2008). Solid Waste Incineration in a Saskatchewan First Nation Community: A Community-Based Environmental Assessment of Dioxins and Furans A Journal of Aboriginal and Indigenous Community Health Pimatisiwin 6(1). Bharadwaj, L.,Judd-Henrey, J.,Wismer, M. l.,nilson, S.,Tournier, C.,Parenteau, L.,... Bear, A. (2005). Investigation of effects of landfill practices on environmental health in slected First Nations communities. In S. R. Council (Ed.), SRC Publication # C05 (Saskatchewan Research Council ed., pp. 197). Saskatoon, Saskatchewan, Canada: University of Saskatchewan. CCME. (2005). Dioxins and furans Overview/rationale Retrieved August 10, 2014, from Dillon, C. (1983). Identification and Verification of Active and Inactive Land Disposal Sites in Saskatchewan. In D. c. e. a. planners (Ed.), (Vol. A H, pp ). Waterloo: Ontario. Hamer, G. (2003). Solid waste treatment and disposal: Effect on public health and environmental safety. Biotechnology Advances 22, Israel, B.,Schulz, A.,Parker, E.,Becker, A.,Allen, A., & Guzman, R. (2003). Critical issues in developing and following community-based participatory research principles. In M. M. a. N. Wallerstein (Ed.), Community-based Participatory Research for Health. San Francisco: Jossey-Bass Publishers. Meske, P. (1993). The solid waste dilemma: municipal liability and household haz- ardous waste management. Environmental Law 23, Morozova, G. S., & Smith, N. D. (2000). Holocene avulsion styles and sedimentation patterns of the Saskatchewan River, Cumberland Marshes, Canada. Sedimentary Geology, 130(1 2), doi: PFRA. (1954a). Saskatchewan River Reclamation Project. In P. F. R. A. Dept. of Agriculture (Ed.), (Vol. Interim Report No. 8, pp. 36). Winnipeg, Manitoba, Canada: Dept. of Agriculture, Prairie Farm Rehabilitation Administration. PFRA. (1954b). Saskatchewan River Reclamation Project. In P. F. R. A. Dept. of Agriculture (Ed.), (Vol. Interim Report No. 6, pp. 17 Appendix 12 pp). Winnipeg, Manitoba, Canada: Dept. of Agriculture, Prairie Farm Rehabilitation Administration. PFRA. (1956). Saskatchewan River Reclamation Project. In P. F. R. A. Dept. of Agriculture (Ed.), (pp. 48). Winnipeg, Manitoba, Canada: Dept. of Agriculture, Prairie Farm Rehabilitation Administration. PFRA. (1977). Cumberland Lake Water Level Control Study. In P. F. R. A. Dept. of Agriculture (Ed.). Saskatoon, Department of Northern Saskatchewan: Dept. of Agriculture, Prairie Farm Rehabilitation Administration. Rushten, L. (2003). Health hazards and waste management. British Medical Bulletin, 68(183-97). doi: DOI: /bmb/ldg034 WSA. (2002). Compilation of Information Related to Stabilizing Water Levels in Cumberland Lake and Area. In S. W. Corporation (Ed.), Saskatchewan River Delta (pp. 49). Saskatoon: Water Security Agency. Zagozewski, R.,Judd-Henrey, I.,Nilson, S., & Bharadwaj, L. (2011). Perspectives on Past and Present Waste Disposal Practices: A Community-Based Participatory Research Project in Three 6

7 The State of DRR at the Local Level Saskatchewan First Nations Communities. Environmental Health Insights, 5, doi: /EHI.S6974 Figure Captions: Fig.1. The Cumberland Marshes, Saskatchewan River Delta (SRD), Cumberland House Cree Nation Indian Reserve (CHCNIR) and the Village of Cumberland House (VCH), Landfill and drained Goose Lake marshes location. Fig.2. The Cumberland House Landfill Damp Photos, credit Rebeca Zagozewski, July 16, 2014 Fig.3. The Cumberland Marshes, Saskatchewan River Delta (SRD), 1946 year, Cumberland House Cree Nation Indian Reserve (CHCNIR) and the Village of Cumberland House (VCH), Landfill and drained Goose Lake marshes location. Map from Saskatchewan Water Security Agency. Fig.4. Elevation data collected by Saskatchewan Water Agency over the SRD Fig.5. Elevation contours compiled by Saskatchewan Water Agency over the SRD, Cumberland house area Fig.6. Geologic sequence of the Cumberland Area by Saskatchewan Water Security Agency 7

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