Crossing boundaries between science and policy: Two case studies illustrate the importance of boundary organizations in the Great Lakes Basin

Boundary organizations are institutions that interface between science and policy by facilitating interactions between scientists, policy specialists, and other stakeholders to inform collaborative decision-making. Natural resource management in the Great Lakes Basin is complex and a shared exercise among two federal governments, eight states, two provinces, and over 200 sovereign Tribes, First Nations, and Métis. Many governmental agencies have recognized a need to effectively engage with other jurisdictions in order to bridge the gaps between scientific knowledge and policy decisions. As a result, boundary organizations have emerged to facilitate planning and implementation of collaborative governance frameworks. This commentary highlights how decades of shared governance of the world’s largest freshwater surface water system is augmented and assisted by boundary organizations in addressing two key Great Lakes management issues – Western Lake Erie Basin nutrient levels and Lake Michigan fisheries – which are complex, broad in scale, and pose challenges that must be addressed collaboratively across jurisdictions. While there are many governmental and non-governmental entities that engage in boundary organization-like behaviors, this commentary will be centered on three key institutions: The Great Lakes Executive Committee’s Annex 4 (Nutrients) Subcommittee, the Great Lakes Commission, and the Great Lakes Fishery Commission. We illustrate how each organization procedurally engages stakeholders, especially within state and provincial jurisdictions, to produce information and products that add breadth and capacity to manage the ecosystems of the Great Lakes. We also highlight areas of success and opportunities for improvement in collaborative governance frameworks now and into the future.     

Large lakes in climate models: A Great Lakes case study on the usability of CMIP5

Large lakes have an impact on regional weather. In addition, they can be both sensitive to and influence regional climate changes. In the climate models that are used to investigate future climate changes, lakes are greatly simplified and sometimes absent. At the regional scale, this can have strong implications for the quality of the model information about the future. Through our work with climate information users in the Laurentian Great Lakes region, we have found that basic credibility of the information requires the underlying climate models simulate lake-atmosphere-land interactions. We are not aware of efforts within the scientific community to make known how individual large lakes are represented in models and how those representations translate to the quality of the data for particular regions. We share our framework for identifying how the Laurentian Great Lakes are represented in the Coupled Model Intercomparison Project (CMIP) version 5 climate models. We found that most CMIP5 models do not simulate the Great Lakes in a way that captures their impact on the regional climate, which is a credibility issue for their projections. We provide a perspective on the usability of CMIP5 for practitioners in the Great Lakes region and offer recommendations for alternative options.     

Exploring market-based environmental policy for groundwater management and ecosystem protection for the Great Lakes region: Lessons learned

The Great Lakes–St. Lawrence River Basin Water Resources Compact (the Compact) was created to protect future water supplies and aquatic ecosystems in the Great Lakes. The Compact requires the eight Great Lakes state to regulate, among other things, large withdrawals of groundwater and surface water so that they do not negatively affect stream flows and ecosystems within the Great Lakes Basin. Thus, the Compact raises the possibility of increased restrictions on groundwater withdrawals in many locations throughout the Great Lakes region. However, restricting withdrawals is likely to encounter opposition from water users when such restrictions are viewed as an infringement on existing water use rights and/or as negatively impacting local economic development. Such conflicts could hinder effective implementation of state and regional water policy. This paper explores the application of a market-based environmental management tool called “Conservation Credit Offsets Trading (CCOT)” that could facilitate allocation of groundwater withdrawals, and develops a framework for guiding the implementation of CCOT within the context of a groundwater permitting system. Using a watershed in southwestern Michigan, this study demonstrates how bio-physical information and input from various local stakeholders were combined to aid groundwater policy designed to achieve the objective of no net (adverse) impact on stream ecosystems. By allowing flexibility through trading of conservation credit offsets, this groundwater policy tool appears to be more politically acceptable than traditional, less flexible, regulations. The results and discussion provide useful lessons learned with relevance to other areas in the Great Lakes Basin.     

A review of U.S. Army Corps of Engineers airborne coastal mapping in the Great Lakes

The U.S. Army Corps of Engineers (USACE) Joint Airborne Lidar Bathymetry Technical Center of Expertise (JALBTCX) collected its first airborne coastal mapping data on the Great Lakes in 1995. Since then, the JALBTCX has collected nearly 5 billion elevation and depth measurements and created over 2000 geographic information system (GIS) products for the shorelines of the Great Lakes. With improvements in airborne coastal mapping technology and the introduction of regional management for the USACE, surveys expanded into the regional scale, multi-sensor National Coastal Mapping Program (NCMP). The NCMP was initiated in 2004 to produce recurrent, regional, high-resolution light detection and ranging (lidar) elevation data and hyperspectral and aerial imagery to support regional sediment management, regulatory functions, flood damage reduction, asset management, emergency operations, and environmental stewardship. The JALBTCX is a collaboration among the USACE, the U.S. Naval Oceanographic Office (NAVOCEANO), and the National Oceanic and Atmospheric Administration (NOAA). The partners have worked together on airborne coastal mapping and charting since the late 1980s with the goal of advancing airborne lidar bathymetry and associated technologies. The collaboration has fielded three generations of airborne sensors and has transferred this technology to the commercial sector, supporting an expanding market for bathymetric lidar. The purpose of this paper is to provide an overview of the history of USACE survey efforts in the Great Lakes (1995–2012), an in-depth review of the resulting imagery and lidar data products, and new information product developments and applications to support environmental and coastal engineering throughout the Great Lakes region.     

Ecological data as a resource for invasive species management in U.S. Great Lakes coastal wetlands

The coordinated use of ecological data is critical to the proper management of invasive species in the coastal wetlands of the Laurentian Great Lakes. Researchers and government programs have been increasingly calling for the use of data in management activities to increase the likelihood of success and add transparency in decision making. Web-enabled databases have the potential to provide managers working in Great Lakes coastal wetlands with relevant data to support management decisions. To assess the potential value of these databases to managers in Laurentian Great Lakes states, we surveyed wetland managers to determine their current data usage as well as their future data interests and catalogued the online databases currently available. Surveys were disseminated via email to managers in 56 different organizations overseeing invasive species management efforts in Great Lakes coastal wetlands; 46 responses were included in this analysis. Of the survey respondents, all reported using raw biotic data for decision making, (i.e. presence of target species) but many indicated that they would prefer to incorporate a greater variety of data, as well as more complex information. Our survey found that managers used web-enabled databases, but most databases that we catalogued only provided presence data for wetland biota. We concluded that databases can provide the types of data sought by invasive species managers but have unmet potential to be integrated into responsive management processes.     

Enhancing Great Lakes coastal ecosystems research by initiating engagement between scientists and decision-makers

A disconnect between scientific research and environmental management communities can be a detriment to both. In the case of Great Lakes coastal ecosystems, which are inherently complex and subject to uncertain effects of future climatic, environmental, and anthropogenic drivers, greater collaboration could be beneficial to their sustainability. We capture the challenges and opportunities identified by a scientist/decision-maker co-production workshop focused on the future environmental quality of Great Lakes coastal wetlands. We explain our path through the stakeholder workshop process, our challenges in translating meeting outcomes into actionable items, and lessons learned to bridge gaps between scientists and decision-makers. Additionally, we determine topics and directions identified by decision-makers that can be modeled with existing technologies and others that require further research. These topics may be incorporated into future research efforts and could serve as a shortlist of research priorities that were identified by decision-makers working with coastal wetland issues. Based on lessons learned during and after the workshop, we provide suggestions for bridging the gap between researchers and decision-makers, including sustained engagement between these groups and improved interaction through the beginning, duration, and end of research and/or management efforts.     

Urban pocket-beach morphodynamics along the wave-dominated southwest coast of Lake Michigan: An analysis of shoreline and sand volumetric changes

Many of the world’s beaches are embayed, but while a large body of work addresses the geomorphology of pocket beaches in oceanic settings, little is known about urban analogs, especially within the Great Lakes of North America. Groins and jetties shelter these systems from direct interaction with littoral processes, which elsewhere can influence how changes in lake level, winter-ice cover, and wave climate impact beach evolution. We address the direct controls of these forcing parameters on beach morphodynamics over a 33-yr period at North Point Beach, which is confined to an engineered ‘container’ along Lake Michigan’s wave-dominated SW margin. Analysis of near-annual beach change suggests lake-level change is the dominant geomorphic driver over inter-annual to decadal timeframes, with winter ice playing a secondary role. Pocket-beach shoreline positions were found to be unreliable indicators of sand volumetric changes. Lake-level rise facilitated shoreline retreat and overwash-induced beach accretion while high lake levels created the accommodation for additional sands to enter the embayment. This is important for coastal managers to consider when developing mitigation strategies for ongoing lake-level fluctuations and anticipated regional climate impacts. This foundational assessment has implications for embayed beaches of the greater Chicago coastal margin (n > 20), where many other site-specific variables (e.g., groin orientations and shoreline aspect) may factor into nearshore and onshore beach morphodynamics. Continued research into urban pocket beaches of the Great Lakes stands to offer useful information on the impacts of littoral fragmentation on coastal sediment routing during different lake-level phases and degrees of littoral interconnectivity.     

Angler preferences for management of aquatic invasive species in the USA and Canada: A discrete choice experiment

Aquatic invasive species (AIS) management in the Great Lakes region of North America requires coordination between multiple agencies and stakeholder groups. Because the Great Lakes are an internationally managed entity, an understanding of policy preferences among stakeholders across borders is crucial for making both comprehensive and evidence-based decisions about fishery resources. We evaluated angler preferences for how future fishing scenarios are affected by aquatic invasive species in the Great Lakes region. Using a mixed-mode survey of anglers in Illinois, Michigan, Wisconsin, New York, and the Canadian province of Ontario, we conducted a stated choice experiment to understand and compare American and Canadian anglers. Results from a mixed multinomial logit model suggested fish habitat quality, amount of native fish species, impact of invasive species, availability of wash stations, and cost significantly influenced hypothetical scenarios chosen by survey respondents. Fish habitat and increased availability of boat wash stations had the greatest influence on the likelihood that a given scenario would be chosen by a survey respondent. We observed predominantly similar patterns across the border but did find that Canadians had stronger preferences for limiting AIS impacts and improving habitat quality. Our research thus suggests that an internationally consistent management approach would likely be well received among the anglers engaged in this study.     

Researcher disciplines and the assessment techniques used to evaluate Laurentian Great Lakes coastal ecosystems

The Laurentian Great Lakes of North America have been a focus of environmental and ecosystem research since the Great Lakes Water Quality Agreement in 1972. This study provides a review of scientific literature directed at the assessment of Laurentian Great Lakes coastal ecosystems. Our aim was to understand the methods employed to quantify disturbance and ecosystem quality within Laurentian Great Lakes coastal ecosystems within the last 20 years. We focused specifically on evidence of multidisciplinary articles, in authorship or types of assessment parameters used. We sought to uncover: 1) where Laurentian Great Lakes coastal ecosystems are investigated, 2) how patterns in the disciplines of researchers have shifted over time, 3) how measured parameters differed among disciplines, and 4) which parameters were used most often. Results indicate research was conducted almost evenly across the five Laurentian Great Lakes and that publication of coastal ecosystems studies increased dramatically ten years after the first State of the Great Lakes Ecosystem Conference in 1994. Research authored by environmental scientists and by multiple disciplines (multidisciplinary) have become more prevalent since 2003. This study supports the likelihood that communication and knowledge-sharing is happening between disciplines on some level. Multidisciplinary or environmental science articles were the most inclusive of parameters from different disciplines, but every discipline seemed to include chemical parameters less often than biota, physical, and spatial parameters. There is a need for an increased understanding of minor nutrient, toxin, and heavy metal impacts and use of spatial metrics in Laurentian Great Lakes coastal ecosystems.     

Setting an agenda to catalyze research in the social and organizational dimensions of Great Lakes remediation,restoration, and revitalization

The Great Lakes region was once a hub of industry and innovation that provided wealth and identity to the region. Economic upheavals have left the region trying to recreate economies and cleanup degraded environments. There have been multiple, overlapping efforts to change these conditions and create a new narrative for the region through environmental remediation, habitat restoration, and community revitalization on the path towards resilience. The elements that contribute to success are organized differently in different places, and are not always identified or characterized in the environmental literature. Trying to fill this conceptual gap is critical because landscape-scale environmental cleanup has been delivered at the local scale through various partnerships and arrangements. Thus, this special collection of articles in the Journal of Great Lakes Research explores how individuals, organizations, and communities are engaging in the complex process of environmental cleanup and revitalization throughout the region. This collection of articles represents a range of approaches to unpack how people are navigating and contributing to this regenerative process from quantitative studies at the regional scale that characterize global patterns to in-depth qualitative studies that identify and characterize the processes that unfold in specific places to change our environments both ecologically and socially. These articles represent the broad experience unfolding in the region to understand these activities through research and navigate them through practice. This collection will add new dimensions to Great Lakes research by including the individuals, organizations, and agencies as components of the ecosystem.     

Great Lakes rivermouth ecosystems: Scientific synthesis and management implications

At the interface of the Great Lakes and their tributary rivers lies the rivermouths, a class of aquatic ecosystem where lake and lotic processes mix and distinct features emerge. Many rivermouths are the focal point of both human interaction with the Great Lakes and human impacts to the lakes; many cities, ports, and beaches are located in rivermouth ecosystems, and these human pressures often degrade key ecological functions that rivermouths provide. Despite their ecological uniqueness and apparent economic importance, there has been relatively little research on these ecosystems as a class relative to studies on upstream rivers or the open-lake waters. Here we present a synthesis of current knowledge about ecosystem structure and function in Great Lakes rivermouths based on studies in both Laurentian rivermouths, coastal wetlands, and marine estuarine systems. A conceptual model is presented that establishes a common semantic framework for discussing the characteristic spatial features of rivermouths. This model then is used to conceptually link ecosystem structure and function to ecological services provided by rivermouths. This synthesis helps identify the critical gaps in understanding rivermouth ecology. Specifically, additional information is needed on how rivermouths collectively influence the Great Lakes ecosystem, how human alterations influence rivermouth functions, and how ecosystem services provided by rivermouths can be managed to benefit the surrounding socioeconomic networks.     

The deceptively complicated “elevation ordinary high water mark” and the problem with using it on a Laurentian Great Lakes shore

In 2013 the Laurentian Great Lakes are at historically low levels; but they will undoubtedly rise again as they always have in an ongoing pattern of seasonal, annual and decadal fluctuations. Those fluctuations, coupled with other physical dynamics unique to the Great Lakes system, will continue to shift shorelines lake-ward and land-ward dramatically over time, perhaps more so because of increased storminess from climate change. These shifting shores implicate legal doctrines that attempt to balance public interests and private property rights at the shore, and they complicate the Great Lakes states' efforts to effectively and fairly manage their Great Lakes shorelands. One challenge comes from using an elevation-based standard to mark ordinary high water, a method that is difficult conceptually to administer and that yields multiple marks over time. We describe briefly Great Lakes shoreline dynamics and the application of state Public Trust Doctrines to those shorelines, and we discuss in detail recent litigation in Michigan regarding use of an elevation-based standard to mark ordinary high water, illustrating the inherent problems with that standard. We conclude that the elevation-based standard should be abandoned, or if not abandoned applied in a manner to adequately safeguard public trust shorelands.     

An appraisal of policy implementation deficits in the Great Lakes

Understanding of the complexities of both public policy implementation and Great Lakes restoration has grown in sophistication since the 1970s. The Great Lakes Water Quality Agreement is the principal policy for reversing environmental decline in the region. Implementation of this and related policies, particularly by the federal governments, suffers from acute and chronic deficits that we summarily document. These policy implementation deficits will continue to frustrate efforts to revitalize the Great Lakes unless significant advances are made to design governance processes within the Great Lakes regime that accommodate the complexity of linked social and ecological systems. The 2010-2011 governmental process to renegotiate the Great Lakes Water Quality Agreement is a potent opportunity to begin to overcome institutional barriers to reducing policy deficits. We argue that the renegotiation must begin a reinvestment in remaking or reimagining Great Lakes institutions in a way that restores capacity, flexibility, and moral authority. Our purpose is to help provide a foundation for that discussion.     

U.S. EPA Great Lakes National Program Office monitoring of the Laurentian Great Lakes: Insights from 40 years of data collection

The U.S. EPA Great Lakes National Program Office (GLNPO) implements long-term monitoring programs to assess Great Lakes ecosystem status and trends for many interrelated ecosystem components, including offshore water quality as well as offshore phytoplankton, zooplankton and benthos; chemical contaminants in air, sediments, and predator fish; hypoxia in Lake Erie's central basin; and coastal wetland health. These programs are conducted in fulfillment of Clean Water Act mandates and Great Lakes Water Quality Agreement commitments. This special issue presents findings from GLNPO's Great Lakes Biology Monitoring Program, Great Lakes Water Quality Monitoring Program, Lake Erie Dissolved Oxygen Monitoring Program, Integrated Atmospheric Deposition Network, Great Lakes Fish Monitoring and Surveillance Program, and Great Lakes Sediment Surveillance Program. These GLNPO programs have generated temporal and spatial datasets for all five Great Lakes that form the basis for assessment of the state of these lakes, including trends in nutrients, key biological indicators, and contaminants in air, sediments and fish. These datasets are used by researchers and managers across the Great Lakes basin for investigating physical, chemical and biological drivers of ongoing ecosystem changes; some of these analyses are presented in this special issue, along with discussion of new methods and approaches for monitoring.     

Great Lakes coastal wetlands as suitable habitat for invasive mute swans in Michigan

Great Lakes coastal wetlands provide critical habitat and food resources for more species than any other Great Lakes ecosystem. Due to past and current anthropogenic disturbances, coastal wetland area has been reduced by >50% while remaining habitat is frequently degraded. Invasive mute swans have contributed to the degradation of coastal wetlands by removing submergent vegetation and competitively excluding native species from breeding areas and food resources. Despite current control practices, mute swan population estimates in Michigan are ~8000, comparable to population estimates in the entire Atlantic Flyway of North America. We collected local abiotic data and adjacent land cover data at 3 scales from 51 sites during 2010 and 2011 and conducted 2 mute swan detection surveys each year during the summer and fall. We developed a single-species, single-season occupancy-based habitat suitability model to determine current and potential mute swan habitat among Great Lakes coastal wetlands. We found mute swans occupied heterotrophic coastal wetlands adjacent to urban areas, which were high in ammonium and oxidation-reduction potential and low in nitrates, dissolved oxygen, and turbidity. Our model provides managers with a valuable tool for rapidly identifying mute swan habitat areas for control efforts, particularly the need for targeting mute swan populations in or near urbanized areas. Our model will also aid managers in monitoring areas that mute swans may invade and prioritizing coastal wetland areas for restoration efforts.     

Visualizing relationships between hydrology,climate, and water level fluctuations on Earth's largest system of lakes

Understanding drivers behind monthly, annual, and decadal water level fluctuations on the North American Great Lakes is a high priority for regional research and water resource management planning. The need for improved understanding of these relationships is underscored by a series of recent unprecedented extreme water level patterns, including (but not limited to) record low water levels on Lakes Michigan and Huron in December 2012 and January 2013. To address this need, we developed the Great Lakes Hydro-Climate Dashboard (GLHCD), a dynamic flash-based web interface that builds upon the previously-released Great Lakes Water Level Dashboard (GLWLD). In addition to including water level data and projections from the GLWLD, the GLHCD presents a range of hydrological and climatological data through an improved graphical user interface specifically designed to manage, and display simultaneously, a variety of data time series from different sources. By serving as a common portal to critical regional hydro-climate and water level data, the GLHCD helps visualize and explain lake level phenomena including water level declines across all of the Great Lakes in the early 1960s and their relationship to changes in regional precipitation, as well as the abrupt water level declines in the late 1990s and their relationship to remarkable changes in over-lake evaporation. By providing insight into these, and other important regional hydro-climate events, the GLHCD helps practitioners, researchers, and the general public improve their understanding of the drivers behind Great Lakes water levels, and to employ that understanding in prudent water resource management planning.     

The 2017 African Great Lakes Conference: Conservation and development in a changing climate

In May 2017, the African Great Lakes community convened for a region-wide conference in Entebbe, Uganda. The African Great Lakes Conference (AGLC) focused on 6 regionally-important themes, and 300+ attendees presented over 100 talks and posters. The AGLC culminated in the adoption of a set of Conference Resolutions designed to direct the future of African Great Lakes conservation and management. As an Introduction to this Journal of Great Lakes Research special section on African Great Lakes, we report on the impetus for the African Great Lakes Conference as well as discuss three major advances and investments that were a direct result of conference resolutions adopted at the meeting. First, we present the AGLC Resolutions, a set of management issues and solutions developed at the conference. Second, we discuss the African Great Lakes Conference Fund, a conservation fund that has awarded $500,000 USD to launch four new initiatives. Finally, we describe African Great Lakes Inform, a knowledge management platform designed to promote collaboration in the region. The AGLC in general, and these three major conference outcomes specifically, provide a set of basic building blocks to advance partnerships, research and capacity in the African Great Lakes region.     

A systematic review of the literature on plastic pollution in the Laurentian Great Lakes and its effects on freshwater biota

Plastic pollution is ubiquitous in freshwater systems worldwide, and the Laurentian Great Lakes are no exception. We conducted a systematic review to synthesize the current state of the literature on plastic pollution, including macroplastics (>5 mm) and microplastics (<5 mm), in the Great Lakes. Thirty-four publications were used in our systematic review. We found ubiquitous contamination of microplastics in surface water, with maximum abundances exceeding those in ocean gyres. There are also high levels of plastic contamination reported across benthic sediments and shorelines of the Great Lakes. Citizen science data reveals macroplastic across Great Lakes shorelines, with more than three million pieces of plastic litter recorded over a span of three years. We completed a second systematic review of plastic pollution and its impact on freshwater ecosystems in general to inform how plastic in the Great Lakes may impact wildlife. Among studies published in the literature, we found 390 tested effects, 234 (60%) of which were detected and 156 (40%) of which were not; almost all of the freshwater effects (>98%) were tested on microplastics. Based on a subset of these papers, we found that the shape and size of a particle likely affects whether an effect is detected, e.g., more effects are detected for smaller particles. Finally, we identify gaps in scientific knowledge that need to be addressed and discuss how the state of the science can inform management strategies.     

Building a CSMI database: Experiences from the Lake Ontario 2018 CSMI Field Year

The Cooperative Science and Monitoring Initiative (CSMI) instituted under the Science Annex of the 2012 Great Lakes Water Quality Agreement (GLWQA) provides an international framework to coordinate science and monitoring activities in one of the five Great Lakes. On a five-year cycle: (Y1) CSMI priorities are developed under GLWQA Annex 2 Lake Partnerships with input from managers, researchers, and other stakeholders, (Y2) projects are then planned to address those priorities, (Y3) projects are implemented during the field sampling year, (Y4) samples are analyzed, and (Y5) results are shared through reporting. Although CSMI has advanced understanding and management of the Great Lakes, such large-scale studies present unique logistical challenges. Specifically, there is a need to promote and enhance data management, coordination, and sharing efforts. Herein, we describe the process used to develop a database for the 2018 Lake Ontario Field Year and explore the challenges, successes, and lessons learned that could improve collaboration and data compilation in future CSMI cycles. The creation of an accessible and transparent database can encourage collaboration between researchers and scientists, provide insight into the state and health of Lake Ontario, and engage the public as to why monitoring the Great Lakes is so crucial. We suggest the following recommendations to be implemented in future CSMI database iterations: 1) early planning of the database development, 2) house the database in a centralized location with emphasis on metadata, 3) encourage development of summary products for various user groups, and 4) sustained collaboration and commitment on database requirements.     

A reflection on restoration progress in the Saginaw Bay watershed

The Saginaw Bay watershed is unique and remains one of the most diverse watersheds in Michigan, containing the largest contiguous freshwater coastal wetland system in the United States. The watershed and Saginaw Bay support a wide variety of flora and fauna, agriculture and recreation opportunities. However, the rapid industrialization and population growth of the watershed in the 20th century strained the region's natural resources. Excessive nutrient loading, elevated bacteria levels, aquatic habitat loss, and chemical contamination all altered the watershed's ecosystem. These stressors contributed to declining fish and wildlife populations, loss of coastal wetlands, water quality concerns, beach closings, and the buildup of contaminants in the food web. Over the past four decades, extensive federal, state, and regional priority-based assessments and planning have positioned the Saginaw Bay watershed for significant restoration. There is a continued commitment by federal, state, and regional partners to advance restoration efforts. This paper reflects upon those activities and provides additional actions that would aid restoration work in the Saginaw Bay watershed and in the Saginaw Bay, a region of the Great Lakes that still must address significant environmental challenges to reach its full potential.