Directive

The International Rainy-Lake of the Woods Watershed Board's Directive

Directive to International Rainy-Lake of the Woods Watershed Board

September 12, 2025

  • This directive is for the International Rainy-Lake of the Woods Watershed Board (IRLWWB’ or ‘Board’) and sets out the mandate under which the IRLWWB will operate.
  • The IRLWWB was established in 2013 following the merger of two former Boards (the International Rainy River Water Pollution Board and the International Rainy Lake Board of Control) and an expansion of water quality reporting responsibilities for the new Board to include Lake of the Woods. The following provides a history of these Boards.
    • The International Joint Commission (Commission) established the International Rainy Lake Board of Control in 1941 to assist it in the matter of emergency regulation of the level of Rainy Lake and other boundary waters in the Rainy Lake watershed, in accordance with the 1938 Rainy Lake Convention between the Governments of Canada and the United States.
    • The Commission established the International Rainy River Water Pollution Board on 18 January 1966 to assist it in complying with the Reference from the U.S. and Canadian Governments by reporting on progress to address pollution in the Rainy River based on the Water Quality objectives as approved by Governments in letters dated 13 December 1965 and to report on other water quality problems.
    • The Commission established the International Rainy-Lake of the Woods Watershed Board on 1 April 2013 to assist it in carrying out responsibilities previously assigned to the former boards and to implement recommendations 2 made by the Commission to the two Governments in a 30 January 2012 report, as supported by U.S. and Canadian Governments letters dated 20 June 2012 and 25 July 2012, respectively. The report responded to a 17 June 2010 reference from the two Governments, pursuant to the Boundary Waters Treaty of 1909, regarding binational management of the international waters of the Lake of the Woods and Rainy River watershed and the Commission’s role in that management.
    • In 2018, changes to this Directive occurred to update and better articulate Community Advisory Group (CAG) and Industry Advisory Group (IAG) membership terms and conditions on the Board. The Commission also issued a revised Supplementary order on 1 March 2018, and an official Compilation of Orders on 13 September 2018.
    • In 2025, changes to the Directive occurred to reflect updates to Commission policies relating to the Commission's review of work plans, monitoring and reviewing water quality objectives and membership expansion of the Board’s Water Levels Committee (WLC).
  • The Board’s mandate is to ensure compliance with the Commission’s Orders pursuant to the Rainy Lake Convention, to monitor and report on the ecological health of the Lake of the Woods and Rainy Lake boundary waters aquatic ecosystem, including water quality, and to assist the Commission in preventing and resolving disputes regarding the boundary waters of the Lake of the Woods and Rainy River watershed.
    • The Board shall accomplish its mandate by exploring and encouraging the development of local and regional capacity to prevent and solve problems locally, applying the best available science and knowledge, and maintaining an awareness of the needs, expectations and capabilities of residents of the Lake of the Woods and Rainy River watershed.
    • The Board may establish committees and working groups to assist it in fulfilling its responsibilities in a knowledgeable and effective manner. Committee or working group members are not required to be Board members and may be drawn from the Community Advisory Group (CAG), Industry Advisory Group 3 (IAG), or members of the larger community. The Commission shall be kept informed of the duties and composition of any committee or working group.
  • The Board shall consist of a United States Section and a Canadian Section, comprised of equal numbers of members from each country appointed by the Commission. The Commission shall ordinarily appoint each member to a three-year term. Appointments may be renewed for additional terms. Members shall act in their personal and professional capacity, and not as representatives of their respective countries, agencies, or institutions.
  • The Commission shall appoint one chair for each Section, ordinarily for a term of three years. The Commission shall strive to appoint co-chairs with complementary expertise to help address the broad spectrum of actual and potential watershed issues before the Board at any given time.
    • Co-chairs shall be responsible for maintaining proper liaison between the Board and the Commission, the Board and the Water Levels Committee, and the Board and advisory groups (CAG & IAG).
    • Co-chairs shall ensure that all members of the Board are informed of all instructions, inquiries, and authorizations received from the Commission and also of activities undertaken by or on behalf of the Board, progress made, and any developments affecting such progress.
    • Co-chairs may appoint secretaries of the Board who, under the general supervision of the Co-chairs, shall carry out such duties as are assigned by the Co-chairs or the Board as a whole.
    • Co-chairs shall keep the Commission informed of the Board's current plans and progress and of any developments or cost impediments, actual or anticipated, which are likely to impede, delay, or otherwise affect the carrying out of the Board's responsibilities.
  • The Board's duties shall be to:
    • Maintain continuous surveillance over the quality of water and ecosystem health of the boundary waters of the Rainy-Lake of the Woods watershed, with 4 particular focus on priority issues within the basin such as water quality, alien aquatic invasive species, climate change indicators and adaptation, and ground and surface water contamination, as identified by the Board.
    • Recommend water quality and aquatic ecosystem health objectives for the boundary waters of the Rainy-Lake of the Woods watershed to the Commission.
      • Report annually to the Commission of instances where existing water quality objectives are not being met and of actions being taken by those responsible for sources of pollution and by the regulatory agencies to meet these water quality objectives.
      • Review water quality and aquatic ecosystem health objectives every five years and recommend to the Commission such amendments and additions as might be appropriate.
    • Select, determine, establish, and report on water quality and aquatic ecosystem health alert levels for biological, physical and chemical constituents within the boundary waters of the Rainy-Lake of the Woods watershed to identify potential problems for which water quality objectives have not been established.
      • Alert levels shall focus on priority issues within the basin, such as water quality, alien aquatic invasive species, climate change indicators and adaptation, and ground and surface water contamination and shall be selected to meet or beat the most stringent water quality guidelines being used by local, state, provincial or federal agencies for such pollutants.
      • Identify current or potential water quality problems in the Rainy-Lake of the Woods watershed through a process based on comparisons of monitoring data with those alert levels established under (i) above.
      • Report annually to the Commission on alert levels, exceedances and implications, actions being taken by those responsible for drivers of exceedances, if any, and actions taken by regulatory agencies.
      • Review the alerts every five years alongside review of the water quality and aquatic ecosystem health objectives (Section 6c).
    • Ensure compliance with the terms of the Order in the matter of emergency regulation of Rainy Lake and other boundary waters in the Rainy Lake watershed and act as technical adviser to the Commission on this matter. The Board shall delegate its authority in this paragraph to the Rainy and Namakan Lake Water Levels Committee (Water Levels Committee), which acts independently of the Board while keeping it informed.
      • The Commission shall appoint the Chairs of the Water Levels Committee. Customarily, these two individuals are the two Chairs of the International Lake of the Woods Control Board (ILWCB). The ILWCB was established by the Lake of the Woods Convention and Protocol of 1925, and its members are appointed by their respective governments.
      • The Commission shall appoint two additional members from the U.S. and Canada residing near the affected boundary waters. The Commission shall also appoint two Indigenous members from the U.S. and Canada that are knowledgeable about the basin and are nominated by an Indigenous government. Water Levels Committee Co-chairs may appoint Engineering Advisors to assist them in their duties.
      • Whenever, in the opinion of the Water Levels Committee, the terms of the Order are not being complied with, the Water Levels Committee shall inform dam owners and operators and make such recommendations as it considers appropriate. At the earliest opportunity, the Water Levels Committee shall report to the Commission directly such apparent lack of compliance with the Order, the circumstances under which it occurred, the action taken by the Board, and the action, if any, taken by or on behalf of the dam owners and operators and inform the Board through the Water Levels Committee Co-chairs or Engineering Advisors.
      • Notwithstanding the provisions of the Order, the Water Levels Committee may, on behalf of the Commission:
        • authorize the reduction of the outflow from Rainy Lake for periods of up to ten days if necessary to raise the headpond level at 6 International Falls-Fort Frances to ensure an adequate water supply for plant fire protection purposes or to permit the passage of watercraft from the headpond to Rainy Lake, provided the outflow shall not be less than the flows prescribed in paragraph numbered 2(c) of the Order, and
        • authorize the reduction of the outflow from Rainy Lake and/or Namakan Lake for periods of up to ten days if necessary to meet emergency conditions such as machinery breakdowns at the Kettle Falls or International Falls-Fort Frances dams, fires or other accidents, provided the outflow shall not be less than the flows prescribed respectively in paragraphs numbered 1(c) and 2(c) of the Order.
      • When the Water Levels Committee has taken action pursuant to subparagraph (iv) above, the Committee Co-chairs shall inform the Commission forthwith and as soon as practicable thereafter shall forward a written report to the Commission describing the circumstances in which such action was taken. The report shall be posted on the IJC website following Commission approval.
      • When, in the opinion of the Water Levels Committee, conditions, other than those indicated in subparagraph (iv) above, either exist or are likely to occur, which make it advisable to deviate temporarily from the strict application of the Order, the Water Levels Committee Co-chairs shall refer the matter to the Commission by the fastest practicable means, together with the Water Levels Committee’s recommendation; the Commission will inform the Water Levels Committee of its decision as expeditiously as possible.
      • The Water Levels Committee shall operate by consensus. In the event of any disagreement among the members of the Committee which they are unable to resolve, the Co-Chairs shall refer the matter forthwith to the Commission for decision.
      • The Water Levels Committee shall meet face-to-face with the operators of the dam at International Falls-Fort Frances annually to discuss water level issues that have occurred during the previous year and keep the Board informed of important issues discussed at the meeting.
    • The Board’s Adaptive Management Committee (AMC), will review the rule curves of the Rainy and Namakan lakes, following a separate ‘Directive to the Adaptive Management Committee of the International Rainy-Lake of the Woods Watershed Board (2019)’ issued by the Commission.
    • Keep the Commission informed of boundary waters aquatic conditions and plans, policies, and developments, actual or anticipated, which have the potential to affect the quantity and quality of the water and the health of the Lake of the Woods and Rainy River watershed boundary waters aquatic ecosystem.
    • Maintain awareness of basin-wide developments and conditions which might affect water quantity and quality and ecosystem health, and the people living within the Lake of the Woods and Rainy River watershed, and recommend appropriate strategies to the Commission, if appropriate.
    • Coordinate activities with appropriate agencies and institutions as may be needed or desirable, including inter-agency working groups and other research groups conducting sound science within the watershed and consider designating specific Board members to liaise with specific groups, where useful.
    • Maintain a Community Advisory Group (CAG) for the purpose of keeping the Board aware of any water resource management issues that may arise in the basin and providing feedback and input to the Board’s products and processes, such as the Board’s work plan.
      • The Board shall appoint members to the CAG, striving to achieve an equal number of Canadian/US members with representation reflecting the diverse nature of the environment in which the Board operates. CAG Membership shall typically be for a three-year term with possible extensions for additional terms.
      • The Board shall appoint two Co-chairs from among the public and Indigenous Board members, one from Canada and one from the US, for a three-year term. The CAG Co-chairs shall be responsible for ensuring that (a) all CAG members remain informed of issues and inquiries provided to the CAG for consideration and (b) Board Co-chairs remain informed of the group’s efforts and discussions.
      • CAG membership will include public members of the Board as well as the Board members from First Nations, Métis, and Tribes.
      • Board Secretaries shall provide logistical support to the CAG Co-chairs as determined appropriate by the Board Co-chairs in consultation with the CAG Co-chairs.
      • The Board may not dismiss any members of the CAG prior to the end of their terms.
    • Maintain an Industry Advisory Group (IAG) for the purpose of making the Board aware of industry perspectives on the Board’s mandates on water quality and quantity and other related activities.
      • The Board shall appoint members after confirming willingness and interest to serve. Members shall reflect the range of industrial interests in the basin, such as hydroelectric power, paper production, agriculture, forestry, fisheries, mining, recreation and tourism.
      • The IAG Co-chairs shall be drawn from the membership of the Board, one from Canada and one from the US for a three-year term. The IAG Co-chairs shall be responsible for ensuring that all IAG members remain informed of issues and inquiries provided to the IAG for consideration and that Board Co-chairs remain informed of the group’s efforts and discussions.
      • Board Secretaries shall provide logistical support to the IAG Co-chairs as determined appropriate by the Board Co-chairs in consultation with the IAG Co- chairs.
      • The Board may not dismiss any members of the IAG prior to the end of their terms.
    • Organize a joint meeting of the Board with the CAG and IAG once a year. This may be a joint meeting of the Board, CAG and IAG or the Board may hold separate meetings with the CAG and with the IAG. These meetings may be virtual or in-person.
    • Involve the public in the work of the Board; facilitate provision of timely and pertinent information on Board activities within the watershed in the most appropriate manner including electronic means, such as the Board's page on the Commission website.
    • Meet at least once a year with invitations to First Nations, Métis, and Tribes and all water-user groups and stakeholders to seek advice and hear concerns. Locations of such meetings shall be moved around the basin, generally alternating between locations in Canada and the United States. To facilitate coordination and efficiency, where possible, the Board shall consider scheduled meetings of other agencies when planning and scheduling its own face-to-face meetings.
    • Inform the Commission in advance of plans for any meetings, or other means of involving the public in Board outreach, and report to the Commission, in a timely manner, on these and any other presentations or representations made to the Board.
    • Submit a report covering Board activities annually to the Commission, at least three weeks in advance of the Commission's spring semi-annual meetings and submit such other reports, as the Commission may request, or the Board may desire.
    • Collaborate or carry out such other studies or activities as the Commission may, from time-to-time, request including undertaking or facilitating the development of plans or studies, as may be assigned by the Commission and as resources permit. For example, collaborating with governmental agencies on a binational comprehensive watershed management plan, facilitating Lake of the Woods 10 watershed water quality studies, developing state of the watershed reports and developing a long-term monitoring plan.
    • Prepare a work plan including both routine Board activities and new initiatives planned to be conducted over a three-year period. The work plan shall be submitted to the Commission every three years for review and approval. It shall be accompanied by a summary of objectives achieved pursuant to the previous three-year work plan, indicating work plan items that were not achieved and the plan to address this.
  • Unless other arrangements are made, members of the Board, committees, or working groups shall make their own arrangements for reimbursement of necessary expenditures for travel or other related expenses.
  • Commissioners and relevant Commission staff are invited to meetings of the Board and the Water Levels Committee, and any committees the Board may establish.
  • The Board shall conduct its public outreach activities in accordance with the Commission’s public information policies and Board members shall maintain files in accordance with the Commission policy on segregation of documents. All Board members shall be provided with these policy documents at the time of appointment to the Board.
  • Reports shall be submitted in a format suitable for public release, with electronic copies provided to each of the Commission’s section offices. Reports shall normally be available only to the Commission and to members of the Board and its committees until their release has been approved by the Commission.
  • The Board shall provide minutes of Board meetings to the Commission within 45 days of the close of the meeting in keeping with the Commission’s April 2002 Policy Concerning Public Access to Minutes of Meetings. The minutes will subsequently be put on the Commission’s website.
  • The Board shall produce annual reports in a format suitable for public release (ideally via the Board's page on the IJC website as well as via printed copy) and shall make annual reports available to the public, upon request, normally one week 11 after formal receipt by the Commission at its Spring semi-annual meeting unless directed otherwise by the Commission.
  • The Board may submit additional reports to the Commission as necessary.
  • Prior to their release, the Board shall provide the text of media releases and other public information materials to the Secretaries of the Commission for review by the Commission’s Public Information Officers.
  • If, in the opinion of the Board or of any member, any instruction, directive, or authorization received from the Commission lacks clarity or precision, the matter shall be referred promptly to the Commission for clarification.
  • The Board shall operate by consensus. In the event of any disagreement among the members of the Board which they are unable to resolve, the Board shall refer the matter forthwith to the Commission for decision.
  • The Commission may amend existing instructions or issue new instructions to the Board at any time.
  • The Commission may terminate any board, group and committee membership at any time. The Board is not allowed to dismiss any members of the Board, committee or group prior to the end of their terms.

Signed the 11th day of September 2025