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Provincial Flood Control Infrastructure Review of Operating Guidelines

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Provincial Flood Control Infrastructure Review of Operating Guidelines A REPORT TO THE MINISTER OF MANITOBA INFRASTRUCTURE AND TRANSPORTATION August 2015 2 - Provincial Flood Control Infrastructure Panel Members Harold Westdal Chair Rick Bowering Hydrological Engineer Barry MacBride Civil Engineer Review of Operating Guidelines - 3 ACKNOWLEDGEMENTS While much of the work in this report is technical in nature, that work can only be guided and have meaning within a human context. In this respect the Panel is deeply grateful to the large numbers of people who freely gave their time and provided the Panel with the benefit of their experience and knowledge. The Panel would like to acknowledge the work of David Faurschou and Marr Consulting, the participation of municipal governments, First Nations, producer associations, provincial staff, those people who provided excellent advice at the Panel’s roundtable sessions and the many members of the public who took the time to attend open house sessions. The Panel also thanks the staff of the department for providing access to historical documents and technical support, and for attending the open house sessions. 4 - Provincial Flood Control Infrastructure TABLE OF CONTENTS 1 Flood Control Infrastructure Matters . .9 2 Terms of Reference and Approach .....................................13 2.1 Review Process .................................................14 2.2 Public Engagement. 15 2.3 Presentation of this Report .........................................15 3 Manitoba’s Flood Control System ......................................17 3.1 Diking ..................................................19 3.2 Flood Control Works ..............................................19 3.3 Benefits of the System ............................................19 4 Operating Guidelines and Rules .......................................25 4.1 Operating Guidelines in Practice .....................................26 4.2 Operational Considerations . 27 5 The Red River Floodway .............................................28 5.1 Background ..................................................28 5.1.1 How the Floodway Works . 30 5.1.2 Definition of Natural vs. Artificial Levels ..........................30 5.1.3 Influence of the Portage Diversion and Shellmouth Dam . 32 5.2 Operating Rules .................................................33 5.2.1 Red River Floodway Advisory Board . 34 5.3 History of Operations .............................................35 5.4 What You Told Us . 36 5.4.1 Comments on Operating Rules . 36 5.4.2 Comments on Impacts . 38 5.4.3 Roundtable on Summer Use of Rivers ..........................40 6 THE PORTAGE DIVERSION ...........................................42 6.1 Background ..................................................42 6.1.1 Aging Infrastructure. 44 6.2 Operating Guidelines .............................................44 6.3 History of Operation ..............................................46 6.4 What You Told Us . 47 6.4.1 Comments on Operating Guidelines ...........................47 6.4.2 Comments on Impacts . 48 6.4.3 Roundtable on the Portage Diversion. 49 7 FAIRFORD RIVER WATER CONTROL STRUCTURE . 52 7.1 Background ..................................................53 7.2 Operating Rules .................................................56 7.3 What You Told Us . 58 7.3.1 Comments on Operating Guidelines ...........................59 7.3.2 Comments on Impacts . 60 Review of Operating Guidelines - 5 8 THE LAKE ST. MARTIN EMERGENCY OUTLET CHANNEL ..................61 8.1 Operation in 2011. 61 8.2 Operation in 2014. 62 8.3 Operating Rules .................................................63 8.4 Licensing Considerations ..........................................63 9 Review Criteria ..................................................64 10 Possible Changes to Operating Guidelines and Public Comment. 67 10.1 Red River Floodway ..............................................67 10.1.1 Public Response: Red River Floodway .........................67 10.2 Portage Diversion ................................................69 10.2.1 Public Response: Portage Diversion ...........................69 10.3 Fairford River Water Control Structure .................................70 10.3.1 Public Response: Fairford River Water Control Structure. 70 10.4 Other Comments Received during the Consultation . 70 11 Analysis of Issues ..................................................72 11.1 Artificial vs. Natural Flooding and Compensation ..........................72 11.1.1 Consideration of Compensation and Financial Assistance ...........73 11.1.2 Compensation and Financial Assistance for Flooding in Manitoba ......73 11.1.3 Panel Considerations ......................................75 11.1.4 Balance of Interests: The Case for Agriculture ....................76 11.2 Impact of Flood Control Structures on Lake Manitoba Levels ................84 11.2.1 Intent of Infrastructure Design and Operation .....................84 11.2.2 Adherence to Operating Guidelines. 86 11.2.3 Impact on Lake Manitoba Levels ..............................86 11.2.4 Implications of Absence of Flood Control Structures. 91 11.2.5 Panel Conclusions ........................................91 11.3 Impact of Regulation on Lake St. Martin Levels. 92 11.3.1 Panel Conclusions ........................................93 11.4 Lake Manitoba Water Quality and the Portage Diversion ....................93 11.4.1 Panel Conclusions ........................................97 11.5 Potential Salinity Impacts from the Portage Diversion. 97 11.5.1 Panel Conclusions ........................................98 11.6 Drainage ..................................................98 12 Discussion and Recommendations . 99 12.1 Red River Floodway Operating Guideline Changes. 99 12.1.1 Rule 4 – Emergency Summer Operation to Reduce Basement Flooding in Winnipeg ......................................99 12.1.2 Potential Rule 5 - Summer Operation to Keep Riverwalk Open . .105 12.1.3 Formalize Practice of Operating 0.5 Feet Below “Natural” Upstream ....111 12.1.4 Discretion to Operate the Floodway Before the Ice is Flowing Freely . .111 12.1.5 Permit Operation Above “Natural” During the Initial Operation to a Maximum River Level of 760 Feet at the Floodway Entrance ......112 6 - Provincial Flood Control Infrastructure 12.2 Portage Diversion Operating Guideline Changes .........................113 12.2.1 Panel Recommendations ...................................115 12.2.2 Further study of agriculture uses ..............................116 12.3 Fairford River Water Control Structure Operating Guideline Changes . .117 12.3.1 Panel Conclusions ........................................117 12.4 Lake St. Martin Emergency Outlet Channel Operating Guidelines Changes ......118 12.4.1 Operational Considerations ..................................118 12.4.2 Panel Recommendations ...................................119 12.5 Communications and Education .....................................120 12.5.1 Panel Recommendations ...................................120 12.6 Regulatory and Review Processes. .120 12.6.1 Panel Recommendations ...................................121 13 Summary of Recommendations + Key Comments . .122 13.1 Recommended Changes to Operating Guidelines ........................122 13.2 Other Recommendations Related to Operating Guidelines ..................124 13.3 Key Comments ..................................................125 APPENDICES APPENDIX A: TERMS OF REFERENCE. .127 APPENDIX B: RED RIVER FLOODWAY OPERATING RULES .....................131 APPENDIX C: PORTAGE DIVERSION OPERATING GUIDELINES ..................135 APPENDIX D: FAIRFORD RIVER WATER CONTROL STRUCTURE OPERATING GUIDELINES. .139 APPENDIX E: PUBLIC CONSULTATION REPORTS . .141 Review of Operating Guidelines - 7 8 - Provincial Flood Control Infrastructure 1 FLOOD CONTROL INFRASTRUCTURE MATTERS Manitoba sits at the bottom one of the world’s great water basins. It extends from the Rocky Mountains on the west, approaches the Great Lakes on the east, and stretches 500 kilometres to the south – an area nearly the size of Western Europe. It is not surprising, therefore, that some of Canada’s most severe floods have occurred in southern Manitoba. Literally in our backyards and forming part of our collective history. We would all be better off a little higher and further back from danger. But people love to live near water. And our pattern of settlement and land use means that flood control/flood management is a continuing and essential part of our common environment. We can’t stop floods but we can take measures to reduce risk and to reduce property damage. In some respects we have been very successful. For people in The flood control system of southern Manitoba Winnipeg, flooding can be mostly encompasses a system of major flood control a media event thanks to the Red River Floodway. Most Winnipeg structures, hundreds of kilometers of dikes, residents read about it but no community ring dikes and flood protection for longer experience the devastating individual homes raising them to safe flood effects. In the 2011 “flood without protection levels. While not without controversy this precedent”, there was very little flood control system has served Manitoba well. property damage in the Red River Valley where measures have been taken since the “flood of the century” (1997) to build higher and protect with dikes. Other parts of the province were not so fortunate. Thousands of acres of farmland went under water, bridges and highways were destroyed and people’s cottages and homes around Dauphin
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