Applying Manitoba's Water Policies - Government of Manitoba

CONTENTSINTRODUCTION ................................................................... 1HIGHLIGHTS ........................................................................ 2MANITOBA’S WATER RESOURCES ................................4APPLYING THE POLICIES:Policy Area 1: Water Quality ............................................. 6Policy Area 2: Conservation ............................................ 18Policy Area 3: Use and Allocation ................................... 28Policy Area 4: Water Supply ........................................... 40Policy Area 5: Flooding ................................................... 50Policy Area 6: Drainage ................................................... 58Policy Area 7: Education ................................................. 73MANITOBA’S SUSTAINABLE DEVELOPMENTSTRATEGY .......................................................................... 82PRINCIPLES AND GUIDELINES OF SUSTAINABLEDEVELOPMENT ................................................................. 84MANITOBA WATER POLICIES ...................................... 85

INTRODUCTIONHistorically, Manitobans have often taken ourwater resources for granted. There was a tendency toview water as a commodity to be used as needed. Thevalue of water for fish and wildlife habitat and forrecreation was not truly considered. Water managementwas often approached in a reactionary manner toaddress only the short term benefits. Water qualitywas virtually ignored until recent years.During the 1980's there was growing public awarenessand concern about the environment. We recognizedthat environmental management, conservation,and economic development are interdependent andmutually reinforcing. We realized that we must shiftour thinking from that of assessing development forthe short term to understanding its future benefits andimpacts.Towards a Sustainable Development StrategyIn 1989, as part of its vision to achieve sustainabledevelopment, the Government of Manitoba began thepreparation of a strategy that would comprehensivelyaddress management and development of land andwater resources. Water was selected as the firstresource to be addressed, since its management affectsall other resources. Work on complementary strategieson soils, forests, minerals, natural lands and specialplaces, wildlife, and fisheries has already begun.All Manitobans have a stake in water management.Success is contingent on public awareness, participation,and support. The Manitoba Round Table onEnvironment and Economy prepared draft policies andimplemented a broad-based public consultationprocess to obtain feedback on the views of the public.The policies were mailed throughout the province andresponses were received through questionnaires, workshops,and formal presentations.Environment and Economy in a publication titled“Land and Water Strategy, What You Told Us”.Manitoba Water PoliciesThe water policies presented in this publication area synthesis of public and government input into themanagement of our water resources. These policiesare consistent with the Federal Water Policy whichviews water as both a key to environmental health andwell being and as a scarce commodity that must bemanaged in a sustainable manner.The Government of Manitoba adopted these waterpolicies in 1990. The policies are not an end to themselves,but represent a commitment to a process thatwill result in programs and initiatives designed toensure the sustainable development of our waterresources.Application of these policies is a responsibility thatmust be shared. The policies will guide a variety ofland and water uses and activities throughoutManitoba. All stakeholders including resource owners,managers, and users have important roles to play. Wemust ensure these policies are applied in all phases ofwater management from planning to decision-making.The job of policy application belongs to everyone.Government agencies must work in partnership withan informed public. Application of these policies willinvolve rural municipalities, local government districts,conservation districts, local soil and water interestgroups, nature groups, private organizations, developers,businesses, and the general public.Development of our water resources can be sustainableif the responsibility is shared by everyone.The results of the process yielded more than half amillion words of written material expressing theknowledge and insights of people throughoutManitoba. The experience confirmed that the publicwas very interested in managing our water and soilresources and demonstrated the value of adopting apublic consultation process to address future land andwater issues. The revised policies were recommendedto the government by the Manitoba Round Table on1

5. FloodingTo alleviate human suffering and minimize theeconomic costs of damages caused by flooding.7. EducationTo enhance the awareness and knowledge ofManitoba's water resources.Although we have floodways, ring dykes, and zoningto protect many of our urban centres, there are stillseveral flooding-related challenges that need to beaddressed:• flash flooding below the Manitoba Escarpment andother areas of the province.• up-to-date flood-preparedness plans for communities.• reducing flood damages caused by inadequateurban drainage systems.• mitigation of damage caused by hydro-electricdevelopments.• controlling new development in flood prone areas,ie, development must be compatible with risk.Individuals, business and industry, and local governmentsare assuming a greater role than ever beforein managing and protecting our water resources. Thispolicy seeks to ensure that the information needed toguide sound water management decisions is available,concise, and user-friendly.6. DrainageTo enhance the economic viability of Manitoba'sagricultural community through the provision ofa comprehensively planned drainageinfrastructure.The focus of this policy is to maintain and upgradeexisting drainage systems with the objective of maximizingtheir benefits and minimizing their environmentalimpacts.Local authorities, industry, and people on farmsand in communities have been taking on a greaterresponsibility in the construction and maintenance ofdrainage works. Access to technical support will becritical toward ensuring that drainage works are effective,economically sound, and environmentally sustainable.3

Applying the Policies1. Water QualityOBJECTIVETo protect and enhance our aquatic ecosystems byensuring that surface water and groundwater quality isadequate for all designated uses and ecosystem needs.Policy 1.1The “Manitoba Surface Water Quality Objectives” shallbe adopted and implemented to protect water uses forManitobans.Policy 1.2Water quality shall be enhanced through the managementof water resources.Policy 1.3Water quality enhancement programs shall be designed torestore environmental quality, as well as deliver economic,cultural, and heritage benefits to Manitobans.Policy 1.4The quality of wastewater discharges shall be improvedand non-point sources of pollution decreased to achievewater quality objectives.Policy 1.5Pollution control programs shall be designed in consultationwith affected user groups and, where possible, implementedin such a manner as to cause minimum disruptionto established land and water uses.Issues Identified Through thePublic Process• monitoring, data base development,and assessment• nutrient enrichment of surfacewater• non-point sources of pollution• aquifer contamination• water quality protection to ensurefuture economic development• water quality education• pesticides, organic and toxicchemicals• industrial, mining, and municipalpoint source water pollution• feedlot impacts on water quality6

Applying the PoliciesWater QualityOverviewThe quality of Manitoba’s water is a growing publicissue. As development expands to serve an increasingpopulation and to improve our living standards,and as industrial, agricultural, recreational and chemicaltechnologies advance, so increases the potential forpollution of our water resources. Despite Manitoba’sgood record of water quality management, there areareas of the province where quality is deteriorating andothers where it is threatened. Even in areas with sufficientwater, quality can vary and significantly affect itsuse, its value as a resource, and its key role in sustainingthe ecosystem. Manitobans are particularly concernedabout the safety of our drinking water becauseof the increasing frequency with which toxic substancesare being detected in supplies in some areas.pollution, and for use in addressing problems that havebeen caused either by human practices or naturalprocesses. Comprehensive water quality monitoringnetworks must be maintained to provide the necessaryinformation for guiding development planning and forguiding solutions to water quality problems.Especially important is education, to enhance publicawareness of the causes and mechanisms of waterquality degradation, and to provide guidance on themeasures which can be adopted by all Manitobans toprotect water quality and ensure its sustainability forpresent and future generations.The characteristics of water quality are determinedby the type and extent of dissolved and suspended substancesin it, but the judgement of quality is alsodependent on the uses to which the water will be put.For example, quality criteria for drinking water arevery stringent because of the need to protect humanhealth. In Manitoba, water is tested for up to 75 substancesand checked to ensure it meets the “ManitobaSurface Water Quality Objectives.” From place toplace water contains varying amounts of such substancesdue to differences in human activity and naturalprocesses. The extent to which the substances arepresent determines the suitability of a given body ofwater for various uses.In the past, water quality has often become anissue only after problems have developed. Oncedegradation has occurred, however, correction of theproblem can be very costly and can take a long time.The reactionary approach is not acceptable. The key tosuccessful water quality management is the preventionof pollution.Clear, publicly supported surface water qualityobjectives form the starting point or the benchmarksfor protecting Manitoba’s water for its various importantuses. Also essential are adequate water qualitydata and information, for use in planning and undertakingwater quality management, for use in preventing7

Applying the PoliciesWater QualityPOLICY 1.1The “Manitoba Surface Water Quality Objectives” shall be adopted and implemented to protectwater uses for Manitobans.BackgroundThe “Manitoba Surface Water QualityObjectives” define minimum levels of quality for thelong term protection of water uses. These levels ofquality specify acceptable concentrations of variousdissolved and suspended substances, as well, theydescribe other desirable or required characteristics.The “Manitoba Surface Water Quality Objectives” aredeveloped through a consultative process involvingvarious levels of government, industries, the scientificcommunity, and the public.“Watershed Classification” allows present andfuture water uses within a watershed to be identified.A public consultation process is used to determine theunique water uses, desires of local residents, existingwater quality problems, and other issues within watersheds.Water uses in the watershed are then designated,along with “Manitoba Surface Water QualityObjectives” necessary to protect these uses.The surface water quality objectives are used as abaseline for developing the legally enforceable limitsspecified in licences issued under The EnvironmentAct. These limits are applied toward controlling pollutionfrom point source discharges. The objectives canalso be used to develop strategies to reduce pollutantloadings from non-point sources.IntentTo establish and use physical, chemical, and biologicalcriteria for defining safe or acceptable levelsof water quality for various water uses andecosystem needs.Application1. The Government of Manitoba will:• adopt and refine, through consultation with a widespectrum of professionals and scientists and withextensive public involvement, surface water qualityobjectives which describe the required chemical,physical, and biological properties of surface waterto ensure its acceptability for various uses.• similarly establish or adopt, and implement, waterquality objectives that protect groundwater for varioususes.• regularly review and revise the water quality objectivesto ensure that they reflect emerging scientificknowledge and ecological issues.• ensure that the refinement and application of thewater quality objectives are based on social, economic,environmental, and cultural considerations.• publish the water quality objectives, promote theiruse by the public, and assist the public in interpretingand applying them.• use the water quality objectives to guide planning,design, and implementation of water managementprojects and activities that affect water quality.• use the water quality objectives to assist in developinglong term water quality protection strategiesand management plans for waterbodies or entirewatersheds.• use the water quality objectives in conjunction withlicensing and other regulatory procedures, asrequired, to ensure that developments, activities, oroperations do not impair water quality for requiredwater uses.8

Applying the PoliciesWater Quality• monitor existing and future water uses and qualityof waterbodies to facilitate the application of thewater quality objectives.2. Local authorities, planners, developers, industry,and individuals can:• participate in public consultation processes set upfor establishing,refining, or applying the water qualityobjectives.• apply the water quality objectives to ensure thatlocal projects are planned, designed, and operatedto avoid impairing the quality of water for requiredwater uses.• use the water quality objectives, in conjunction withquality monitoring data, to determine the suitabilityof specific waterbodies for certain proposed uses oractivities.9

Applying the PoliciesWater QualityPOLICY 1.2Water quality shall be enhanced through the management of water resources.BackgroundWhere the existing water quality of a waterbody isnot adequate to support the desired uses, enhancementprojects can be undertaken in some cases to attain thequality needed. Projects are normally initiated bycommunity based organizations or by local government.Funding for such ventures may include privatelyraised money or funds from government agencies.Typically, management committees or boards areestablished with representation from local governments,local interests, and appropriate provincial governmentagencies. These groups define the problem,identify goals, develop remedial action plans, andguide implementation. Monitoring expertise, projectdesign, initial interpretation of data, and advice onappropriate remedial action can be provided by theprovincial government.A wide range of water quality enhancement projectscan be undertaken. Lakes and reservoirs can beaerated to reduce winterkill of fish. Algae control canbe undertaken on farm dugouts or on community watersupplies to reduce taste and odour problems. Aquaticweeds can be removed periodically from some recreationalareas and beaches in order to enhance recreationalopportunities. Watershed management planscan be publicized and better land use practices demonstratedto reduce non-point source loading of pollutantsaffecting our lakes and streams.IntentApplication1. The Government of Manitoba will:• identify, in response to local concerns and supportedby water quality and use monitoring, waterbodiesand aquifers where water quality enhancement maybe beneficial.• undertake a variety of water management activitiesand projects to enhance water quality of degradedsurface waterbodies or aquifers, such as:- aeration of lakes and reservoirs to reduce winterkillof fish,- flow and water level augmentation to improvewater quality for water supply, recreation, orenvironmental purposes.- exploration of means by which the quality andsupply of aquifers may be safely enhanced.- algae control activities on farm dugouts and communitywater sources to reduce foul tastes andodours,- periodic removal of aquatic weeds from recreationareas and beaches to improve recreationalopportunities,• promote, and regulate where necessary, land andwater management practices to reduce or eliminatewater pollution at the source.• provide financial, technical, and monitoring assistance,where appropriate, to support water qualityenhancement projects and activities by local authorities,interest groups, and individuals.To enhance the water quality of specific degradedsurface waterbodies and aquifers to achieve desirablesocial, economic, and environmental benefits.10

Applying the PoliciesWater Quality2. Local authorities, interest groups, and individualscan:• identify waterbodies and aquifers where water qualityenhancement projects or activities may be necessaryor beneficial.• obtain sound information and expertise, and anynecessary approvals from government, before initiatingwater quality enhancement projects or activities.• adopt technology and land and water managementpractices that minimize or avoid degradation ofwater quality.11

Applying the PoliciesWater QualityPOLICY 1.3Water quality enhancement programs shall be designed to restore environmental quality,as well as deliver economic, cultural, and heritage benefits to Manitobans.BackgroundWater plays an important role in the economic,cultural, spiritual, and physical values of Manitobans.Waterbodies that have suffered water quality degradationgenerally require major efforts for enhancement,rehabilitation, or restoration. When an enhancementproject is being considered, the benefits and effects ofthe proposed improvements should be assessed in amanner that fully reflects all values of the waterbody.Extensive public consultation and stakeholder participationcan assure that all relevant factors – historical,existing, and potential – are assessed, that all relevantvalues are taken into account, and that a broadrange of options and opportunities are considered.IntentTo ensure that water quality enhancement projectsreflect Manitobans’ social, cultural, and heritagevalues, in addition to achieving economic and environmentalbenefits.Application1. The Government of Manitoba will:• undertake water quality enhancement studies andstrategies that examine broad, long term social, cultural,and heritage values, in addition to economic,technical, and environmental criteria.• facilitate extensive consultation and local participationin the planning of water quality enhancementprograms.• use the basin and watershed planning processes,wherever possible, as frameworks for planning andimplementing water quality enhancement programsand projects, and as effective means of facilitatinglocal participation, understanding, and commitment.• use informational and promotional initiatives toincrease local understanding and support of waterquality enhancement programs, and to increaselocal participation in the design and implementationof those programs.2. Local authorities, industry, interest groups, andindividuals can:• participate in studies, strategies, and consultationprocesses concerning water quality enhancementprograms.• enter into partnerships to assist both in developingand in implementing water quality enhancementprograms and strategies.12

Applying the PoliciesWater Quality• communicate social, cultural, and heritage values,in addition to economic and environmental objectives,in the planning and design of water qualityenhancement programs.• participate in basin and watershed planning as aneffective means of understanding, planning, andimplementing water quality enhancement programsand projects.• use available informational and promotional materialto enhance understanding of both the causes ofwater quality degradation and the solutions to thoseproblems.13

Applying the PoliciesWater QualityPOLICY 1.4The quality of wastewater discharges shall be improved and non-point sources of pollutiondecreased to achieve water quality objectives.BackgroundPollutants which can threaten our water uses originatefrom either point or non-point sources. Mostpoint source pollutants, such as municipal and industrialwastewater discharges, can readily be collected andtreated prior to release into the environment. As well,steps can be taken to reduce and recycle the wastewatergenerated. Wastewater discharges requirelicensing under The Environment Act and can generallybe controlled and monitored for compliance.Additional actions required to reduce point sourcewater pollution include measures to upgrade some ofour waste collection and treatment facilities to meetdischarge standards, and measures to reduce the accidentalspills and illegal discharges affecting our watersystems. As well, some municipal and industrial dischargemay contain small quantities of contaminantswhich cannot be removed by any means, and whichcan build up to harmful levels. Measures are requiredto prevent those persistent or non-degradable pollutantsfrom entering our water systems.Non-point sources of pollution, which affect bothour surface waterbodies and aquifers, originate from avariety of activities and can be difficult to identify.Some examples are livestock wastes, agriculturalchemicals, and sediment from erosion. Unlike pollutionfrom point sources, contaminants from non-pointsources cannot be easily controlled. Reduction of pollutionfrom non-point sources can be achieved throughinnovative and environmentally sensitive land use andmanagement practices. Education and incentives areeffective tools for encouraging the reduction of nonpointsource pollution.IntentTo prevent or reduce the degradation of water qualitydue to human activities and practices.Application1. The Government of Manitoba will:• define acceptable water quality based on the“Manitoba Surface Water Quality Objectives”, anduse them for guiding or limiting activities that affectwater quality.• monitor waterbodies and aquifers to determinewater quality, and to identify water quality changesand trends that affect the suitability of water for varioususes.• identify sensitive areas and pollution hazard areaswhere water quality in aquifers and surface waterbodiescan be easily degraded.• use comprehensive environmental assessment andreview processes to ensure that developments, projects,and processes do not degrade water quality.• undertake a variety of initiatives directed at assistingor guiding the local governments, industry, andthe public in reducing water pollution, such as:- informational initiatives to enhance understandingof water pollution, including point source andnon-point source pollution;- promoting land and water management practicesand technology that reduces or eliminates waterpollution, and encouraging the use of non-pollutingproducts;- providing incentives to encourage the adoption ofnon-polluting technology and processes;- providing information and technical support, andworking with local governments and industry incooperative initiatives to reduce water pollution;- using licensing, enforcement and penalties, wherenecessary, to control or prevent activities, constructionpractices, and use of products that causeor contribute to water pollution;14

Applying the PoliciesWater Quality- providing easily accessible collection facilities forthe disposal or recycling of containers for pesticides,chemicals, and other environmentally hazardoussubstances; and- providing appropriate hazardous waste collectionand disposal facilities, and encouraging their use.• encourage research concerning:- sources of water pollutants and the effects of pollutantson human health and the environment;and- improved technology and management practicesdirected at reducing water pollution.• enter into agreements with the federal governmentand neighbouring provinces and states concerningmeasures to protect water quality in trans-boundarywaterbodies and aquifers.• maintain emergency response capability to deal withindustrial accidents and other unforeseen events thatpose high risks to the quality of waterbodies andaquifers.2. Local authorities can:• use the “Manitoba Surface Water QualityObjectives” for defining acceptable water qualityand for limiting or guiding activities and developmentsthat affect water quality.• acquire, use, and disseminate available informationand support informational initiatives concerningwater pollution.• ensure that their practices, as well as the productsthey use, reduce or eliminate water pollution.• work with industry, government, and individuals incooperative initiatives to reduce or eliminate waterpollution.• undertake land use planning to ensure that developmentsminimize degradation of water quality.• reduce, reuse and recycle products that would otherwisecause or contribute to water pollution, or usenon-polluting alternatives.• use water pricing techniques to encourage reductionin the generation of wastewater which may contributeto water pollution.• work with other local governments through suchmechanisms as basin, watershed, and regional planningto reduce or avoid activities and practices thatdegrade water quality.3. Industry can:• participate in basin, watershed, and regional planningas a means of ensuring that their plans, developments,and operations are compatible with qualityobjectives established for the basin, watershed, orregion.• acquire and use all necessary information and technicalexpertise in planning, designing, and constructingworks that have potential to cause pollutionof waterbodies and aquifers.• ensure that operating practices as well as developmentand usage of products are supported by extensiveresearch and testing to minimize the potentialfor water quality degradation and the associatedrisks to human health and the environment.• undertake necessary actions and plant or processmodifications to reduce or eliminate discharges,wastes, and airborne emissions that constitute eitherpoint source or non-point source water pollution.• minimize the development and use of products andthe disposal of wastes that are toxic or nonbiodegradable.• reduce the amount of wastes that have to be assimilatedby the environment, both in the manufacture ofproducts and in the production processes.15

Applying the PoliciesWater Quality• use appropriate precautions, processes, and facilitiesin the handling, transport, and containment ofhazardous wastes, and maintain an effective emergencyresponse capability to minimize the potentialrisks and effects that industrial accidents might haveon water quality.4. Individuals can:• use more environmentally benign products in theirhomes, on their fields, gardens, and lawns, in theirworkplace, and in all day-to-day activities; adoptland and water management practices which do notcause or contribute to pollution of aquifers or surfacewaterbodies.• acquire information to enhance their understandingand awareness concerning water pollutants, pollutanttransport mechanisms, the effects of water pollution,and measures to reduce water pollution.• avoid discarding toxic and other potentially hazardouswastes in sewage systems and in disposalsites from which the materials may be transported towater supplies; use the appropriate hazardous wastecollection and disposal facilities instead.• use the collection sites provided by the provincialgovernment, local governments, and industry fordisposal of containers for pesticides, chemicals, andother potentially hazardous substances.• participate in water quality protection initiatives bythe provincial government, local authorities, variousassociations, and interest groups.• use water conservation measures to reduce theamount of wastewater to be assimilated by the environment.POLICY 1.5Pollution control programs shall be designed in consultation with affected user groups and,where possible, implemented in such a manner as to cause minimum disruption to establishedland and water uses.BackgroundWater pollution control programs are most effectivewhen they are carried out cooperatively by watermanagers and water users. Reducing pollution usuallymeans that some forms of water and land use managementmust change. Programs are normally implementedwhen the benefits outweigh the costs; however,the costs must be determined not only on the economicand social factors, but also on environmentaland health factors. Careful planning with all involvedstakeholders can turn potential conflicts into situationswhere everyone benefits or, at least, where disruptionsare minimized.Intent1. To ensure that pollution control programs adequatelyaddress the needs and values of waterusers.2. To minimize the negative impacts that pollutioncontrol programs have on existing and futureland and water uses.16

Applying the PoliciesWater QualityApplication1. The Government of Manitoba will:• ensure that all water users have access to availableinformation, data, and expertise related to waterquality in their region.• use informational initiatives to enhance publicawareness of activities and practices that causedegradation of waterbodies and aquifers.• undertake promotional initiatives to enhance waterusers’ awareness of their right for protection ofwater quality and their opportunities to pursue correctiveaction.• ensure that water users have access to environmentalreview and assessment processes.• consider technical and economic constraints, andprovide reasonable technical assistance and timeframes for necessary modifications to industrialplants, works, and operations to comply with environmentalrequirements.• undertake or support informational and promotionalinitiatives to enhance the public’s awareness ofwater pollution problems, and to enable public participationin solutions to the problems.• organize local round tables and other forums tofacilitate public participation in the planning anddesign of pollution control programs.3. Industry and individuals can:• acquire available information and data to enhancetheir knowledge of water pollution problems and tofacilitate an informed input to the planning anddesign of water pollution control programs.• participate in local round tables and other forums toinform the provincial and local government on howthey may be affected by proposed pollution controlprograms.• use municipal input and a public consultativeprocess to ensure that the design of water pollutioncontrol programs considers local and regional economic,social, environmental, and health factors,technical constraints, and cultural and heritage values.2. Local authorities can:• participate in the environmental assessment andreview processes concerning projects and developmentsthat could affect water quality.• identify local economic values, impacts, and constraintsthat might affect the planning and design ofpollution control programs.17

Applying the Policies2. ConservationOBJECTIVETo conserve and manage the lakes, rivers, andwetlands of Manitoba so as to protect the ability ofthe environment to sustain life and provideenvironmental, economic, and aesthetic benefits toexisting and future generations.Policy 2.1River, lake, and shoreland habitat and the general environmental,subsistence, and economic values of rivers,lakes, and wetlands shall, where possible, be conserved.Policy 2.2Soil conservation, wetland retention, and the applicationof appropriate land use practices shall be promoted primarilyby the provision of incentives, but with regulationwhere required, not only as essential elements of waterconservation and protection, but also as key measures toreduce siltation impacts, downstream flooding, and nonpointsource pollution.Policy 2.3Those waterways whose cultural, natural and/or recreationalvalues are of provincial or national significanceshall be given special consideration.Policy 2.4Water retention, and control and timing of runoff, shall bepromoted as part of watershed management.Issues Identified through thePublic Process• degradation and destruction ofaquatic ecosystems• intrinsic and aesthetic values ofwaterbodies, wetlands, and shorelands• conservation incentives and promotion,supported by regulation• government must work withlandowners at the grass rootslevel• different parts of the provincerequire different conservationactivities• all Manitobans must participate inconservation• action must span the entire watershed18

Applying the PoliciesConservationOverviewManitoba’s lakes, streams, wetlands, and shorelandspossess natural and human values and provideinnumerable opportunities for recreation and tourism,aesthetic enjoyment, and cultural and heritage appreciation.Some wetlands are important groundwaterrecharge areas while many provide natural storage forflood waters. All types and sizes of waterbodies providehabitat for a wide range of fish, wildlife, and otherlife-forms and provide for natural water purification.Waterbodies support commercial and sport fishing,hunting, trapping, and tourism, thus contributing millionsof dollars annually to our economy. These valuesand opportunities need to be sustained and enhanced.Water conservation policies to protect ecological,economic, and aesthetic values of our waterbodies recognizethat soil and water conservation are inseparablylinked. Soil erosion contributes sediment and associatedcontaminants into waterbodies which affects wateruses. Water erosion, on the other hand, destroys landvalues, disrupts transportation systems, and scars thelandscape. Soil erosion and deposition are dimensionsof the same process. A basin or watershed approach tothe management and conservation of water and relatedresources is essential for sustainable development.Some waterbodies merit special efforts due to theirunique characteristics. For example, Clearwater Lake,the Seal River, and Delta Marsh are known nationallyand even internationally for their environmental, economic,and aesthetic values.Public input into the development of the waterpolicies demonstrated that Manitobans from all walksof life are becoming more aware of the roles and interdependenciesof water and other natural resources inthe environment. Governments, industries, and thepublic will have to work together to ensure that humanuse and enjoyment of water, land, and all relatedresources do not jeopardize their present and futurevalues.19

Applying the PoliciesConservationPOLICY 2.1River, lake, and shoreland habitat and the general environmental, subsistence, and economicvalues of rivers, lakes and wetlands shall, where possible, be conserved.BackgroundFrom the U.S. border to the Hudson Bay, anastonishing array of large and small lakes, rivers,streams, wetlands, and the various types of associatedshorelands are found in abundance. Equally diverse isthe array of plants, birds, mammals, amphibians, fish,and other flora and fauna living in, on, and near theseaquatic habitats.The values of aquatic resources are many: as anintegral element of a healthy eco-system; as vital lifesupport for citizens subsisting only with the continuedavailability of natural resources; as economic returnfrom commercial resource harvesting, for example,fishing, trapping, and wild rice; as a setting for outdoorrecreation, tourism, and cottaging; as groundwaterrecharge areas and stream flow management.Many tools are available for the conservation ofaquatic resources, including education, financialincentives, and regulation. The effectiveness andappropriateness of all management options need to befully explored for each situation.Intent1. To conserve, protect, or enhance aquatic habitatfor present and future generations.2. To protect lakes, rivers, shorelands, and wetlandsfor their environmental, aesthetic, subsistence,and economic values.Application1. The Government of Manitoba will:• identify and monitor aquatic habitat and other ecologicand socio-economic values of lakes, rivers,shorelands, and wetlands.• undertake promotional and educational initiativesto enhance public awareness of the numerous ecologicand socio-economic values of lakes, rivers,shorelands, and wetlands.• promote the inclusion of conservation education inthe sustainable development education programs.• review, and modify if necessary, provincial land usepolicies to ensure that they support conservation.• protect ecologically significant Crown Land, andwater-related ecosystems on Crown Land by eitherwithholding these lands from sale or lease, or placingspecial conditions or restrictions on their use.• ensure that provincial resource management programsand initiatives support conservation.• incorporate the conservation ethic intobasin/watershed/local plans.• ensure that integrated planning approaches areused in resource management projects, whereby allpotential impacts and opportunities affecting thewater-related ecosystem are considered.• ensure that water management project designs andconstruction procedures minimize degradation ofaquatic ecosystems.20

Applying the PoliciesConservation• provide technical assistance and economic incentivesto local authorities, organizations, and farmersto develop and implement soil, water, and habitatconservation projects and to incorporate conservationmeasures into community projects and farmmanagement.• encourage local governments to adopt conservationcriteria in local development plans and developmentrestrictions.• explore and promote technologies and land useswhich can replace those causing degradation ofaquatic ecosystems.• guide land and water use practices, through promotionalinitiatives, regulation, and enforcement whereappropriate, to support conservation.• enter into agreements with the federal government,local governments, conservation organizations, andprivate individuals concerning programs, projects,and initiatives that support conservation.• encourage federal agencies to modify federal policiesand systems where those policies and systemsdo not support conservation.• consult with local authorities, business, industry,and the public, where appropriate, to facilitate amutual exchange and understanding of views andvalues related to conservation.• ensure that local views and values related to conservationare recognized in the development and implementationof government policies, programs, projects,and initiatives.2. Local authorities can:• participate in basin/watershed planning, and developlocal plans which are compatible with the guidelinesand objectives established in the basin/watershedplans.• ensure that their projects and operations incorporatemeasures to minimize degradation of aquaticecosystems.• obtain technical assistance and advice from governmentagencies and qualified consultants and specialists,where necessary, in designing and constructingprojects.• adopt conservation criteria in development restrictionsand in the review and approval of local developmentplans and proposals.• participate with the provincial government in promotionaland informational initiatives to enhancelocal public awareness of the ecologic and socioeconomicvalues of lakes, rivers, shorelands, andwetlands.• participate with senior governments and local conservationagencies and interest groups in programs,projects, initiatives, and incentives that support conservation.• ensure that taxation of land clearly portrays thereduced assessed values which are applied to undevelopedmarginal land, and which may be applied toland with local development restrictions which supportconservation.3. Business and industry can:• participate in basin, watershed, and local planning.• enhance their understanding and awareness of thebroader ecologic and socio-economic values oflakes, rivers, shorelands, and wetlands.• adopt appropriate land and water use practices tominimize degradation of aquatic ecosystems.• participate in consultations with local authoritiesand government to exchange views and values relatedto conservation, and to enable these views andvalues to be recognized in government programsand local initiatives.21

Applying the PoliciesConservationPOLICY 2.2Soil conservation, wetland retention, and the application of appropriate land use practicesshall be promoted primarily by the provision of incentives, but with regulation where required,not only as essential elements of water conservation and protection, but also as key measures toreduce siltation impacts, downstream flooding, and non-point source pollution.BackgroundOur social and economic system generallyrewards individuals according to the worth of theirlabours and skills. Businesses succeed or fail on theirabilities to generate profits. In this system, marketsdo not always function properly to provide the goodsand services demanded by society from its human,capital, and natural resources. As well, success isoften achieved at the sacrifice of tomorrow’sresources. Accordingly, the provision of appropriateincentives can be a powerful tool for water conservationand protection.Because farmers’ actions directly affect soils,wetlands, and land use, many conservation andresource programs need to be directed primarily at theagricultural community, as well as other majorresource users. Incentives are needed to encouragethe farming community to maintain or adopt moreenvironmentally benign management practices.However, there are situations where public educationand incentives cannot be totally relied upon. Inthese cases government regulations for the commongood are necessary. Experience has shown that incentivesand regulations work best when local authoritiesare consulted in the development of the programs andwhen local authorities play a large role in identifyingand delivering program details.IntentTo achieve conservation and associated objectivesthrough incentives and regulation.Application1. The Government of Manitoba will:• enter into agreements with the federal governmentand local authorities, conservation organizations,and private individuals concerning programs, projects,and initiatives which advance local interestswhile achieving conservation objectives.• provide technical assistance and economic incentivesto local authorities, organizations, and farmersto develop soil, water, and habitat conservationprojects and to incorporate conservation measuresinto community projects and farm management.• develop and implement programs and projects toreduce or prevent waterfowl and other wildlifedamages to crops and to provide compensation forsuch damage.• guide land development to achieve conservationobjectives through application of the “ProvincialLand Use Policies.”• protect ecologically significant Crown Land andwater related ecosystems on Crown Land by eitherwithholding these lands from sale or lease, or byplacing special conditions or restrictions on the useof these lands.• review and modify government legislation and policyto ensure that they support conservation.• regulate activities and enforce compliance, wherenecessary, to ensure that the public’s general conservationinterests are not undermined.22

Applying the PoliciesConservation• undertake promotional initiatives to enhance publicawareness of conservation incentive programs, aswell as relevant legislation and regulation.2. Local governments and planning bodies can:• participate with the provincial government and localauthorities in agreements, programs, and initiativesthat support conservation.• incorporate the conservation ethic in day-to-dayactivities.• assume a lead role in promoting and coordinatinggrass roots involvement in conservation projects,and ensuring local awareness of conservation incentiveprograms.• review local by-laws and development regulations,and modify or adopt new by-laws and regulations ifnecessary, to ensure that the local development supportsthe conservation objective.• guide land development to support conservationobjectives through conservation district or planningdistrict management plans.• participate with senior governments, conservationorganizations, and individuals in agreements, programs,projects, and initiatives which advance localinterests while achieving conservation objectives.• regulate activities and undertake enforcement tosupport conservation, in accordance with theresponsibility and jurisdiction provided in legislation.3. Business, industry, conservation groups, and privateindividuals can:• ensure that they are fully aware of incentives andregulations that promote conservation.• participate in consultations with government andlocal authorities to develop conservation incentives.• use the technical assistance and economic incentivesthat are available to achieve conservation objectives.23

Applying the PoliciesConservationPOLICY 2.3Those waterways whose cultural, natural, and/or recreational values are of provincial ornational significance shall be given special consideration.BackgroundThere are many waterbodies in Manitoba whichhave significant values due to their historic, cultural,ecological, recreational, locational, and other uniquecharacteristics. The diversity of these values requiresconservation and development programs that mustoften be tailored to the specific features of each situation.Heritage programs are applicable to many of thewaterways and waterbodies that require special consideration.Preservation of river systems that are stillessentially in a natural state, such as the Bloodveinand Seal Rivers, can be accomplished by designationunder the Canada-Manitoba Heritage River Program.These rivers and their basins served historically astransportation routes and harvest areas in the fur trade,and continue to be valuable for ecological and recreationalpurposes. Designation as Heritage Marshesprovides for the conservation of major marshes. TheOak-Hammock Marsh near Manitoba’s largest city,Winnipeg, has special value due to its urban proximity.A structural development program was implementedto restore the marsh functions.Waterbodies having rare and exceptional character,such as Clearwater Lake, require protection programsto maintain their intrinsic ecological values.Other waterbodies with important cultural and naturalvalues are certain reaches of major rivers such as theRed and Assiniboine rivers in and near Winnipeg.Both before and after settlement these have served asmajor meeting and settlement places due to their locationand ability to foster human life.IntentTo conserve, where feasible, waterbodies or waterbodyfeatures whose intrinsic values are exceptionalor are of provincial or national significance.Application1. The Government of Manitoba will:• support national and international programs thatdesignate and protect special heritage values ofwaterways.• ensure that waterways with exceptional heritagevalues are appropriately identified and managed.• undertake promotional initiatives to enhance publicawareness of and respect for waterbodies that havespecial heritage designation.• provide incentives and regulate water and land usesand development to ensure that the intrinsic valuesof heritage waterbodies are conserved.• initiate dialogue with local authorities and aboriginaland cultural groups to identify exceptional natural,cultural, and historical values of waterwaysworthy of consideration for special protective status.• encourage and support conservation and revitalizationinitiatives for important urban waterways.• provide opportunity for general public and privatesector participation in the development of managementplans for proposed heritage waterbodies andimportant urban waterbodies.• undertake or support programs to restore aquaticenvironments and special cultural, natural, historical,or recreational features of designated heritagewaterways, and to make those waterways accessibleto Manitobans.• ensure that Crown Land sales and lease restrictionssupport the protection of designated heritagewaterways.24

Applying the PoliciesConservation• review legislation, and modify it if necessary, toensure that it supports the protection of designatedheritage waterbodies and the conservation of otherwaterbodies and waterbody features that haveexceptional intrinsic value.• incorporate the cultural, natural, historical, andrecreation values of waterbodies in environmentalimpact assessments.2. Local authorities can:• be fully aware of national and international programsthat designate and protect waterways whoseintrinsic values are of provincial or national significance.• be aware of any local waterbodies that have beendesignated as heritage waterbodies.3. Business, industry, and private individuals can:• participate with the provincial government and localauthorities in developing management plans whichsupport the protection or enhancement of designatedheritage waterbodies and other important waterbodies.• ensure that their land and water uses support theprotection of designated heritage waterbodies andother local waterbodies or waterbody features thathave exceptional intrinsic value.• communicate their special historical, cultural, recreational,or natural values inherent in local waterbodiesworth consideration for designation for protectionas heritage waterbodies.• respect the variety of intrinsic values of waterbodiesheld by Manitobans.• participate in provincial, national, and internationalprograms that designate and protect the heritagevalues of waterbodies.• support and participate in comprehensive and interjurisdictionalmanagement and revitalization effortsfor important waterways.• identify local waterbodies or waterbody featuresthat have exceptional intrinsic values worth consideringfor special protection, preservation, orenhancement and development for the local community.• ensure that local planning and development restrictionsconsider the protection, enhancement, anddevelopment of designated heritage waterbodies andthe conservation of other waterbodies or waterbodyfeatures that have exceptional intrinsic value.• ensure that their programs and operations supportthe protection of designated heritage waterbodiesand the conservation of other waterbodies or waterbodyfeatures that have exceptional intrinsic value.25

Applying the PoliciesConservationPOLICY 2.4Water retention, and control and timing of runoff, shall be promoted as part ofwatershed management.BackgroundWatershed management should consider the fullrange of potential activities for resolving issues pertainingto water or for meeting water-related needs.In many instances a solution can be found by dealingwith water at or near the location where it falls to theground in the form of rain or snow.One technique is to maintain vegetative cover, forexample, by retaining standing stubble to trap snowon fields, or by growing forages and trees on hillsides.Another is to retain small wetlands which collectivelycan store large amounts of water for groundwaterrecharge, wildlife habitat, and the moderation ofstream flows. If storm or snowmelt runoff can beboth reduced and retarded, downstream channels canbetter accommodate the remaining flows without theflooding of adjacent lands.Excessive volumes and velocities of flowingwater often lead to erosion which can take manydestructive forms. Land productivity is reduced bythe loss of topsoil. Fields can be ruined through theformation of large gullies, and roadways can bedestroyed. Sediment from the erosion process maycause siltation of drainage channels and reservoirs.Silt in streams and lakes can degrade or destroy fishspawning habitat and food supplies.Intent1. To retain water, where appropriate, for watersupply, soil moisture replenishment, groundwaterrecharge, and wetland habitat.2. To moderate flows, where appropriate, toreduce erosion and deposition and their negativeeffects on aquatic ecosystems.Application1. The Government of Manitoba will:• promote the retention of runoff water, where appropriate,for water supply, soil moisture replenishment,groundwater recharge, and wetland habitat.• promote water retention, and control and timing ofrunoff as measures to adopt, where appropriate, toreduce peak flows and flow velocities, prolongflows, reduce erosion and deposition, and protector enhance aquatic habitat.• support the retention of wetlands, through promotionalinitiatives, incentives, and regulation whereappropriate, as a highly effective mechanism tostore and slow runoff while accomplishing numerousother conservation objectives.• provide or support incentives to encourage use ofprivately owned marginal lands for water retentionand wetland habitat, and to encourage conversionof developed marginal agricultural lands into naturalcover, water retention, and wetland habitatareas.• promote retention of natural vegetation cover toslow runoff and reduce erosion in areas of steeptopography.• promote limiting drainage development andreduced drainage conveyance capacities in headwaterareas as effective measures to reduce peakflows.• ensure that planning and design of provincialdrainage works and those of local governments andconservation districts support water retention andrunoff moderation, where appropriate.26

Applying the PoliciesConservation• provide technical assistance and advice to localgovernments, conservation districts, conservationgroups, and individuals concerning practicaldrainage and water retention measures to supportconservation.• protect natural water retention areas on CrownLand, and control inappropriate drainage of ecologicallysensitive areas on Crown Land by withholdingthese lands from sale or lease, or by placing specialrestrictions or conditions on their use.• adopt water retention, flow moderation, erosioncontrol, and associated conservation benefits as criteriain basin/ watershed/local planning.2. Local governments and conservation districtscan:• ensure that local planning and development restrictionssupport overall watershed conservation.3. Landowners can:• adopt practical measures, where appropriate, tostore or delay runoff for water supply purposes, soilmoisture replenishment, and groundwater recharge.• retain natural cover and use appropriate land managementpractices to slow runoff and prevent erosionin areas of steep topography.• obtain available technical assistance from governmentdepartments or other qualified sources onpractical drainage and water control measures toslow and store runoff, attenuate flows, and achieveassociated conservation objectives.• participate with senior governments, local authorities,and conservation organizations in agreements,programs, and initiatives which provide incentivesand technical support to achieve conservationobjectives.• plan and design drainage and water retention worksto achieve conservation objectives.• consult government departments or qualified consultantsfor technical assistance and advice, whereappropriate, on practical means to retain runoff,attenuate flows, and achieve associated conservationobjectives.• participate with the provincial government and thefederal government, conservation organizations, andindividuals in agreements, programs, promotionalinitiatives, and incentives to achieve conservationobjectives.• participate with the provincial government in basinand watershed planning, and adopt appropriatemeasures in local plans and projects to supportwater retention, flow moderation, erosion control ,and associated benefits.27

Applying the Policies3. Use & AllocationOBJECTIVETo ensure the long term sustainability of theprovince’s surface water and groundwater for thebenefit of all Manitobans.Policy 3.1Economic well being and sustainability shall be the goalin the allocation and utilization of Manitoba’s waterresources for consumptive and instream uses.Policy 3.2Water management priorities shall be determined througha basin planning process that takes into account the protectionof potable water supplies, environmental integrity,existing commitments, and economic requirements.Policy 3.3Groundwater development and utilization shall be managedso that the long term sustainability of aquifers isachieved and existing uses are not negatively impacted.Policy 3.4Surface water shall be managed to ensure sustainability ofsupplies.Policy 3.5Transfer of untreated water across the Continental Divide(to or from the Hudson Bay drainage area) shall beopposed. Transfers within the Hudson Bay drainage areashall be minimized and only considered after a completeassessment of the environmental, social, and economicimpacts on the donor and receiving basins.Issues Identified Through thePublic Process• allocation priorities guided bylocal input• identify sustainable levels of wateruse• enforcement of the Water RightsAct• impact of high volume water useson limited water supplies• cautious approach to interbasinwater transfers• environmental assessments forwater development projects• water allocation with allowancesfor future priority water uses - anuncertain future• monitoring groundwater withdrawalsand availability28

Applying the PoliciesUse & AllocationOverviewWater is essential for life. We depend on water notonly to maintain our physical well being, but also toenhance or maintain our lifestyle. We use water fordrinking, cleansing, cooking, cooling, heating, growingfood, generating electricity, recreation, waste assimilation,and many other purposes. Water is also essentialfor fish and wildlife habitat.Taking all household uses into account,Manitobans, in 1990, used about 450 litres of water perperson per day on the average. This is about 40 percentof our total water use, which includes municipal,rural, agricultural, and industrial uses. Manitobansobtain about 80 percent of their water supplies fromsurface sources and the remaining 20 percent fromgroundwater wells.While Manitoba has an abundance of fresh water,good quality water is not always available where andwhen it is needed, and in the amounts it is needed. Insome areas, water use is approaching the rate of supply,and in other areas, water shortages already exist.priority, followed in order by municipal, agricultural,industrial, irrigation, and other uses. The issuance of awater rights licence establishes the legal right to use aprescribed amount of water over a specified time.Water allocation decisions must be made on arational basis and in a consistent, fair, and equitablemanner. Such decisions could be enhanced throughthe application of an integrated basin planningapproach, whereby the geographic unit for water planningand decision making is the watershed or basin.There must be more local involvement in decisionmaking. Decisions must ensure that the basin suppliesare sustained, that all existing and potential uses ofwater within the basin are considered, and that theenvironmental and economic consequences of variouswater management options are taken into account.As living standards and economic development inthe province are ever increasing, so also is the demandfor water. More communities are installing water supplyand sewerage systems, and industrial and agriculturaldemands continue to grow. Water use has beenincreasing at a rate of about five percent per year.Some important aquifers and larger streams in southernManitoba are now either fully allocated or nearlyfully allocated. User conflicts are becoming more common.Water must be carefully allocated to ensure thatavailable supplies are used in the best possible manner,the ecosystem is supported, and withdrawals do notexceed the rate at which the supplies are naturallyreplenished.The provincial government, through the waterrights licensing system, has the responsibility for allocatingthe use of water resources within the province.The water rights licensing system operates under thelegal authority of the Water Rights Act. The WaterRights Act establishes the priorities of allocating ourwater resource. Domestic usage is given the highest29

Applying the PoliciesUse & AllocationPOLICY 3.1Economic well being and sustainability shall be the goal in the allocation and utilization ofManitoba’s water resources for consumptive and instream uses.BackgroundManitoba’s water resources are quite variable, inquantity and quality, geographically and temporally.Many situations arise whereby the consumptive andinstream water uses and water demands approach orexceed the waterbodies’ or aquifers’ rate of supply.These competing and often conflicting demands forwater have been increasing over time with increasingdevelopment, and have been particularly evident duringperiods of drought. Manitobans are increasinglybeing forced to decide how these scarce resourceswould best be allocated to maximize economic wellbeing and ecosystem needs, while at the same timeensuring that the resource is sustained for the future.Under the Water Rights Act the responsibility forallocating and monitoring water for consumptive andinstream uses rests with the provincial government.In allocating water, the provincial government mustnot only ensure that the rate of use does not exceedthe natural recovery rate of the supply, but also mustensure that certain higher priority uses are given preferentialconsideration. The water rights licensing systemestablishes priorities for consumptive water uses,taking into account social, economic, and environmentalobjectives which would be supported by alternativewater uses.Under the water rights licensing system, domesticuse is the highest priority use. Domestic use meanswater obtained from a source other than a municipalor community distribution system, at a rate of notmore than 25,000 litres per day, for household andsanitary purposes, for the watering of lawns and gardens,and for the watering of livestock and poultry.Following domestic use, the order of priorities ismunicipal, agricultural, industrial, and irrigation. Theprovincial government recognizes that surface wateralso has important instream uses such as maintenanceof natural ecosystems, recreation, waste assimilation,and hydro-electric development.In practice, the priority between water licences isbased on “first in time - first in right”. The water allocationpriorities don’t normally become a factorunless two or more applications for a licence are filedon the same day and the total demands of the applicantsexceed the waterbody’s available supplies. Aswell, water allocation priorities may come into play inreserving water for priority future consumptive usesand instream uses, or for rescinding an existing use infavour of a higher priority use.Allocation decisions must be supported by extensiveinformation on both the supply and use of water.This requires monitoring both surface water andgroundwater use, availability, and quality.Mechanisms must be implemented to coordinate localinput, so that allocation decisions consider localobjectives and priorities.Intent1. To manage water usage to meet basic environmentaland human needs and maintain or enhancequality of life.2. To manage water usage to realize developmentopportunities while protecting the environmentand sustaining the supply.Application1. The Government of Manitoba will:• facilitate the identification and promotion of economicand environmental objectives that can beachieved through water use.30

Applying the PoliciesUse & Allocation• implement specific projects and programs to achievethese objectives.• facilitate the identification of natural functions thatextractive and instream uses must respect andensure.• ensure that water needed for ecosystem functions isnot allocated for uses that would threaten environmentalsustainability.2. Local authorities, industry, landowners, and thegeneral public can:• participate with the provincial government in establishingeconomic and environmental objectives to beachieved through water use.• adopt appropriate land and water managementpractices that support the conservation and protectionof water.• facilitate resolution of conflicting priorities of waterusers through coordination of municipal input andpublic participation in water management decisions.• ensure effective legislation is in place and is usedappropriately to guide water use and allocation.• monitor water supplies and uses and undertakeenforcement, as necessary, to support use and allocationdecisions.• undertake water demand studies to project futurepriority needs for water and water use growth.• place reservations on water, where appropriate, toensure sufficient quantities are available for projectedpriority future needs and important instream usesas determined in demand studies.• promote and apply water conservation measures,particularly in water short areas, to control thegrowth of water use.• work cooperatively with neighbouring states andprovinces in developing and implementing transboundarywater management agreements to ensurethat Manitoba receives its fair share of water and toensure that Manitoba’s water-related economic andenvironmental interests are protected or enhanced.31

Applying the PoliciesUse & AllocationPOLICY 3.2Water management priorities shall be determined through a basin planning process that takesinto account the protection of potable water supplies, environmental integrity, existingcommitments, and economic requirements.BackgroundA river basin is a large unit of land which encompassesthe entire surface drainage area of a major riveror lake at its outlet. The river basin includes thedrainage areas of all of the smaller tributary rivers andstreams that flow into the major river or lake. Most ofManitoba’s basins are shared with neighbouringprovinces, states, or territories. The most familiarriver basins are the Red River Basin, the AssiniboineRiver Basin, the Lake Manitoba Basin, the LakeWinnipeg Basin, and the Saskatchewan River Basin.A watershed is a smaller unit of land whichencompasses the surface drainage area of one or moreof the smaller tributaries of the larger river basin. Anaquifer is a groundwater reservoir of varying size.Aquifers obtain their water from precipitation and surfacewater that seeps into the ground.Any activity that changes the water regime in anypart of a river basin or watershed will affect the waterregime and related resources along lower reaches ofthe river basin or watershed and in underlyingaquifers. Accordingly, water use and allocation decisionsshould ideally be made within the framework ofintegrated basin, watershed, and aquifer plans. Suchplans would consider a number of factors within thebasin or watershed, for example: existing and futureuses of water; the soils, topographic, geologic, andother physiographic characteristics; the elements ofwater supply, quality, and flow; the linkages betweensurface water and groundwater; land use; pollutionhazard areas and other environmental sensitivities;and other resource opportunities and impacts, includingenvironmental impacts.level being local planning. Basin planning wouldestablish broad water and other resource managementpolicies, objectives, and guidelines within the largeriver basin. Watershed and aquifer planning wouldestablish more specific policies, objectives, and guidelinesbased on more localized characteristics, land andwater activities, and on economic and environmentalfactors affecting the watersheds and aquifers. Localplans would be developed for implementation by localjurisdictions and would be in accordance with thepolicies, objectives, and guidelines established in thebasin, watershed, and aquifer plans. Watershed andaquifer plans would be of greatest relevance to wateruse and allocation decisions. By its nature, the basinplanning process normally spans a period of manyyears.All three levels of planning require public participation,with the greatest public involvement being inthe development of local plans. The river basin planningprocess with public involvement is seen as a veryimportant tool for allocating the water resource rationallywhile promoting environmentally and economicallysound land and water management.IntentTo ensure that water management priorities aredetermined on a watershed-wide basis rather thanonly through site-specific or single purpose planning.The river basin planning process, in its entirety,would encompass three levels of planning, with thebroadest level being basin planning, the second levelbeing watershed and aquifer planning, and the third32

Applying the PoliciesUse & AllocationApplication1. The Government of Manitoba will:• use the river basin, watershed, and aquifer planningprocesses to guide the practical application of thewater use and allocation priorities established in theWater Rights Act.• establish and maintain effective programs and proceduresto monitor water quality, water availabilityand use, and other environmental indicators.• undertake appropriate incentives, promotion andenforcement to support the guidelines and prioritiesestablished through the river basin and watershedplanning processes.2. Local authorities can:• participate with the provincial government in developingbasin, watershed, and aquifer plans.• incorporate the objectives and guidelines of thebasin, watershed, and aquifer plans into local plansand activities.3. Landowners, industry, and the local public can:• participate with the provincial government and localauthorities in the basin, watershed, aquifer, andlocal planning processes.• ensure that their land and water management activitiessupport the priorities and guidelines establishedin the basin, watershed, aquifer, and local planningprocesses.33

Applying the PoliciesUse & AllocationPOLICY 3.3Groundwater development and utilization shall be managed so that the long term sustainabilityof aquifers is achieved and existing uses are not negatively impacted.BackgroundAbout 25 percent of all Manitobans use groundwateras their primary source of domestic water supply.Groundwater is also important for various industrialuses, irrigation, and for agricultural uses such asstock watering. In addition to direct human uses,groundwater provides substantial natural benefits suchas replenishing streamflow and water supplies to wetlands,lakes, and other waterbodies.Not all parts of the province have an adequatesupply of good quality groundwater. In some areasthe supplies are poor, due either to quality or quantitylimitations. In addition to natural limitations, the valuesof our groundwater resources can be seriouslyaffected by overdraft and by contamination, bothcaused by human activities.Overdrafting occurs when water is drawn out ofan aquifer faster than nature can replenish it. Themost obvious problem is the effect that overdraft hason critical water supplies and priority water uses.Overdraft can also cause serious quality-related problems,such as saltwater intrusion or shifting of thefreshwater-saltwater boundary.Contamination occurs when undesirable substancesenter our groundwater system. Contaminationcan render groundwater unsuitable for various usesand can adversely affect water quality in wetlands,streams, and lakes into which groundwater discharges.Typical point sources of contamination include faultyseptic systems, chemical and petroleum leaks andspills, livestock feedlots, leaking sewer lines, andmunicipal landfills. Familiar non-point or diffusesource contaminants include fertilizers and pesticides.The incidence of aquifer contamination is increasingas development increases and as the number and volumeof toxic substances used by society increase.Because groundwater contamination is so difficultand costly to clean up, and because it takes such along time before the affected aquifer can be usedagain, prevention is the most practical solution.Regulation alone cannot prevent groundwater contamination;the most important tools are education andadequate information.Intent1. To ensure the sustained quality and quantity ofwater in aquifers to meet the needs of present andfuture generations.2. To ensure that proposed groundwater uses tonot negatively affect existing and potential higherpriority uses.Application1. The Government of Manitoba will:• establish water quality objectives for all groundwateruses and apply these objectives to specificaquifers.• maintain a comprehensive aquifer data base.• evaluate aquifers to define their location anddimensions, water table, flow dynamics, waterquality, yield, pollution hazard areas, and interrelationshipswith other aquifers, wetlands, andstreamflow.34

Applying the PoliciesUse & Allocation• monitor changes in aquifer level and groundwaterquality.• monitor and regulate groundwater use:- to ensure that withdrawals do not exceed the sustainableyield of the aquifer, and- to support aquifer management guidelines andpriorities established through the basin, watershed,and aquifer planning processes.• undertake appropriate incentives, promotion andregulation to support groundwater allocation decisionsand the protection and wise use of groundwater.• protect aquifer quality by guiding and regulatingland use activities in sensitive recharge areas andpollution hazard areas.• protect aquifers by promotional, informational, andregulatory initiatives to guide drilling contractors inwell design and construction, and to guide landdevelopers in planning groundwater development.• support research and enhance public awarenessconcerning the effects of non-point source pollutionon groundwater quality and human health.• promote, plan, and control local development tosupport the protection of groundwater quality andthe sustainable yield of aquifers.• incorporate appropriate pricing systems for waterfrom municipal or community groundwater suppliesto encourage wise use and conservation of water.3. Landowners, corporations, industry, and allother groundwater consumers can:• ensure that well construction is in accordance withstandards and guidelines provided in legislation andas specified by provincial authorities.• ensure that development is undertaken in accordancewith legislation and the guidelines developedby provincial and local authorities.• adopt appropriate land and water managementpractices to protect the integrity of aquifers.• adopt appropriate water conservation measures toensure that groundwater withdrawals do not exceedthe recharge capability of aquifers.• explore and promote suitable alternative farm managementtechnology and land use practices whereexisting farming technology and practices may harmgroundwater quality.• promote conservation of groundwater, through informationaland water pricing initiatives, particularlyin areas where the growth in the rate of use threatensto exceed the sustainable yield of aquifers.2. Local authorities can:• maintain effective liaison with the provincial governmentto ensure that aquifer conditions and developmentconstraints and guidelines are adequatelyunderstood.35

Applying the PoliciesUse & AllocationPOLICY 3.4Surface water shall be managed to ensure sustainability of supplies.BackgroundApproximately 80 percent of Manitoba’s watersupplies are obtained from surface sources. A significantproportion of these water supplies – that used byresidents, businesses, and industries of the City ofWinnipeg – is obtained from Shoal Lake. The watersupplies for the remaining surface water uses outsideWinnipeg are obtained from a variety of smallersources including lakes, rivers, and streams of smallersizes. These surface water sources vary considerablyin quality, quantity, and dependability.One of the main limitations affecting surfacewater supply capability is the intermittent nature ofstreamflow. Flows vary from short periods ofextreme runoff or flood flows to long periods of moderate,low, or zero flows. Generally, the larger watershedsproduce the more dependable flows and watersupplies, while the small steeper watersheds generatethe more intermittent flows and less dependable watersupplies. In some circumstances, water supply capabilityalong intermittent streams is enhanced by naturalor constructed water storage reservoirs.On streams where flows are very intermittent andwhere storage opportunities are few, water use planningand allocation decisions become difficult andcomplicated, and water use conflicts are common.Demands for water often approach or exceed the supplycapability of the waterbody. Flow requirementsneeded to support the aquatic ecosystem and otherinstream uses are often overlooked or compromised.The value and sustainability of surface water suppliesare also greatly affected by water quality. Inaddition to the many natural factors which affect quality,our surface sources can be contaminated ordegraded by human activities. Domestic sewage, sedimentfrom field erosion, municipal and industrialwastes, animal wastes, fertilizers, pesticides, leachatefrom landfill sites, petroleum products, and acid rainare some of the many examples of pollutants thatenter surface waterbodies as a result of human activities.Waterbodies can purify themselves biologically,but only to a degree. There is a point at which thenatural cleansing processes can no longer cope.Pollution can destroy aquatic life and diminish its productiveability. It can diminish the aesthetic quality oflakes and rivers, and make water unsuitable for drinking,recreation, agriculture, or industry. Water pollutioncan ultimately affect human health and wellbeing. Measures must be adopted to minimize thedegradation of our surface water supplies by humanactivities.Intent1. To ensure the sustained quality and quantity ofsurface water to meet the needs of present andfuture generations.2. To ensure that proposed surface water uses donot negatively affect existing or potential higherpriority uses.Application1. The Government of Manitoba will:• ensure that water storage dams and reservoirs aredeveloped and operated to maximize the use of surfacewater supplies.• explore, and implement where practical, economicallyand environmentally sound water retentionand flow augmentation projects to improve the supplyof water.36

Applying the PoliciesUse & Allocation• develop standards, guidelines, and objectives todefine acceptable water quality for all uses.• monitor flow, volume, and water quality in surfacewater sources and maintain a comprehensive surfacewater data base.• evaluate surface water sources to define their flowregimes, water quality, and suitability for water supplyand use.• allocate water from surface sources and regulateuse in accordance with the capacity and quality limitationsof the waterbody, and in support of theguidelines and priorities established through basinplanning processes.3. Landowners, corporations, industry, and allother surface water users can:• ensure that development is undertaken in accordancewith legislation and the guidelines developedby provincial and local authorities.• ensure that land and water uses and other activitiessupport the protection and sustainability of surfacewater sources.• adopt appropriate water conservation measures toensure the availability of sufficient surface water.• apply land use planning, and regulation where necessary,to guide land and water use and other activitiesthat can affect water quality.• undertake promotional, informational, and technicalsupport initiatives concerning measures to protectsurface water supplies.• promote water conservation and explore measures,such as demand management, that support conservationof water.2. Local authorities can:• maintain effective liaison with provincial authoritiesto ensure that surface water supply conditions anddevelopment constraints and guidelines related towater and use supply are clearly understood.• promote, plan, and control local development inaccordance with the supply limitations and qualityobjectives determined for local surface watersources.• incorporate appropriate pricing for water frommunicipal or community systems to encourage thewise use and conservation of water.37

Applying the PoliciesUse & AllocationPOLICY 3.5Transfer of untreated water across the Continental Divide(to or from the Hudson Bay drainage area) shall be opposed. Transfers within the Hudson Baydrainage area shall be minimized and only considered after a complete assessment of theenvironmental, social, and economic impacts on the donor and receiving basins.BackgroundThe Hudson Bay drainage basin, an area of about3.9 million square kilometres, comprises 23 majorriver basins of which the Nelson River basin is thelargest - about one quarter of the Hudson Bay basinarea. The Nelson River basin, in turn, comprises foursmaller basins - the Red River, Saskatchewan River,Winnipeg River, and Lake Winnipeg basins, and thesebasins, in turn, are made up of smaller componentbasins or watersheds.The ability now exists to substantially modifybasin water flow regimes to support development andother human activity, for example, by diverting ortransferring water within basins and between basinsfor such purposes as flood control and hydro-electricdevelopment, and water supply for municipal, industrial,irrigation, and recreation purposes. Diversionworks have in some circumstances been undertakenwithin and between some of the watersheds within theHudson Bay drainage basin, and these works haveresulted in substantial social and economic benefits toManitobans.In some situations the economic, social, and environmentalrisks and consequences of water transfersare unacceptable. Manitobans are particularly concernedabout proposals that entail transfer of untreatedwater across the continental drainage basin boundaries,to or from the Hudson Bay basin. Such watertransfer projects, for example the proposed GarrisonDiversion project, have a high potential of introducingharmful foreign organisms into the waters of theHudson Bay basin, organisms for which our ecosystemshave very poor or no defence. These organismscan seriously upset the ecosystem balance in theHudson Bay basin and cause enormous and potentiallyirreversible environmental and economic harm toManitobans.Other concerns about water transfer across continentalor internal basin boundaries relate to the impacton the present and future water supplies within thedonor basin, and the possible irreversible dependenciesthat develop in the receiver basin. Transfers ofwater between the smaller internal basins may insome circumstances be judicious, but any such proposedtransfer must be conditional to assurance thatthe social, economic, and environmental consequencesto both donor and receiver basins are acceptable.Intent1. To preserve the quality of water in basins.2. To ensure that harmful foreign organisms arenot introduced to Manitoba water basins throughinter-basin transfer.3. To ensure that inter-basin transfers are justifiedbased on full assessment of the needs, the supplyalternatives, and the socio-economic and environmentalimpacts within both the donor andreceiver basins.38

Applying the PoliciesUse & AllocationApplication1. The Government of Manitoba will:• use international agreements between Canada andthe United States, agreements between Manitobaand neighbouring states and provinces, negotiations,and court action if necessary, to prevent theintroduction of foreign organisms into the HudsonBay drainage basin.• undertake educational and promotional initiatives toenhance public awareness of the economic and environmentaldangers presented by the introduction offoreign organisms into Manitoba waters.• take all necessary measures and precautions to minimizethe risk of foreign organisms being introducedto the Hudson Bay drainage basin.• support demand management options and undertakeconservation measures to reduce the needs for interbasintransfers.• participate in the basin, watershed, and aquiferplanning processes, and in the environmental impactassessment process.• promote and undertake measures to prevent thetransfer of foreign organisms into Manitoba’swaters.• thoroughly examine, in considering proposals forinter-basin transfers within Manitoba, developmentobjectives, priority needs for water, alternative uses,alternative sources of supply, and the economical,social, and environmental impacts affecting both thedonor and receiving basins.• apply comprehensive environmental impact assessments,required by provincial and federal legislation,to determine the acceptability of basin transfer,and to determine any necessary modifications ofpreferred options.• encourage the adoption of alternatives and conservationmeasures by local governments, industry, andthe public to minimize the need for inter-basin watertransfer.2. Local governments, the hydro-electric utilities,industry, and the general public can:• become well informed of the dangers and risks presentedby the introduction of foreign organisms intothe Hudson Bay drainage basin.39

Applying the Policies4. Water SupplyOBJECTIVETo develop and manage the province’s waterresources to ensure that water is available to meetpriority needs and to support sustainable economicdevelopment and environmental quality.Policy 4.1Demand management programs shall be implemented toconserve water and reduce the requirements for newwater supply infrastructure.Policy 4.2Irrigation, industrial, and other development proposalsinvolving direct or indirect water use shall considerimpacts on existing and potential water uses as well asimpacts on the environment.Policy 4.3The cost of developing, operating, and maintaining thewater resource infrastructure shall be apportioned amongthe beneficiaries in accordance with their share of thebenefits.Policy 4.4Pristine and potable water sources shall be afforded specialprotection.Issues Identified Through thePublic Process• financing the high costs of watersupply infrastructures• impact of supply shortages onpeople, lifestyle, and economy• determination of aquifer dependableyields and recharge mechanics• demand management to sustainsupplies, reduce infrastructurecosts• high use water development....effects on priority uses and environment• need for comprehensive supplystrategies, with local input• apportion costs to beneficiaries.40

Applying the PoliciesWater SupplyOverviewWater has many important uses: drinking, cooking,cleaning, and various other uses in our homes, businesses,and institutions; cooling, processing, mineralextraction, and other industrial uses; irrigation andagricultural uses such as stock watering; recreationuses; providing fish and wildlife habitat; and variousother non-withdrawal uses.Manitobans obtain their water supplies from anumber of sources. Surface water sources range fromlarge bodies of water such as Lake of the Woods, toreservoirs of varying size, to farm dugouts.Groundwater sources vary from large regional aquifersto small localized aquifers. About 80 percent of allwater used by Manitobans is obtained from surfacesources and 20 percent is obtained from groundwatersources.being given to water conservation as a means of limitingor reducing the costs of supply management.All Manitobans must share the responsibility forwater supply. Success in managing our water supplieswill be greatly enhanced by the participation of aninformed public in planning, developing, and operatingour water supply infrastructures, in ensuring that oursupplies are sustainable, and in conserving water andreducing costs.In some parts of the province water supplies areoften quite variable, due either to the seasonal variabilityof streamflow or to climatic variability. Shortagesare not uncommon, and special water conservation andemergency water supply operations have often beennecessary, particularly during periods of drought. Theprovincial government has been examining ways toaugment water supplies to water-short and droughtsensitiveregions to reduce the effects that water shortageshave on economic development.In some parts of the province, the sustainability ofour water supplies is being threatened by a variety ofhuman activities that affect both water quantity andwater quality, and that affect both groundwater andsurface water. Depletion or degradation of our watersupplies must be prevented, otherwise future uses maybe greatly reduced or restricted. Corrective action isoften very difficult and costly.Manitobans are becoming increasingly concernedabout the high costs of water supply infrastructure.Water supply costs include not only the direct costs ofwater storage, transport, treatment, and distribution,but also the costs of wastewater treatment and disposaland the environmental costs related to both the withdrawalsand return flows. Increasing attention is now41

Applying the PoliciesWater SupplyPOLICY 4.1Demand management programs shall be implemented to conserve water and reduce therequirements for new water supply infrastructure.BackgroundTraditionally, Manitoba has dealt with growingwater demands through a supply managementapproach, whereby demands were met by developingadditional sources of supply and constructing orimproving water supply and wastewater infrastructures.However, the realities of resource scarcities —the shortages of both water and water infrastructurecapital — have caused Manitobans to look seriouslyat expanding their range of options to include demandmanagement. Demand management involves a varietyof techniques to conserve water, or to reduce the peakand average water demands and the costs associatedwith upgrading, operating, and maintaining the watersupply infrastructures.In the past, most water users have received fewaccurate signals on the true cost of water and have hadlittle incentive to conserve water. Water sources areusually developed by the provincial or federal governments,and large portions of the municipal infrastructurecosts are supported by government grants. Manymunicipalities' water rates provide little incentive toconserve water. Some municipal water rates, in fact,actually encourage more water use. Some municipalwater systems do not even have metering of individualwater uses.The primary demand management technique iswater pricing, using water use charges that reflect thetrue cost of supplying water and treating effluent, andusing rate structures that promote water conservation.Additional demand management techniques includeother monetary incentives and disincentives such asrebates, tax credits, fines, and penalties. Demandmanagement also includes structural measures such asmetering, retrofitting, leakage repair, and policy andpromotional techniques such as improved buildingand plumbing codes, government economic policies,and public awareness programs. The most success indemand management is usually achieved by the applicationof a number of these techniques in combination.Different user classes – municipal, industrial, irrigation,agricultural – require the application of differentdemand management techniques, taking intoaccount where and how supplies are obtained, thequantity and quality of the supplies, and special localproblems and circumstances. More stringent demandmanagement measures must be adopted to target highervolume users or user classes, and areas where suppliesare limited, infrastructure costs are high, oreffluent discharge creates excessive environmentalproblems.Intent1. To reduce or defer water supply and wastewaterinfrastructure costs.2. To ensure that the rate of water use does notexceed the natural regeneration of the supply.Application1. The Government of Manitoba will:• work cooperatively with the federal governmentand local authorities in exploring and implementingagreements, incentives, promotional initiatives,and regulatory reform to facilitate demand management.42

Applying the PoliciesWater Supply• develop, through consultation with local authoritiesand user groups, municipal water use rate structureoptions and other demand management measures.• promote the use of municipal rate structures thatencourage conservation of water but are sensitive tosocio-economic and technical constraints.• develop and maintain comprehensive water sourceand use monitoring networks and databases to facilitatedemand management planning and implementation.• require that demand management options beexplored and appropriate options implementedbefore providing financial assistance to construct orimprove water supply and wastewater handlinginfrastructures.• encourage extensive metering in water supply systemsto monitor uses and losses and to facilitate theapplication of appropriate rate structures and costrecovery.• review and modify legislation to ensure that itallows for water use rate structures that encourageconservation of water.• review and modify government supports and subsidiesto municipal water supply infrastructures toensure that such supports and subsidies do notexcessively reduce the effectiveness of demand management.• explore and promote water conservation technology.• promote practices that reduce the need for water orthat reschedules uses and reduces peak demands.• ensure that legislation and regulation supportsdemand management.• provide incentives for acquisition and use of waterconservation technology.• promote the use of local land use planning thatensures that developments are compatible withwater supply and wastewater handling capability.• undertake, in cooperation with local authorities andthe public, basin and watershed planning whichincludes the development of water supply strategiesand identifies need and opportunities for demandmanagement and other water conservation measures.2. Local authorities can:• participate with the provincial government in developingmunicipal water use rate structure optionsand other demand management measures for applicationto local conditions.• participate in basin and watershed planning whichincludes the development of water supply strategiesand identifies needs and opportunities for demandmanagement and other water conservation measures.• adopt appropriate and visible water pricing ratestructures to encourage water conservation.• develop, operate, and maintain water supply infrastructuresto standards designed to minimize waterlosses.• incorporate extensive metering in municipal supplysystems to identify uses and losses and to facilitatethe application of water use charges to support conservation.• use planning and development restrictions to ensurethat land uses and industrial development are compatiblewith local water supply and wastewater disposalcapability.• promote land and water use practices and technologythat support conservation of water.• ensure that contingency plans and appropriate bylawsare in place to control or ration water use intimes of emergencies or drought.43

Applying the PoliciesWater Supply3. Business, industry, and individuals can:• enhance their awareness of local water supply capabilityand needs for conservation measures.• adopt appropriate water conservation measures andtechnology in day-to-day activities to reschedulewater use, reduce the cost of water use, sustain supplies,and reduce wastewater.• ensure that land use and industrial development arecompatible with local water supply and wastewaterhandling capability.• participate in local plans and strategies that considerwater supply capability and conservation needs.• adopt appropriate water conservation measures intimes of drought and other community water supplyemergencies.POLICY 4.2Irrigation, industrial, and other development proposals involving direct or indirect water use shallconsider impacts on existing and potential water uses as well as impacts on the environment.BackgroundIn Manitoba, industrial use of water accounts fornearly 50 percent of total water used for all purposesexcluding instream uses. Industry depends on waterfor cooling, condensing, processing, and sanitation.In addition to direct water use, industry affects ourwater supplies indirectly by using waterbodies toassimilate wastes produced by processing and otheroperations.Irrigation also is a major user of water, accountingfor the largest proportion of all groundwater used inManitoba. Interest in irrigation and demand for irrigationwater supplies have been rapidly increasing inrecent years, particularly for growing potatoes. Theincreasing interest in irrigation is partly in response torecurring drought and partly due to the greater cropproduction stability and better produce qualitydemanded by the potato processing industry.Use of our water supplies for industry, irrigation,and other development can have significant impactson other water uses and the environment. This isoften especially true in regions of variable or inadequatesupplies, and during periods of drought wherebythe volumes of water required by industry, irrigation,or other development may constitute a very large proportionof the available supply. A significant concern,also, is the impacts that industrial discharges and irrigationreturn flow have on water quality, and ultimatelyon other water uses and on the sustainability ofthe supplies. When planning industrial, irrigation, andother developments involving large volume water use,measures must be adopted to ensure that impacts onexisting water uses, on high priority future water uses,and on the environment are appropriately mitigated.IntentTo use water to support development while protectingpriority existing water uses, maintainingopportunities for priority future water uses, andsustaining environmental quality.44

Applying the PoliciesWater SupplyApplication1. The Government of Manitoba will:• develop and maintain comprehensive water supplyand use monitoring networks to facilitate water supplyand use planning and water allocation decisions.• identify existing and future water use prioritiesthrough basin and watershed planning.• ensure that development proposals are compatiblewith water use priorities, water supply capabilities,and water quality guidelines identified in basin,watershed, and local plans.3. Residents, landowners and industry can:• ensure that water development projects and initiativesare in accordance with guidelines establishedin basin, watershed, and local plans, and in accordancewith provincial environmental and water legislationand local land use policies.• use available information, including that developedfrom the provincial government's water supply anduse monitoring networks, in planning and constructingwater development projects and works.• use regulation, where appropriate, to prevent orminimize negative impacts of development on existingwater uses, priority future uses, and environmentalquality.2. Local authorities can:• establish water use and development prioritiesthrough participation in basin and watershed planning.• use available information, including that developedfrom the provincial government's water supply anduse monitoring networks, in planning and guidinglocal development.• develop and implement local plans and by-laws thatare compatible with the water use priorities, watersupply capability, water quality guidelines, andother environmental constraints identified in basinand watershed plans.45

Applying the PoliciesWater SupplyPOLICY 4.3The cost of developing, operating, and maintaining the water resource infrastructure shall beapportioned among the beneficiaries in accordance with their share of the benefits.BackgroundDirect costs of water supply infrastructure includethe costs of constructing, operating, maintaining, andrefurbishing water supply dams and reservoirs, watersupply pipelines and diversions, water treatment facilities,and water distribution systems. Indirect costsinclude costs of collecting, treating, and disposing ofdomestic sewage and industrial discharges resultingfrom water use, as well as environmental costs anddamages related to water supply, water use, andwastewater discharges.The allocation of costs and benefits of water supplyinfrastructure is complicated because of the numberof interests involved. All three levels of government– federal, provincial, and local – as well asindustry and individuals are likely to be involved infunding the construction or operation of some elementof the supply infrastructure. Beneficiaries mayinclude the primary user of the water, whether it befor domestic, municipal, agricultural, industrial, irrigation,recreation, or other uses, or they may includethose who benefit indirectly from water use throughthe resulting economic activity related to manufacturing,processing, sales, transportation, and serviceindustries.In the past, the primary water users have usuallypaid only a small portion of the full cost of water supply,while the remaining major portion of the costshave been funded through the public tax system.In developing water supply infrastructure, economicsof scale should be pursued, wherever possible,by developing additional infrastructure capacity toaccommodate additional uses. Decisions to developwater supply projects and decisions of project scaleshould be based on full knowledge of each participant’sportion of the costs and benefits.In apportioning costs of water supply infrastructure,all direct and indirect costs, whether related tothe water supply, wastewater disposal, or environmentalimpacts, must be taken into account. Primarywater users or participants in water development projectsshould pay a fair share of water supply projectcosts, based first on the extent to which each user benefitsfrom the project, and secondly on the extent towhich each particular use affects the cost of the project.The public tax system should legitimately pay aportion of the water supply costs to reflect societalbenefits in the form of ecosystem maintenance andincreased economic activity, incomes, and tax revenueresulting from the water development.Intent1. To enhance the economic viability of watersupply infrastructure.2. To ensure fair apportionment of water supplyinfrastructure costs.Application1. The Government of Manitoba will:• undertake, in cooperation with other levels of governmentand water user groups, planning and economicstudies and strategies which consider:- all practical water supply and wastewater managementoptions,- all potential water uses and user groups,- potential environmental impacts, and- costs and benefits specific to various water usecategories.46

Applying the PoliciesWater Supply• explore water pricing structures and mechanismswhich reflect the true cost of water supply, wastewatermanagement, and environmental impacts.• review and modify arrangements for financing watersupply and wastewater management projects, andfacilitate agreements among various levels of governmentand water user groups to ensure fair apportionmentof capital, operating, and maintenancecosts of water supply and wastewater infrastructures.3. Local water user groups can:• participate in local and regional planning and economicstudies and strategies related to water supplyand wastewater management.• participate with the provincial government andother levels of government in exploring water pricingstructures and mechanisms directed at infrastructurecost recovery.• review and modify legislation to ensure that it supportsthe user-pay principle.• undertake promotional initiatives to enhance publicunderstanding and the application of the user-payprinciple.2. Municipal councils and other local jurisdictionalbodies can:• participate in regional planning and economic studiesand strategies related to water supply and wastewatermanagement.• participate with the provincial government and usergroups in exploring water pricing structures andmechanisms which reflect the true cost of water supplyand wastewater management, and which apportionwater supply infrastructure costs fairly.• ensure that all licensed water uses are monitored toenable accurate cost accounting and fair cost recovery.• ensure that revenues from water use and wastewatercharges are dedicated to water and wastewaterinfrastructure replacement, upgrading, and maintenance.47

Applying the PoliciesWater SupplyPOLICY 4.4Pristine and potable water sources shall be afforded special protection.BackgroundThe needs of ecosystem maintenance aside, thehighest priority in water development and allocationdecisions is to ensure that sufficient water is availablefor drinking and other domestic uses. Not all availablewater is suitable for drinking. Virtually all water,whether surface water or groundwater, contains a varietyof dissolved and suspended substances. Some ofthese substances are naturally occurring and someresult from human activities. Much of our waterrequires some form or degree of treatment to make itsafe for drinking and other domestic uses.Some water pollutants can be fairly easily brokendown or removed by water treatment processes.Other, more persistent or non-degradable pollutantssuch as some pesticides, petroleum products, dioxins,radioactive materials, and metals are not easily brokendown, and their removal by treatment is often eitherdifficult and costly or impossible.All Manitobans share the responsibility for ensuringthe availability and the safety of our drinkingwater supplies. The most effective solution we canpursue is prevention. We must ensure that our drinkingwater supplies are not depleted and not degraded.IntentTo ensure that pristine and other drinking watersources are protected and available for present andfuture generations.Application1. The Government of Manitoba will:• identify, through basin, watershed, and aquiferplanning and through other water managementstudies and strategies, present and future drinkingwater needs and sources of supply.• identify groundwater pollution hazard areas andother areas and situations where potable watersources are highly susceptible to degradation byhuman activity.• prepare and continually update drinking waterquality guidelines regarding contaminants andother undesirable substances in drinking water.• monitor drinking water sources to assess qualityand quantity, and to determine any changes ortrends affecting quality and quantity.• use land use planning and land use policies toensure that land uses are compatible with the protectionof drinking water sources.• regulate human activities, where necessary, toensure that essential potable water sources are neitheradversely degraded nor depleted.• allocate water, and place reservations on waterwhere necessary, to ensure its availability for drinkingas the highest priority for human use.• undertake promotional and educational initiativesto enhance public awareness of drinking watersources, and measures and precautions needed toprotect those drinking water sources.48

Applying the PoliciesWater Supply• explore and implement, in cooperation with localauthorities and user groups, water pricing and otherdemand management techniques to discourage specifichigh volume water uses that might jeopardizethe availability of drinking water.• test drinking water samples, on a cost-recoverybasis where applicable, for local jurisdictions andindividuals for assessment of the water’s safety, suitability,and any required treatment.2. Municipal councils and other local jurisdictionalbodies can:• participate in basin, watershed, and aquifer planningand other water supply and demand studiesand strategies.3. Industry, business, and individuals can:• participate in basin, watershed, and aquifer planningand other strategies and studies to assess presentand future drinking water needs and sources ofsupply.• ensure they are aware of potable water sources, pollutionhazard areas, and practices and activities thatmay damage their drinking water sources.• adopt appropriate development, land use, andsewage and waste disposal technology and practicesto protect their drinking water supplies.• periodically have samples of their drinking watertested to confirm its safety and suitability, and todetermine any required treatment.• consult with government specialists and otherknowledgeable sources to enhance local awarenessof drinking water sources, pollution hazard areas,and measures necessary to protect drinking watersources.• use local land use planning and by-laws to ensurethat land use does not directly or indirectly causedrinking water sources to be degraded.• adopt water pricing and other supporting demandmanagement measures to ensure that drinking waterneeds are not superseded by lower priority uses.• ensure that local government works and operationsdo not harm potable drinking water sources.• assist the provincial government in identifying activitiesand situations that might damage drinkingwater sources.• periodically have samples from community drinkingwater sources tested to confirm the water's safetyand suitability, and to determine any additionalwater treatment needs.49

Applying the Policies5. FloodingOBJECTIVETo alleviate human suffering and minimize theeconomic costs of damages caused by flooding.Policy 5.1Development on land subject to flooding or other waterrelated hazards shall occur only under planning guidelineswhich prevent human suffering and property damage,limit public costs and liabilities, and address environmentalimpacts.Policy 5.2Economically viable measures to alleviate personal andproperty damage to existing development in flood proneareas shall be fostered.Policy 5.3The negative impacts of changes to water level and flowregimes caused by hydro-electric development projectsshall be mitigated to the extent possible.Issues Identified Through thePublic Process• effective flood forecasting andflood fighting to reduce damages• high cost of flood protectionworks• curb new development in floodprone areas through zoning• effective compensation programs• environmental benefits of limitedflooding• flooding caused by hydro-electricdevelopment• basin - based planning —upstream development vs. downstreameffects• value of wetlands and marginallands for water storage50

Applying the PoliciesFloodingOverviewThe largest part of Manitoba’s streamflows occursduring the spring as a result of snowmelt. In mostyears the streamflows are contained within channelbanks with few flooding problems. Periodically, however,some combination of high soil moisture, abovenormal snow accumulations, rapid snowmelt, andspring rains results in runoff which greatly exceedsstream channel capacities and which causes extensiveflooding of the adjoining land. Financial losses to governmentsand the public are immense. Personal hardshipsare immeasurable.One of the areas most prone to flooding, the RedRiver Valley, flooded 14 times in the past 200 years.To minimize the ever increasing costs of flood fightingand flood damage in the province, the provincial government,with the help of the federal government, constructedan extensive network of flood damage reductionfacilities, including the Red River Floodway,Winnipeg Dykes, Portage Diversion, ShellmouthReservoir, Fairford Dam, ring dykes for all communitiesin the Red River Valley and other parts ofManitoba, the Ste. Rose du Lac dykes, and the CarmanDiversion. After the floods of 1966, 1974 and 1979,an extensive dyking and raising program was carriedout to protect the residents, farm sites, and structures inthe Red River Valley.Flash flooding below the Manitoba Escarpment isa continuing problem. Extensive developments in theseareas are at risk by their location in an area which isnaturally flood prone. These developments, in somecases, also contribute to the flooding as a result of theland use changes and water control activities that haveoccurred. Water retention in headwater areas andappropriate land management practices should beadopted to minimize downstream flooding and itseffects.Flooding is also caused by hydro-electric projectsin the north. Significant natural resources and culturalheritage can be negatively affected by changed waterlevel regimes. Many people make their living off theland through trapping, hunting, tourism, and otheractivities which are dependent upon the land and waterresources. Planning of hydro-electric developmentprojects must consider the effects of changes to waterlevel and flow regimes caused by these projects.These efforts prevent about 95 percent of the flooddamages that would otherwise occur. However, suchstructural measures are costly to construct and to maintain.They also do not provide protection against allfloods and could lead to a false sense of security. Thebest course of action is to avoid new development inareas where flood protection is unfeasible. In some situations,limited development that does occur must beaccompanied by cost effective measures such as raisingthe structure on earthen fill or on piles.Although many urban communities have dykeswhich provide protection to the 100-year flood level, aflood of a greater magnitude could be devastating. Wemust be able to forecast these events and the provincialand municipal governments must remain prepared andhave effective flood fighting plans.51

Applying the PoliciesFloodingPOLICY 5.1Development on land subject to flooding or other water related hazards shall occur only underplanning guidelines which prevent human suffering and property damage, limit public costsand liabilities, and address environmental impacts.BackgroundFlooding is a common occurrence in Manitoba.Flooding is basically a natural process wherebystreamflow occasionally spills over the channel banksand reclaims the stream’s natural flood plain. Whenthis occurs, unprotected property located in the floodplain is damaged or destroyed. Lives are disrupted.Substantial human suffering and economic hardshipsoccur.A substantial amount of development has alreadyoccurred in flood risk areas, due largely to a lack ofknowledge about which areas were at risk. A numberof structural measures such as dyking and diversionshave been undertaken to limit flood damage.However, protecting people and property in floodprone areas is often neither economically nor technicallyfeasible, and solutions are often limited.The best solution is prevention. Manitobansshould ensure that new development that occurs in aflood risk area is adequately protected, and that anynew development in flood prone areas should beavoided if flood proofing is impractical or infeasible.Development in flood prone areas must be compatiblewith risk.IntentTo minimize flood costs, damages, and human sufferingassociated with new development in floodprone areas.Application1. The Government of Manitoba will:• continue flood risk mapping of urban communitiesthat are flood prone.• actively discourage new development in flood riskareas through promotion and education concerningthe risks, requirements, and restrictions associatedwith development in flood prone areas.• ensure that basin and watershed planning processesconsider measures to minimize flooding andother water-related hazards and damages.• discourage new development in flood risk areas bydenying loans or loan guarantees for flood pronestructures.• adopt the 100-year flood level, which is a floodlevel that is not exceeded more frequently than oncein 100 years on the average, as the standard for theallowable elevation to which all new developmentmust be protected in designated flood prone areas.• define, in accordance with the Provincial Land UsePolicies, standards and criteria for guiding developmentin flood prone areas.• ensure that new development and land use in compliancewith the Provincial Land Use Policies arealso in compliance with environmental requirements.• designate, under the Water ResourcesAdministration Act, the Red River Valley as a floodprone area in which new structures must be protectedto the 100-year flood level, and in which no newconstruction can proceed without provincialapproval.52

Applying the PoliciesFlooding• encourage local authorities to identify flood proneareas in development plans and zoning by-laws andto regulate new development within those areas.• develop and promote land use policies that supportthe intent of this policy.• avoid construction of residences and other buildingsin flood prone areas where flood proofing is notpractical or feasible.• participate, where opportunity exists, in preparinglocal development plans and zoning by laws.• work cooperatively with the federal government andlocal authorities in planning and implementing programsand initiatives that support the intent of thispolicy.• neither provide compensation for damages norassist in flood protection associated with new developmentsthat occur in designated flood prone areas.2. Local authorities can:• identify flood prone areas in development plans, andadopt zoning by-laws to regulate new developmentin flood prone areas.• ensure, through the building permit process, that allnew structures are flood proofed to the 100-yearflood level.• actively discourage, through promotion and publiceducation, development of new structures in floodprone areas.• obtain technical assistance and advice from theprovincial government and other competent sourcesin establishing flood levels, safe building elevations,and flood proofing techniques.3. Landowners, residents, businesses, and industriescan:• consult with local and provincial authorities todetermine if proposed new structures would be floodprone, and to determine what appropriate floodproofing measures can be adopted.53

Applying the PoliciesFloodingPOLICY 5.2Economically viable measures to alleviate personal and property damage to existingdevelopment in flood prone areas shall be fostered.BackgroundThe Red River Floodway, the Portage Diversion,the Shellmouth Reservoir, the Carman Diversion, theSte. Rose du Lac Dykes, and raising the Red RiverValley town dyke systems to the 100-year flood levelare all measures that have been taken to reduceManitoba’s flood damage potential. Projects such asthese are considered economically viable if they canreduce flood related damages and costs by at least thecost of the projects. Other similar projects will continueto be considered to further reduce flood damagesin Manitoba.In spite of these flood protection measures, weshould not become complacent about the dangers andrisks of flooding. Awareness and preparedness are thekeys to limiting the damage caused by a flood. Theprovincial government provides flood forecasts toenable individuals and municipalities to prepare for aflood event. Whenever necessary, provincial floodfighters and the Emergency Measures Organizationwill supervise and coordinate emergency actions suchas dyking and the relocation of people and livestockin the threatened areas.In addition to real property damage, flood damagesinclude erosion and gullying of cultivated landand destruction of crops, particularly in flood pronesub-escarpmental areas. Effective and practical structuralsolutions to these types of flooding problems arelimited. Structural measures may often be neithereconomically feasible nor environmentally sound.Appropriate land management practices and othernon-structural measures must be adopted either insupport of or in place of structural solutions.IntentTo minimize flood costs, damages, and human sufferingassociated with existing developments inflood prone areas.Application1. The Government of Manitoba will:• operate and maintain existing flood control dams,reservoirs, and associated works to maximize thelevel of flood protection.• provide an effective flood forecasting system whichassesses, as timely and accurately as possible, theprobability of flooding, the projected time of theflood, and the projected level of the flood.• plan and construct, in cooperation with the federalgovernment and local authorities, flood controlprojects which are economically justifiable, sociallyacceptable, and environmentally sound.• assist local governments, communities, and individualsin emergency flood fighting activities wherelocal capability is exceeded.• undertake flood emergency preparedness planningin cooperation with emergency measures organizationsand local authorities.• undertake dam safety programs to ensure the functionalityand safety of provincial flood controlworks.54

Applying the PoliciesFlooding• enhance public awareness of flood risks and floodprotection preparedness through informational, educational,promotional initiatives.• assist emergency measures organizations, local governments,and the public during emergency floodfighting through operating an effective and responsivecommunications centre and through providingaccurate and timely information on flood levels,evacuation routes, protective measures, and assistanceavailable.• promote appropriate land management practices inflood prone sub-escarpmental areas to minimize theeconomic losses due to flooding and erosion of agriculturalland.• ensure that provincial drainage and other watercontrol projects are planned and designed to minimizeany potential increase in flooding.2. Local authorities can:• undertake flood preparedness planning, and implementflood proofing measures.• obtain, through various instructional publicationsprepared by the provincial and federal governments,or through consultation with the provincial governmentor other competent sources, sound informationand advice on flood preparedness planning.• adopt appropriate measures to ensure personal safety,to protect property, or to evacuate belongingsduring a flood.• participate in local evacuation efforts and in floodfighting measures.• participate, where appropriate, in local emergencypreparedness planning undertaken by local authorities.• adopt appropriate land use and management practicesto minimize the economic losses due to floodingand erosion of agricultural land.• take the lead role in ensuring local public preparednessfor floods.• consult with the provincial government and neighbouringlocal governments in undertaking ongoingflood emergency preparedness planning.• take the lead role in protecting local residents andproperty against flooding.• ensure that local drainage and water control worksare designed and constructed to minimize any potentialincrease in flooding.3. Property owners, landowners, residents, businessescan:• determine, through consultation with the provincialgovernment, the flood risk potential of their property.55

Applying the PoliciesFloodingPOLICY 5.3The negative impacts of changes to water level and flow regimes caused by hydro-electricdevelopment projects shall be mitigated to the extent possible.BackgroundHydro-electric power is essential to Manitobans,providing a low cost, reliable supply of energy for ourhomes, farms, and workplaces. Hydro-electric developmentin the Province has contributed substantiallyto Manitoba’s economy and well being.Virtually all of Manitoba’s hydro-electric developmenthas occurred on four major river systems –the Winnipeg River, the Saskatchewan River, theChurchill River, and the Nelson River. The main featuresof hydro-electric projects are large dams, generatingstations, diversions, and reservoirs or forebays.Operation of these features result in water regimechanges on those river systems, such as floodingabove the dams, reduced peak flows below the dams,altered flows due to diversions, altered seasonal flowdistribution, and changed water quality.These changes in water regime can result in significantimpacts affecting the local people and theenvironment. Damages may include impacts to land,incomes, food supplies, traditional lifestyles, andhealth. Hydro-electric projects must be planned andconstructed to minimize these impacts.Compensation for flood damages and changedflow regimes may be necessary as a result of hydrodevelopment. Compensation agreements, such as theNorthern Flood Agreement, have been negotiated tocompensate affected people for adverse impacts dueto flooding and changed flows. The emphasis must beon reducing damages before they can occur. Theprovincial government, federal government, hydroelectricutilities, and public groups must work cooperativelyto ensure that the location, timing, construction,and operation of facilities sustains both our economyand environment.IntentTo mitigate the negative economic, social, and environmentalimpacts due to altered regimes causedby hydro-electric development projects.Application1. The Government of Manitoba will:• issue and administer water power licences inaccordance with relevant legislation.• require comprehensive environmental impactassessments of major new hydro-electric projects,proposed major modifications to existing systems,and proposed significant operational changes.• issue environmental licences stipulating all measuresto be taken during construction and operationof hydro-electric projects.• identify development setbacks and apply availablemeans to control new development in areas whereregimes may be altered due to hydro-electric projects.• participate with the federal government, the hydroelectricutilities, and local public groups in implementingfair and comprehensive compensation/mitigation/off-setagreements.• periodically review, in consultation with the hydroutilities and local public groups, the operation ofhydro-electric projects and associated works toidentify any practical operational changes thatimprove local conditions while meeting projectobjectives.56

Applying the PoliciesFlooding2 Hydro-electric utilities can:• undertake, in accordance with federal and provincialrequirements, comprehensive environmentalimpact assessments of major new hydro-electric projects,major modifications to existing projects, andproposed significant operational changes.• minimize negative physical, environmental, and economicimpacts of hydro-electric projects throughappropriate design and construction.• participate with the federal and provincial governmentsand the hydro utilities in implementing fairand comprehensive compensation agreements.• participate with the provincial government andhydro-electric utilities in identifying local improvementsthat could be achieved by operationalchanges.• participate in environmental impact assessments ofhydro-electric projects.• implement, in consultation and participation withthe federal and provincial governments, residents,landowners, and operators, fair and comprehensivemulti-party compensation agreements.• provide compensation for unmitigated physical,environmental, and economic impacts of hydro-electricprojects in accordance with multi-partite agreements.• identify, in consultation with local authorities,landowners, and reservoir users, requirements forwater power reserves to prevent inappropriatedevelopment in areas where flow and water levelregimes will change due to hydro-electric projectdevelopment.• periodically review operations, in consultation withthe provincial government and local public groups,to identify practical operational changes that couldimprove local conditions while meeting hydro-electricproject objectives.• inform the potentially affected local public of possiblealterations to flow and water level regimes.3. Local authorities, residents, businesses, resourceusers, and special interest groups can:• ensure that new development within a water powerreserve is done in accordance with conditions establishedin legislation.57

Applying the Policies6. DrainageOBJECTIVETo enhance the economic viability of Manitoba’sagricultural community through the provision of acomprehensively planned drainage infrastructure.Policy 6.1Drainage works shall be designed to remove excess rainfallfrom cropland during the growing season.Policy 6.2The standard of drainage shall be based on the productioncapability of the soil and on technical, economic, andenvironmental criteria, recognizing watershed, community,and farm impacts.Policy 6.3Maintenance of existing drainage systems shall be ofhigher priority than reconstruction.Policy 6.4Reconstruction of drainage systems to improve productivityand to reduce erosion and deposition shall be given ahigher priority than expansion into new agricultural lands.Policy 6.5Drainage projects shall be planned and executed so thatprojects in one area do not adversely affect another area.Policy 6.6The protection of wetlands shall be a consideration inplanning and developing drainage projects.Policy 6.7Water retention, and control and timing of runoff, shall bepromoted as part of watershed management.Issues Identified Through thePublic Process• drainage essential to maintainviability of farming community• maintenance of existing drain systemsto ensure maximum capacity.• integrated systems approach –impacts and opportunities overentire basin.• high costs of good drainage vs.limited funds• split jurisdiction and responsibility;coordination needed• control excessive drainage; storewater whenever appropriate• landowner interests and rights vs.basin and community implications• education and technical supportto local governments andlandowners58

Applying the PoliciesDrainageOverviewIn Manitoba, agriculture uses a total land resourcebase of 8.1 million hectares, of which about 5.3 millionhectares have been improved or developed.Under natural drainage conditions that existed historically,agricultural productivity of vast areas of thisresource base was severely limited by wetness. As theland was settled, massive drainage programs were initiated,particularly on the flat clay soils of the formerLake Agassiz bottom. The drainage and land developmentthat occurred have distinctively changed thelandscape of the province. An estimated two millionhectares of very productive farmland have been madepossible by agricultural drainage. These lands are nowsome of the best farmland in the province and theycontribute substantially to the economy of Manitoba.On the flat, fertile clay soils of the Red RiverValley, drainage systems are well developed and mostof the land has been converted to agriculture purposes.Although there is unlikely to be any major expansionof drainage systems in this area, the existing systemsrequire costly regular maintenance. In addition, manyof these drainage systems require upgrading to bringthem up to standards that reflect current agriculturalneeds.One of the most challenging drainage problems ofthe future will be the runoff and erosion control activitiesbelow the Manitoba escarpment. Drainage andland development in this area have contributed to amultitude of socio-economic and environmental problems.Structural solutions are often very costly andmarginally effective, and sometimes damaging. Nonstructuraloptions will have to be pursued, either insupport of or in place of structural solutions.An adequate level of drainage is essential for theeconomic viability of Manitoba’s farming community.There are approximately 48,000 kilometres of designateddrains in Manitoba of which about 32,000 arefully man-made and 16,000 are improved or maintainednatural waterways. About 4,350 kilometres ofthe largest drains are provincial waterways. Ruralmunicipalities, local government districts, and conservationdistricts have jurisdiction over the drains thatare not provincial waterways. Landowners are responsiblefor on-farm drains.In the Interlake, drainage and land developmentare less advanced, due in part to later settlement,smaller proportions of fertile cropland, and economicand climatic disadvantages. In southwesternManitoba, the natural drainage problems that inhibitagricultural production are few, and a high level ofartificial drainage is not required; yet, landowners continueto drain sloughs and potholes to enhance farmincomes and farming operations, causing widespreadpublic concern about the socio-economic and environmentalimpacts of this wetland loss. Peat soils and wetsands in other parts of the province have special problemsof both water excess and water deficiency, andprudent water management must be practised on theselandscapes.59

Applying the PoliciesDrainagePOLICY 6.1Drainage works shall be designed to remove excess rainfall from cropland during thegrowing season.BackgroundDrainage works remove excess surface waterfrom cropland and minimize ponding and wetness.Drainage of cropland results in increased crop yields,stronger plants, improved crop quality, increased fertilizerefficiency, more uniform field operations,reduced labour and farm operation costs, reducedlosses at harvest, and ability to grow higher valuecrops. The overall goal of drainage is to improve netfarm productivity.Although the most widespread ponding of farmlandis normally caused by spring snowmelt, suchponding usually poses few problems. Quick drainageof snowmelt water is both imprudent and unnecessary.To prevent snowmelt ponding would require the constructionof very large and costly drains. Removingsnowmelt ponding from farmland too rapidly alsoincreases the risk of flooding along downstreamdrains and natural channels. Drainage works sized forsummer rainstorms are normally adequate for removingspring snowmelt over a reasonable period toenable timely spring seeding.The ponding which causes the most serious productivitylosses is that which occurs due to excessrainfall in late spring or in summer, after crops havebeen seeded and before they have been harvested.The losses increase as either the duration or the areaof the ponding increases. The purpose of drainageworks is to minimize such ponding on cropland duringthe growing season.Agricultural land drainage works must be sizedlarge enough to protect crops from excess precipitationduring the growing season, but not so large as toadd unnecessary project costs or contribute excessivelyto downstream flooding.Intent1. To ensure drainage works are sized to protectcrops from excess rainfall during the growing season.2. To minimize the potential for agriculturaldrainage works to contribute to downstreamspring flooding problems.Application1. The Government of Manitoba will:• monitor rainfall and agricultural ponding, and collectrainfall and crop yield data.• consult with local authorities and farmers, andmonitor drainage system performance to assess theeffectiveness of existing drainage works.• ensure that rainfall, ponding, crop yield, anddrainage system performance data and observationsare taken into account in the design ofdrainage projects.• design provincial drainage works and those forlocal governments and individuals so that theseworks:- effectively protect crops from ponding caused byexcess rainfall,- enable snowmelt to be drained in a reasonabletime so as not to unduly delay spring seeding,- limit, where feasible, upstream drainage capacitiesto reduce the risk of downstream springflooding, and60

Applying the PoliciesDrainage- include reasonable supplementary measures suchas dyking to prevent breakout of flood water inbuilt up areas.• guide drainage design and construction practices ofindividuals and local authorities through:- promotional and educational initiatives,- licensing procedures, and- provision of information and technical support.• obtain available information, technical assistance,and guidance from government departments or otherqualified sources in developing on-farm drains.• inform local government or conservation districtofficials of any on-farm drainage problems resultingfrom inadequate municipal, conservation district, orprovincial drains.2. Local governments and conservation districtscan:• work with government and landowners in monitoringdrainage system performance.• take a lead role in identifying local drainage deficienciesand improvement needs.• develop or improve local drains to effectively protectcrops from ponding caused by excess rainfall.• ensure that local government drain capacities arecompatible with the on-farm drainage needs of locallandowners and with the capacities of downstreamprovincial waterways or major outlets.• use available data and information and obtain technicalassistance and guidance from governmentdepartments or other qualified sources in designinglocal drainage improvement works.3. Farm operators and landowners can:• develop on-farm drains to effectively protect cropsfrom excess rainfall.• adopt appropriate on-farm measures to slow runoffin spring, subject to not unduly delaying springplanting.61

Applying the PoliciesDrainagePOLICY 6.2The standard of drainage shall be based on the production capability of the soil and on technical,economic, and environmental criteria, recognizing watershed, community, and farm impacts.BackgroundAgricultural drainage involves a number of watermanagement techniques to minimize crop productivitylosses due to excess precipitation. Drainage of flatclay soils, escarpmental drainage works, pothole andslough drainage, wet sands water management, andpeat soils water management – each are distinctdrainage situations reflecting different water regimes,problems, solutions, benefits, constraints, and environmentalimpacts. The standard or level of drainageprovided to an area, as well as drainage technologyapplied, must vary to suit local physiographic conditions– differences in soil texture, soil fertility, topography,natural drainage, groundwater conditions, andecosystem sensitivity.Not all drainage upgrading projects are equallycost-effective. Because drainage works are costly andprovincial and local government funds are limited,decisions must be made concerning which project willbe developed, when they will be developed, and whatlevel of drainage will be provided. These decisionsmust also consider environmental impacts.The lands that normally yield the greatest economicreturn from a high level of drainage are the flatand depressional lands characterized by fine-textured,fertile, clay soils. These lands have the potential togrow high value crops but, without drainage, theirproductivity is limited due to the soils’ susceptibilityto ponding and water logging. Drainage in such areasmight be developed to standards which enable theproduction of cereals, oilseeds, or special crops suchas sunflowers or sugar beets.In other areas, where soils are poor in quality,drainage might be developed to standards suitable forgrowing forages, or perhaps only to “pioneer” standards.Poor soils, limited economic return, and environmentalimpacts tend to make projects economicallymarginal or even sub-marginal. Yet, marginal projectsmight be justified in situations where failure tomaintain or upgrade an existing system would resultin excessive hardship affecting farm and communityviability.To maximize the benefits of drainage expenditures,drainage projects must be planned and developedon a systems basis, whereby the system is consideredas a unit which comprises the main drains, thelaterals, and the on-farm drains. Failure to adequatelydevelop or maintain any one component of the systemreduces the effectiveness of the entire system. Toachieve value for money spent, all three componentsof the system must be designed to consistent standardsand constructed within a short, consistent time frame.An integrated planning approach must also be adoptedwhich considers long-term cumulative benefits, costs,and impacts, as they affect people, the resource base,and the environment within the entire watershed,drainage basin, or region.IntentTo ensure that decisions concerning the standardof drainage provided to an area are broadly based,taking into consideration both the physiographiccharacteristics of the project area and the benefits,costs, and impacts as they affect the farm, the community,and the watershed.62

Applying the PoliciesDrainageApplication1. The Government of Manitoba will:• use extensive public consultation in drainage systemsproject planning and decision making.• apply, in planning and designing provincialdrainage works and those of local governments andconservation districts, drainage project standardsbased on:- soil texture, soil capability, and land use;- rainfall criteria and maximum allowable pondingtime for affected crops;- local physiographic features and naturaldrainage;- a systems approach whereby the project is a unitcomprising the main drains, the laterals, and theon-farm drains;- economic and environmental impacts affecting thewatershed, basin, or region; overriding socialimplications affecting farm and community viability.2. Local governments and conservation districtscan:• consult with government and other qualified sourcesto obtain rational project standards and planningcriteria, and where necessary, to obtain informationor advice on their use.• use extensive public consultation in drainage systemsproject planning.3. Farm operators and landowners can:• ensure that land uses, cropping practices, and onfarmdrainage are compatible with the standard ofdrainage provided by the municipal, provincial, andnatural outlets.• promote the application of these project standardsby local governments and conservation districts,and provide advice or assistance in the applicationof these standards.• review legislation and government operating policy,and modify these where necessary, to ensure thatthey support the application of these project standards.• undertake educational initiatives to improve localgovernment and public input to drainage systemproject planning and decisions.• use licensing and regulation, where appropriate, toensure that proposed drainage projects meet environmentalcriteria.• promote on-farm drainage, land use practices, andcrop selection that are compatible with the standardof drainage provided by municipal, provincial, andnatural outlets.63

Applying the PoliciesDrainagePOLICY 6.3Maintenance of existing drainage systems shall be of higher priority than reconstruction.BackgroundOver time, drainage channels tend to becomeobstructed by vegetative growth and silt deposition.Consequently, drainage systems require regular maintenanceso that they can continue to perform the servicefor which they were designed and constructed.Normal maintenance involves removing silt anddebris from the channel and culverts, and removingwillows, cattails, and other vegetative growth.Inadequate maintenance causes reduced channelcapacities, reduced levels of protection, crop losses,and reduced economic benefits of past drainageinvestments.Where drains have badly deteriorated due toeither erosion or bank failures, regular maintenancebecomes difficult or impossible. Such drains oftenrequire reshaping or restoration to permit future maintenance.Reconstruction of drains to higher standards isalso frequently desirable. Such reconstruction, however,is costlier than maintenance or restoration.Fewer miles of channel are improved and fewer acresof land benefit from the funds that are expended.Available drainage program funds are used moreeffectively in maintaining existing drainage systems,as opposed to drainage reconstruction.Intent1. To ensure that existing drains provide the optimumlevel of crop protection.Application1. The Government of Manitoba will:• monitor provincial waterway condition and performanceto identify maintenance requirements.• conduct regular and timely provincial waterwaymaintenance operations to minimize flow obstructions.• reshape or restore badly deteriorated provincialwaterways to a condition that enables regularmaintenance to be carried out.• promote the importance of effective drainage maintenance,and encourage municipalities, conservationdistricts and landowners to carry out regularmaintenance works on their drains.2. Municipalities, conservation districts, farmoperators, and landowners can:• closely monitor drain condition, drainage performance,and ponding problems, conduct timelydrainage maintenance and cleanout works whereverrequired, and reshape or restore eroded or deteriorateddrains to enable effective maintenance.• dedicate necessary funding on a regular basis toensure that essential drainage maintenance operationscan be carried out.2. To use total available drainage program fundsin the most cost-efficient manner.3. To achieve the maximum benefits from pastinvestments in drainage construction.64

Applying the PoliciesDrainagePOLICY 6.4Reconstruction of drainage systems to improve productivity and to reduce erosion anddeposition shall be given a higher priority than expansion into new agricultural lands.BackgroundDevelopment of land for agricultural crop productioninvolves, among other things, clearing of the landfollowed by the construction of an extensive infrastructureof roads and drains. Most of Manitoba’sbest quality agricultural lands have now been developedfor crop production. These developed lands supportlarge populations and contribute substantially tothe province’s economy.There still remains some significant areas ofpotentially arable land that has not yet been developed.However, much of this remaining land is ofmarginal quality for crop production. To developthose remaining lands in most cases would requirevery costly drainage reclamation works or the expansionof existing drainage systems. The economic benefitsof such new drainage and land development areoften marginal, affect small numbers of people, andtake a long time to accrue. Overall economic viabilityof such projects may often be marginal. Such projectsmay also have significant environmental impacts.In contrast, many of the existing drains in developedareas are in serious need of restoration to reduceerosion and deposition, and others are in need ofrebuilding to new higher standards in order toimprove agricultural productivity. Economic benefitsof restoration and reconstruction to higher standardsare immediate and affect established farmers, manywith large farm investments. Restoration or reconstructionnormally has fewer environmental impactsthan new construction.While drainage expansion to serve new agriculturallands may be justifiable under some circumstances,available drainage funding would be usedmore effectively in improving existing systems servingdeveloped areas.IntentTo ensure that available drainage reconstructionfunds are used in the most cost-efficient, environmentallysound, and socially conscious manner.Application1. The Government of Manitoba will:• monitor and evaluate existing drainage systems andareas served to assess system performance, agriculturalproductivity, and problems related to poordrain capacity, drain erosion, and deposition.• consult with local governments and farming communitiesto assess existing drainage system compatibilitywith current land use and soil capability,farming technology, and economic and environmentalsustainability.• undertake comprehensive analysis of proposeddrainage system expansion to new agriculturallands to determine if such expansion is socially,economically, or environmentally justifiable.• establish priorities for drainage system constructionprojects through comparative analyses of projectoptions taking into account such factors as:- areas of developed and undeveloped lands servedby the project;- numbers of landowners directly affected by theproject, and size and nature of the communityindirectly affected;- existing agricultural productivity of the affectedland, and potential agricultural productivity dueto drainage;- economic benefits and their immediacy, socialimplications, and potential environmentalimpacts of proposed projects.65

Applying the PoliciesDrainage• assign highest priorities to drainage systems constructionor reconstruction projects affecting thelargest number of established landowners and residents,having the greatest and most immediate benefits,and having the lowest environmental impacts.• assign lower priorities to drainage reclamation projectsor drainage expansion to new lands, affectingfew people, having marginal and delayed benefits,and having high economic and environmental costs.• promote a similar establishment of priorities forprojects by municipalities and conservation districtsbased on comparative analyses of economic, social,and environmental factors.• provide information and technical support to assistlocal municipalities and conservation districts inassessing drainage projects options and priorities.• use basin and watershed planning, where available,to guide drainage reconstruction program planningand setting priorities.• undertake comprehensive environmental impactassessments of projects where significant negativeimpacts may result from such projects.2. Rural municipalities and conservation districtscan:• develop, regularly update, and implement long termplans or programs for drainage construction basedon comprehensive analysis of options and theirestablished priorities.• dedicate an appropriate level of funding to ensurethat essential drainage reconstruction projects areundertaken.• use of basin and watershed planning to assist indrainage reconstruction program planning.• guide local land development through land use planning,to ensure that such development is compatiblewith existing or planned drainage systems.3. Farm operators and landowners can:• participate with the local and provincial governmentsin assessing local drainage system constructionneeds.• ensure that any planned purchase, drainage development,or use of new land is compatible withguidelines established in local land use planning,and is compatible with existing or planned municipal,conservation district, and provincial drainagesystems.• monitor local drainage systems to determine systemperformance, compatibility with current agriculturalneeds or potential, and problems related to poordrain capacity, erosion, and deposition.• have comprehensive analyses conducted for proposeddrainage projects, and establish priorities fordrainage construction project options based on comparativeanalyses of economic, social, and environmentalfactors.• obtain planning and technical assistance from governmentand other qualified sources in evaluatingdrainage construction project options and priorities.66

Applying the PoliciesDrainagePOLICY 6.5Drainage projects shall be planned and executed so that projects in one area do not adverselyaffect another area.BackgroundDrainage projects in one part of a watershed canchange the flow regime in downstream reaches of thewatershed, sometimes positively, but sometimesadversely. Higher annual peak flows and runoff volumes,shorter runoff periods, and lower base flows aresome of the more common changes in flow regimethat can result from extensive drainage. The changedflows can not only affect people and property, but canaffect other resources such as fish and wildlife habitat.Water quality can also be affected, due to increasedagricultural chemicals and due to increased sedimentload from channel and field erosion.Impacts of drainage projects vary widely, dependingon the nature of the project and the setting inwhich the project occurs. Drainage projects that canhave the greatest and most obvious impacts are thosewhich involve extensive new drainage systems toserve new land development. In those situations,flows are changed from basically natural regime to asubstantially modified regime in a short period oftime.In developed areas, such as the Red River Valley,the extensive drainage works of the past have alreadychanged the natural flow patterns and regimes.Current drainage projects in these areas usuallyinvolve either restoring established drains or upgradingestablished drains to higher standards. Furtherchanges in flow regime due to these types of projectsare usually relatively minor, unless the degree orextent of improvements is large.Drainage project planning must recognize longtermcumulative impacts. Small projects by themselvesmay have negligible downstream impactswhich are often ignored, but the long-term cumulativeimpact of many separate small projects may be quitesignificant.The costs and significance of adverse impacts areincreasing with time, as development and populationsincrease and as the stock of environmental resourcesdiminishes. Potential impacts of drainage projectsmust be considered at the project planning stage, andprojects must include measures to prevent or mitigateunacceptable downstream impacts.IntentTo ensure that drainage projects do not adverselyaffect another area.Application1. The Government of Manitoba will:• adopt, during the planning or design of provincialdrainage projects and those of local governmentsand conservation districts, measures or proceduresto identify and reduce potential adverse impacts,by:- consulting with appropriate resource professionals,local authorities, agencies, and individualsto identify possible impacts emanating from proposedprojects;- using the information and adhering to guidelinesestablished in basin and watershed planning;- taking into consideration the possible long termcumulative impacts of small projects; and- modifying project designs to prevent or mitigateadverse downstream impacts in the drainage system,watershed, or basin.67

Applying the PoliciesDrainage• guide drainage projects or activities of local governments,conservation districts, and individuals toavoid or minimize adverse impacts, by:- providing technical support for the planning,design, or construction of drainage projects;- undertaking promotional and educational initiativesconcerning cause-effect relationships concerningdrainage impacts; and- using licensing procedures, and regulation whereappropriate.• ensure that comprehensive environmental impactassessments are undertaken for projects that havethe potential to cause significant adverse impacts.• explore and promote practical on-farm measures toattenuate spring snowmelt drainage and reducedownstream flood potential.• keep abreast of, and use the best available technologyfor assessing changes to flow regimes as a resultof drainage and land development.• obtain information and technical assistance fromgovernment or other qualified sources in planning,designing, and constructing drainage projects.3. Farm operators and landowners can:• obtain available information and technical supportfrom government or other qualified sources in planningand designing drainage projects.• adopt any practical on-farm measures to attenuatespring snowmelt drainage.• adopt farming technology, land use, and croppingpractices that are compatible with downstreamdrainage system capacity.• ensure that on-farm drainage is designed and constructedto avoid harmful impacts on adjacent ordownstream lands.• work cooperatively with neighbouring provinces andstates to resolve cross-border drainage issues.2. Rural municipalities and conservation districtscan:• take a lead role in planning and developingdrainage works to serve local needs.• plan and design local drainage projects within theframework of a drainage system, to ensure compatibilitywith the flow capacity of downstream provincialwaterways and natural outlets, as well as compatibilitywith on-farm drainage needs.• ensure that local drainage projects are planned anddesigned within guidelines and impact constraintsidentified in basin and watershed planning.• consult with resource professionals, governmentagencies, and local residents and landowners toidentify potential impacts of proposed drainage projects.68

Applying the PoliciesDrainagePOLICY 6.6The protection of wetlands shall be a consideration in planning and developing drainage projects.BackgroundWetlands, which include potholes, sloughs, bogs,marshes, and river deltas, are a common feature onManitoba’s landscape. These wetlands provide anumber of socio-economic and environmental benefits.Wetlands collect and store runoff, moderate andattenuate downstream flows, reduce downstreamflooding and erosion, clean and purify water, rechargeaquifers, and provide habitat for plants and animals.As a result of settlement and development in theprovince, a large portion of Manitoba’s wetlands havenow been drained and converted to agricultural production.As these wetlands are eliminated, the valueof the remaining wetlands increases. Many of theseremaining wetlands are ecologically very importantand should be protected.Most projects and activities that result in wetlanddestruction occur on privately owned agriculturalland. Farmers drain wetlands for economic benefitsthat accrue within the farm boundary. However, mostdecisions to drain wetlands do not consider the costsand benefits to society and over the larger region.Local governments and the provincial government caninadvertently contribute to wetland loss through theprovision of public drainage systems which serve asoutlets for on-farm wetland drainage.Regulation is not effective in preventing thedestruction of wetlands unless used in conjunctionwith public education and incentives. As well, wetlandprotection could be enhanced through integratedwatershed planning.IntentTo protect important wetlands from destruction bydrainage and land development.Application1. The Government of Manitoba will:• monitor wetland loss, maintain wetland inventories,and explore practical means of classifying wetlandsaccording to their characteristics and their values.• conduct educational initiatives concerning the rolethat wetlands play in the hydrologic cycle, how wetlandsfunction, and the broad range of regional andsocietal values that wetlands provide.• develop and use practical criteria and means forevaluating wetlands and the impacts of wetlandloss, and for guiding decisions concerning whichwetlands should be retained.• ensure that planning and design of provincial, localgovernment, and conservation district drainageprojects include measures to prevent or minimizedestruction of important wetlands.• ensure that decisions concerning sale or lease ofCrown Land consider water retention, conservation,and other functions and benefits that wetlandsprovide.• conduct promotional initiatives concerning the reasons,means, and opportunities to protect or restorewetlands.• establish, or participate in, agreements with otherlevels of government, conservation organizations,landowner associations, and interest groups concerningwetland protection programs and initiatives.• review provincial legislation, policies, and farmsupport programs, and modify them where appropriate,to ensure that they support wetland protectionobjectives.69

Applying the PoliciesDrainage• work with the federal government in reviewing,developing, or modifying federal programs and policiesthat affect wetland conservation.• explore and support practical incentives for encouraginglandowners to retain or restore wetlands onprivately owned land.• provide technical assistance to local governments,conservation districts, and landowners for drainageand other water management projects to minimizethe destruction of important wetlands.• use licensing and regulation, where appropriate, toreduce the potential for adverse off-site impacts dueto wetland drainage.• ensure that basin and watershed planning includesconsideration for the protection of wetlands.2. Local governments and conservation districtscan:• become well informed about wetlands, how theyfunction, their numerous values, and potential localand regional impacts of wetland drainage and landdevelopment.• ensure that planning and implementation of localdrainage projects consider the broad economic,social, and environmental values of wetlands in theirregion, as well as the cumulative impacts of all possibledrainage projects over time and throughout theregion.• obtain available information, advice, or technicalassistance from government and other qualifiedsources when planning or developing local drainageor other water management projects that mightaffect wetlands.• include measures in the design and construction oflocal drainage and other water management projectsto minimize or prevent the destruction ofimportant wetlands.3. Farm operators and land owners can:• become informed about wetland characteristics,how they function, their socio-economic values, andcriteria to consider in deciding the practicality ofwetland drainage.• modify farming operations and water managementactivities to minimize the destruction of importantwetlands and loss of wetland values.• participate in local programs and initiativesdesigned to protect or restore wetlands.• obtain information and technical support from governmentor other qualified sources when planning ordesigning on-farm drainage or other water managementprojects that might affect wetlands.• participate in promotional initiatives to conserve orprotect wetlands that have important regional values.• participate with senior governments and variousorganizations and interest groups in agreements,programs, and initiatives concerning protection andconservation of wetlands.70

Applying the PoliciesDrainagePOLICY 6.7Water retention, and control and timing of runoff, shall be promoted as part ofwatershed management.BackgroundAgricultural drainage systems are designed andconstructed primarily to remove excess precipitationfrom cropland during the growing season. Except forthe most extreme rain storms, summer runoff fromcropland is normally contained within the channelbanks with few downstream flooding problems.But agricultural drainage systems also carryspring snowmelt runoff. If the winter snow accumulationis high, if warm spring temperatures cause aquick melt, or if significant rain occurs during thesnowmelt period, the resulting flows in the drains canbe very high, far in excess of summer flows, and farin excess of the flows needed to drain the farmland intime for spring seeding. High flows and floodingproblems along main channels may also be worsenedby coincidence of peak flows from tributaries withinthe watershed.Downstream works to contain the high flows areoften very costly, as are the damages that often resultwhen the flows exceed channel capacity. Flood, erosion,and siltation damages along drainage channelswould be reduced if some of the runoff could beretained on the land and the runoff period prolonged.In addition to flood control benefits, runoff retentionmay result in other benefits related to water supply,soil moisture, and groundwater recharge. In most situationsthe greatest opportunity to delay spring runoffand retain water on the land lies with the farmer,before the water gets into the municipal and provincialsystems.Intent1. To minimize flooding and erosion along agriculturaldrainage systems.2. To retain water, where appropriate, for watersupply, soil moisture replenishment, groundwaterrecharge, and wetland habitat.Application1. The Government of Manitoba will:• promote runoff retention, where appropriate, forwater supply, soil moisture replenishment, groundwaterrecharge, and wetland habitat.• promote retaining natural cover to slow runoff andprevent erosion in areas of steep topography.• provide technical assistance and advice to localgovernments, conservation districts, and individualsconcerning practical measures to adopt in draindesigns to retain or slow runoff.• ensure that provincial drainage works and those forlocal governments and conservation districts arenot enlarged to accelerate the removal of springsnowmelt, subject to not excessively delayingspring seeding.• modify drainage system designs, where possible, tominimize coincidence of peak flows from tributariesand to attenuate flows in the mainstream.• use promotional initiatives, and licensing whereappropriate, to guide drainage system developmentin headwater areas and to limit conveyance capacitiesof upstream drainage works.71

Applying the PoliciesDrainage2. Local governments and conservation districtscan:• include practical measures in the planning anddesign of drainage works to slow or attenuate flowsin spring and to store water for beneficial purposes.• obtain technical assistance and advice from governmentdepartments or other qualified sources in theplanning, design, and construction of drainage projects.3. Farm operators and landowners can:• use any practical measures available to attenuaterunoff from spring snowmelt.• adopt practical measures, where appropriate, toretain or delay spring runoff for water supply purposes,for soil moisture replenishment, and forgroundwater recharge.• retain natural cover and use land management practicesto slow runoff and prevent erosion in areas ofsteep topography.• obtain available technical assistance and advicefrom government departments or other qualifiedsources in designing and constructing on-farmdrainage.72

Applying the Policies7. EducationOBJECTIVETo enhance the awareness and knowledge ofManitoba’s water resources.Policy 7.1Schools – Students of all ages shall be provided withinformation on the significance of Manitoba’s waterresources.Policy 7.2General Public – Education on water matters shall beachieved in part through the sharing of information,demonstration projects, and the involvement of the generalpublic.Policy 7.3Forum for Scientific and Technical Input – A forum shallbe developed to obtain input from the scientific, technical,and professional communities on water managementissues.Policy 7.4Community Leaders and Elected Representatives –Community leaders and elected representatives shall beprovided with the information they need to make soundwater management decisions.Issues Identified Through thePublic Process• public education to support soundwater management• public forums for debate andinformation exchange• demonstration projects to showconcepts, technologies and equipment• need for accumulation of data andnew knowledge• encourage conservation and wiseuse of water• soil and water conservation educationin the school system• a long term commitment• education in conjunction withincentives and regulation73

Applying the PoliciesEducationOverviewWater is not only an important natural resource,but also one of the most important elements of life. Itaffects our health, economic development, ourlifestyles, and the environment. It is also highly variablein space and in time, and is highly vulnerable toabuse and overuse. Water must be carefully protectedand managed, not only for today, but also for futuregenerations.In the past, the job of protecting and managingwater was undertaken largely by the provincial andfederal governments. Decisions were often based solelyon technical criteria and expert opinion. The publicoften had little input to decisions that affected themand little information on how their own activities, inturn, affected water.In accordance with the suggestions from the publicinput to the draft water policies, four general targetareas for water education and information were identified:the schools, the general public, forums for scientificand technical input, and community leaders andelected representatives.The management and protection of our waterresources can best be achieved through partnershipsbetween governments and a concerned, informed societyof Manitobans. Water education is seen as one ofthe most important means toward achieving that goal.However, there is a growing awareness that the jobof managing and protecting water is large and complex,and requires the involvement and support of thepublic. All Manitobans are stakeholders - provincialagencies, local governments, conservation districts,private agencies, industry, business, landowners, farmoperators, special interest groups, and all resourceusers. The public must not only be informed of decisionsthat affect them, but they must also participate inshaping these decisions. The public wants to beinvolved.Water management decisions must still be basedon the best up-to-date technology, information, anddata, but decision criteria must be expanded to includepublic values and a broader range of options.Manitobans must have the information and knowledgeto participate effectively in those decisions and toensure that their own day-to-day activities support thesound management and protection of water. AllManitobans should understand the basic concept of thehydrologic cycle, and the interrelationships betweenthe water, land, other resources, and the environment.74

Applying the PoliciesEducationPOLICY 7.1Schools – Students of all ages shall be provided with information on the significance ofManitoba’s water resources.BackgroundProtecting and managing water will be a majorchallenge facing Manitobans in the future. Today’swater issues and concerns will be heightened, andthere will be new emerging issues and concerns as ourwater resources are subjected to increased pressuresof expanding populations, increased development andeconomic activity, and growing demands on all fronts.As today’s young people become tomorrow’sadults, they will have important responsibilitiestoward protecting and managing water. Some will beresource professionals and water managers, some willbe community leaders and decision makers, and somemay be major water users. Even tomorrow’s ordinarycitizens will be able to affect water management significantly,through their participation in water managementdecisions, and through their day-to-dayactivities.Exposure to water education materials shouldbegin at an early age. Students should be providedwith a basic understanding of the hydrologic cycle,the watershed, surface water and groundwater, andlinkages between water, our lifestyles, our economicbase, and our environment. They should also learnabout the fragility and vulnerability of water, and howhuman activities and natural forces can affect water.Students should also be informed of the broaderconcept of sustainable development within which allaspects of water may be evaluated, and the value ofwater in providing jobs and quality of life.Opportunities for water education in the schoolsystem exist at various grade levels, in various subjectareas, and as specialized programs and courses intechnical schools and universities. There is currentlyan abundance of essential knowledge to be shared.The most important tasks will be to assemble thematerial, to structure or modify it to fit appropriatelyinto the curriculum, and to provide the experiencedresource professionals to assist both the teachers andthe students.IntentTo develop in students, the understanding, respect,skills, and knowledge that will enable them tomanage and protect water better in the future thanwe do today.Application1. The Government of Manitoba will:• collect and assemble already available water educationmaterial from local sources and othersources, such as the federal government, neighbouringprovinces and states, and various privateagencies and organizations.• work with curriculum developers to determineopportunities and criteria for including water education.• provide curriculum developers with suitable watereducation material to fit into the school curriculum.• provide experts and other experienced and knowledgeablestaff to give classroom presentations andfacilitate classroom and field demonstrations tosupport water education.• support water education through summer employmentand student volunteer programs related towater.75

Applying the PoliciesEducation• provide available data, expertise, and guidance tosupport school assignments and projects related towater.• ensure that water education materials are developedwithin a broader interdisciplinary framework incorporatingthe concept of sustainable development.• support university level research and demonstrationprojects related to water.• pursue the formation of partnerships with variousassociations, agencies, and organizations to supportwater education programs.• ensure that water education materials are developedwithin a broader interdisciplinary framework incorporatingthe concept of sustainable development.2. School boards, schools, and teachers can:• participate in developing suitable water educationmaterial and incorporating it into school programs.• provide encouragement and direction to studentsundertaking school projects and doing volunteerwork related to water management.• organize participation by water experts in classroompresentations, field demonstrations, and otherforums for water education.3. The general public, industry, business, waterrelatedassociations, agencies, and organizations,and parents, can:• encourage, through their participation in schoolparent/teacher associations, school boards, andother means, the inclusion of water education in theschool curriculum.• support both the students and teachers in educationprograms, projects, and assignments related towater.• reinforce water education by good example.76

Applying the PoliciesEducationPOLICY 7.2General Public – Education on water matters shall be achieved in part through the sharing ofinformation, demonstration projects, and the involvement of the general public.BackgroundIncreasing pubic concern about water issues, andincreasing participation in water management by thepublic has emphasized the need for accessible dataand information regarding water issues. Water managers,in government and private organizations, havekey roles to play in supplying this information. Inaddition to being a source of raw data and providingopportunity for informed analysis, demonstration projectshave proven to be effective methods of communicationand encouraging participation. Cost-effectivemeans of communicating information must be foundand, indeed, will be increasingly demanded byManitobans.Intent1. To develop in all Manitobans, the understanding,respect, and knowledge that will support theprotection and sound management of water.2. To enable Manitobans to have an informedinput to water management decisions and otherdecisions that affect water.Application1. The Government of Manitoba will:• actively promote water conservation, and land andwater uses and technology that support the soundmanagement and protection of water.• develop and maintain provincial and local waterresource information and data bases, and provideassistance to all users in accessing and interpretingthe data and information.• collect and assemble existing informational andpromotional material related to water, and whereappropriate, develop new material such as pamphlets,fact sheets, brochures, and videos relevantto Manitoba conditions, to enhance public understandingof water and to guide public actions tosupport the sound management and protection ofwater.• advertise the “Manitoba Surface Water QualityObjectives,” and explain their meaning, uses, andapplication.• provide water information and expertise, uponrequest, through easily accessible and appropriatelystaffed regional centres.• provide local government offices with lists or directoriesof water information and expertise availablefor use by the public.• provide knowledgeable staff to speak at local gatherings,meetings, and functions on matters relatedto water.• support or host conferences, workshops, and seminarsrelated to water.77

Applying the PoliciesEducation• develop, implement, or participate in demonstrationprojects designed to illustrate technology and landand water uses that support sound management andprotection of water.• conduct tours of water projects and problem areas,where appropriate, to extend information andknowledge related to water.• undertake integrated basin and watershed planningwith public involvement, to support both water managementand water education objectives.• use a public consultative process, and encourageand organize broad public participation in developingwater-related legislation, policy, programs, andinitiatives.• reinforce sound management and protection ofwater by good example.2. Local authorities can:• collect and assemble educational material thataddresses water issues, including that availablefrom the provincial government, and make thesematerials available to the public through displayand distribution in local government business officesand meeting places.• encourage and help organize public participation inwater management demonstration projects.• support and help promote conferences, seminars,and workshops related to water.• encourage local media support and promotion oflocal water management initiatives and achievements.3. Industry, business, local interest groups, andindividuals can:• contact regional information centres and local governmentbusiness offices, and consult knowledgeableagency representatives and local officials for data,information, and expertise related to water.• attend and participate in water-related demonstrationprojects, tours, meetings, conferences, workshops,and seminars.• inform government staff and local officials of waterrelatedconcerns and information needs.• encourage neighbours to support and adopt economicallyand environmentally sound land andwater management practices.• maintain updated lists or directories of water informationand expertise available from government andother sources, and assist the public by directingwater-related inquiries to government regionaloffices and other sources.• encourage and help coordinate local participationin basin and watershed planning.• publicize local water management goals, programs,and initiatives, and encourage public participationin formulating those goals and planning local projectsand initiatives.78

Applying the PoliciesEducationPOLICY 7.3Forum for Scientific and Technical Input – A forum shall be developed to obtain input from thescientific, technical, and professional communities on water management issues.BackgroundThe concept of sustainable development hasevolved largely in response to the input of the scientific,professional and technical communities. The integrationof disciplines needed to implement sustainabledevelopment planning and practice has been dependenton a variety of forums within which the manycommunities can communicate. Local, national, andinternational networks of associations, organizationsand conferences need to be supported and tappedbecause of the individual contributions they can maketo sustainable development and the synergistic effectof cooperation.Manitoba is in a unique position to capitalize onthe potential benefits of information exchangedthrough the International Institute for SustainableDevelopment. Water management will be an issuedealt with frequently by the Institute. Scientific, professional,and technical communities, as well as allManitobans, will have ready access to informationabout issues and management practices worldwide.IntentTo enhance the sharing and application of the mostup-to-date technology and information on watermanagement.Application1. The Government of Manitoba will:• facilitate the exchange of scientific and technicalinformation related to water through the provincialgovernment's partnership in the establishment ofthe International Institute for SustainableDevelopment.• support international, national, provincial, or localconferences, technical seminars, and workshopsrelated to water.• support or participate in water managementresearch and demonstration projects involvingwater management experts and professionals fromthe federal and provincial governments, industryand organizations, and the universities.• consult with other provinces, neighbouring states,industry, business, and other sources to obtain andassemble the most current technology, information,and expertise related to water management.• solicit and use high quality scientific and technicalinformation and expertise in basin and watershedplanning and local resource management planning.• support professional and scientific organizationsand associations dedicated to developing, exchanging,and sharing water management technologyand information.• modify or enhance government agency organizationalstructures, working arrangements, and mechanismsto improve integrated, multi-disciplinaryplanning and decision making.79

Applying the PoliciesEducation2. Local authorities, industry, business, and individualscan:• support conferences, seminars, workshops, anddemonstration projects related to water.• support basin and watershed planning and integratedresource management planning as vehicles forobtaining and sharing scientific, technical, and professionalinputs.3. The scientific, technical, professional, and academiccommunities can:• organize and participate in conferences and seminarsconcerning a broad spectrum of water-relatedissues.• seek out and bring attention to important emergingwater-related issues, and dedicate research efforts tohelp resolve those issues.POLICY 7.4Community Leaders and Elected Representatives – Community leaders and elected representativesshall be provided with the information they need to make sound water management decisions.BackgroundCommunity leaders and elected representativesare the ultimate decision makers regarding the developmentof public waterworks and sewage systems.They are also the creators of legislation affectingaccess to water, the development of water sources anddistribution systems, and the setting of quality standards.It is crucial, therefore, that these people receiveinformation about water issues which accuratelyreflects scientific understanding, economic realities,and public values. They must have a good understandingof the options that are available to them, andthe implications of each option – their costs, benefits,risks, and impacts. If information is either insufficientor inaccurate, the resulting decisions, policies, andactions might ultimately be ineffective, or may haveserious economic, social, and environmental consequences.representatives. Much information is in a scientific ortechnical form that a lay person cannot readily use,and analyses and other educative material often cannotbe brought to decision makers’ attention rapidlyenough to meet day-to-day needs. This is particularlythe case in smaller communities and rural municipalitiessince they do not have the resources to researchissues.IntentTo ensure that community leaders and elected representativeshave the necessary information anddata to support sound water management decisionsand programs.The greatest challenge is to find ways of providingthis information so that it is thorough, yet concise.Great amounts of information are available, but, muchof it is unusable by community leaders and elected80

Applying the PoliciesEducationApplication1. The Government of Manitoba will:• develop and maintain water resources informationand data bases.• where appropriate, undertake or support comprehensive,integrated studies and investigations tofacilitate the planning and development of local andregional water-related strategies and projects.• supply information and data to community leadersand elected representatives, and provide assistancein interpreting and understanding the information,where necessary.• attend local meetings, as requested, to provide informationon available programs and assistance, andto provide information required for local water managementdecisions.• use basin and watershed planning to enhance localauthorities’ knowledge of water-related issues,opportunities, and constraints, and to enhance localplanning and decision making.• collect, assemble, and use data and informationfrom government and other sources to assist localplanning and decision making related to water.• participate in basin and watershed planning and usethe information, knowledge, and data gained fromthe processes to support local planning and decisionsrelated to water.• invite resource management professionals to localcouncil meetings and other functions to communicatelocal needs and concerns related to water, andto solicit assistance and information.3. Individuals and interest groups can:• participate in basin and watershed planning, andassist in developing water-related information anddata to support local planning and decision making.• communicate water-related concerns, knowledge,and experience to local leaders and elected representativesto assist them in planning and decisionmaking.• support and help organize local community roundtables, local advisory committees, managementboards, and other forums as effective means oftransferring water-related data and information andfacilitating the resolution of local water managementproblems and issues.2. Local authorities can:• establish or support local advisory committees,management boards, community round tables, andother forums to acquire water-related data andinformation for assisting local planning and decisionsmaking.• consult with resource professionals, or resourcemanagement consultants where appropriate, toacquire technical assistance, information, and datato assist local planning and decision making.81

MANITOBA’S SUSTAINABLE DEVELOPMENT STRATEGYWhat Is Sustainable Development ?Our efforts to manage water successfully need to be placed inthe context of wider efforts to achieve a sound environment and asustainable economy. The problems of the environment andeconomy are many and global. When the United Nations set out toformulate a global agenda for change, “...there were those whowanted its considerations to be limited to “environmental issues”only. This would have been a grave mistake. The environment doesnot exist as a sphere separate from human actions, ambitions, andneeds....The word “development” has also been narrowed by someinto a very limited focus....But the “environment” is where we alllive; and “development” is what we all do in attempting to improveour lot....The two are inseparable.” 1It was therefore determined that a “...new development pathwas required, one that sustained human progress not just in a fewplaces for a few years, but for the entire planet into the distantfuture. Thus “sustainable development” becomes a goal not justfor the “developing” nations, but for industrial ones as well.” 2A Global PerspectiveSustainable development, as expressed in the WorldCommission on Environment and Development Report, “OurCommon Future”, is a process of changing the character of society.It involves fundamental changes in the way business is done, whatis taught to our children, how we as individuals live and conductour lives and how government and societies’ public institutionsaddress the essential problems affecting our life.The U.N. Commission described sustainable development aspaths of environmental, economic, social and political progress that“...meets the needs of the present without compromising the abilityof future generations to meet their own needs.” 3The Commission indicated that to achieve sustainabledevelopment, we will need: “a political system that secureseffective citizen participation in decision making, an economicsystem that is able to generate surpluses and technical knowledgeon a self-reliant and sustained basis, a social system that providesfor solutions for the tensions arising from disharmoniousdevelopment, a production system that respects the obligation topreserve the ecological base for development, a technologicalsystem that can search continuously for new solutions, aninternational system that fosters sustainable patterns of trade andfinance, and an administrative system that is flexible and has thecapacity for self-correction.” 4The U.N. Governing Council of Environmental Programs,further clarified the definition stating it means: “...progress towardsequity within and among nations; the need for a favourableinternational economic environment that would help to sustaineconomic growth in all countries, and emphasizing that suchgrowth is essential for sound management of the environment aswell as maintenance and rational use of natural resources; the needfor integration of environmental concerns into developmentplanning; and the recognition of the sovereignty of nations topursue the development methods of their own choice.” 5A National PerspectiveCanada’s National Task Force on Environment and Economyagreed with the U.N., stating: “... our economic systems should bemanaged to maintain or improve our resource and environmentalbase so that the generations that follow will be able to live equallywell or better. Sustainable economic development does not requirethe preservation of the current stock of natural resources or anyparticular mix of human, physical, and natural assets. Nor does itplace artificial limits on economic growth, provided that suchgrowth is both economically and environmentally sustainable.” 6A Provincial PerspectiveFor the province of Manitoba and the Manitoba Round Tableon Environment and Economy, sustainable development is ageneral philosophy and approach to guide our individual andcollective behaviour in respect of the environment (the lifesustaining processes of the earth and its natural resources) and theeconomy (the provision of jobs, incomes, and wealth resultingfrom economic activity).Sustainable development resolves the perceived conflictbetween human prosperity and sustaining the natural world for inreality, the environment and economy are interdependent andinterrelated.Sustainable development means environmentally sound andsustainable economic development, described by a vision forManitoba, comprising certain beliefs, principles, and guidelines.Manitoba’s vision is of economic growth which is environmentallysustainable. Our environment will be clean, safe andhealthy. Our economy will provide the ongoing wealth and abilityto provide goods and services for present and future generations.It is believed that we cannot continue to develop economicallyunless we protect the environment, that continued economicdevelopment will be needed to pay for important environmentalinitiatives, that the needs of the present must be met withoutsacrificing the ability of future generations to meet their ownneeds, and that attention must be paid to long term effects of bothenvironmental and economic decisions.While the earth’s ability to sustain and assimilate humandevelopment and activity is limited, sustainable developmentprovides the opportunity to pursue quality growth and wealthgeneration in an environmentally responsible manner.It allows us to address the real and emerging problems of:- sustaining human life by protecting the earth’s life supportsystem,82

Applying the Policies- providing jobs and incomes for those presently unemployedand for the work force of the future,- cleaning up degraded areas,- anticipating and preventing or mitigating environmental andeconomic mistakes,- enhancing our natural resources upon which jobs and incomesdepend,- providing mobility, health care, education, and social services,and- assisting the world community in feeding, clothing, andsheltering a population which is expected to double from fiveto ten billion by 2040.However, realizing these opportunities and solving these problemswill require:- generating more from less through efficient and effective useof resources,- reducing, reusing, recycling and recovering the products andby-products of production and consumption,- ensuring environmentally sound value-added processing andmanufacturing,- enhancing productivity through political, technological,scientific, institutional, and social innovation,- replenishing and reclaiming damaged environments,- increasing the productive capability and quality of naturalresources, and- conserving and developing substitutes for scarce resources.Land and Water StrategyThe Land and Water Strategy is part of Manitoba's overallsustainable development strategy. It is being developed through aseries of workbooks like this one. Workbooks, public consultation,and release of “What You Told Us” Reports on water, soil, forests,minerals and natural lands have already been completed. Cabinetapproval of policies has already been completed for soils andwater.The Land and Water Strategy addresses the development, use,conservation, and protection of our natural and environmentalresources which are vital to our economic future. We have notalways treated our land and water resources wisely. The time hasnow come for us to ensure the sustainability of our natural heritage.The Land and Water Strategy will guide the management of ourresources and help us to develop and protect them for present andfuture generations. The goals of the Land and Water Strategy are:- To sustain resources, enhance productivity, and improveenvironmental quality, including human health.- To improve and diversify income and job opportunitiesthrough the management, protection, and development of landand water resources.- To manage resource and related activities in order to preservedevelopment options for future generations.- To protect ecological systems, maintain the genetic diversityof species, and preserve the resilience and productivity of thenatural environment.Government agencies will work in partnership with aconcerned and informed public. Besides provincial and federalgovernment departments, the job of policy application will involverural municipalities, local government districts, and conservationdistricts, local soil and water interest groups, nature groups, privateorganizations, developers, business people, landowners, and allresidents, whether rural or urban. The job of policy applicationbelongs to all of us. Only through sharing this responsibility canwe ensure that our development is sustainable.SUSTAINABLE DEVELOPMENTSTRATEGYLAND & WATER STRATEGYWATERFORESTSNATURAL LANDS &SPECIAL PLACESFISHERIESSOILSMINERALSWILDLIFEOTHERS1 The World Commission on Environment and Development.1987. Our Common Future. Oxford University Press. Toronto,Canada. pp.xi2 Ibid., pp.4.3 Ibid., pp.8.4 Ibid., pp.65.5 Environmental Conservation. 1989. Vol. 16, No. 4, Winter.Switzerland. pp.3746 The National Task Force on Environment and Economy. 1987.Report. Canadian Council of Resource and EnvironmentalMinisters. Ontario, Canada. pp.383

PRINCIPLES AND GUIDELINES OF SUSTAINABLE DEVELOPMENTThe following principles and guidelines are fundamental to the achievement of environmentally sound andsustainable economic development.Principles1. Integration of environmental and economicdecisions: requires that we ensure economic decisionsadequately reflect environmental impacts including humanhealth. Environmental initiatives shall adequately take intoaccount economic consequences.2. Stewardship: requires that we manage the environment andeconomy for the benefits of present and future generations.Stewardship requires the recognition that we are caretakers ofthe environment and economy for the benefit of present andfuture generations of Manitobans. A balance must be struckbetween today’s decisions and tomorrow’s impacts.3. Shared responsibility: requires that all Manitobansacknowledge responsibility for sustaining the environment andeconomy, with each being accountable for decisions andactions, in a spirit of partnership and open cooperation.4. Prevention: requires that we anticipate, prevent or mitigatesignificant adverse environmental (including human health)and economic impacts of policy, programs, and decisions.5. Conservation: requires that we maintain essential ecologicalprocesses, biological diversity, and life-support systems of ourenvironment; harvest reusable resources on a sustained yieldbasis; and make wise and efficient use of our renewable andnon-renewable resources.6. Waste minimization: requires that we endeavour to reduce,reuse, recycle, and recover the products of our society.7. Enhancement: requires that we enhance the long termproductive capability, quality, and capacity of our naturalecosystems.8. Rehabilitation and reclamation: requires that weendeavour to restore damaged or degraded environments tobeneficial uses. Rehabilitation and reclamation requireameliorating damage caused in the past. Future policies,programs, and developments should take into consideration theneed for rehabilitation and reclamation.9. Scientific and technological innovation: requires thatwe research, develop, test, and implement technologiesessential to further environmental quality including humanhealth and economic growth.10. Global responsibility: requires that we think globally whenwe act locally. Global responsibility requires that werecognize there are no boundaries to our environment, and thatthere is ecological interdependence among provinces andnations. There is a need to work cooperatively within Canadaand internationally to accelerate the merger of environmentand economics in decision making and to developcomprehensive and equitable solutions to problems.Guidelines1. Efficient use of resources: we shall encourage and supportdevelopment and application of systems for proper resourcepricing, demand management, and resource allocation togetherwith incentives and disincentives to encourage efficient use ofresources and full environmental costing of decisions anddevelopments.2. Public participation: we shall establish appropriate forumswhich encourage and provide opportunity for consultation andmeaningful participation in decision making processes by allManitobans. We shall endeavour to ensure due process, priornotification and appropriate and timely redress for thoseaffected by policies, programs, decisions and developments.3. Understanding and respect: we shall be aware that weshare a common physical, social and economic environment inManitoba. Understanding and respect for differing social andeconomic views, values, traditions and aspirations is necessaryfor equitable management of these common resources.Consideration must be given to the aspirations, needs andviews of various regions and groups in Manitoba.4. Access to adequate information: we shall encourage andsupport the improvement and refinement of our environmentaland economic information base and promotion of theopportunity for equal and timely access to information by allManitobans.5. Integrated decision making and planning: we shallencourage and support decision making and planningprocesses that are open, cross-sectoral, incorporate timehorizons relevant to long-term implications and are efficientand timely.6. Substitution: we shall encourage and promote thedevelopment and use of substitutes for scarce resources wherethey are both environmentally sound and economically viable.84

THE MANITOBA WATER POLICIES1. Water qualityTo protect and enhance our aquaticecosystems by ensuring that surfacewater and groundwater quality isadequate for all designated uses andecosystem needs.Policy 1.1 - The “Manitoba Surface WaterQuality Objectives” shall be adopted andimplemented to protect water uses forManitobans.Policy 1.2 - Water quality shall be enhancedthrough the management of water resources.Policy 1.3 - Water quality enhancementprograms shall be designed to restoreenvironmental quality, as well as delivereconomic, cultural, and heritage benefits toManitobans.Policy 1.4 - The quality of wastewaterdischarges shall be improved and non-pointsources of pollution decreased to achieve waterquality objectives.Policy 1.5 - Pollution control programs shall bedesigned in consultation with affected usergroups and, where possible, implemented insuch a manner as to cause minimum disruptionto established land and water uses.2. ConservationTo conserve and manage the lakes,rivers, and wetlands of Manitoba so asto protect the ability of the environmentto sustain life and provideenvironmental, economic, and aestheticbenefits to existing and futuregenerations.Policy 2.1 - River, lake, and shoreland habitatand the general environmental, subsistence, andeconomic values of rivers, lakes, and wetlandsshall, where possible, be conserved.Policy 2.2 - Soil conservation, wetlandretention, and the application of appropriate landuse practices shall be promoted primarily by theprovision of incentives, but with regulationwhere required, not only as essential elements ofwater conservation and protection, but also askey measures to reduce siltation impacts,downstream flooding, and non-point sourcepollution.Policy 2.3 - Those waterways whose cultural,natural, and/or recreational values are ofprovincial or national significance shall be givenspecial consideration.Policy 2.4 - Water retention, and control andtiming of runoff, shall be promoted as part ofwatershed management.3. Use and allocationTo ensure the long term sustainabilityof the province’s surface waterand groundwater for the benefit of allManitobans.Policy 3.1 - Economic well being andsustainability shall be the goal in the allocationand utilization of Manitoba’s water resources forconsumptive and instream uses.Policy 3.2 - Water management priorities shallbe determined through a basin planning processthat takes into account the protection of potablewater supplies, environmental integrity, existingcommitments, and economic requirements.Policy 3.3 - Groundwater development andutilization shall be managed so that the longterm sustainability of aquifers is achieved andexisting uses are not negatively impacted.Policy 3.4 - Surface water shall be managed toensure sustainability of supplies.Policy 3.5 - Transfer of untreated water acrossthe Continental Divide (to or from the HudsonBay drainage area) shall be opposed. Transferswithin the Hudson Bay drainage area shall beminimized and only considered after a completeassessment of the environmental, social, andeconomic impacts on the donor and receivingbasins.4. Water supplyTo develop and manage theprovince’s water resources to ensurethat water is available to meet priorityneeds and to support sustainableeconomic development and environmentalquality.Policy 4.1 - Demand management programsshall be implemented to conserve water andreduce the requirements for new water supplyinfrastructure.Policy 4.2 - Irrigation, industrial, and otherdevelopment proposals involving direct orindirect water use shall consider impacts onexisting and potential water uses as well asimpacts on the environment.Policy 4.3 - The cost of developing, operating,and maintaining the water resourceinfrastructure shall be apportioned among thebeneficiaries in accordance with their share ofthe benefits.Policy 4.4 - Pristine and potable water sourcesshall be afforded special protection.5. FloodingTo alleviate human suffering andminimize the economic costs of damagescaused by flooding.Policy 5.1 - Development on land subject toflooding or other water related hazards shalloccur only under planning guidelines whichprevent human suffering and property damage,limit public costs and liabilities, and addressenvironmental impacts.Policy 5.2 - Economically viable measures toalleviate personal and property damage toexisting development in flood prone areas shallbe fostered.Policy 5.3 - The negative impacts of changes towater level and flow regimes caused by hydroelectricdevelopment projects shall be mitigatedto the extent possible.6. DrainageTo enhance the economic viability ofManitoba’s agricultural communitythrough the provision of a comprehensivelyplanned drainage infrastructure.Policy 6.1 - Drainage works shall be designed toremove excess rainfall from cropland during thegrowing season.Policy 6.2 - The standard of drainage shall bebased on the production capability of the soiland on technical, economic, and environmentalcriteria, recognizing watershed, community, andfarm impacts.Policy 6.3 - Maintenance of existing drainagesystems shall be of higher priority thanreconstruction.Policy 6.4 - Reconstruction of drainage systemsto improve productivity and to reduce erosionand deposition shall be given a higher prioritythan expansion into new agricultural lands.Policy 6.5 - Drainage projects shall be plannedand executed so that projects in one area do notadversely affect another area.Policy 6.6 - The protection of wetlands shall bea consideration in planning and developingdrainage projects.Policy 6.7 - Water retention, and control andtiming of runoff, shall be promoted as part ofwatershed management.7. EducationTo enhance the awareness andknowledge of Manitoba’s water resources.Policy 7.1 - Schools: Students of all ages shallbe provided with information on the significanceof Manitoba’s water resources.Policy 7.2 - General Public: Education on watermatters shall be achieved in part through thesharing of information, demonstration projects,and the involvement of the general public.Policy 7.3 - Forum for Scientific and TechnicalInput: A forum shall be developed to obtaininput from the scientific, technical, andprofessional communities on water managementissues.Policy 7.4 - Community Leaders and ElectedRepresentatives: Community leaders and electedrepresentatives shall be provided with theinformation they need to make sound watermanagement decisions.85