Flooding in First Nations communities

Structural mitigation

ISC works with First Nations to support on-reserve structural mitigation projects that protect First Nations communities from climate-related hazards. Projects include:

• dikes
• sea walls
• erosion-control measures

As of September 30, 2022, ISC has invested $ 126.1 million to support 108 structural mitigation projects, 62 of which are complete. These projects will benefit 110 communities serving approximately 118,000 people.

Budget 2019 committed $48 million over 4 years, starting in 2020 to 2021, to renew funding for structural mitigation projects. As this funding is delivered through the terms and conditions of the First Nations Infrastructure Fund, potential structural mitigation projects are to be identified by First Nations communities and provided to the regional offices.

Emergency Management Assistance Program

ISC administers Emergency Management Assistance Program (EMAP) as the main source of federal funding to reimburse on-reserve emergency management activities, including:

• flood mitigation
• preparedness
• response
• recovery

The program also provides funding to provinces, territories and non-government organizations to support on-reserve emergency management and response services.

In addition, the Building Back Better Strategy for implementing EMAP offers additional supports to reduce First Nations communities' vulnerability and strengthen resilience in response and recovery.

Specific examples in each region are set out below.

Atlantic

(Atlantic regional office)

Through response and recovery, ISC supports First Nations on reserves in responding to imminent threats, including flooding and recovery from emergency events. The Building Back Better strategy is used to implement measures to prevent or reduce the risk of future flooding.

In the 2021 to 2022 fiscal year, ISC provided support for preparedness and non-structural mitigation activities in Atlantic Canada including:

• all-hazards needs assessments completed for 2 First Nations communities in Atlantic Region:
  • Saint Mary's First Nation, New Brunswick
  • Woodstock First Nation, New Brunswick
• assessment of Sunrise Trail, a critical road, in Eskasoni First Nation, Nova Scotia that is eroding due to flooding and storm surges
• emergency management team training on how to prevent, mitigate, respond and recover from flooding
• emergency communication tools such as:
  • Everbridge Notification system for the 5 First Nations in Cape Breton:
    • Potlotek First Nation
    • Eskasoni First Nation
    • Membertou First Nation
    • We'koqma'q First Nation
    • Wagmatcook First Nation
  • mass communication system for North Shore Micmac District Council supporting 7 First Nations in New Brunswick:
    • Buctouche First Nation
    • Eel Ground First Nation
    • Eel River Bar First Nation
    • Fort Folly First Nation
    • Indian Island First Nation
    • Metepenagiag Mi'kmaq Nation
    • Pabineau First Nation
  • emergency management team radios for 9 First Nations in Atlantic Region:
    • Buctouche First Nation
    • Eel Ground First Nation
    • Eel River Bar First Nation
    • Fort Folly First Nation
    • Indian Island First Nation
    • Metepenagiag Mi'kmaq Nation
    • Pabineau First Nation
    • Woodstock First Nation
    • Mushuau Innu First Nation

Since January 2020, ISC has provided capacity enhancement funding to First Nations and tribal councils in all 4 Atlantic provinces to support First Nations Emergency Management Coordinators to plan for and deal with various natural emergencies, including flooding.

ISC, in coordination with Emergency Management Coordinators in Atlantic region, has developed a community of practice where information is shared including best practices related to all hazards emergency management preparedness, mitigation, response and recovery.

In addition to providing funding support to First Nations on reserve under the 4 pillars of emergency management, ISC works collaboratively with provincial partners and other federal departments to support flood preparedness and mitigation.

New Brunswick Riverwatch is a dedicated water-level monitoring system and program to assist with flood planning and mitigation in the province. ISC monitors the New Brunswick Riverwatch program, participates in provincial Riverwatch briefings and sends key situational awareness information to First Nations as needed.

Quebec

(Quebec regional office)

ISC supports First Nations preparedness activities in Quebec, including emergency management plan updates, exercises and training.

Risk mitigation measures have been implemented in First Nations communities with the financial support of ISC. This includes:

• addition of Waterguard system in houses that were at risk of flood due to high water tables (Nutashkuan and Kanesetake)
• raising housing foundations in the groundwater flood zone (Listuguj)
• sandbags in store in case of floods (Kanesatake and Mashteuiatsh)
• alert system and evacuation plans (Chisasibi)

In addition to direct investments, ISC supports First Nations by way of the following measures and projects:

• providing funding for the Grand Council of the Waban-Aki Nation to set up an emergency management assistance program for the benefit of First Nations
• maintaining regional agreement with the Canadian Red Cross to support First Nations prepare for and during emergencies and evacuations, including conducting training and exercises related to disaster services and risk management and planning for disaster services

The Ministère de la Sécurité publique du Québec is responsible for civil security in Québec and supports municipalities in the protection of their citizens and property against disasters.

The Quebec-ISC bilateral agreement includes provincial assistance to First Nations in Quebec during disasters and allows the federal and provincial governments to collaborate on disaster risk management.

Ontario

(Ontario regional office)

ISC works with its partners regularly to explore new and innovative ways to improve how emergency programs are delivered for the benefit of First Nations communities. ISC supports flood watch for the Mushkegowuk Council and the First Nations communities along the coasts of the Hudson Bay and James Bay including:

• Fort Albany
• Attawapiskat
• Kashechewan
• Weenusk
• Moose Cree
• Fort Severn

Other activities:

• In 2021 to 2022, funding was provided for a precautionary evacuation of Kashechewan and Fort Albany First Nations that enabled residents to temporarily move to higher ground in traditional hunting camps, mitigating the risk of needing to evacuate to urban centres during flooding caused by the spring ice break-up
• A Memorandum of Understanding was signed with the Mattagami First Nation for the First Nation to provide liaison services on behalf of ISC during evacuations in host communities along Ontario's Highway 11 corridor
• Budget 2019 announced national capacity funding of $43.7 million over 5 years for the creation of First Nations emergency management coordinators. In Ontario, 21 emergency management coordinators support First Nations capacity to plan for and deal with various natural emergencies, including flooding
• As of the end of fiscal year 2021 to 2022, funding has been provided to emergency management coordinators at the following organizations:
  • Anishinabek Nation
  • Bimose Tribal Council
  • Grand Council Treaty #3
  • Independent First Nation Alliance
  • Keewaytinook Okimakanak Tribal Council
  • Mamawesen-The North Shore Tribal Council
  • Matawa First Nations Management
  • Mushkegowuk Council
  • Nishnawbe Aski Nation
  • Nokiiwin Tribal Council
  • Ogemawahj Tribal Council
  • Ontario First Nations Technical Service Corporation
  • Shibogama First Nations Council
  • Six Nations of the Grand River
  • Wabun Tribal Council
  • Windigo First Nations Council
• Funding is available for First Nations and tribal councils leading emergency support specialist training for those providing front-line support during an emergency event. Areas of training include protection, incident management, aerial and imaging, resource management and wellness
• New partnerships have been established with various First Nations communities and First Nations organizations to develop Indigenous-led security and protection teams to assist and protect First Nations residents when they are evacuated to host communities
• Support was provided to build an Indigenous-led and operated rapid response deployable emergency team at Independent First Nations Alliance, Missanabie Cree First Nation, Sheshegwaning First Nation and Mamaweswen-The North Shore Tribal Council. These teams will deploy directly to First Nations communities dealing with emergencies to provide on-the-ground assistance
• ISC continues to support First Nations-led solutions designed to increase host evacuation sites in Ontario
• In fiscal year 2022 to 2023, ISC will enter year 5 of a 10-year bilateral agreement with the Ministry of the Solicitor General designed to strengthen the province of Ontario's response capacity to natural hazards and events affecting First Nations

Manitoba

(Manitoba regional office)

Prevention and mitigation efforts are crucial to avoiding future situations such as the severe 2011 Manitoba flood. To date, ISC has invested more than $80 million to protect Manitoba First Nations from future flooding. This included approximately $54.9 million to construct permanent dikes or make temporary dikes permanent at 11 First Nations in Manitoba:

• Sioux Valley
• Opaskwayak
• Canupawakpa
• Sandy Bay
• Ebb and Flow
• Lake Manitoba
• O-Chi-Chak-Ko-Sipi
• Little Saskatchewan
• Poplar River
• Berens River
• Kinonjeoshtegon

A permanent ring dike has also been in place at Roseau River Anishinabe First Nation since 2004.

The province of Manitoba issues annual spring flood outlooks which ISC and First Nations in Manitoba use to evaluate and monitor for potential flooding.

Since January 2020, ISC has provided capacity enhancement funding to all 63 First Nations and 7 Tribal Councils in Manitoba to support communities' and Tribal Councils' First Nations Emergency Management Coordinators.

With support from ISC, the Assembly of Manitoba Chiefs organized the virtual 2020 Manitoba Flood Preparedness Forum where all were invited to participate in information sharing and planning related to flooding.

ISC signed a 5-year agreement with the Canadian Red Cross, effective April 1, 2017 to support Manitoba First Nations in emergency situations, including managing response and evacuations due to:

• flood
• fire
• other circumstances

The agreement has been renewed for 1 year, effective April 1, 2022.

Saskatchewan

(Saskatchewan regional office)

ISC supports First Nations, tribal councils and First Nations organizations in Saskatchewan under the 4 pillars of emergency management on an annual basis to enhance emergency management capacity at the community level, including spring flood planning through the following:

• creating community emergency management leads and liaisons to provide emergency management planning, guidance and advice to leadership, the First Nations and partners
• forming community emergency management teams and committees
• developing and updating community all-hazard emergency management plans, including all-hazard risk assessments
• exercise design and related training, for example: basic emergency management, creating incident command systems and emergency operations centres, addressing emergency social services and training information officers
• community engagement to enhance preparedness, response and recovery capacity

Through EMAP, ISC also supports:

• annual First Nations Emergency Management Forum where Saskatchewan First Nations planning in sharing of emergency management initiatives and experiences, lessons learned, relationship building and partnerships
• After Action Reports with First Nations, tribal councils and partners as part of post-emergency and evacuation assessments
• EOC activation and training to coordinate and manage emergency events at community level
• First Nations collaboration agreements developed with Canadian Red Cross (CRC) for direct assistance during emergencies, including evacuations as well as preparedness and planning initiatives and training and exercises in risk management.
• First Nations emergency social services preparedness and training
• search and recovery capacity and training

ISC uses the Building Back Better strategy to support First Nations in response and recovery to reduce community vulnerability for natural disaster related emergency events and strengthen community capacity and resilience.

ISC also supports First Nations in responding to imminent threats, such as overland flooding, by reducing excessive snowpack and opening culverts and ditches in areas historically affected by rapid snow melt. In March of every year, ISC engages with First Nations, tribal councils, federal and provincial partners and non-government organizations specific to spring flooding to evaluate and monitor for potential flooding impacts to communities.

With investments from ISC, structural mitigation projects to address flooding are also underway in:

• Muskoday First Nation: community drainage study
• Peter Ballantyne Cree Nation: drainage and lot improvements at Southend and Pelican Narrows
• Red Earth Cree Nation: river dike extension
• Star Blanket Cree Nation: community drainage (Village of Lebret)
• Whitecap Dakota First Nation: community drainage and Buffalo Berry subdivision drainage works
• Witchekan Lake First Nation: community roads and drainage
• Zagime Anishinabek: community drainage study

Alberta

(Alberta regional office)

ISC continues to support Alberta First Nations on reserves in:

• reducing the potential for flooding that threatens residents, houses and other infrastructure
• responding to imminent threats
• recovering from flood events

ISC uses the Building Back Better strategy to:

• support the restoration of communities and assets
• reduce the vulnerability of First Nations communities to future flood events
• strengthen community resilience to future flood events

ISC has a comprehensive emergency management service agreement with the Province of Alberta. The agreement ensures that Alberta First Nations are fully integrated into the provincial emergency management system. This includes a direct provincial presence, as required, during emergency events on reserves that is integrated with the broader provincial response as well as preparedness training and emergency planning assistance.

ISC supports a number of projects on reserves specifically focused on preparedness and mitigation for overland flooding. Over the past few years, Alberta region has provided funding to the following initiatives in region, some are ongoing as a result of delays related to the pandemic:

• FNAdapt funding for the Alberta Bow River Basin Flood Hazard Assessment Project, 2017 to 2018
• Flood Plain Mapping project at Cold Lake First Nation, 2019 to 2020
• Flood Risk Mitigation study at Frog Lake First Nation, 2019 to 2020
• Flood Mapping for Little Red River Cree Nation, 2020 to 2021
• Complete Flood Mitigation Study for Paul Band, 2020 to 2021
• Master Drainage Planning projects at Alexander (2 years), Louis Bull, Montana, 2020 to 2021
• High risk area drainage planning projects at Samson and Bigstone (2 years), 2020 to 2021
• Flood Mitigation Study and Engineering Design for Tallcree First Nation, 2021 to 2022
• Full Road Drainage Planning Project at Bigstone, 2021 to 2022
• Road Drainage Master Plan at Beaver Lake, 2021 to 2022
• FNAdapt funding provided to complete the Standoff Flood Hazard Mitigation Study, continuing the Government ofAlberta preparedness to mass flood events in the southern area of the province, 2021 to 2022

In addition, in the 2021 to 2022 fiscal year, capacity projects have expanded to pilots at the tribal council level to allow First Nations to focus on local project management and assist communities to work together and combine resources for preparedness, response and recovery.  Ongoing collaboration and engagement for the discussion and evolution of emergency management supports available to First Nations in Alberta region, with discussions happening at all levels.

The goal for capacity funding allocations is that they will be determined by Alberta chiefs through agreed upon processes and recipients, with input from provincial and federal partners.

British Columbia

(British Columbia regional office)

ISC has a service agreement with Emergency Management BC (EMBC) to provide emergency management services on reserve. The department will work diligently with EMBC to ensure timely reimbursement to communities.

The First Nations Emergency Services Society (FNESS) works closely with First Nations communities, EMBC, ISC and various other stakeholders to support the successful implementation of emergency management for First Nations communities in BC.

The Tripartite Memorandum of Understanding in BC ensures that First Nations have a voice in the governance and operations of emergency management services with ISC, the First Nations Leadership Council and the Province of British Columbia.

These agreements underpin ongoing discussions among partners on how to better support First Nations during emergencies and include FNESS in emergency response platforms.

In 2021, British Columbia experienced catastrophic flooding as a result of an atmospheric river event beyond the scope of any forecast. The event destroyed provincial infrastructure including key transportation corridors. BC First Nations were significantly affected. In response, ISC provided $6.2 million to the First Nations Emergency Services Society to support First Nations communities in British Columbia respond to and recover from this devastating event.

In addition to the supports outlined above through ISC's Emergency Management Program, First Nations were also given flood prevention funding through the First Nations Infrastructure Fund (FNIF). The following projects have been completed or are in progress to address potential flooding issues:

• Gitanmaax
  • Bulkley River bank erosion protection of an existing community access road
  • Design currently in progress
• Kwantlen First Nation
  • Bank erosion protection for infrastructure and lands on McMillan Island IR 6. Construction completed and the project is currently in the post-construction environmental monitoring stage
  • Flood plain strategy development funded by First Nations Adapt completed and the community is to incorporate the strategy within future planning
• Lower Kootenay
  • Dike reconstruction, which included creating new set-back dikes protecting on and off reserve assets
  • Construction completed and the project is currently in the post-construction environmental monitoring stage
• Nisga'a Village of Laxgalt'sap
  • Phase 1 construction and reinstallation of the erosion protection of existing dike infrastructure damaged in consecutive October 2020 to June 2021 atmospheric river events
• Nuu-Chah-Nulth Tribal Council (cost shared with First Nations Adapt)
  • A coastal vulnerability study project is in progress to develop models for coastal communities around Vancouver Island's West Coast to help predict estimated sea level rise, accompanying storm surge and its effects on infrastructure
  • As of March 2021, 12 communities have been completed:
    • Ahousaht
    • Ehattesaht
    • Hesquiaht
    • Hupacasath First Nation
    • Huu-ay-aht First Nations
    • Ka:'yu:'k't'h'/Che:k:tles7et'h' First Nations
    • Nuchatlaht
    • Tla-o-qui-aht First Nations
    • Toquaht
    • Tseshaht
    • Uchucklesaht
    • Ucluelet First Nation
  • Investigations for 2021 to 2022 include Ditidaht and Mowachat/Muchalaht (reporting and assessment delayed by COVID)
• North Coast (Cost shared with First Nations Adapt)
  • A north coastal vulnerability study is in progress to develop models for coastal communities to help predict estimated sea level rise, accompanying storm surge and its effects on the infrastructure of First Nations communities in northern British Columbia
  • As of March 2021, 20 communities have been completed:
    • Gitga'at First Nation
    • Gitxaala Nation
    • Haisla Nation
    • Lax Kw'alaams
    • Metlakatla First Nation
    • Nisga'a Village of Gingolx
    • Nisga'a Village of Laxgalt'ap
    • Old Massett Village Council
    • Skidegate
    • Heiltsuk
    • Kitasoo
    • Nuxalk Nation
    • Tlatlasikwala
    • Wuikinuxv Nation
    • Gwa'Sala-Nakwaxda'xw
    • Gwawaenuk Tribe
    • K'ómoks First Nation
    • Kwakiutl
    • Mamalilikulla First Nation
    • Namgis First Nation
  • Planned investigations for 2020 to 2022 (reporting and assessment delayed by COVID) include:
    • Da'naxda'xw First Nation
    • Dzawada'enuxw First Nation
    • Klahoose First Nation
    • Kwiakah
    • Kwikwasut'inuxw Haxwa'mis
    • Tla'amin Nation
    • Tlowitsis Tribe
• Naut'sa Mawt Tribal Council (cost shared with First Nations Adapt)
  • A coastal vulnerability study project is in progress to develop models for coastal communities around Vancouver Island to help predict estimated sea level rise, accompanying storm surge and its effects on infrastructure for Vancouver Island communities
  • Investigations completed as of March 2021 include:
    • Pacheedaht First Nation
    • T'Sou-ke First Nation
    • Esquimalt
    • Songhees Nation
    • Tsartlip
    • Malahat Nation
  • Planned investigations for 2020 to 2022 (reporting and assessment delayed by COVID) include:
    • Tsawout First Nation
    • Halalt First Nation
    • Penelakut Tribe
  • Of the remaining coastal communities, approximately 11 are planned to be completed in the 2022 to 2023 fiscal year
• Skwah, Shxwhá:y Village and the City of Chilliwack
  • A joint flood and erosion protection project of both First Nations and the City of Chilliwack is currently in design
• Soowahlie
  • Reconstruction of a failed dike section completed in 2018
  • Construction of river training works completed in 2019 and the project is currently in the post-construction environmental monitoring stage
• Gwa'Sala-Nakwaxda'xw
  • Flood protection Strategy and Feasibility Investigations completed
• Metlakatla First Nation
  • Coastal erosion protection works for existing infrastructure:
    • phase 1 construction started in 2018 to 2019
    • phase 2 construction was completed in 2019
    • phase 3 was completion delayed by COVID and planned December 2022 with costs shared with province
  • Joint initiative with National Research Council and Natural Resources Canada with funding from Department of National Defense to initiate a post-construction monitoring program and nature-based guideline development, to be completed in March 2024
• Peters First Nation
  • Initiating assessment and design of flood protection upgrades for existing homes and identifying upgrades to address climate change predictions identified for the overall river valley
  • Design was funded in 2018
  • Urgent erosion protection works funded by EMAP completed in March 2019
  • Construction started on flood protection works with Disaster Mitigation and Adaptation Fund (DMAF) funding expected to be completed March 2023
  • Construction funded and started on Housing Raising program as part of the communities overall flood protection strategy
• Sto:lo Nation and Lower Fraser Fisheries Alliance (cost shared with First Nations Adapt)
  • Funded the creation of a secretariat in fiscal year 2018 to 2023 to facilitate, collaborate and consolidate the coordination of 60 First Nations in the Lower Fraser River Valley with the Fraser Basin Council and the Lower Fraser Flood Plain Strategy, both in progress
• Samahquam
  • Started design in 2018 for community flood protection works
  • Plans to relocate and reconstruct 8 homes out of the flood plain to start as funding is made available
• Seabird Island
  • Started designs for upgrades to the community flood protection works to address level updates and climate change predictions on the Lower Fraser River
  • Pre-design completed
  • Funding for detailed design received funding in December 2020
• Cowichan
  • Ongoing sediment removal program to maintain flow capacity of the river system through the community
  • Funding provided for additional sediment removal funded in 2019 to 2020 2/3 funding was provided by the community
  • An agreement has been signed with the province to develop a long-term solution, and the joint funding application was successful in August 2020
• Squamish
  • Flood protection investigations of the Capilano River system within the community is in progress
  • Updated review of flood protection works within Cheakamus subdivision in progress
  • Cost sharing flood protection program with local municipality and regional district for the Seaichem Reserve. Feasibility Investigations funded and in progress
• K'όmoks First Nation
  • Started design for coastal erosion works in 2018
  • Construction to start when funding is made available
• Kwadacha
  • Flood protection investigations to update design levels with recent monitoring information and potential climate change impacts is in progress
• Katzie
  • Flood protection investigations for 3 reserves along the Fraser River. Feasibility investigations ongoing
• Gitwangak
  • Design funding for flood protection works planned for April 2022
• Leq'á:mel First Nation
  • EMAP-funded flood protection assessment in progress
• Old Massett Village Council
  • Emergency erosion protection works completed in 2019 and further ongoing work to be completed in 2023
  • Long-term erosion protection works, funded by First Nations Adapt, in progress
• Whispering Pines urgent dike protection and repair works:
  • Section of damage dike reconstructed May 2020
  • Designs for erosion protection works funded in July 2020; design still in progress
  • Construction of the proposed erosion protection works will begin as funds are made available
• ISC's regional infrastructure unit is working in coordination with its emergency management unit on various flood response and recovery efforts from the 2020 freshet season, 2020 coastal storm events, atmospheric rivers, 2021 coastal storm events, atmospheric rivers events and related 2021 riverine flood event along the Nicola River system

Yukon

(Yukon regional office)

Yukon regional office works with 14 Yukon First Nations and 3 First Nations located in northern British Columbia.

In the 2021 to 2022 fiscal year, 4 of 17 First Nations in Yukon Region received EMAP funding:

• Little Salmon/Carmacks First Nation, Yukon
• Selkirk First Nation, Yukon
• Taku River Tlingit First Nation, British Columbia
• Daylu Dena Council, British Columbia

This funding supported and enhanced emergency management capacity at the community level, including spring flood planning through:

• investments in equipment for emergency preparedness and mitigation such as handbooks, computers, printers, storage for emergency equipment, updating obsoleted emergency information or status displays and communications equipment and purchase of a siren
• development of local resource inventories
• maintenance of emergency equipment
• development and updating of community all-hazard emergency management plans, including all-hazard risk assessments
• training and testing of emergency plans including table top exercises and evaluation of plans including basic emergency management, creating incident command systems and emergency operations centres, addressing emergency social services and training information officers
• roles and responsibility training, guidance and advice to leadership, including governance and partner roles
• community engagement through testing of plans to enhance preparedness, response and recovery capacity

In addition, Yukon experienced unprecedented flooding in the summer of 2021. The Government of Yukon is the lead in responding to all emergency situations, including flooding, for all Yukoners including First Nations. Many of the structural enhancements undertaken to mitigate flooding in 2021 have been maintained and may be utilized again in 2022.

To date, 2 Yukon First Nations have requested and been given EMAP funding support in the 2021to 2022 fiscal year for flooding response and recovery efforts:

• Carcross/Tagish First Nation
• Teslin Tlingit Council