Manitoba Region Emergency Management Plan

Table of contents

Introduction

The Indigenous Services Canada (ISC) Regional Emergency Management Plans provide an overview of the specific roles and responsibilities of ISC regional offices and regional staff in supporting First Nations emergency management. This plan identifies the Manitoba regional office's responsibilities towards and relationship with First Nations, Indigenous-led organizations, the provincial and territorial governments, and non-governmental organizations involved in emergency management activities that support First Nations communities.

This plan supports the ISC National On-reserve All Hazards Emergency Management Plan by identifying region-specific:

Like the ISC national emergency management plan, this document is not meant to replace any First Nations, provincial, territorials, regional or community procedures and plans. It is intended to complement any existing plans or procedures and may be used to help make informed decisions and take concrete actions to assist First Nations communities in emergency situations.

This regional plan is intended to be an evergreen document and will be reviewed and updated at least every 2 years or following important changes to mandates or roles and responsibilities.

Scope

This plan supports First Nations on reserve in Manitoba in the 4 pillars of emergency management:

To learn more about the national emergency management plan's scope, see ISC's National On-reserve All Hazards Emergency Management Plan.

Regional risk environment

As outlined in ISC's national emergency management plan, Canada's risk environment includes a broad range of natural and human-induced hazards. Each region faces its own particular risk environment. You can find Manitoba's regional risk assessment below.

Regional context informing risk assessment

  • Manitoba region is home to a wealth of diverse landscapes ranging from rare grasslands to vast boreal forest, and rich wetlands to pristine arctic tundra, with abundant freshwater lakes and a marine coastline
  • Manitoba is home to First Nations signed to Treaty 1, Treaty 2, Treaty 3, Treaty 4 and Treaty 5, as well as several Métis communities
  • There are 63 Nations within Manitoba region with independent chief and council governments
  • The wide geographic diversity of the province results in a large variety of different emergency events of varying scales and scopes
  • 17 of the 63 First Nations are considered remote or isolated. Due to their remoteness, these Nations often have less capacity to access external supports during emergency events
  • There are several Nations within Manitoba region where a combination of remoteness and limited access routes result in uniquely challenging emergency management. 2 remote communities do not have access to an airstrip and must travel by boat or helicopter to the closest airport
  • 3 Nations experience risk of flooding on an annual basis: Roseau River Anishinaabe First Nation, Fisher River Cree Nation and Peguis First Nation

Risk assessment for Manitoba

  • First Nations have worked to develop nation level Disaster Risk Reduction plans with an all-hazards approach. The 5 top hazards identified in the Manitoba are flood, wildfire, including wildfire smoke, critical infrastructure failure, long-term power outages and severe weather events
  • Wildfires have the potential to impact lives, infrastructure and the environment. Wildfire smoke has short-term and potential long-term health consequences. Current risks in the region include the lack of air quality monitoring stations in all First Nations communities
  • Flooding in Manitoba has had the most major impact of all natural disasters related to response and recovery costs. Flooding events have impacted infrastructure assets including roads, water and wastewater systems and housing. Evacuations due to flooding have the potential to be long-term with economic and mental health impacts on the nations affected
  • Critical infrastructure failure and hydro outages are becoming more frequent with the effects of climate change. Additional structural mitigation funding for emergency shelter in place options, such as large centres with back-up generators, will better support nations in this type of emergency
  • Social crises are often seen in First Nations in Manitoba as a result of historical trauma and systemic healthcare racism leading to increased psychosocial emergencies, poverty and associated comorbidities
  • Notable events in Manitoba include:
    • Between April 2024 and November 2024, 25 First Nations identified being impacted by 31 events:
      • 3 long-term hydro outages
      • 7 flood events, 2 nations requiring evacuation
      • 5 wildfire events, 3 nations requiring evacuation
      • 10 wildfire smoke events, 8 nations requiring evacuation
      • 2 hazmat events
      • 2 critical infrastructure failures
      • 1 search and recovery event
      • 3 severe weather event, significant precipitation
    • In 2023 to 2024, 25 First Nations identified being impacted by 45 events:
      • 11 power outages
      • 2 flood events
      • 20 wildfire or wildfire smoke events
      • 5 critical infrastructure failures
      • 2 hydrocarbon spills
      • 1 missing person search and recovery
      • 4 severe weather events
    • In 2022 to 2023, 30 First Nations identified being impacted by 41 events:
      • 13 power outages
      • 19 flood events
      • 2 wildfire or wildfire smoke events
      • 5 critical infrastructure failures
      • 1 severe weather event

Regional legislation, regulations, authorities and agreements

There is no specific provincial legislation that governs Emergency Management on Reserve. First Nations are considered local authorities in provincial Emergency Management Act. Interpretation is carried out in a case-by-case manner to support each nation's unique relationship with Manitoba and Canada. Interpretation by ISC, the Government of Manitoba and First Nations is informed by the following legislation and regulations.

Regional legislation

Emergency Measures Act – Manitoba outlines the duties and responsibilities of public sector agencies during an emergency, the requirements for emergency plans by municipalities and others, the use of additional powers to deal with an emergency and the provision of Disaster Financial Assistance by the provincial government.

The Wildfires Act – Manitoba defines wildfire risks and responsibilities within Manitoba, delegation of authority to agencies and guardians and costs related to wildfire hazards. It is utilized to inform the regional agreement for wildfire services from the provincial agency to support and protect First Nations on reserve from identified wildfire hazards.

Regional regulations

Local Authorities Emergency Planning and Preparedness Regulation speaks to local authority definitions and responsibilities at a provincial and municipal level. This regulation does not apply to a local authority described in clauses (g) to (i) of the definition local authority in section 1 of the act, the minister responsible for the administration of the Indian Act in Canada with respect to a reserve as defined in that act.

Disaster Financial Assistance Policies and Guidelines (Public Sector) Regulation is utilized as a guideline to inform regional Emergency Management agreement interpretation and implementation on reserve in Manitoba.

Multiple joint watershed agreements and other management plans

Regional agreements

ISC and the Canadian Red Cross hold a National Service Agreement that can be activated at the regional level during response. ISC also has a Memorandum of Understanding at the regional level with the Province of Manitoba's Wildfire Services team to support wildfire suppression for First Nations. Many First Nations communities have established mutual aid agreements or partnerships with neighboring towns, cities or municipalities to enhance resource sharing and coordination during emergencies.

Communication and information-sharing mechanisms

Indigenous Services Canada Manitoba region Emergency Management Assistance Program (EMAP) works with partners and stakeholders to support First Nations throughout the 4 pillars of emergency management: preparedness, mitigation, response and recovery. EMAP coordinates with partners and stakeholders such as the Canadian Red Cross, Public Safety Canada Government Operations Centre, RCMP, Canadian Armed Forces, Manitoba Hydro, Transport Canada, BellMTS and Via Rail.

EMAP ensures that information is shared between partners during a First Nations led response or evacuation by participating in stakeholder calls and community meetings. EMAP, through its collaboration with partners, provides First Nations leadership with current and accurate information required to make timely decisions related to community wellbeing.

First Nations leadership is responsible for initiating the activation of emergency response supports required during an event. To initiate supports through the department, First Nations leadership is required to call the ISC Duty Officer. First Nations leadership may call a state of Local emergency or issue evacuation orders during an emergency event, the Manitoba region EMAP team will acknowledge, communicate and record these orders however, they are not required to activate emergency response supports.

Information shared throughout emergency events affecting First Nations is streamlined to senior management, communications and partners or stakeholders through situation reports as required. Frequency of situation reports will vary dependent on the event, ensuring that sufficient information required for informed decision-making is provided in a timely manner.

Culturally relevant emergency services in Manitoba

During an emergency event, the recognized lead in coordination and decision making is First Nations community leadership. The Manitoba EMAP team is a liaison to connect First Nations leadership with culturally appropriate organizations that can provide the required emergency social supports and by funding emergency social supports to on-reserve residents for the duration of the emergency event. The Manitoba region EMAP team works in partnership with First Nations, tribal councils and Indigenous Representative Organizations and providers to ensure all the nations have culturally relevant supports throughout the 4 pillars of emergency management. The team does this through conversation and listening to the needs of the nations.

The Manitoba EMAP team collaborates with the Canadian Red Cross and First Nations communities to ensure supports provided under the national agreement are culturally relevant to support gaps such as:

The region has formed the Emergency Management Partnership Table for First Nations in Manitoba to discuss emergency management service delivery in Manitoba in partnership with the province, First Nations, Canadian Red Cross and other partners. Through the Emergency Management Partnership Table, the department is working toward multilateral service agreements that ensure First Nations are equal partners with Canada and provincial governments in emergency management discussions.

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