2015 Manitoba Floodway and East Side Road Authority Annual Report

MANITOBA FLOODWAY AND
EAST SIDE ROAD AUTHORITY
2015 ANNUAL REPORT
FOR THE YEAR ENDED
MARCH 31, 2015
TABLE OF CONTENTS
LETTER OF TRANSMITTAL ................................................................................................................................................. 4
LETTRE D’ACCOMPAGNEMENT ......................................................................................................................................... 5
LEGISLATION ..................................................................................................................................................................... 6
GOVERNANCE ................................................................................................................................................................... 6
THE MANITOBA FLOODWAY AND EAST SIDE ROAD AUTHORITY ACT ................................................................................ 6
MANDATE ......................................................................................................................................................................... 6
MISSION STATEMENT ....................................................................................................................................................... 7
VISION STATEMENT .......................................................................................................................................................... 7
VALUES ............................................................................................................................................................................. 7
PART A - THE RED RIVER FLOODWAY EXPANSION PROJECT .............................................................................................. 8
HISTORY ............................................................................................................................................................................... 8
THE PROJECT ........................................................................................................................................................................ 8
PROJECT COMPONENTS ....................................................................................................................................................... 9
RECREATIONAL AND ECONOMIC DEVELOPMENT .............................................................................................................. 10
COMMITMENT TO SUSTAINABLE DEVELOPMENT ............................................................................................................. 10
COMMUNITY AND PUBLIC ENGAGEMENT ..................................................................................................................................... 11
FUNDING ......................................................................................................................................................................... 11
PART B - THE EAST SIDE TRANSPORTATION INITIATIVE ................................................................................................... 12
HISTORY ............................................................................................................................................................................. 12
COMPONENTS.................................................................................................................................................................... 12
COMMITMENT TO SUSTAINABLE DEVELOPMENT ........................................................................................................... 13
CONSTRUCTION AND WINTER ROADS STRATEGY ........................................................................................................... 14
ABORIGINAL ENGAGEMENT STRATEGY........................................................................................................................... 17
MENTORING STRATEGY .................................................................................................................................................. 20
FUNDING ........................................................................................................................................................................ 23
2014/15 PRIORITIES ........................................................................................................................................................ 24
CONSTRUCTION ................................................................................................................................................................. 24
ENVIRONMENTAL APPROVALS ........................................................................................................................................... 24
PUBLIC ENGAGEMENT ....................................................................................................................................................... 24
COMMUNICATIONS ........................................................................................................................................................... 24
2014/15 MILESTONES AND ACCOMPLISHMENTS ............................................................................................................ 25
CONSTRUCTION ................................................................................................................................................................. 25
ENVIRONMENTAL APPROVALS .............................................................................................................................................. 25
PUBLIC ENGAGEMENT ....................................................................................................................................................... 26
COMMUNICATIONS ........................................................................................................................................................... 26
2014/15 COMMUNICATION ACTIVITIES .......................................................................................................................... 27
2015/16 PRIORITIES ........................................................................................................................................................ 28
CONSTRUCTION ................................................................................................................................................................. 28
TABLE OF CONTENTS
ENVIRONMENTAL APPROVALS ........................................................................................................................................... 28
PUBLIC ENGAGEMENT ....................................................................................................................................................... 28
COMMUNICATIONS ........................................................................................................................................................... 28
THE PUBLIC INTEREST DISCLOSURE ACT .......................................................................................................................... 29
AUDITOR’S REPORT ........................................................................................................................................................ 30
TABLE OF CONTENTS
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September 30, 2015
The Honourable Eric Robinson
Minister responsible for the East Side Road Authority
344 - 450 Broadway Avenue
Winnipeg, Manitoba R3C 0V8
Dear Minister Robinson:
On behalf of the Manitoba Floodway and East Side Road Authority (MFESRA), I am pleased to present the
annual report for the fiscal year ended March 31, 2015.
It was a busy year once again for MFESRA. As reported in our last annual report, March 2014 saw the official
ribbon cutting marking the completion of the Manitoba Floodway. A project that came in on time and on budget.
Since marking that milestone the final work to close the books on the floodway project have been taking place.
This includes the remaining environmental licensing requirements.
The MFESRA continues to press forward building an all-season road from PR 304 to the Poplar River First
Nation, and this is now our primary focus. We are on track to complete the all-season road from PR 304 to
Berens River by the targeted timeline of 2019/2020.
In November 2014, we reached the most significant milestone to date. The Bloodvein First Nation became the
first community on the east side of Lake Winnipeg to be linked to all-season road access. It was an honor to join
you along with Bloodvein Chief Roland Hamilton marking the completion of the Bloodvein River Bridge. The
excitement and enthusiasm from community members including children and elders is something I will never
forget.
For those living in these isolated communities this isn’t just about building a road. It’s about creating
opportunities. Opportunities like economic development and access to jobs and training courses. Together, with
the provincial government and the local First Nations we are working to ensure there is meaningful participation
by local residents in every aspect of the project. This is done through a variety of ways including Community
Benefits Agreements, local hiring provisions in tendered construction contracts and training opportunities. I am
pleased to report that all of these efforts are paying off as more and more local residents continue to benefit
from jobs, training and economic development opportunities. To date more than 1000 jobs have been created
as a result of the all-season road.
Another key component of our work is the maintenance and strategic improvements to the winter road network.
A good example of these improvements is the three new Acrow panel bridges that have been installed in the
Island Lake region. These bridges are helping to extend the winter road season for local residents. As the
project moves forward, MFESRA will continue to investigate other transportation improvements.
In closing, I would like to thank all of our employees for their hard work and dedication over the past years. I
would also like to thank you and your government along with all the First Nation community leaders and
members for their continued cooperation. By working together we’ll ensure this all-season road is completed
and families in these communities benefit for generations to come.
Sincerely,
Ernie Gilroy
Chief Executive Officer
Manitoba Floodway & East Side Road Authority
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Le 30 septembre 2015
Monsieur Eric Robinson
Ministre responsable de la Commission d’aménagement de la route située du côté est
450, avenue Broadway, bureau 344
Winnipeg (Manitoba) R3C 0V8
Monsieur le Ministre,
Au nom de la Commission manitobaine d’aménagement du canal de dérivation et de la route située du côté est, je
suis heureux de présenter le rapport annuel pour l’exercice s’étant terminé le 31 mars 2015.
C’était encore une fois un exercice très rempli pour la Commission. Tel que cela était indiqué dans notre dernier
rapport annuel, en mars 2014 s’est déroulée la cérémonie officielle de coupe du ruban, marquant l’achèvement du
canal de dérivation. Ce projet a été réalisé dans les temps et sans dépassement budgétaire. Depuis le
franchissement de cette étape, nous procédons au travail final de fermeture des livres de ce projet. Cela comprend
les exigences restantes en matière de permis environnementaux.
Nous appuyons toujours activement la construction d’une route toutes saisons de la RPS 304 à la Première nation
Poplar River, et cela est maintenant notre objectif principal. Nous sommes sur la bonne voie pour que la route toutes
saisons de la RPS 304 à Berens River soit achevée d’ici le délai visé de 2019-2020.
En novembre 2014, nous avons atteint le jalon le plus important jusqu’à maintenant. La Première nation Bloodvein est
devenue la première collectivité du côté est du lac Winnipeg à être reliée à une route toutes saisons. Ce fut un
honneur de me joindre à vous avec le chef de la Première nation Bloodvein, M. Roland Hamilton, pour souligner
l’achèvement du pont de la rivière Bloodvein. Je n’oublierai jamais l’enthousiasme et la fébrilité qui régnaient chez les
membres de la collectivité, y compris les enfants et les aînés.
Pour les personnes qui vivent dans ces collectivités isolées, cette réalisation représente plus que la simple
construction d’une route. Elle représente la création de possibilités. Des possibilités comme le développement
économique et l’accès à des emplois et à de la formation. Ensemble, avec le gouvernement provincial et les
Premières nations locales, nous veillons à ce que les résidents locaux puissent participer efficacement à tous les
aspects du projet. Cela est fait à l’aide de différents moyens, notamment des ententes sur les avantages pour la
collectivité, des dispositions relatives à l’embauche locale dans les appels d’offres de construction et des possibilités
de formation. Je suis heureux de signaler que tous ces efforts portent leurs fruits, car de plus en plus de résidents
locaux continuent à bénéficier de possibilités d’emplois, de formation et de développement économique. Jusqu’à
maintenant plus de 1 000 emplois ont été créés grâce à la route toutes saisons.
Une autre composante clé de notre travail est l’entretien du réseau de routes d’hiver et les améliorations stratégiques
qui y sont apportées. Les trois nouveaux ponts en sections Acrow installés dans la région d’Island Lake sont un bon
exemple de ces améliorations. Ces ponts aident à prolonger la saison des routes d’hiver pour les résidents locaux.
Alors que le projet ira de l’avant, la Commission continuera à examiner d’autres possibilités d’amélioration des
transports.
Pour conclure, j’aimerais remercier tous nos employés pour leur travail acharné et leur dévouement au cours des
dernières années. J’aimerais aussi vous remercier, vous et votre gouvernement, ainsi que tous les dirigeants et les
membres des Premières nations pour leur collaboration continue. En travaillant ensemble, nous veillerons à ce que
cette route toutes saisons soit achevée et à ce que les collectivités concernées en profitent pendant des générations.
Je vous prie d’agréer, Monsieur le Ministre, l’expression de ma considération distinguée.
Le président-directeur général,
Ernie Gilroy
Manitoba Floodway & East Side Road Authority
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In October 2003, the Province of Manitoba initially established the Manitoba Floodway Expansion
Authority (MFEA) as an incorporated interim agency to prepare for the expansion of the existing Red
River Floodway. In March 2004, Manitoba introduced The Floodway Authority Act to establish the
Manitoba Floodway Authority (MFA) to act as an independent crown agency and to assume the
operations of the MFEA. The Floodway Authority Act received Royal Proclamation on November 1,
2004.
The role of the MFA is to act as a separate, independent, publicly accountable agency to manage the
design, construction, and maintenance of the expansion project. Specific responsibilities of the MFA
include ongoing project design and engineering, environmental assessment and licensing,
construction and maintenance and identification of potential economic and recreational possibilities
that may result from the project.
In the November 2008 Throne Speech, the Government of Manitoba announced its intention to build
an all-season road on the east side of Lake Winnipeg. To move forward with this initiative and to build
on the success of the floodway’s Aboriginal Set-Aside Initiative, the province announced MFA’s
mandate would be expanded to manage the construction of the road. Pending formal legislation to
expand its mandate, an interim agency, called the East Side Road Authority Inc. was established to
proceed with the East Side Transportation Initiative.
On April 30, 2009, the Government of Manitoba introduced Bill 31, The Manitoba Floodway Authority
Amendment Act, to officially expand the mandate of the MFA to assume responsibility for the East
Side Road Authority Inc. and the construction and maintenance of the all-season road on the east
side of Lake Winnipeg. On December 1, 2009, Bill 31 was officially proclaimed establishing the
Manitoba Floodway and East Side Road Authority (MFESRA).
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The legislation requires a Board of Directors be appointed. The Board consists of eight senior civil
servants. The role of the Board is to oversee the operations of MFESRA as it undertakes the
Floodway Expansion Project and the East Side Transportation Initiative.
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The Act officially expands the mandate of the Manitoba Floodway Authority (MFA) and establishes the
Manitoba Floodway and East Side Road Authority (MFESRA) to expand and maintain the
floodway and to construct and maintain the east side road.
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As stipulated in The Manitoba Floodway and East Side Road Authority Act:
5(1) The authority’s mandate is to:
a) expand the capacity of the floodway and maintain the land and structures that make up the
floodway
b) construct and maintain the east side road
c) ensure the expansion of the floodway and the construction of the east side road are carried
out in a manner that provides increased benefits
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d) maximize the benefits the floodway and east side road will provide.
The Act also outlines the responsibilities of the MFESRA in fulfilling its mandate:
5(2) In carrying out its mandate, the MFESRA is to:
a) obtain all approvals required for expansion of the floodway and the construction of the east
side road
b) retain the services of persons to perform work on the expansion of the floodway and the
construction of the east side road, and support training for those workers
c) co-ordinate and supervise work on the expansion of the floodway and the construction of the
east side road and
d) establish arrangements with Manitoba Infrastructure and Transportation to co-ordinate the
floodway expansion with the department’s ongoing operation of the floodway
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To provide the maximum flood protection to the most people while respecting our neighbours
and the environment.

To provide excellence in project management by demonstrating sound financial management,
achieving project guidelines, following an inclusive people management philosophy,
encouraging innovation and maximizing economic benefits.

To set a world class example of how a large infrastructure project can respect Aboriginal
people and the environment, that is worthy of UNESCO recognition.

To manage construction of the proposed all-weather road along the east side of Lake
Winnipeg in a manner which maximizes the economic development potential for local
communities and their residents, generating sustainable and recognizable improvements in
their economic standard of living.
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 A global leader in engineering and project management through people, innovation, integrity and
quality.
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 Trust, respect, ingenuity, integrity and participation are the core values that will guide corporate
behaviour to achieve global leadership in engineering and project management.
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HISTORY
In 1997 Manitoba experienced the “Flood of the Century” which
stretched the floodway’s capacity to its limit. After the flood,
extensive studies and consultations were conducted to identify
and evaluate alternatives to improve flood protection for the
Winnipeg area. The International Joint Commission (IJC)
reviewed flood protection and concluded that the “risk of failure
of Winnipeg’s existing flood protection infrastructure is high
under flow conditions similar to or greater than those
experienced in 1997.” In the IJC’s final report, Living with the
Red, the IJC called for the highest flood protection that can be
economically justified or at least sufficient protection to deal with
an event similar to the 1826 flood, which was 40 per cent more
flood water than the 1997 flood. At the same time, Canada and
Manitoba invested $110 million to improve flood protection in
communities in rural Manitoba.
On April 3, 2003, the governments of Canada and Manitoba announced $80 million each towards the
Red River Floodway Expansion Project. In August 2003, the Government of Canada declared the
expansion of the floodway as a national priority project under the Canada Strategic Infrastructure
Fund. At the same time, Canada and Manitoba increased their commitments to the project by $40
million each. On July 6, 2006, Canada and Manitoba announced an additional $84 million, bringing
total project funding to $324 million. Subsequently, on February 23, 2007, both governments
announced $341 million in funding for the remainder of the project, bringing total joint investments for
the project to $665 million.
Construction on the project officially began on September 23, 2005 and in the spring of 2009, the
project achieved its main objective of providing 1-in-700 year flood protection.
On March 18, 2014, the Governments of Canada and Manitoba officially announced the completion of
the project. In announcing the project’s completion, the governments also announced that the project
had been completed $38 million under budget and that the savings would be re-invested into flood
protection projects throughout Manitoba.
Over 3,600 jobs were created during the course of construction on the Manitoba Floodway with over
170 companies involved.
THE PROJECT
The Red River Floodway Expansion Project provides increased flood protection for residents of the
City of Winnipeg, East St. Paul and West St. Paul. By providing 1-in-700 year flood protection, the
project protects more than 450,000 Manitobans, over 140,000 homes, over 8,000 businesses and
prevents more than $12 billion in damages to the provincial economy.
The floodway operates by diverting a portion of the Red River floodwaters around Winnipeg through
the floodway channel immediately south of Winnipeg back to the Red River near Lockport. Prior to the
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start of the project, the floodway provided a 1-in-90 year flood protection while the expanded floodway
has increased this level of protection to 1-in-700. It was estimated the risk of Winnipeg flooding with
the original floodway was 37 per cent over the next fifty years and with an expanded floodway this risk
was reduced to 7 per cent.
PROJECT COMPONENTS
The Floodway Expansion Project involved a major expansion of the existing flood protection system
including excavation of the floodway channel; the replacement and upgrading of highway and rail
bridges that cross the floodway; modifications to the inlet and outlet structures; utilities and services;
and improvements to the West Dike. Floodway expansion has more than doubled the amount of water
diverted around Winnipeg by increasing the capacity of the floodway channel from 1,700 cubic metres
(60,000 cubic feet) of water per second to 4,000 cubic metres (140,000 cubic feet) per second.
The floodway expansion budget included the following Project Components:
 Project Design and Environmental Assessment (PDEA) and Licensing – Preliminary
design studies were required to be completed that were refined to define the project in detail
and assess the environmental impacts. This component included an environmental licensing
process including public consultation, establishment of an Environmental Impact Statement
(EIS) and financial support for the licensing process, including provision for the Clean
Environment Commission public hearings and participant assistance funding.
 Final Design and Contract Administration – Final design engineering was undertaken
based on the PDEA process to define and identify the detailed design of the project and to
incorporate environmental mitigation measures identified during the PDEA stage.
 Administration – Administration costs for the MFA including operations, insurance,
establishment of site office, etc.
 Excavation – The floodway channel was enlarged by widening its 48 kilometer (30 mile)
length. The total volume of excavation is estimated to be 21 million cubic metres (27 million
cubic yards). The outlet channel was expanded and reshaped to permit the increased
floodway flow to re-enter the Red River with minimum impact on the riverbanks. As required,
drainage structures, transmission lines, miscellaneous crossings (including pipelines) and the
City of Winnipeg Aqueduct under the floodway, were extended, adjusted and replaced.
 Outlet Structure – The retaining walls of the existing structure were demolished, and the
Outlet Structure was widened by approximately 42 meters (138 feet) towards the east. Side
walls were constructed in the channel to prevent erosion, and chute and baffle blocks were
constructed on the downstream end of the outlet to further reduce the speed of water reentering the Red River. These improvements help ensure the speed of water passing through
the outlet remains largely unchanged from the pre-expansion condition
 Inlet Control Structure – The improvements required included: the selective placement of
additional riprap on the downstream slopes and upstream face of embankments adjacent to
the concrete structure to protect them from erosive damage; installation of a fire protection
system; replacement of the hydraulic gate cylinders; refurbishment of the Gate Control Servo
motors; replacement of trunnion pins, the provision of additional trunnion anchors, control
room refurbishment and gate corrosion protection.
 Road and Rail Bridges – Four highway bridges over the floodway channel were replaced with
new structures and four railway bridges were raised and rehabilitated to minimize hydraulic
interference.
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 Expansion of the West Dike – The freeboard of the West Dike, extending over 45 kilometres
(28 miles) from the Floodway Inlet Control Structure and ties into high ground at the west side
of the Red River Valley, was increased and the length of the dike was extended. The dike was
increased in height in varying amounts up to 1.5 metres (6 feet), and extended beyond the
current location at the west end by between 10 kilometers (6 miles) and 15 kilometers (9
miles) in length. These improvements ensure the west dike is capable of protecting against 1in-100 year wind storm which could occur concurrently with a 1-in-700 year Red River Flood.
RECREATIONAL AND ECONOMIC DEVELOPMENT
The Duff Roblin Parkway Trail was officially opened to the public on July 3, 2012. The trail, which
utilizes the floodway service access road, is a network of trails approximately 52 kilometres (32 miles)
in length and includes seven staging areas, a low flow floating bridge over the floodway, and the PTH
59 pedestrian overpass bridge. A key focus of the development was to provide linkages to the existing
recreational opportunites such as the Trans Canada Trail and Birds Hill Provincial Park. In the fall of
2013, a signage and interpretive plan for the trail was established along the floodway that provides
information on the trail, the Red River Floodway and the history of flooding in the Red River Valley.
Left - Summer recreational use of the Duff
Roblin Parkway Trail
COMMITMENT TO SUSTAINABLE DEVELOPMENT
MFESRA was committed to sustainable development with the floodway expansion project. Some of
the initiatives undertaken to promote sustainable development as part of the project included:

No Deepening of the Floodway – To protect groundwater resources, the floodway channel
was not deepened but was widened as part of the expansion project.

Re-Use of a Temporary Detour Bridge – To ensure the continuance of railway traffic during
railway bridge construction, a temporary detour railway bridge, dubbed a “Lego Bridge” was
set up beside the bridge being reconstructed. When the project was completed, the Lego
Bridge was moved on to the next site. The re-use of the structure meant the detour structure
was not demolished after every project, which also helped save time and money.

Re-use of Bridge Piers – Bridge piers from the old PTH 15 and 44 Bridges and asphalt from
highway projects across Manitoba were collected, pulverized and used to construct the base
of the service access road that runs along the length of the floodway. Similarly, limestone
collected from temporary access roads was collected and used to surface the floodway service
access road.
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
Native Prairie Re-vegetation Initiative – A native and naturalized re-vegetation initiative was
undertaken near Garvin Road and in the vicinity of the PTH 59 Pedestrian Overpass bridge.

Peregrine Falcon Recovery Initiative – During construction of the West Dike, special
arrangements were made to mitigate the impact on peregrine falcons at the Parkland Mews
Peregrine Falcon Recovery Centre.

Fish Habitat Enhancement – A Fish Habitat Enhancement Program was developed for the
floodway that included:
o Construction of five fish spawning shoals at locations along the Seine River
o The planting of 13,000 trees and 22,000 shrubs along waterways that help to shade
the water, keep it cool and well oxygenated for fish.

Trees for Tomorrow – Approximately 70,000 saplings were planted on the floodway right-ofway through Manitoba Conservation’s Trees for Tomorrow Program.

Tree Trans-plantings – To mitigate the loss of a number of trees that had to be removed from
the floodway, MFESRA undertook a tree transplanting initiative that resulted in approximately
500 trees being transplanted at various locations throughout Winnipeg and southern Manitoba.
Some of the trees that were not transplanted were salvaged for timber for use in Birds Hill
Provincial Park.
COMMUNITY AND PUBLIC ENGAGEMENT
MFESRA undertook the following activities related to the floodway expansion project:

Public Outreach and Engagement – On an ongoing basis, MFESRA maintained
engagement with local municipalities, First Nations and Métis communities, non-government
organizations, labour and the construction industry.

Communications – On an ongoing basis, MFESRA maintained communications to raise
public awareness, promote the project, recognize the partnership and contribution of both
levels of government, and maximize the level of visibility and importance of the project for all
Manitobans.
FUNDING
Over time, the Governments of Canada and Manitoba each committed $332.5 million to the $665
million on a 50/50 cost-shared basis. Subsequently, with the project being delivered under budget at
$627 million, the level of funding from each government was reduced to $313.5 million for the project.
The outstanding $38 million in savings was subsequently re-invested by both governments into flood
protection projects throughout Manitoba.
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HISTORY
Residents living in some of the most remote First Nations in the country have long been advocating
for an all weather road in Manitoba’s north. The road to them is a key part of how their future and their
children and grandchildren’s future’s will unfold. The road will provide year round access and will
dramatically change their lives. Transportation will become much easier, whether that’s to access
medical appointments or social services or to bring goods like groceries and fuel into their
communities.
In 2000, the communities on the east side of Lake Winnipeg delivered a report to the Manitoba
government called “Promises to Keep”. The report provided recommendations on where government
should focus their long-range planning activities for the east side of Lake Winnipeg including
increased economic development opportunities and improvements to the transportation network.
The Manitoba Government supported this vision and in November 2008, announced that the
Manitoba Floodway Authority (MFA) would be mandated to build the all-season road on the east side
of Lake Winnipeg. In 2009, Bill 31 was introduced in the legislature and proclaimed by the end of that
year, officially establishing the Manitoba Floodway and East Side Road Authority (MFESRA).
The construction of the road has been guided through the East Side Transportation Initiative. It was
launched following the East Side Large Area Transportation Network Study that was undertaken by
SNC-Lavalin/AECOM which identified potential transportation infrastructure improvements that would
provide year-round access to the communities on the east side of Lake Winnipeg. It is a strategic
initiative to provide improved, safe and more reliable transportation service to remote and isolated
communities on the east side of Lake Winnipeg. The Final Report of the Large Area Transportation
Network Study was completed in June 2011 and recommended an all-season road network for the
region that is estimated at approximately 1028 km in length costing $3 billion. (2011$)
COMPONENTS
The all-season road project includes the following components:
 Engineering Pre-Design, Final Design and Contract Administration - Preliminary design
studies are required to be completed and refined to define the project in detail. Based on the
environmental assessment process, final design and detailed design engineering will be
undertaken to minimize any potential impacts related to the project.
 Environmental Assessment and Public Engagement - Based on the pre-design,
environmental assessment is required to be undertaken to assess the environmental impacts
of the project and to identify appropriate mitigation measures. This component includes public
engagement, establishment of the Environmental Impact Assessment and the environmental
licensing process.
 Construction – Managing and overseeing the construction of the all-season road network
through a combination of tendered construction contracts and Community Benefit Agreements.
(CBA’s)
 Mentoring – Providing mentoring, training and support to local east side residents to
undertake construction works through the CBA process
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An Environmental Impact Assessment (EIA) for the all-season road was filed on November 2009 and
the project received Provincial Environment Act License No. 2929, which identified the project as a
Class 2 Development under The Manitoba Environment Act on August 16, 2010. The project was also
reviewed under the federal environment impact assessment process under the federal Canadian
Environmental Assessment Act (CEAA). As part of this process, the Government of Canada issued a
Comprehensive Study Report on the project for public review. Based on the Comprehensive Study
and public comments filed, the federal Minister of Environment concluded “the project, taking into
account the mitigation measures described in the Comprehensive Study Report, is not likely to cause
significant adverse environmental effects.”
MFESRA is committed to sustainable development as it proceeds with the all-season road project.
Some of the initiatives previously undertaken to promote sustainable development as part of the
project include:

Aligning All-Season and Winter Road Routes – in an effort to mitigate the impact on the
environment and limit the area of new rights-of-ways required, efforts are being undertaken to
follow existing winter road routes where possible.

Traditional Knowledge Studies – To reduce the impact on trappers and resource users,
MFESRA is undertaking Traditional Knowledge Studies that involve workshops with trappers,
elders and other resource users. These studies will help to mitigate the impact of the project
on traditional land uses in the region.

Native Grass Revegetation Program – A native grass revegetation program has been
initiated to help restore native plants in areas affected by construction. A key component of the
program is involving local residents in the capture and collection of the native grass species.

Wildlife Monitoring – To mitigate the impact on wildlife, MFESRA has undertaken a threeyear wildlife monitoring study that is providing valuable information on caribou, wolves, moose,
furbearers, small animals and bird species.

Fish Compensation Projects – A Fish Habitat Compensation Program has been initiated to
create new fish habitat and help to restore habitat impacted by the project.
Community And Public Engagement
MFESRA continues to focus on the following activities related to the all-season road projects:

Public Outreach and Engagement – MFESRA is committed to ongoing engagement with
First Nations and Métis communities, federal and provincial governments, non-government
organizations, labour and the construction industry as the projects proceed.

Communications – MFESRA is committed to ongoing communications throughout the life of
the project especially raising public awareness and soliciting input from local residents,
including elders, trappers and resource users, regarding the proposed project. MFESRA is
also committed to promoting the project, maximizing the level of visibility and importance of the
project, and recognizing the Province of Manitoba’s contribution and leadership to the project.
Manitoba Floodway & East Side Road Authority
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Construction Strategy
The East Side Transpiration Initiative will provide road access to all 13 First Nation Communities
located on the east side of Lake Winnipeg. This includes:
The first project in the initiative is building the 156 kilometer road that runs from PR304 to Berens
River. This is a massive undertaking consisting of 23 individual road segments and nine bridges.
Other projects included in the all-season road are:
 A 93 km extension to Poplar River First Nation;
 A 131 km all-season road linking Little Grand Rapids and Pauingassi First Nations to a
midway point along the all-season road from PR 304 to Berens River; and
 A 648 km east-west route linking the Island Lake (Garden Hill, Red Sucker Lake St. Theresa
Point and Wasagamack First Nations) and Northern Cree regions. (Bunibonibee and Manto
Sipi Cree Nations and God’s Lake First Nation)
Working cooperatively with the First Nations every step of the way is also a major focal point of this
project.
This historic initiative will dramatically change the lives of families living in First Nation Communities
on the east side of Lake Manitoba, and MFESRA is humbled to be a part of seeing this vision through
to reality.
Construction Strategy Progress
The overall construction strategy is to undertake construction in a staged approach, gradually
improving the winter road system and extending the length of time local residents and commercial
truckers can use the winter roads. To achieve this MFESRA is moving forward with planning, design
and environmental assessment for the all-season road network.
As of March 31, 2015 ESRA has invested $315 million in the all-season road initiative. A recap of the
work to date is as follows:
Completed - Road Projects
 R2 – (6.5km)
 R3 – (11.7km)
 R4– (10.4km)
 R5– (7.3km)
 R6– (3.4Km)
 R7 – (2.6km)
 R7a/R7a2– (2.3km)
 R8– (2.8km)
 R15 – (2.5km)
Completed - Bridge Projects
 B1 – Wanipigow River
 B2 – Loon Creek
 B3 – Bloodvein River
Manitoba Floodway & East Side Road Authority
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

B4 – Longbody Creek
3 Acrow Panel Bridges (Feather Rapids, Mainland River, Red Sucker River)
Under Construction –Road Projects
 R9– (9.6km)
 R10– (19.5km)
 R11 – (8.7km)
Under Construction – Bridge Projects
 2 Acrow Panel Bridges (Hayes River, Laidlaw River)
Winter Road Strategy
A key focus of the all-season road project is to make strategic improvements to winter roads while
constructing the all-season road network. This includes installing Acrow panel bridges at strategic
locations, which will help to extend the winter road season, and upgrading the winter roads to pioneer
road (low volume and speed) standards. Over time, the pioneer roads will be further upgraded to meet
all season road standards. Improvements such as this will ensure local residents throughout the
region continue to see and benefit from transportation benefits year over year.
Winter Road Strategy Progress
As construction on the all-season road moves ahead, improvements to winter roads are underway as
well. These improvements are extending the duration of these temporary transportation links. Three
Acrow panel bridges have been installed in the Island Lake area. (Feather Rapids, Mainland River
and Red Sucker River)
Two Acrow panel bridges are under construction in the Bunibonibee Cree Nation area. (Hayes,
Laidlaw)
Manitoba Floodway & East Side Road Authority
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This map details the all-season route alignment along with work completed up to March 31, 2015.
Manitoba Floodway & East Side Road Authority
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In June 2010, ESRA finalized and implemented its 6-point Aboriginal Engagement Strategy. The
commitment of this strategy continues to be ensuring the local First Nation communities succeed and
benefit in all aspects of the all-season road project.
The strategy is laid out as follows:
Community Engagement
 ESRA has instructed SNC Lavalin to visit every community in the east side planning area and
to transparently explain the transportation study and to seek guidance regarding the
consultation process and identify issues community members want addressed.
Procurement
 ESRA will provide local enterprises with contracts for procurement where possible. Areas of
consideration include aggregate crushing and bush clearing road right of way.
Training
 ESRA will establish heavy equipment operator and labourer training programs for the local
communities with an emphasis on quarry operations and road building.
 ESRA will explore partnership opportunities for providing training in the industries associated
with the project, e.g., engineering, forestry, etc.
Local Hiring
 ESRA will hire staff from local communities and where necessary provide mentoring.
 ESRA will establish a job referral process similar to that of MFA with a category for residents
of the east side communities. Local preference hiring requirements will be included in
construction contracts.
Communication
 ESRA will publish and distribute a regular newsletter within the local communities.
 ESRA will communicate with communities through additional appropriate media, i.e., local
radio, posters, etc., as required.
 ESRA will establish a web site, with similar information to that of MFA.
Networking Opportunities
 ESRA will coordinate a series of networking sessions with the intention of introducing local
community contractors (and workers) to some of the outside aboriginal and non aboriginal
contractors and other suppliers of goods and services.
 ESRA will maintain relationships with AMC and MMF, similar to those enjoyed by MFA.
ESRA’s Aboriginal Engagement Strategy can be located on ESRA’s website at:
http://www.eastsideroadauthority.mb.ca/project-aboriginal-engagement.html
Aboriginal Engagement Strategy Progress
In order to fulfill the provincial government’s commitment to generate economic opportunities related
to the construction for local communities, MFESRA continues to follow the Aboriginal Engagement
Strategy.
MFESRA has entered into CBAs with all 13 First Nation communities which are a part of the allseason road initiative. The purpose of these agreements is to create immediate economic stimulus by
providing jobs and training as well as other long-lasting development opportunities.
Manitoba Floodway & East Side Road Authority
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Community Engagement
MFESRA enlisted the engineering consultant firm of SNC-Lavalin/AECOM to review various route
options and to conduct the environmental impact assessment of the all-season road from PR 304 to
the Berens River First Nation. To assist in identifying the appropriate route and to assess the
environmental impacts, the project team held a series of community and public meetings to hear from
local residents and stakeholders in the study region regarding the construction of an all-season road.
Over 30 meetings were held in First Nation communities affected by the all-season road. Some of
those meetings were held in Winnipeg to accommodate east side residents located away from their
home communities.
SNC-Lavalin submitted their final report to the Manitoba Government in 2011. Several of the
recommendations have been completed while others such as consultations with First Nations will
continue to be part of the construction of the all-season road network for the entire duration of the
project.
Procurement
 The CBAs with all 13 east side First Nations provide opportunities for local communities to
enter into construction contracts to perform pre-construction work such as aggregate
production (i.e. blasting and gravel crushing), exploratory and right-of-way clearing, and
installation of temporary bridges.
 Under the terms of the CBA, prior to starting work, local communities are required to set up
independent construction companies, including budgets and business and work plans. To
date, 10 communities have already entered into pre-construction contracts and have
undertaken work.
 As of March 31, 2015 ESRA has invested approximately $95 million in east side communities
through the CBAs for pre-construction services including:


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

$10.4 million in Hollow Water First Nation
$35.6 million in Bloodvein First Nation
$27.0 million in Berens River First Nation
$13.7 million in Wasagamack First Nation
$6.1 million in Red Sucker Lake First Nation
$546 K in Little Grand Rapids
$731 K in Bunibonibee Cree Nation
$467 K in Pauingassi First Nation
$846 K in Poplar River First Nation
$242 K in Gods Lake Cree Nation
Training
 An important part of the CBAs includes training opportunities for local First Nation residents.
 ESRA has trained over 300 First Nation residents living on the east side of Lake Winnipeg in a
variety of areas including, introduction to construction, entry level skills, skilled laborer, heavy
equipment operator, and workplace health and safety.
Local Hiring
 Each and every project associated with the construction of the all-season road includes a local
hiring provision. It is mandatory on tendered contracts the following guidelines must be
followed:
 Local residents must make up 30 per cent of the workforce for road construction
tenders; and
Manitoba Floodway & East Side Road Authority
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 Local residents must make up 20 per cent for bridge construction tenders.
This provision has led to MFESRA achieving a very important and significant milestone. As of March
31, 2014 the all-season road project has created over 1000 jobs.
Communication
 MFESRA continues to publish regular newsletters, and works with consultants on individual
community newsletters distributed at the local level.
 Every time MFESRA staff is in a First Nation community that is communicated clearly with
First Nation leaders
 MFESRA communicates with all communities through additional appropriate media, i.e., local
radio, posters, etc., as required.
 ESRA’s website contains current and historical information related to the development of the
all-season road network.
Networking Opportunities
MFESRA continues to work very closely with each First Nation, stakeholders, and other organizations
on the all-season road project.
With MFESRA’s guidance the following joint venture partnerships have been created:

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Poplar River First Nation – H. Baudry Construction (1980) Ltd.,
Berens River First Nation – Hugh Munroe Construction Ltd.,
Bloodvein First Nation – Campster Construction Ltd.,
Bloodvein First Nation – Little Grand Rapids & Pauingassi First Nations’,
Wasagamack First Nation – Arnason Industries Ltd.,
Bunibonibee Cree Nation – Arnason Industries Ltd.; and
Red Sucker Lake First Nation – Arnason Industries Ltd.
Manitoba Floodway & East Side Road Authority
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Mentoring is one of the most important aspects for MFESRA. It is why the all-season road network
has seen such positive progress since its beginning. As mentioned, mentoring can take on many
forms and one of those is the direct contact with MFESRA staff and First Nation leaders.
MFESRA’s CEO has held over 250 meetings at either MFESRA’s head office in Winnipeg or in
community with First Nation Chiefs and Council members.
MFESRA’s Aboriginal Relations and Economic Development (ARED) unit works very closely guiding
and mentoring the communities. ARED’s manager alone has met with First Nation Chief’s and Council
members approximately 250 times since the project began up until March 31, 2015.
MFESRA’s Environmental unit also plays a key role in gathering information from community
members and involving the community every step of the way. Whether that is through community
update meetings or traditional knowledge workshops, Environment has held close to 90 meetings in
communities from the beginning of the project until March 31, 2015.
Mentoring Strategy Progress
MFESRA staff and public contractors have continuously maintained a direct working relationship with
each of the 13 First Nation communities that are a part of the all-season road initiative.
MFESRA executive and senior management meet regularly with Chiefs and their Councils to discuss
local participation in pre-construction and construction site meetings. It is here where First Nation
leaders can learn and ask questions on how to manage day to day issues and any specific details
associated with the project.
The various units within MFESRA also meet regularly with First Nation leaders and community
members. Topics discussed include, traditional knowledge, archeological studies, construction, safety,
training and the environment.
Each individual project path of the all-season road network is assigned a Project Manager. Project
Managers have a direct line of contact open at all times to help assist each community with the project
they are working on. Project Managers provide weekly updates to MFESRA Executive and provide
any assistance required from the community.
Manitoba Floodway & East Side Road Authority
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X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
Bunibonibee
X
Manto Sipi
X
God's Lake
Little Grand Rapids
X
Wasagamack
Pauingassi
X
X
Red Sucker Lake
Poplar River
X
X
Garden Hill
Berens River
X
X
St. Theresa Point
Bloodvein
Review of work plans & scheduling
Crushing procedures & safety
Review of production & quality
requirements
Preparing spill clean-up plans
Biweekly Q1 & Q2 form completion
COR certification requirements
Toolbox talk preparation
Business plan development
Work plan development
Environment plan development
Safety plan development
Permit requirements for quarry
development
Permit requirements for clearing
contracts
Permit requirements for water
crossings
Hollow Water
The following table details specific mentoring activities that have occurred in each First Nation as of
March 31, 2015.
X
X
X
X
X
X
X
X
X
X
X
X
Manitoba Floodway & East Side Road Authority
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Aug '11
Oct '13
May '12
Sept '13
Mar '11
Sept '12
Jan '13
Oct '12
Sept '13
Heavy Equipment Operator #2
Dec '09
Nov '11
Heavy Equipment Operator #1
Aug '09
Sept '10
Nov '12
Dec '14
Oct '10
Sept '12
Feb '12
Dec '12
Jun '11
Apr '11
Dec '10
Introduction to Construction #3
July '09
Jun '10
Introduction to Construction #2
Berens River
Bloodvein
Bunibonibee
God's Lake
Hollow Water
Little Grand Rapids
Manto Sipi
Pauingassi
Poplar River
Red Sucker Lake
Wasagamack
Introduction to Construction #1
Skilled Labourer #1
The following table details specific mentoring through training programs held in each First Nation as of
March 31, 2015.
Jul '14
Jun '14
Nov '14
Mar '13
Oct '13
May '14
Oct '13
Sept '14
Manitoba Floodway & East Side Road Authority
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The Government of Manitoba has committed at least $75 million per year over fifteen years, or $1.125
billion, toward the all-season road initiative. To date, no federal commitment has been made. The
Government of Manitoba is in on-going discussions with the Government of Canada regarding funding
for strategic improvements to winter roads, access roads and the all-season road initiative as a whole.
Manitoba Floodway & East Side Road Authority
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For 2014/15, the MFESRA has identified the following strategic core and emerging priorities:

Continue the ongoing detailed design for the all-season road from PR304 to Berens River First
Nation

Enter into pre-construction contracts under the existing CBAs with the remaining First Nations

Move forward with the Community Benefits & Aboriginal Engagement Strategy, including
ongoing training and mentoring

Continue with developing and prioritizing phases for the implementation strategy for the East
Side Large Area Transportation Network

Continue negotiations to obtain federal funding for strategic improvements to the winter roads,
access roads and a general contribution to the all-season road network

Continue to make strategic improvements to the winter road network
CONSTRUCTION

Continue construction of the all-season road from PR 304 to Berens River First Nation

Initiate planning for the installation of Acrow panel bridges at Hayes and Laidlaw Rivers

Initiate pre-construction clearing work required to link Pauingassi and Little Grand Rapids First
Nations to the local airport and each other

Refine the construction schedule for the all-season road from PR 304 to Berens River First
Nation for the 2014/2015 season

Develop the tender schedule for the 2015/2016 construction contracts
ENVIRONMENTAL APPROVALS

Continue to secure federal and provincial environmental authorizations and approvals as
required for the all-season road for PR 304 to Berens River First Nation

Continue background preparation for the Manitoba environmental licensing process and
Federal Environmental Assessments for the proposed all-season road route alignments for the
remainder of the region as recommended in the East Side Large Area Network Study
PUBLIC ENGAGEMENT

Ongoing public engagement regarding the project including community meetings, traditional
knowledge studies and meetings with Chiefs and Councils
COMMUNICATIONS
 Distribute updated newsletters to local residents

Maintain the project website (www.eastsideroadauthority.mb.ca)

Undertake the 2015 Winter Road Safety Public Awareness Campaign

Continue to raise public awareness regarding the project
Manitoba Floodway & East Side Road Authority
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Entered into a pre-construction CBA with Gods Lake First Nation under one of the existing
CBA’s

Continued moving forward with the Aboriginal Engagement Strategy, including ongoing
training and mentoring.

Continued ongoing detailed design for the all-season road from PR 304 to Berens River First
Nation

Continued developing and prioritizing phases for the implementation strategy for the East Side
Large Area Transportation Network

Continued negotiations to obtain federal funding for strategic improvements to the winter roads
and access roads

Carried out the management and strategic improvements of winter roads on the east side of
Lake Winnipeg from Manitoba Infrastructure and Transportation
CONSTRUCTION

Opened the Bloodvein River Bridge, making the Bloodvein First Nation the first east side
community with all-season road access

Completed an additional 7 kms of construction on the all-season road (R7, R7A, R15)

Started construction on 37 kms on the all-season road (R9, R10, R11)

Started construction on Acrow Panel Bridges over the Laidlaw River and Hayes River

Started pre-construction exploratory clearing that will link the Pauingassi and Little Grand
Rapids First Nations’ to the local airport and each other

Undertook pre-construction work in 10 out of 13 east side First Nation communities

Tendered construction components according to project’s construction schedule
ENVIRONMENTAL APPROVALS

Secured federal and provincial environmental authorizations and approvals meeting the
ongoing requirements for the all-season road for PR 304 to Berens River First Nation

Continued preparation for the Manitoba Environmental Licensing process and Federal
Environmental Assessments for the proposed all-season road route alignments for the
remainder of the region

Completed Traditional Knowledge studies for Red Sucker Lake, St Theresa Point and
Wasagamack First Nations’ in support of the Environmental Licensing and Environmental
Assessment Process.

Completed Traditional Knowledge studies for the Little Grand Rapids and Pauningassi First
Nations’ in support of the Environmental Licensing and Environmental Assessment Process.

Completed aquatic baseline, wildlife baseline, and vegetation baseline studies to support the
Environmental Licensing and Environmental Assessment Process for the all-season road
linking Pauningassi and Little Grand Rapids First Nations’ with the Little Grand Rapids Airport
Manitoba Floodway & East Side Road Authority
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
Completed aquatic baseline studies to support the Environmental Licensing and
Environmental Assessment Process for the all-season road between Berens River and Poplar
River First Nations’.
PUBLIC ENGAGEMENT
 Maintained ongoing engagement with local communities and other interested parties regarding
the project
COMMUNICATIONS

Distributed the 2015 East Side Road Authority Calendars to the public

Undertook the 2014 Winter Road Public Safety Awareness Campaign

Maintained the project website (www.eastsideroadauthority.mb.ca)

Hosted 18 community meetings in all 13 First Nation communities involved in the all-season
road network initiative
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April 2014
Community meeting in Pauingassi First Nation
May 2014
Community meetings in Pauingassi and Little Grand First Nations’
June 2014
ESRA’s Annual Newsletter (all east side communities)
Community meetings in Berens River, Pauingassi and Little Grand First
Nations’
Open House in Winnipeg for the Little Grand Rapids and Pauingassi
First Nations’
July 2014
Community meetings in Pauingassi, Gods Lake and Garden Hill First
Nations’
August 2014
Community meeting in Gods Lake First Nation
September 2014
Construction Tender R10 Awarded
Community meeting in Little Grand Rapids First Nation
October 2014
Community meeting in Berens River First Nation
November 14, 2014
Opening of the Bloodvein River Bridge
Community meetings in Red Sucker Lake and God’s Lake First Nations’
December 2014
Community meeting in Little Grand Rapids First Nation
January 2014
Copies of MFESRA calendars mailed to all 13 First Nation communities,
(Approximately 75 copies to each community)
February 2015
Community meetings in Red Sucker Lake and Garden Hill First Nations’
Above – Bloodvein River Bridge
Above – Community meeting in the
Pauingassi First Nation, May 2014
Manitoba Floodway & East Side Road Authority
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For 2015/16, the ESRA has identified the following strategic core and emerging priorities:







Obtain Treasury Board approval for MFESRA’s five year capital plan
Enter into CBA and CBA contracts with east side First Nation communities which extend
through the business planning period for work outlined in the five year plan
Work with Aboriginal and Northern Affairs and Aboriginal Affairs and Northern Development
Canada to develop capacity building programs like COR certification of all CBA companies
and equipment mechanic apprenticeship training
Enter into talks with Norway House Cree Nation about future involvement with the all-season
road network
Conclude joint venture agreements between Little Grand Rapids, Pauingassi and Bloodvein
First Nations for the Project 7a area
Continue making strategic improvements to the winter road system
Update and strengthen MFESRA’s financial management system by implementing a
comptrollership model similar to the model currently used in most government departments
CONSTRUCTION
As outlined in ESRA’s five year business plan, the following projects will be under construction:
 Clear the right of way and begin road construction between Wasagamack and St. Theresa
Point First Nations
 Start construction of R12 all-season road project
 Complete construction of R9, R10, R11 all-season road projects
 Start construction on the Pigeon River Bridge and Bradbury River Bridge
 Complete construction of 2 new Acrow Panel Bridges (Hayes and Laidlaw)
 Undertake CBA exploratory clearing and right of way clearing in all 13 First Nation
communities part of the all-season road network
ENVIRONMENTAL APPROVALS

Continue to secure federal and provincial environmental authorizations and approvals as
required for the all-season road for PR 304 to Berens River First Nation

Continue preparation for the Manitoba environmental licensing process and Federal
Environmental Assessments for the proposed all-season road route alignments for the
remainder of the region as recommended in the ESLATN study
PUBLIC ENGAGEMENT

Ongoing public engagement regarding the project including community meetings, traditional
knowledge studies and meetings with Chiefs and Councils
COMMUNICATIONS
 Distribute updated newsletters to local residents

Redevelop MFESRA’s website (www.eastsideroadauthority.mb.ca)

Undertake the 2015 Winter Road Public Safety Awareness Campaign

Continue to raise public awareness regarding the all-season road network through the media
and open houses

Distribute calendars to local residents
Manitoba Floodway & East Side Road Authority
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The Public Interest Disclosure (Whistleblower Protection) Act came into effect in April 2007. The
purpose of this Act is to:
a) facilitate the disclosure and investigation of significant and serious matters (wrong doings) in
or relating to the public service, that are potentially unlawful, dangerous to the public, or
injurious to the public interest
b) protect persons who make those disclosures
The Act builds on protections for employees in the Manitoba public service already in place under
other statutes, as well as public service rights, policies, practices and processes.
Wrongdoing under The Act may be an act or omission that constitutes an offence under federal or
provincial legislation; an act or omission that endangers public safety, public health or the
environment; gross mismanagement, including public funds or assets; or, knowingly directing or
counseling a person to commit a wrongdoing. The Act is not intended to deal with routine operational
or administrative matters.
A disclosure under The Act is considered to be a disclosure made by an employee in good faith and
with reasonable belief that wrongdoing has been or is about to be committed. Under Section 18 of
The Act, any disclosures of wrongdoing must be reported in the annual report.
In accordance with Subsection 18(2) of The Act, the following is a summary of disclosures received by
the Manitoba Floodway and East Side Road Authority for the fiscal year 2013/14.
Information Required Annually
Fiscal Year
2013/2014
(a)
The number of disclosures received.
The number of disclosures acted on.
The number of disclosures not acted on.
1
NIL
1
(b)
The number of investigations commenced as a result of a
disclosure.
NIL
(c)
The number of investigations that resulted in a finding of
wrongdoing, and in the case of an investigation that resulted in a
finding of wrongdoing, a description of the wrongdoing and any
recommendations or corrective actions taken in relation to the
wrongdoing, or the reasons why no corrective action was taken.
NIL
Manitoba Floodway & East Side Road Authority
29
A
AU
UD
DIIT
TO
OR
R’’S
SR
RE
EP
PO
OR
RT
T
30
31
32
33
34
35
36
37
38