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Case Study
for
The Province of Manitoba:
Natural Resource Development
and
Potential Conflicts
Michelle Shephard and Farjana Ferdous
December 8, 2015
for Shirley Thompson
Information Management
Natural Resources Institute – University of Manitoba
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Introduction: Defining Government Policies and Documents
We’ve identified three central documents to guide our work for the GIS
Mapping project: The Manitoba Government’s Speech form the Throne, the 2015
Manitoba Budget, and Manitoba’s Northern Development Strategy.
The Province of Manitoba’s Speech from the Throne focused heavily on
the building of infrastructure, especially in the north of the Province. For the
entire Province emphasis was placed on roads, bridges, and highways with a
corresponding budget of $5.5 billion, two years prior, and an expectation that it
would create 60,000 jobs. In this current year, an additional $4.5 billion was
committed to that same priority (Government of Manitoba – Speech from the
Throne, 2015, p.3). The government projects a corresponding benefit of up to
60,000 jobs as a result of this investment. Specifically, they identify that the
“highways to the north are crucial corridors for business and trade (p.4)”, and that
the Port of Churchill is a “gateway to the North (p.5)” to access the shipping
routes. To further augment transportation, they will also invest in a new Rail
Park, called CentrePort Canada, to be located in the City of Winnipeg (p.2).
With an eye on development, the Province has also identified the boreal
forest as a natural resource to be protected. Placing emphasis on Pimachiowin
Aki, the proposed UNESCO, World Heritage Site, the Province promises to
continue to work with the East Side First Nation communities involved in the
project. Included in that promise is a commitment to land use planning for
developing sustainable economies with First Nation communities (p.6).
Protection is also extended to parks, wetlands, and wildlife, and organizations
associated with maintaining these resources (p.6).
In the second of four priorities, the Province of Manitoba’s Financial
Management Strategy also identifies the importance of investing in infrastructure
to ensure a strong economy and increased employment (Government of
Manitoba - Financial Budget, 2015, p.8). As a result of this investment, as
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predicted by the Conference Board of Canada, the Province expects increases
over the next five years in the GDP (2%), exports ($5.4 billion), and average real
incomes ($1,100) (p.12).
The Province of Manitoba’s Northern Development Strategy was originally
launched in 2000 as the framework to proceed with economic development in the
northern reaches that was intended to ultimately benefit the entire Province,
identifying the North as “rich with abundant resources (Government of Manitoba,
Northern Development Strategy, n.d.)”. This document also emphasizes the
importance of investment in infrastructure to generate economic gains. This
document directs significant focus on the East Side Planning Area of the
Province, transportation improvements, as well as hydro infrastructure and
mining exploration (Government of Manitoba, Northern Development Strategy).
Generally, people living in Canada’s northern areas are the first to
experience impacts on the land and water when there is development of any
kind. They also experience a draining of those resources with minimal benefits
accruing to them. It is from this perspective that we present a series of maps.
Explanation of GIS Maps
The GIS maps produced for this case study illustrates the amount of
investments made by the Province as potential for natural resource development.
Additionally, the maps reflect upon the areas of sensitivity that will be impacted
as development takes place. Areas of development we’ve decided to highlight
include: mining, hydro development, forestry operations, oil production, tourism,
and agriculture.
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Base Maps
We began with a base map that included Provincial Boundary map, the
highways and First Nation Reserves. We chose to add in the areas of sensitivity
to the next map, upon which we over-layed the areas of development, one at a
time.
For our base map we included First Nation Reserves because we felt that
the First Nation communities were the first to be impacted by development. We
chose not to include Municipalities/Local Government Districts that identified
some communities in the North because it would have made the maps too busy
and confusing. We also included the roads because that is a critical element of
infrastructure that is required for accessing, bringing in supplies and a workforce,
and transporting the natural resources once extracted. We would have included
airports, the rail lines and the Port of Churchill, had we been able to locate a
shape files with that information.
Areas of Sensitivity
We then chose to add on a layer that identified the areas of sensitivity.
Besides First Nation Reserves those areas included Protected Areas, Provincial
Parks, the Traditional Use Planning Area on Manitoba’s East Side, a Special
Conservation Area in the far north, and Areas of Special Interest that have been
identified by the Province. Parks, protected areas and conservation areas are
protected from most of the intrusive developments such as mining, forestry,
hydro, and oil and gas industries through legislated processes. The Traditional
Use Planning Area evolved from the Manitoba Government’s engagement with
First Nation communities regarding land use and resource planning process.
The area depicted on the map is associated with Pimachiowin Aki (The Land
That Gives Life), an eco-tourism development attempting to be designated as a
World Heritage Site through UNESCO. The Special Conservation Area in the far
north is intended to protect gull nests and piping plovers (Government of
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Manitoba, Manitoba Land Initiative, 2015). Even though Areas of Special Interest
are not officially identified as protected, consideration is given to “proposed
ecological reserves, unprotected wildlife management areas, and other possible
protected areas (Government of Manitoba, Areas of Special Interest, 2015)”,
especially when development is being considered. We felt it was important to
include all these areas of sensitivity in all our maps because they are areas with
a high potential for conflict.
Mining and Exploration
In consideration of the potential for natural resource development, mining
is a high priority area for the government. In the Northern Development Strategy
they identified $19.5 million for 558 exploration projects. The Province’s focus on
economic development also identified an additional $182 million that was
generated in the Province because of this investment. The Province also
expects this industry to generate $1 billion in its operations (Government of
Manitoba, Land Access for Mineral Exploration, 2015), generate 9% of exports,
and 6.5% of GDP (Government of Manitoba, Minerals Policy and Business
Development, 2015) to pay for health, education, social, and environmental
programs.
Our Mining and Exploration map identifies that the largest area of
exploration area is in the northwest corner of the Province and close to Provincial
Parks, while the other areas of exploration are scattered across the middle of the
Province, many of which are close to First Nation Reserves, as well as special
areas of interest. Most of the mining sites are located near Lynn Lake on the
West side and middle of the Province as well as on the East Boundary, North of
Winnipeg. All mining sites are close to Provincial Parks, which are considered
protected areas. Mining is not permitted in any of the parks or protected areas
we have identified on the map. This situation produces tension between
stakeholders of mining and protected areas because the Province is wanting to
secure the tenure for mines to bring them to production.
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Hydro Generation and Watershed Planning
Another high stake resource development area is hydro generation.
Manitoba is highly invested in this source of revenue as it generates 25% of
energy, and 99% of electricity used in the Province. It also exports almost half of
what it generates (Government of Manitoba, Energy Division, n.d.). Manitoba
Hydro claims that hydro electricity is a green source of energy. Most
communities in Northern Manitoba would not agree with this statement. They
experience flooding in their traditional lands, as well as highly degraded quality of
water due to the developments.
Our maps illustrate that the greatest impact in Manitoba is on the Churchill
River due to hydro structures for water diversion, and structures on the Nelson
River used for generation of hydroelectricity. The government of Manitoba has
identified large tracks of land for water power reserves to account for the land
that is impacted by these water power developments. We had difficulty obtaining
a shape file for the proposed and existing hydro dams in Manitoba, which would
have been an excellent addition to our data base. An call to Manitoba Hydro did
not result in them sharing a map with us. All other sources of inquiry and
searches were also of no avail. We were also not able to acquire a water basin
map for Manitoba, depicting the water flows. We also felt that this would have
increased our capacity for analysis, should we have been able to access a shape
file.
In southern Manitoba where there is a higher density of population, the
Government of Manitoba has invested in Integrated Watershed Management
Plans that are initiated and implemented by Conservation Districts. Many
stakeholders in an area participate in the plans to determine the use of land,
water, and other resources in a watershed area. With intensified development in
the North, it is advisable that integrated watershed management plans be
initiated in those areas. First Nation communities would be the most likely
participants in most instances. It is possible that with the development of land-
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use planning by the Manitoba government, watershed planning will be a natural
development of the communities in an effort to protect the water.
Agricultural Region
Agriculture is another industry that has a great deal of impact on water
resources. It has been identified as having the greatest impact because of
manure from pasture animals, runoff from the agricultural fertilizers, and erosion
into freshwater sources such as lakes and riverbanks. It is also an industry that
is important to the Government of Manitoba as its contribution to GDP is between
4.4% and 4.8%. As of 2011 there were 22,315 farm operators working on 18
million acres in the southwestern section of the Province (Government of
Manitoba, Agriculture Statistics, n.d.). This industry is operating in much the
same area as the oil fields. There is also a high density of roads in this area. It
is very logical that the Conservation Districts are operational with their Integrated
Watershed Management Plans to mitigate impacts on the land and the water
from these competing industries.
Forestry OperationsForestry Operations in Manitoba are in a state of decline. The maps
indicate that there are only two operations with Forest Management Licenses in
Manitoba, TOLKO, operating out of The Pas, and Louisiana Pacific, based in
Swan Lake, Manitoba. The Forest Management Units are areas where allowable
harvests are determined. The industry is heavily regulated and managed by the
Ministry of Conservation and Water Stewardship. Our map also identifies that
there is some overlap between forestry operations and mining operations in the
Lynn Lake area, as well as with the agricultural region. Forestry operations are
also located in some areas of sensitivity and overlaps Provincial parks and
protected areas. Integrated Watershed Management Plan areas are also
operational in the area occupied by forestry operations. The potential for conflict
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exists with these overlaps so careful planning with all the stakeholders is
necessary.
Oil Fields:The wells and oil fields are located in the far southwest corner of
Manitoba. There is some overlap with agricultural areas, but otherwise, there are
no competing industries. There has been significant exploration over the years
however this is an industry that has slowed overall. The map shows all the wells
drilled, including those abandoned and dried up.
Conclusion:The Manitoba Speech From the Throne, Financial Management Strategy,
and the Northern Development Strategy all provide the same message. The
importance of development of natural resources in Manitoba for its economic
viability cannot be overstated, nor can the importance of the investment in
infrastructure to access those resources. What we have to remember as we’re
developing the resources is the impact this is having on the natural world and the
people living in those areas. There are many areas of sensitivity for very good
reason. To avoid conflict between us, maintain a sustainable land base, and
have our natural resources provide the resources we need to enjoy a high quality
of living, we must manage our resources carefully and respectfully by means of
careful consideration and good communication with each other. Good planning
processes are of the utmost importance.
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Bibliography
Government of Manitoba. (n.d.). Aboriginal and Northern Affairs, Northern
Development Strategy (NDS). Winnipeg, MB: Retrieved from the internet
November 20, 2015, http://www.gov.mb.ca/ana/info/nds.html.
Government of Manitoba. (2015, December 8). Administrative Boundaries, Core
Maps - Data Warehouse, Manitoba Land Initiative, Conservation and
Water Stewardship. Winnipeg, MB: Retreived from the internet, December
8, 2015, http://mli2.gov.mb.ca/adminbnd/index.html.
Government of Manitoba. (n.d.). Agriculture Statistics, State of Agriculture in
Manitoba - Highlights. Winnipeg, Manitoba: Retrieved from the internet
December 2, 2015, https://www.gov.mb.ca/agriculture/market-prices-and-
statistics/yearbook-and-state-of-agriculture/pub/
state_of_ag_highlights.pdf.
Government of Manitoba. (n.d.). Energy Division - Hydroelectricity - Manitoba
Municipal Government. Winnipeg, Manitoba: Retrieved from the internet
November 29, 2015, http://www.gov.mb.ca/ia/energy/initiatives/hydro.html.
Government of Manitoba. (2015, April 30). Manitoba Budget 2015 - Financial
Management Strategy. Winnipeg, MB: Retrieved from the internet,
December 2, 2015,
https://www.gov.mb.ca/finance/budget15/papers/summary.pdf.
Government of Manitoba. (2015, November 12). Mineral Resources - minerals
policy and business development - Manitoba mineral secctor profile.
Winnipeg, MB: Retrieved from the internet November 12, 2015,
http://www.manitoba.ca/iem/busdev/sector/index.html.
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Government of Manitoba. (2015, November 12). Mineral Resources, Land
Access for Mineral Exploration and Development. Winnipeg, Manitoba:
Retreived from the internet, November 12, 2015,
http://web33.gov.mb.ca/mapgallery/mgm-md.html.
Government of Manitoba. (2015, November 16). Speech from the Throne –
Province of Manitoba. Winnipeg, MB: Retreived from the internet
November 18, 2015,
http://www.gov.mb.ca/asset_library/en/thronespeech/throne_speech_2015
.pdf.
Government of Manitoba. (2009, June 11). The East Side Traditional Lands
Planning and Special Protected Areas Act. Winnipeg, MB: Retrieved from
the internet November 29, 2015,
https://web2.gov.mb.ca/laws/statutes/ccsm/e003e.php.
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Data Referenced
Provincial Boundary:
This is the boundary of the province of Manitoba. It represents the
Manitoba/Ontario boundary, the Manitoba/Saskatchewan boundary, the
Manitoba/Nunavut boundary and the International boundary. For the International
Boundary, the graphical data was computed by converting the official published
Nad27 marker positions for the boundary into NAD83. And for the other three
boundaries, the graphics were created from original boundary survey
measurements.
(Geomatics Services/Remote Sensing, Conservation and Water Stewardship,
Manitoba Land Initiative, Publication date: 2001-08-08)
Protected Areas:
Protected areas are land, marine and freshwater areas, where logging, mining,
hydroelectric development as well as oil and gas development are prevented
through legal means. It includes all or part of lands designated as provincial
parks and park reserves, wildlife management areas, national parks, provincial
forests, traditional use planning areas and ecological reserves. It also includes
private lands protected through Memorandums of Agreement with the Nature
Conservancy of Canada, the Manitoba Naturalists Society, and Ducks Unlimited
Canada.
(Protected Areas Initiative, Parks and Protected Spaces Branch, Manitoba
Conservation and Water Stewardship 2015)
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Provincial Parks:
The digital boundary layer of Manitoba Provincial Parks was created in 1997. The
boundaries of this layer have been created by using best available maps and
Director of Survey Plans. The main objectives of creating the provincial park
system is
(a) conserving ecosystems and managing biodiversity
(b) preserving identical and representative natural, cultural and heritage
resources
(c) providing outdoor recreational and educational opportunities and experiences
in a natural setting
(Parks and Protected Spaces Branch, Manitoba Conservation and Water
Stewardship 2015)
Special Interest Area:
This layer named as "Special Interest Area" comprises all or parts of lands of
Manitoba that should be protected. Special Interest Area includes unprotected
wildlife management areas, proposed ecological reserves, and other candidate
protected areas. These areas represent the enduring features found within a
natural region that still need to be captured to achieve adequate representation.
These areas should be studied for discussion purposes since they are not
protected in any formal manner.
(Protected Areas Initiative, Parks and Protected Spaces, Manitoba Conservation
and Water Stewardship 2015)
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Traditional use planning areas:
The East Side Traditional Lands Planning and Special Protected Areas Act are
aimed to encourage First Nations and Aboriginal communities in engaging in land
and resource planning in designated areas of Crown land that they have
traditionally used. According to this Act, parts of Crown Lands of provinces can
be designated as a “planning area” or “special protected area”. Manitoba
Conservation and Water Stewardship receive requests from First Nations and
Aboriginal communities to designate planning areas by regulation under the Act.
(Traditional Use Planning Areas: Manitoba Conservation and Water Stewardship,
Lands Branch April 2013)
Special Conservation Area:
The administrative boundary files for special conservation area includes Aquifers,
Agro-Ecological Resource Areas (ARA), Basins, Conservation Districts,
Ecological Reserves, Environment Regions, Federal Electoral Districts, Health
Regions, Highway Districts, Natural Ecological Regions, Natural Resources
Districts, Natural Resources Regions, Risk Areas, Rural
Municipalities, Rural Planning Districts, School Divisions etc. Our map illustrates
an ecological reserves.
(Manitoba Department of Conservation, Wildlife Branch, 2000)
Highways:
The digital representation of Highway Network in Manitoba indicates highway
number and highway identity. This data was corrected using 1:60,000 digital
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ortho aerial photography dated from 1991-1998. GPS data, CAD files and 50cm
imagery have been used to update the linear features on a yearly basis from
2007-2013.
(Manitoba Infrastructure and Transportation, Planning and Design Branch,
Geographic & Records Management Section. Publication date: 2013)
Agriculture:
The map charts the amount of land used for crops, fallow and pasture in
Manitoba's agriculture region.
(Agriculture, Food and Rural Development .Government of Manitoba. Retrieved
from http://www.gov.mb.ca/agriculture/land/index.html)
Forest Management Licence Areas:
Forest Management Licences are provided according to the Forest Act to ensure
a continuous supply of timber to the forest industry. A Forest Management
Licence is granted for a fixed period of time (not more than twenty years) and can
be renewed for further periods. The licence describes the terms and conditions
associated with the information of land upon which trees may be cut, the volume
of wood that may be harvested etc. There are currently three Forest
Management Licences in Manitoba. The Manitoba government carries overall
responsibility for forest renewal and timber management on Crown Land.
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(Manitoba Conservation, Forestry Branch, 20150422, Manitoba's Forest
Management Licence Areas (FML's): Version 3: Manitoba Conservation, Forestry
Branch, Winnipeg, Manitoba)
Forest Management Units
Forest Management Units are defined as forested area with common forest
conditions that are managed in a similar pattern. Several forest management
units form a forest section. Forest inventories are studied to determine
permissible harvest limits of softwood and hardwood tree species within each
Forest Management Unit.
(Manitoba's Forest Management Units (FMU's): Version 4)
Water Power Reserves
The development of water power in Manitoba impacts the province's Crown
Land. As a mechanism to minimize impact on other resources, the Province has
created a water power reserve under the Manitoba Water Power Act.
(Manitoba Conservation and Water Stewardship, Manitoba Land Initiative,
Metadata date: 2008-10-03)
Integrated Watershed Management Plan
The map is the unique reflection of a number of stakeholders working together to
plan for the protection of land and water.
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(Integrated Watershed Management Plan, Water Stewardship Division,
Conservation and Water Stewardship)
Mineral Exploration and Existing Mining Sites
The layers used in this map show the access of mineral exploration and
development in Manitoba. It highlighted the licensed mineral exploration areas as
well as the existing mine sites.
Mining is the second leading resource sector and very important for provincial
economy. But logging, mining, development of petroleum and natural gas is
strictly prohibited in protected areas since these activities adversely affect the
habitat
(Manitoba – mineral resources – land access for mineral exploration and
development. Retrieved from http://web33.gov.mb.ca/mapgallery/mgm-md.html)
Oil Field Boundaries and Well Locations
This layers used in the map shows the location and boundaries of all currently
designated fields and the present status of well locations.
(GIS Map Gallery, Geographic Information System, Manitoba Mineral Resource,
2015).
Method: Most of the shape files we used for layering the maps are taken from
Administrative boundary of Manitoba Land Initiative (MLI). Some other shape
files of highways are taken from "Transportation" section of MLI. The shape files
of well locations and oil field boundaries are used from GIS map gallery of
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Manitoba Mineral Resources. Shape files for existing mine sites and mineral
exploration licence are collected from GIS map gallery of Mining and Quarrying
from Geo-science department of Manitoba Mineral resources.
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