Research Reports

Emergency Preparedness and First Nation Communities in Manitoba

Authors:
Donna Epp,
C. Emdad Haque,
and Beth Peers

Robert C. Annis, Executive Director
WESTARC Group Inc.
Jeff Umphrey Centre
Brandon University
Brandon, Manitoba
R7A 5A6

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Summary

The First Nation communities in Canada possess distinctive characteristics, especially in terms of value systems, culture, economic activities and community infrastructure relative to the rest of the Canadian population. Many of the First Nation communities are also vulnerable to natural and anthropogenic hazards. Thus the development of an emergency preparedness and response system that is appropriate to these communities should be of high priority. Such a system should include periodic reviews and testing of the plan, proper training of personnel and incorporation of linkages with other systems. Development of emergency preparedness requires the input, understanding and direction of the community which it will serve.

The primary purpose of this report is to review, within the context of Manitoba, the past and current preparedness of three First Nations which have experienced an emergency. These communities shared their views through focus groups and key informant interviews. As well, information was gathered from various organizations such as Emergency Preparedness Canada (EPC), Indian and Northern Affairs Canada (INAC), the Manitoba Association of Native Fire Fighters (MANFF) and the Manitoba Emergency Management Organization (MEMO). The information gathered was then synthesized to provide case scenarios: The Sioux Valley flood of 1995, the Rouseau River flood of 1997 and the Pukatawagan evacuation due to forest fire (1989 & 1995) (Note Figure 1).

The roles of the federal, provincial and local authority in relation to emergency preparedness will be briefly explored to set the context prior to and within the case scenarios. Self-government negotiations for First Nations are ongoing within Manitoba and within the discussions, emergency preparedness has been described as being "fast-tracked". This will be briefly explored at the conclusion of the document.

For the purposes of this project, emergency was defined as "a situation or threat of a situation which would abnormally affect the property, health, safety and well-being of a given First Nations community and which, depending on nature and scope, requires controlled and coordinated intervention on the part of several organizations. Such an emergency does not fall within the definition of normal activities carried out by regular services such as the police, fire department, or ambulance" (INAC, 1994). However, as can be seen in the various case scenarios, interpretations of an emergency may vary.

Declaration of an emergency for First Nations is also somewhat of a dilemma. Manitoba Reeves and Mayors have the legislative authority to declare an emergency within their local area. However, the Chief of a First Nation community does not have the same legal authority. In reality, however, the authority of the Chief is recognized by the federal agency, Indian and Northern Affairs Canada (INAC), and the Manitoba Association of Native Fire Fighters (MANFF) as a valid voice for declaring an emergency within their community. This lack of formal recognition of authority seems to be the case across Canada, with perhaps one exception: "Apart from the possibility of the Alberta Safety Services Act, neither provincial nor federal emergency legislation authorizes band chiefs or councils the right to declare an emergency on reserve lands" (Emergency Preparedness Canada, Personal Communication, 1994).

Acknowledgments

This publication has been prepared by:

Office of Critical
Infrastructure Protection and
Emergency Preparedness

2nd Floor, Jackson Bldg.
122 Bank St.
Ottawa, ON K1A 0W6
Tel: (613) 944-4875
Toll Free: 1-800-830-3118
Fax: (613) 998-9589
Email: communications@ocipep-bpiepc.gc.ca
Internet: www.ocipep-bpiepc.gc.ca

This material is based upon work supported by the Directorate of Research and Development (DRD) in the Office of Critical Infrastructure Protection and Emergency Preparedness (OCIPEP), formerly Emergency Preparedness Canada, under Contract Reference No. 1997D007. Any opinions, findings, and conclusions or recommendations expressed in this material are those of the author(s) and do not necessarily reflect the views of the Office of Critical Infrastructure Protection and Emergency Preparedness.

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