Edey et al. v. Director, South Saskatchewan Region, Regulatory Assurance Division, Alberta Environment and Parks

2022 ABEAB 25

Appeal Nos. 19-089 and 19-093-094-R

ALBERTA

ENVIRONMENTAL APPEALS BOARD

Report and Recommendations

Date of Report and Recommendations – June 14, 2022

IN THE MATTER OF sections 91, 92, 94, 95, and 99 of the

Environmental Protection and Enhancement Act, R.S.A. 2000,

c. E-12, and section 115 of the Water Act, R.S.A. 2000, c. W-3;

-and-

IN THE MATTER OF appeals filed by Delbert and Helen Edey,

James and Lillian Howie, and Rod and Nicole Macklin with

respect to the decision of the Director, South Saskatchewan

Region, Regulatory Assurance Division, Alberta Environment and

Parks, to issue Water Act Approval No. 00419723-00-00 to the

Town of High River.

Cite as:

Edey et al. v. Director, South Saskatchewan Region, Regulatory Assurance

Division, Alberta Environment and Parks, re: Town of High River (14 June 2022),

Appeal Nos. 19-089 and 19-093-94-R (A.E.A.B.), 2022 ABEAB 25.

Classification: Public

Ms. Anjum Mullick, Panel Chair; Ms. Barbara

Johnston, Board Member; and Mr. Dave

McGee, Board Member.

HEARING BEFORE:

BOARD STAFF:

Mr. Gilbert Van Nes, General Counsel and

Settlement Officer; Ms. Denise Black, Board

Secretary; Ms. Aurelia Gordon, Board

Counsel.

SUBMISSIONS BY:

Mr. Delbert and Ms. Helen Edey; Mr. James

and Ms. Lillian Howie; and Mr. Rod and Ms.

Nicole Macklin, represented by Mr. Gavin

Fitch, Q.C., McLennan Ross LLP.

Appellants:

Town of High River, represented by Mr. John

Gruber, MLT Aikins LLP.

Approval Holder:

Director:

Mr.

Andun

Jevne,

Director,

South

Saskatchewan Region, Regulatory Assurance

Division, Alberta Environment and Parks,

represented by Ms. Jodie Hierlmeier and

Ms. Jade Vo, Alberta Justice and Solicitor

General.

Mr. Peter and Ms. Sheila Macklin, represented

by Mr. Gavin Fitch, Q.C., McLennan Ross

LLP.

Intervenors:

WITNESSES:

Mr. Delbert Edey; Mr. James Howie; Mr. Rod

Macklin; and Dr. Michael Bender, Senior

Water Resources Engineer, Millennium EMS

Solutions Ltd.

Appellants:

Mr. Joal Borggard, Principal Hydrotechnical

Engineer, Cascade Water Resources; Mr. Chris

Delanoy, Managing Director, Calgary, ISL

Engineering and Land Services; Mr. David

Sol, Associate Manager-Planning, IBI Group;

Mr. Adam Spackman, Edwards Land; Mr. Tom

Gilliss, Town of High River; and Mr. Reiley

McKerracher, Director, Municipal Services,

Town of High River.

Approval Holder:

Classification: Public

Mr.

Andun

Jevne,

Director,

South

Director:

Saskatchewan Region, Regulatory Assurance

Division, Alberta Environment and Parks; Ms.

Pauline Scoffield, Approvals Coordinator,

Alberta Environment and Parks; and Mr. Jim

Choles, River Engineering, Alberta

Environment and Parks.

Mr. Michael Macklin.

Intervenors:

Classification: Public

EXECUTIVE SUMMARY

The Director, South Saskatchewan Region, Regulatory Assurance Division, Alberta

Environment and Parks (the Director) issued an Approval under the Water Act to the Town of

High River (the Town), which authorizes the construction of a berm and swale approximately 2.6

kilometres long within the floodplain of the Highwood River (the SW Dike), resulting in the

permanent alteration of flow, direction of flow, and water levels of the Highwood River.

Mr. Delbert and Ms. Helen Edey, Mr. James and Ms. Lillian Howie, and Mr. Rod and Ms.

Nicole Macklin (the Appellants) filed appeals with the Environmental Appeals Board (the

Board) of the Director’s decision to issue the Approval. The Appellants disputed the scientific

and technical studies on which the Approval decision was based, the appropriateness of

constructing a dike in a floodplain, and the terms and conditions of the Approval. The Board

granted intervenor standing to Mr. Peter and Ms. Sheila Macklin.

An oral hearing was held by video conference due to the COVID-19 Pandemic. The Board

received and reviewed written submissions, assessed oral evidence and arguments presented at

the hearing, and reviewed Alberta Environment and Park’s record on the following issues set by

the Board:

1.

The accuracy and reliability of the technical and scientific studies that

informed the Director’s decision to issue the Approval. This includes but

is not limited to any modelling that was undertaken.

2.

3.

The appropriateness of constructing a dike in a floodway or floodplain as

authorized by the Approval under appeal before the Board.

Are the terms and conditions of the Approval appropriate having regard to

the potential environmental impacts of the approved activity? This

includes but is not limited to the potential environmental impacts of the

Approval on each of the Appellants (i.e. property, business, safety).

The Board determined the technical and scientific studies used to inform the Director’s decision

to issue the Approval were accurate and reliable. Despite an inherent lack of real-world

precision, a model can still be reliable as a representative and predictive tool. Therefore, despite

minor discrepancies between the 2013 flood and the Town’s model, the model was still an

accurate and reliable approximation of the effects of the SW Dike.

Classification: Public

The Board did not find any statutory or policy limitations to prevent the construction of the berm

and swale within the floodplain of the Highwood River. Given the design constraints presented

by the Town in its application to the Director, it was appropriate for the Director to authorize the

construction of the berm and swale within the floodplain.

The Board determined the terms and conditions of the Approval were appropriate in principle.

However, the Board found the Director erred when determining which lands were appurtenant to

the Approval and in determining which landowners were required to consent to the works. The

purpose of the berm and swale is to redirect overland flow during a flood event from within the

Town to land located in Foothills County (the County). The Board found that by building the

berm and swale and redirecting the overland flow of floodwaters, the Town intentionally

transferred the overland flow of floodwaters from the Town to the Appellants and Intervenors,

materially impacting their properties.

The Director limited appurtenance to the location of the berm and swale. The lands in the

County which will receive the redirected overland flow are essential to the design and proper

function of the berm and swale and should be appurtenant to the Approval. The Board found the

Director erred by not requiring the Town to obtain the consent of the Appellants and Intervenors

to the use of their lands created by the redirection of the overland flow of floodwaters.

Further, the Board determined that the Director should have made those lands downstream of the

berm and swale that will receive the redirected overland flow appurtenant to the Approval and

required the written consent of these landowners, as the berm and swale cannot operate as

intended without those lands receiving the overland flow.

The Board recommended the Approval be varied to include those lands receiving the redirected

overland flow from the berms and swale, including the Appellants and Intervenors’ lands, as

appurtenant to the Approval. The Board also recommended that the Approval be varied to

require the Town to obtain the written consent of the owners of lands appurtenant to the

Approval as interpreted in this decision. The Board recommended that all other terms and

conditions of the Approval be confirmed as issued.

Classification: Public

TABLE OF CONTENTS

I. INTRODUCTION ................................................................................................................1

II. KEY TERMS........................................................................................................................3

III. BACKGROUND AND FACTS ...........................................................................................4

IV. EVIDENCE AND ARGUMENTS.....................................................................................10

A.

B.

C.

D.

Intervenors ...................................................................................................................................10

Appellants ....................................................................................................................................12

Town of High River .....................................................................................................................26

Director ........................................................................................................................................35

V. ANALYSIS.........................................................................................................................51

V. CONCLUSION...................................................................................................................80

VI. RECOMMENDATIONS....................................................................................................82

Classification: Public

- 1 -

I.

INTRODUCTION

This is the Environmental Appeals Board’s (the “Board”) report and

[1]

recommendations to the Minister of Environment and Parks (the “Minister”) concerning appeals

filed in relation to the decision of the Director, South Saskatchewan Region, Regulatory

Assurance Division, Alberta Environment and Parks (the “Director”) to issue Approval No.

00419723-00-00 (the “Approval”) under the Water Act, R.S.A. 2000, c. W-3 (the “Water Act”)

to the Town of High River (the “Town”). The Board has jurisdiction to hear this appeal pursuant

to section 115(1)(a)(i) of the Water Act.¹The appeals were filed by Mr. Delbert and Ms. Helen

Edey, Mr. James and Ms. Lillian Howie, and Mr. Rod and Ms. Nicole Macklin (the

“Appellants”). The Board also allowed Mr. Peter and Ms. Sheila Macklin to intervene in the

appeals (the “Intervenors”).

[2]

The Approval authorizes the construction and placement of a berm approximately

2.6 kilometres long and a swale at sections 35-018-29-W4M and S½-01-19-29-W4M within the

Highwood River’s floodplain resulting in the permanent alteration of the flow, the direction of

flow, and the water levels of the Highwood River (the “SW Dike”). The Approval also changes

the location of overland water flow for drainage purposes.²Though not explicitly stated in the

Approval, the purpose of the SW Dike is flood mitigation.³

[3]

The Board held an oral hearing by video conference due to the COVID-19

Pandemic on January 12 and January 13, 2021, and heard submissions and evidence on the

following issues:

1. The accuracy and reliability of the technical and scientific studies that informed

the Director’s decision to issue the Approval. This includes but is not limited to

any modelling that was undertaken.

1

Section 115(1) of the Water Act provides:

“A notice of appeal under this Act may be submitted to the Environmental Appeals Board by the

following persons in the following circumstances:

(a) if the Director issues or amends an approval, a notice of appeal may be submitted

(i) by the approval holder or by any person who previously submitted a statement of

concern in accordance with section 109 who is directly affected by the Director’s

decision, if notice of the application or proposed changes was previously provided under

section 108…..”

2

Water Act Approval No. 00419723-00-00, January 28, 2020, at the Purpose and Condition 3.0(a).

3

Town’s Letter to the Board, February 12, 2020, at page 2.

Classification: Public

- 2 -

2. The appropriateness of constructing a dike in a floodway or floodplain as

authorized by the Approval under appeal before the Board.

3. Are the terms and conditions of the Approval appropriate having regard to the

potential environmental impacts of the approved activity? This includes but is not

limited to the potential environmental impacts of the Approval on each of the

Appellants (i.e. property, business, safety).

[4]

Based on the evidence and arguments presented at the hearing, the Board

concluded the technical and scientific studies that informed the Director’s decision were accurate

and reliable.

[5]

The Board determined it was appropriate for the Approval to authorize the

construction of the SW Dike in the Highwood River’s floodplain. There were design constraints

and a lack of other feasible design options available to the Town.

[6]

The Board concluded the terms and conditions of the Approval are appropriate in

principle. However, in the Board’s view, the Director erred in not finding the Appellants’ and

Intervenors’ lands appurtenant to the Approval. The Board found the Appellants’ and

Intervenors’ lands were necessary to the design and proper function of the SW Dike, as the

overland flow must flow over the Appellants' and Intervenors’ lands to reach the Little Bow

River.

[7]

The Board further found that by building the SW Dike and redirecting the

overland flow of floodwaters, the Town intentionally transferred the overland flow of

floodwaters from the Town to the Appellants’ and Intervenors’ lands and materially impacted

their properties. The Board found the Director erred by not requiring the Town to obtain the

consent of the Appellants and Intervenors to the material impact to their lands created by the

redirection of the overland flow of floodwaters.

[8]

The Board recommended the Approval be amended to include the Appellants’

and Intervenors’ lands, making them appurtenant to the Approval.

[9]

The Board also recommended the Director review the statements of concern and

determine if there are any additional lands materially impacted by the overland flow redirected

by the SW Dike, and if so, recommended those lands also be made appurtenant to the Approval.

Classification: Public

- 3 -

[10]

The Board further recommended the Director apply section 37(4) of the Water

Act⁴and Alberta Environment and Parks’ (“AEP”) policy and require the Town to obtain the

written consent of the owners of the lands appurtenant to the Approval which it does not own or

have administrative control over.

[11]

The Board recommended the Town be given a timeline of six months to acquire

the consent of the Appellants and the Intervenors, failing which the Board recommended the

Director be given the discretion to extend the time for the Town to acquire the necessary written

consent, if appropriate.

[12]

The Board also recommended the Town be required to submit the as-built plans

for the SW Dike and any other information that is requested by AEP to assist with the Province’s

flood hazard mapping.

II.

KEY TERMS

[13]

The Board notes there are several terms used by the Appellants, Intervenors,

Director, and Town (the “Parties”) throughout the hearing. For the purposes of this report, the

Board has clarified these terms as set out below.

[14]

In June 2013, southern and central Alberta received a heavy rainfall which

triggered devastating flooding throughout areas along the Bow, Elbow, Highwood, Red Deer,

Little Bow and South Saskatchewan Rivers and their tributaries. This flood is referred to as the

“2013 Flood.”

[15]

The Town’s consultant, WorleyParsons,⁵used high watermarks, survey data, and

other measurements that were taken after the 2013 Flood to create a model of the landscape as it

would have appeared just after the 2013 Flood (e.g. it does not include any post-2013 flood

mitigation structures), which they referred to as the 2013 Flood Landscape Scenario. This model

is referred to in this Report as the “2013 Flood Model.”

4

Section 37(4) of the Water Act states: “If an applicant for an approval does not own the land in fee simple

or the undertaking to which the approval is to be appurtenant, if required by the Director, the applicant must submit

the written consent of the owner of the land or of the undertaking as part of the application for the approval.”

5

In some of the documentation, WorleyParsons is referred to as “Advisian,” a subsidiary of the

WorleyParsons Group. For clarity, WorleyParsons is used throughout this Report.

Classification: Public

- 4 -

[16]

WorleyParsons generated another hydraulic model which simulated the 2013

Flood, and included all Town dikes (temporary and permanent) installed up to 2019, and does

not include the SW Dike. This model was developed to estimate the potential effects of the flood

mitigation measures at the time of the Approval application and is referred to as “Scenario 37A”.

[17]

WorleyParsons generated another hydraulic model based on the 2013 Flood

Model, which was Scenario 37A with the addition of the SW Dike, along with minor landscape

modifications to protect the Town. This model is referred to as “Scenario 53A.”

[18]

[19]

Flow rate is discussed in terms of cubic metres per second “m³/s.”

The diking projects around the Town have created a diversion effect between the

Highwood River and the Little Bow River during extreme flood events, referred to as the “flow

split.” The flow split is located just south of the Town.

[20]

The maximum rate of discharge during the period of runoff during a storm

associated with a flood is referred to in this Report as the “peak flow.”

[21]

A “1:100 Flood” is a flood which has a one percent chance of occurring every

year or, put another way, once every hundred years.

[22]

The “floodplain” is the area of low-lying land around a river which stretches from

the banks of the river’s channel and is subject to flooding during periods of high water.

[23]

The “floodway” generally includes the river channel and adjoining riverbanks.

[24]

The “flood fringe” is the portion of the floodplain that is not included in the

floodway.

III.

BACKGROUND AND FACTS

[25]

After the 2013 Flood, the Town undertook a flood mitigation program and

installed a series of dikes around the Town of High River. ⁶

[26]

On August 17, 2018, the Town submitted Water Act Application 00419723 to

AEP for authorization to carry out activities under the Water Act, namely the construction and

6

Attached as Appendix “A” – Town of High River Flood Mitigation Program is Figure 1, Town of High

River Flood Mitigation Program, WorleyParsons, April 17, 2018, attached to the Regulatory Permit Application No.

00419723 (Revision 3), July 23, 2018, WorleyParsons Canada (“WorleyParsons Report”), at Director’s Record, Tab

5, page 98.

Classification: Public

- 5 -

placement of the SW Dike at Section 35-18-29-W4M and S½-01-19-29-W4M within Highwood

River’s floodplain (the “Application”).

[27]

The SW Dike was based on a reverse “S-Curve” design with a narrow swale.⁷

The Town chose this design over two other options, one being a “hockey stick” design and the

other an “S-Curve” design with a wider swale. The Town had previously submitted an

application based on the “S-Curve” design with a wider swale, but that earlier application was

superseded by the Application filed in 2018.

[28]

The rationale in support of the design for the SW Dike was prepared by

WorleyParsons. WorleyParsons developed and used the Highwood River Flood Model RMA-2

to model three different scenarios: the 2013 Flood Model, Scenario 37A, and Scenario 53A.

[29]

The Town assessed the impacts of the SW Dike by comparing the cumulative

effects of adding the proposed mitigation in Scenario 53A to that of Scenario 37A. The

assessment looked at two different peak flows, 750 m³/s (1:100 Flood) and 1820 m³/s (2013

Flood), with various model parameters, including depth, velocity, and elevation.⁸

[30]

The Application was referred to AEP internal experts for review by the AEP

Approvals Coordinator (the “Approvals Coordinator”). AEP River Engineering (“River

Engineering”) provided comments to the Approvals Coordinator regarding the proposed SW

Dike’s obstruction of a provincial floodway and impacts on water characteristics on January 31

and April 16, 2019. These comments were sent to the Town on May 3, 2019. The Town

responded to these comments in a letter dated June 7, 2019, and met with AEP on July 3, 2019,

to discuss the Application and River Engineering’s concerns.⁹

[31]

Public notice of the application was provided in July 2019. AEP received 15

statements of concern in response to the public notice and forwarded them to the Town. On

August 21, 2019, the Town emailed the Approvals Coordinator outlining the impacts of the

proposed SW Dike on the potential statement of concern filers. The Town met with AEP in

7

2016 ISL Engineering Final Report, Southwest Dike Choose-Design Report, (the “ISL Report”), at pages

17 to 19, Director’s Record, Tab 6, pages 181 to 83. See also the Little Bow Enhanced Natural Floodway (LB-

ENF), WorleyParsons Report, at pages 2 to 8, and Director’s Record at Tab 5, pages 70 to 78.

8

See Figures 5 through 24 of the WorleyParsons Report, Director’s Record, Tab 5, pages 102 to 121.

9

Director’s Record, at Tab 23.

Classification: Public

- 7 -

R.S.A. 2000, c. E-12 (“EPEA”), on the basis of the Intervenors having failed to file a statement

of concern with the Director as required by section 115(1)(a)(i) of the Water Act.¹²

[40]

On February 18, 2020, the Macklins filed a Notice of Appeal of the Approval and

requested a stay of the Approval.

[41]

On February 20, 2020, the Board acknowledged receipt of Macklins’ appeal and

notified the Town and the Director of their appeal and stay request. The Board also

acknowledged the Director’s motion and set a process for receiving submissions on the

Director’s motions from the Appellants, the Town, the Intervenors, and the Director.

[42]

Concurrently, on February 20, 2020, the Appellants provided their submissions

to the Board in support of a stay. The Board acknowledged the Appellants’ stay submissions and

set a process for receiving submissions regarding the stay application from the Appellants, the

Town, and Director (collectively, the “Parties”).

[43]

Between February 20 and March 27, 2020, the Board received submissions from

the Parties and the Intervenors in two concurrent processes. The Board received submissions

from the Intervenors, the Town, and the Director on whether the Intervenors’ appeal was

properly before the Board. The Board also received submissions from the Parties on whether the

Appellants were directly affected by the Director's decision to issue the Approval and whether a

stay should be granted.

[44]

On April 1, 2020, the Board informed the Parties and the Intervenors that the

Board had reviewed the written submissions and had determined the Intervenors’ appeal was not

properly before the Board. The Intervenors had failed to file a statement of concern with the

Director, which was a prerequisite to filing their Notice of Appeal with the Board pursuant to

(iii) for any other reason the Board considers that the notice of appeal is not properly

before it....”

12

Section 115(1)(a)(i) of the Water Act states:

“A notice of appeal under this Act may be submitted to the Environmental Appeals Board by the

following persons in the following circumstances:

(a) if the Director issues or amends an approval, a notice of appeal may be submitted

(i) by the approval holder or by any person who previously submitted a statement of

concern in accordance with section 109 who is directly affected by the Director’s

decision, if notice of the application or proposed changes was previously provided under

section 108…..”

Classification: Public

- 8 -

section 115(1)(a)(i) of the Water Act. The Board further advised the Parties the Appellants were

found to be directly affected by the SW Dike, but the Board declined to grant a stay.¹³

[45]

The Director provided the Director’s Record to the Board on April 9, 2020. The

Board subsequently provided the Director’s Record to the Parties. A mediation meeting was

scheduled for May 6, 2020.

[46]

On May 5, 2020, the Board confirmed with the Parties that as there was no

agreement to proceed to mediation, the mediation meeting would be cancelled. The Board

proposed one issue for the hearing¹⁴and asked the Parties to provide comments.

[47]

On May 11, 2020, the Board received comments from the Parties regarding the

proposed issue for the hearing. The Director and Appellants provided additional comments on

the proposed issue for the hearing on May 21, 2020, and the Town provided additional

comments on May 22, 2020.

[48]

On September 3, 2020, the Board notified the parties that, based on the Parties’

availability, the hearing would be held between October 6 and 7, 2020.

[49]

On September 8 and 9, 2020, the Town and the Director wrote to the Board

requesting the hearing be rescheduled to a later date. On September 10, 2020, the Appellants

stated a postponement of the hearing was acceptable to the Appellants.

[50]

The Board published the Notice of Hearing in the Okotoks Western Wheel on

September 9, 2020, the High River Times on September 11, 2020, and the Nanton News on

September 16, 2020. The Board also provided a copy of the Notice of Hearing to the Town of

High River and Rockyview County to place on their public bulletin boards or websites. The

Notice of Hearing was also placed on the Board’s website, and a News Release was distributed

to the media throughout the Province by the Government of Alberta’s Public Affairs Bureau.

The Notice of Hearing notified the public of the hearing and requested that any person other than

13

Edey et al. v. Director, South Saskatchewan Region, Regulatory Assurance Division, Alberta Environment

and Parks, re: Town of High River (16 November 2021), Appeal Nos. 19-089-091 and 093-094-ID2 (A.E.A.B.),

2021 ABEAB 33.

14

The Board suggested the following issue:

“Are the terms and conditions in the Approval adequate having regard to the potential

environmental impacts of the Approval? This includes but is not limited to:

• The impact of the Approval to each of the Appellants' lands having regard to their flood

protection right.”

Classification: Public

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the Parties, wanting to make representations before the Board, contact the Board by September

18, 2020.

[51]

The Board received applications to intervene from the Intervenors, Ms. Shirley

Pickering, on behalf of the Upper Little Bow Water Users Association, and Mr. Doug and Ms.

Anne Bourque. The Board received comments from the Parties on their potential participation.

The Board determined only the Intervenors would be permitted to intervene and issued its

reasons for the decision on October 26, 2021.¹⁵

[52]

On September 14, 2020, the Board wrote to the Parties providing details of the

publication of the Notice of Hearing. The Board advised the Parties the hearing would be

rescheduled, and the date for intervenors to apply would be extended to October 19, 2020.

[53]

On November 2, 2020, the Board notified the Parties that, based on their

respective availabilities, the hearing was scheduled for January 12 and 13, 2021. The Board also

advised the Parties on November 9, 2020, that it had determined the issues for the hearing.

[54]

The written submissions for the hearing, including expert reports, were received

from the parties between November 13 and December 23, 2020.

[55]

The hearing was held by video conference due to the COVID-19 Pandemic on

January 12 and 13, 2021. The issues heard by the Board were:

1. The accuracy and reliability of the technical and scientific studies that

informed the Director’s decision to issue the Approval. This includes but is

not limited to any modelling that was undertaken.

2. The appropriateness of constructing a dike in a floodway or floodplain as

authorized by the Approval under appeal before the Board.

3. Are the terms and conditions of the Approval appropriate having regard to the

potential environmental impact of the approved activity? This includes but is

not limited to the potential environmental impact of the Approval on each of

the Appellants (i.e. property, business, safety).

[56]

The Board received further written submissions from the Parties in response to

questions from the Board between February 1 and May 24, 2021.¹⁶

15

Edey et al. v. Director, South Saskatchewan Region, Regulatory Assurance Division, Alberta Environment

and Parks (26 October 2021), Appeal Nos. 19-089, 093-094-ID1 (A.E.A.B.), 2021 ABEAB 25.

16

The Board asked the Parties:

“[T]he Board would like to receive comments from the parties with respect to (1) the applicability

Classification: Public

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[57]

The Board closed the hearing on May 31, 2021.

IV.

A.

Evidence and Arguments

Intervenors

[58]

The Intervenors presented the following evidence and arguments.

[59]

The Intervenors own two properties west of the Little Bow River, just south of

the Town.¹⁷The Intervenors live on the North Property, which is accessed from 88 Street.

There is a shop/garage located on the North Property, in addition to their home.

[60]

According to the Intervenors, the 2013 Flood impacted their properties. Water

overtopped the Canada Pacific Railway (“CPR”) embankment and 88 Street and flooded their

properties from the west/northwest. A significant length of the access road which they share

with the Macklins was inundated to a height of approximately 4-5 inches (10-13 cm), cutting off

access to both the Intervenors and Macklins’ residences.

[61]

The Intervenors argued the 2013 Flood Model was inaccurate and stated, “… the

waters restricted by the CPR embankment first flowed south along the west side until stopped by

a hill where they piled up and flowed over the embankment in greater volume and before

anywhere else.”¹⁸

[62]

The Intervenors argued the data used to determine the 1:100 Flood’s peak flow

was outdated and should be considered obsolete, as it only includes data from floods that

occurred up to 1992 and does not include more recent floods. The Intervenors argued that the

outdated data has resulted in too low of a peak flow, of 750 m³/s.

of the Guideline, and (2) the effect on the project if the Guideline is applied.

The Board notes there does not appear to be a defined point in time when stormwater becomes

floodwater, nor does there appear to be a rationale for treating stormwater and floodwater

differently. Based on the Board’s initial review of the Stormwater Management Guideline for the

Province of Alberta, it appears to be a well-developed policy that identifies key factors to be

considered with respect to the development of a stormwater or floodwater management system.

These factors include an adequate outlet.”

The Board also requested that the Town provide more detailed information regarding Figure 19.

17

All of the Legal Subdivisions 11 and 12 and the South Halves of Legal Subdivisions 13 and 14 in

the NW 25-18-29-W4M, containing 48.6 hectares (120 acres) more or less, excepting thereout

Plan 0213185 Subdivision, 6.57 hectares (16.23 acres) (“North Property”).

The North Halves of Legal Subdivisions 5 and 6 in the SW 25-18-29-W4M containing 8.08

hectares (20 acres) more or less (“South Property”).

18

Intervenors’ Written Hearing Submissions, December 9, 2020, Appendix “D,” at page 3.

Classification: Public

- 11 -

[63]

According to the Intervenors, flood mapping has never shown their properties in a

floodway or floodplain. They expressed concern that the new flood mapping yet to be released

by the Government of Alberta will show that their properties are in a floodway or floodplain and

noted the Town’s modelling shows their properties will be subject to incremental flooding

because of the SW Dike.

[64]

The Intervenors also expressed concern that the flood mapping will substantially

devalue their properties, sterilize their development potential, and make them difficult to sell.

[65]

According to the Intervenors, they attended meetings with the Town and its

appraiser regarding the SW Dike but did not feel their concerns were heard. The Intervenors

stated the Town offered a flood easement over the portion of the properties where the modelling

showed there would be incremental flooding with the SW Dike in place.

[66]

The Intervenors argued the Approval should be expanded to require the following

terms and conditions:

a. protection of the Little Bow River;

b. provision to route lesser floods to cause less acreage involvement and

less debris being picked up by the waters, and fewer small animal deaths;

and

c. the Town should be responsible for remedying any environmental

damage caused by any diverted floodwaters and for cleaning up the

debris associated with the diverted floodwaters.

[67]

The Intervenors also raised concerns regarding whether measures were in place to

repair damage to their property after the next flood, and if their access road washed out, who

would be responsible for repairing and rebuilding their access road.

[68]

The Intervenors adopted the concerns and arguments of the Appellants regarding

the modelling, in addition to their own.¹⁹

[69]

Mr. Michael Macklin presented on behalf of the Intervenors at the hearing. He

stated the construction of the SW Dike had caused the Intervenors a considerable amount of

stress. He further noted the construction of the dikes in the Town had been a seven-year process

19

The Intervenors and the Appellants retained the same counsel legal counsel. The Intervenors adopted the

concerns and arguments of the Appellants, and where there were individual concerns specific to an individual

appellant or the Intervenors, these concerns or arguments are noted.

Classification: Public

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with no discussion regarding what would be happening to their lands or if they would be allowed

to remain in the long term.

[70]

According to Mr. M. Macklin, the drawings developed regarding the effects of

the 2013 Flood “…were not totally accurate.” He stated the 2013 Flood may have affected 20%

of the Intervenors’ land at that time, and the Intervenors were now not sure whether all their

lands would be affected and flooded with the SW Dike in place. He explained, stating the 2013

Flood had damaged the crop but not the houses or buildings.

[71]

Mr. M. Macklin stated the cleanup of the damage from the 2013 Flood was easy

because the water was only on the land for a day. He noted there was quite a large amount of

junk on the land, and Foothills County (the “County”) had helped them with some of the

removal. He expressed concern that there could be an untold amount of damage with the

increased amount in the flow of water.

[72]

According to Mr. M. Macklin, there was erosion and damage to the banks of the

Highwood River during the 2013 Flood. He expressed concern that the increase in flow could

damage and erode the banks further, causing a permanent change in the flow of the river.

[73]

Mr. M. Macklin stated he agreed there should be mitigation for future flood

events, but he objected to the Town diverting water onto the Intervenors’ lands.

[74]

Mr. M. Macklin noted Mr. Adam Spackman, the Town’s appraiser, could not

answer their questions about the flood easement offered by the Town or explain a covenant to

the Intervenors. He noted no other compensation was offered to the Intervenors.

[75]

Mr. M. Macklin noted there was an old swale the Highwood River used to flow

through during floods that, if used, would have avoided all of the Appellants’ and Intervenors’

lands. He supported the idea of using the old swale as a solution, as one could still farm over it.

[76]

Mr. M. Macklin further suggested that CPR be asked to remove the embankment.

According to Mr. M. Macklin, no one had contacted CPR, and removal of the embankment

could still be carried out.

B.

Appellants

[77]

The Appellants presented the following evidence and arguments, advancing four

main arguments in their appeals:

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a. the technical data and scientific studies relied on by the Director in

making his decision were inaccurate and unreliable;

b. the decision to allow the SW Dike to be built in the Highwood River’s

floodplain was a violation of AEP policy and, therefore, inappropriate;

c. the Director failed or was unable to properly consider the impacts of the

SW Dike on the Appellants; and

d. the terms and conditions of the Approval are inappropriate because the

Approval transfers flood risk from the Town to the Appellants.

[77]

The Appellants did not ask for the terms and conditions to be altered but rather

asked that terms and conditions be added to the Approval ordering the Town:

a. to backfill and eliminate the swale, which acts as a channel for floodwaters

to flow towards downstream property owners in the County, such as the

Appellants and the Intervenors;

b. the Town to work with the County to implement the engineered breach

proposal (or some version of it) contained in the Appellants’ expert report

prepared by Millennium EMS Solutions Ltd. (“Millennium”); and

c. the Town to engage in good faith negotiations with the Appellants and

Intervenors with respect to flood mitigation and/or compensation for the

Town transferring flood impacts from its residents to downstream property

owners and residents.²⁰

[78]

The Edeys stated they own two properties located on the Little Bow River just

south of the Town of High River in the County.²¹The Edeys explained their home is on the East

Property along with a 6000 square foot shop/garage, which is two-thirds cold storage and has the

remaining one-third developed with heat and washroom facilities. The shop/garage has a 24-

inch concrete foundation. The East Property is accessed from 104 Street.

[78]

According to Mr. Edey, the 2013 Flood resulted in the Edeys’ home flooding to a

height of 41 inches (1.04 metres), while the water inside of their home reached the height of 34

inches (0.86 metres). The Edeys explained due to the “… flooding which occurred over the

septic system and associated field, [their] septic Backflow Preventer was destroyed, resulting in

20

Appellants’ Initial Written Hearing Submissions, December 9, 2020, at 27.

21

Plan 1014136, Block 1, Lot 4, containing 4.05 hectares (10.0 acres), in SE 25-18-29-W4M ("East

Property”);

Plan 1014136, Block 1, Lot 1, containing 3.33 hectares (8.23 acres), in SE 25-18-29 W4M (“West

Property”).

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the home being inundated with septic sewage.”²²Their residence was declared uninhabitable by

the Health Authority due to contamination. The Edeys rebuilt their home in 2013/2014.

[79]

The Edeys stated their shop/garage was also flooded to a height of 59 inches

(1.52 metres) on the wall separating the cold and warm storage sections of the building; the

floodwater created high water marks up to 1.52 metres high on the separation walls between the

cold and warm storage facilities. Under the high velocity, the water eroded a large void 3 metres

wide by 0.5 metres deep under the heated storage cement floor and outside wall foundation.

Minimal flooding entered the heated storage.

[80]

Mr. Edey stated that in 2013, the floodwaters entered their East Property from the

Little Bow River from the north. There was minimal flooding to the West Property, which he

estimated to be around half an acre. According to Mr. Edey, the 2013 Flood Model is incorrect

in showing 2.5 acres of the West Property flooded. In his opinion, the 2013 Flood Model under-

represents the aerial extent of the flooding to their properties in 2013 by approximately 30

metres.

[81]

Mr. Edey stated that any benefit their East Property might acquire from the SW

Dike is cancelled out by the adverse impacts the SW Dike causes to their West Property.

According to him, their home on their East Property could still be flooded with the SW Dike in

place.

[82]

The Edeys stated their West Property has improvements, including a building that

contains controls for an underground modern sub-drip irrigation system. This system irrigates 7

acres of the West Property. The drip tank is buried 10 inches deep, the drip tape is 36 inches

apart, and covers the entire length of the West Property.

[83]

Mr. Edey stated they have a flood easement with the Government of Alberta on

the East Property, which restricts the flow to 8.5 m³/s, and expressed concern that the SW Dike

flow will exceed this by hundreds of feet.

[84]

The Appellants stated the flood easement agreement with the Government of

Alberta is for the increase in flow in the Little Bow River to support the Twin Valley Reservoir.

22

Appellant’s Initial Written Hearing Submissions, December 9, 2020, Appendix “C” - Edey’s Statement of

Impact, at page 1.

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This easement has established boundaries for the maximum flow of 8.5 m³/s (300 CFS) of water

in the Little Bow River.

[85]

According to the Appellants, the proposed increase in flow to the Little Bow

River due to the Approval is significant, as it is larger than the maximum flow the Little Bow

River is permitted to carry through a diversion (8.5 m³/s). The Appellants stated the Town

refused to discuss a controlled discharge option.

[86]

Mr. Edey expressed further concern that those downstream of the SW Dike

outside of the Town are not being offered the same level of protection as the Town’s residents.

He noted that the Town advised him that it has no mandate to protect the County’s residents to

the same level as its residents. He further noted the Town advised him that their East Property is

located outside of the zone for compensation.

[87]

According to Mr. Edey, attempts were made to speak to the Town and the County

about alternatives to the SW Dike. However, both the Town and the County refused to discuss

options.

[88]

Mr. Edey stated the Town offered a flood easement over the West Parcel of their

property based on the 2013 Flood Model, which, in their view, was inaccurate, less the projected

impacts to the West Property. According to Mr. Edey, he asked the Town to appraise his East

Property, and although the Town said it would, it never did.

[89]

According to Mr. Edey, one of the difficulties with the modelling was the need to

estimate the high watermarks, and only a few high watermarks were considered “very good.”

He also expressed concern that the modelling could not reflect the failure of the bridges and

preflood or post water levels associated with them or crossings.

[90]

The Edeys stated they had a surveyor take measurements of the elevations of their

property, and their home is only 30-40 centimetres higher than the Town’s modelled flood

extents.

[91]

Mr. Edey stated that they had requested the Town’s social, environmental and

economic studies for the SW Dike. According to Mr. Edey, these studies were not provided

until those studies were received as a part of the Director’s Record.

Classification: Public

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[92]

Mr. Edey objected to the Director basing his decision on their properties being

bare land, stating that “bare land” implies low value. He noted their properties have

improvements, including a building and sub-surface drip irrigation system. Mr. Edey also

commented that their properties have development potential given their proximity to a

community, large city centre, and current zoning.

[93]

According to Mr. Edey, the Town’s consultant advised them that the Town had

the power of expropriation. He later found out their properties were outside the Town’s

boundaries, and the Town could not expropriate their lands. He argued it eliminated the ability

for an independent party to decide fair and reasonable compensation.

[94]

The Edeys argued the appraiser for the Town did not take into account proper

zoning and the highest best use for their properties, nor did the Appraiser consider the buildings

or the value of the water licence on their property.

[95]

The Edeys stated they expected the following to be impacted:

a. building on the West Property that contains controls for the sub-surface

irrigation system;

b. a water well capable of delivering as much as 600 gallons per minute of

spring quality water and accompanying water licence;

c. steel building on the East Property containing pump and controls for

irrigating out of the river to a travelling gun irrigation system;

d. a shallow well for irrigating the field between their home and the river;

e. their residence on the East Property.²³

[96]

According to the Edeys, Golder Associates Inc. (“Golder”) and AECOM have

proposed newly updated peak flows for floodwater protection, with Golder proposing 1560 m³/s

and AECOM proposing 1390 m³/s.²⁴The Edeys stated that numerous insurance agencies are

also advocating for changes. The Edeys argued that both peak flows suggested are nearly double

the current estimate.

[97]

Mr. Edey stated he expected over half of the West Property to be under water and

for his property to no longer be saleable. He further stated the development potential was lost.

23

Appellants’ Written Hearing Submissions, December 9, 2020, Appendix “C” - Edeys’ Impact Statement, at

page 3.

24

Appellants’ Written Hearing Submissions, December 9, 2020, Appendix “C” - Edeys’ Impact Statement, at

page 5.

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[98]

When asked about the 2013 Flood, Mr. Edey explained that when the Hoeh Dike

broke in the Town, it went through the Town as a wall of water. He stated the overland flow

went through the Little Bow River and that it took approximately 2-3 hours before the water

levels in the Little Bow River reached the overland flow as described in the models. He

explained he was able to leave in his truck; however, his son-in-law became trapped.

[99]

The Macklins stated their residence is directly north of the Intervenors’ home,

and the two properties share an access road from 88 Street. Mr. Rod Macklin stated they

initially met with the Town to express concern about the floodwaters being pushed into their

property. He further stated he feels safe when he drives into the Town for work, but he does not

feel safe when he drives home and is on the other side of the SW Dike.

[100]

According to Mr. R. Macklin, he stated he is concerned about the potential for a

large amount of water to be pushed onto his and the Intervenors’ properties and the risk of their

access road washing out. He noted the age of the Appellants and Intervenors involved in the

appeals and expressed concern for their safety. He concluded by stating it was his understanding

that even more of their access road would be flooded due to the SW Dike.

[101]

Mr. R. Macklin stated they were originally going to give their daughter a parcel

and locate a business on their property, but the SW Dike had forced them into an area back

further from 88 Street, and flood-proof buildings were now required.

[102]

The Howies stated they reside in the Town. They own property outside of the

Town, which is used for agricultural purposes. Mr. James Howie gave evidence at the hearing

that during the 2013 Flood, approximately half of their property flooded in the north and

northeast. According to Mr. Howie, the water came overland from the west, from the Montrose

subdivision of the Town, and deposited gravel on their property.

[103]

Mr. Howie stated the northeast side of their property is less developable because

it is lower, swampy, and sub-irrigated. However, the southwest portion had development

potential. According to Mr. Howie, the Howies owned and lived on the property just south of

their property for approximately twenty years. Mr. Howie stated during that time, it had never

flooded. However, the southern portion of their property and access road will now be subject to

flooding due to the SW Dike.

Classification: Public

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[104]

When asked, Mr. Howie stated the 2013 Flood Model showed a lot more land

flooding than had actually flooded. He stated his original idea had been to subdivide his land,

which is 11 acres, for a housing development. He stated that now he cannot sell his property as

a consequence of the SW Dike. He further stated he will have to help pay for the SW Dike and

will not be compensated for it having put him into a worse position.

[105]

The Appellants noted the Approval Holder was protecting its residents to the peak

flow measured during the 2013 Flood plus 1 metre.

[106]

The Appellants explained they were troubled by the statements in multiple

documents prepared by WorleyParsons, which stated several factors limited the model accuracy.

These factors include lack of data surrounding peak magnitude, duration, and overall volume;

roughness, model approximations of real-world processes; input data quality and availability;

resources; and high watermark accuracy used for calibration and validation of the model.

According to the Appellants, they are concerned about their safety and investments. They feel

their concerns are founded when considering the lack of precision in the modelling, the impacts

on the Appellants’ properties if the modelling is wrong, and the chosen approach taken by both

the Town and the Government of Alberta.

[107]

The Appellants noted other issues with the modelling, including using outdated

studies and failing to address the debris blocking the bridge at 104 Street.

[108]

According to the Appellants, WorleyParsons stated debris blockage has no impact

on backwater effects at the 104 Street Bridge. The Appellants further commented that

WorleyParsons advised the Town to remove the former railway bridge to eliminate backwater

effects.

[109]

The Appellants further argued the Town minimized the inherent uncertainty

involved in modelling. According to the Appellants, in reports provided by the Town, the

margin error was stated as +/- 0.3 metres. The Appellants noted in other documents prepared for

the County, WorleyParsons acknowledged a greater level of uncertainty, which ranged up to +/-

1 metre.

[110]

The Appellants noted Millennium had opined that the uncertainty in the

modelling could be as much as +/- 1 metre. The Appellants argued it strained credulity that the

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Town would respond to Millennium’s opinion by stating the 2013 Flood Model was accurate to

a range of 10-15 centimetres on the Edey properties.

[111]

The Appellants commented the Director relied on WorleyParsons’ modelling to

be accurate and reliable. However, the Appellants argued that there was considerable

uncertainty around the 2013 Flood Model, resulting in WorleyParsons stating that the error

margin could be between +/- 0.5 metres for most areas to +/- 1.0 metre, with a freeboard of 1

metre. The Appellants further argued there is no evidence the Director considered the inherent

uncertainty in WorleyParsons’ modelling or that the model could be off by as much as 1.0 metre.

[112]

According to the Appellants, the Town’s modelling does not present a reasonable

worst-case scenario. The Appellants suggested the modelling included an assumption that the

model could be incorrect by as much as 1 metre. The Appellants argued if the Town’s

modelling were off by a metre, it could be devastating to the Appellants. The Edeys’ home, in

particular, would flood.

[113]

According to the Appellants, the Director relied on absolute minimums when

ensuring the safety of livelihoods and protection of homes and businesses. The meaning of

“significant” could vary, and the difference of a few feet could mean the Howies’ home and

septic system are flooded. The Appellants argued the error margins were too narrow to trust in

the accuracy or reliability of the technical studies that informed the Director’s decision.

[114]

The Appellants stressed the effects of the 2013 Flood should not be compared to

the potential effects arising from the construction of the SW Dike.

[115]

The Appellants noted the Director received advice during his review of the

Application that it was imprudent to construct the SW Dike in the floodplain and contrary to

AEP policy. According to the Appellants, some of this advice came from WorleyParsons.

[116]

The Appellants argued River Engineering expressed the same concerns as their

expert. The Appellants stated neither the Town nor River Engineering advised them of the

results of their July 2019 meeting.

[117]

The Appellants stated their properties have never been included in any flood

maps. However, the Town’s modelling clearly shows their properties will be subject to

incremental flooding due to the SW Dike. The Appellants expressed concern that the new flood

Classification: Public

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mapping yet to be released by the Province will show their properties in a floodway or

floodplain.

[118]

The Appellants questioned whether the baseline impacts for their properties could

be accurately established if the flood hazard mapping is completed after the SW Dike’s

construction.

[119]

The Appellants stated they are concerned that if their properties are shown to be

in a floodway or floodplain, it will reduce their future development potential. Showing their

properties to be in a floodway or floodplain will also significantly devalue their properties and

possibly render them unsaleable.

[120]

According to the Appellants, after the 2013 Flood, the Appellants learned the

Town was building the SW Dike. They attended meetings with the Town and the Town’s

appraiser. The Appellants do not feel their concerns were heard. The Appellants stated the

County did not participate and directed the Appellants to raise their concerns with the Town as it

was the Town’s project.

[121]

According to the Appellants, the Town has only offered a flood easement over the

portion of the Appellants’ properties, which will incur incremental flooding due to the SW Dike.

The Appellants noted this was the Town’s only offer of compensation, even though the

modelling predicts the Macklins and the Intervenors access road will be flooded and their homes

cut off from 88 Street.

[122]

According to the Appellants, regarding the Howies, the Town has taken the

position there is no impact to be mitigated or compensated, as less of their property will flood

after the SW Dike is constructed. The Appellants noted the smaller portion that now floods is in

the southwest corner, fronts 88 Street, and had development potential, whereas the northeast

corner that used to flood did not have development potential.

[123]

According to the Appellants, the properties west of 104 Street are protected to the

level of the peak flow of the 2013 Flood and will not have the additional metre of freeboard

protection provided to the rest of the Town.

[124]

The Appellants disputed the Town’s claim they were adequately consulted and

engaged throughout the application process. They argued the Director’s Record demonstrates

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the opposite, stating, “[c]onsultation and engagement is more than sending emails and attending

meetings. To be meaningful, a proponent must actually listen to the concerns being expressed

and try to address them.”²⁵

[125]

The Appellants expressed concern the Director did not provide a copy of the

Approval before issuing it. The Appellants further expressed concern that they did not have an

opportunity to recommend terms and conditions for the Approval.

[126]

The Appellants expressed a belief the Town and County have flood hazard

mapping for the Little Bow River, even though it is not publicly available. They argued the

Director should not have granted the Approval before the public release of the flood hazard

maps. The Appellants argued they and the Intervenors could not adequately determine the

impacts on their lands in the absence of this information.

[127]

The Appellants noted WorleyParsons emailed the Approvals Coordinator on

August 21, 2019, outlining the impacts on the potential statement of concern filers. The

Appellants argued some of the responses provided by the Town in that email were not accurate,

and the Director only heard the Town’s view regarding how the Appellants were impacted

before issuing the Approval. The Director didn’t offer the Appellants an opportunity to express

their views directly to him.

[128]

According to the Appellants, each Appellant submitted a comprehensive impact

statement to AEP. The Appellants noted that “…Water Act Approvals: Facts at Your Fingertips

states: ‘Alberta Environment requires resolution of statements of concern received on the

proposed project.’ We again never received any direct resolution or response to our concerns.”²⁶

The Appellants argued the Town should have been required to fulfill its commitment to address

the concerns of affected landowners per AEP’s fact sheet.

[129]

The Appellants noted the Approval was not appealed by the primary owner of the

property on which the SW Dike was built because the SW Dike was designed to secure that

25

Appellants’ Written Rebuttal Hearing Submissions, December 23, 2020, at paragraph 11.

26

Appellants’ Written Rebuttal Hearing Submissions, December 23, 2020, Appendix “A”, at page 8, citing:

Water Act Approvals: Facts at Your Fingertips, Government of Alberta, January 1, 2010.

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owner’s consent. The agreement dated April 16, 2018, between the Town and the owner

expressly prohibited the owner from appealing the Approval at section 1.3(a).²⁷

[130]

According to the Appellants, the developments in the south and southwest

portions of the Town were knowingly constructed in a flood zone. After the 2013 Flood, the

Town continued to develop homes in flood zones.

[131]

The Appellants argued the Director approved an activity that constitutes an

intentional transfer of risk from the current and future residents of the Town's southwest portion

to the Appellants and other downstream residents that live along the Little Bow River, outside of

the Town’s jurisdiction. The Appellants further argued the Approval does not contain terms and

conditions to protect those other persons.

[132]

The Appellants argued the SW Dike increases their risk, and their safety should

not be compromised to ensure the Town’s safety. The Appellants questioned what other

mechanisms are in place to mitigate potential impacts on downstream property owners.

[133]

The Appellants argued the Director was aware the SW Dike could result in

downstream flooding worse than predicted by the WorleyParsons modelling. The Appellants

further argued the Director was aware when issuing the Approval that the SW Dike would have

adverse effects on the properties in the County downstream of the SW Dike, including the

Appellants’ and Intervenors’ properties. The Appellants argued there are no terms or conditions

in the Approval to protect the Appellants or the Intervenors or their property.

[134]

The Appellants noted the Approval only considers general construction

requirements.

[135]

The Appellants argued the Approval is internally inconsistent with Clause 3.2 of

the Approval, which states: “3.2 The Approval Holder shall not undertake the Activity in any

manner or use any material that causes or may cause an adverse effect on the aquatic

environment, human health, property or public safety.”²⁸The Appellants argued that in

authorizing the construction of the SW Dike, the Approval guarantees an adverse effect on

human health and public safety.

27

Agreement for Purchase and Sale dated April 16, 2018, Director’s Record, at Tab 69, page 219.

28

Approval, at Condition 3.2.

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[136]

The Director states the SW Dike’s impacts on the Appellants were considered “…

not to be not significant because during a 2013 flood magnitude event (1,820 m³/s) an increase

of 10 m³/s is less than one percent.” The Appellants argued a flow increase of 10 m³/s is

equivalent to the flow of a river the size of the Elbow River and is greater than the maximum

diversion of 8.5 m³/s permitted by AEP from the Highwood River into the Little Bow River.

The Appellants argued the flow increase only appears insignificant when compared to the 2013

Flood.²⁹

[137]

The Appellants noted the Director stated “…it was recognized that the Appellants

would experience increased flooding and the decision to issue the Approval was ‘not made

lightly.’ The Director concludes: ‘[n]oting that AEP does not redesign a project or an activity

for an applicant, the Director decided to issue the Approval.’” The Appellants stated they did

not expect AEP to redesign the SW Dike. The Appellants argued that AEP should have

required the Town to design the SW Dike to protect downstream properties better if it wanted to

receive the Approval.³⁰

[138]

The Appellants argued the Director considered the impacts to the Appellants

insignificant based on the flow. The Appellants argued the determination of the impacts to the

Appellants should be based on broader considerations, and the Director should have examined

the impacts the increased flow could have on downstream property owners.

[139]

The Appellants noted the Director had argued the Approval had to be issued to

protect the safety of the southwest part of the Town. The Appellants argued the Director should

not sacrifice the safety and integrity of properties downstream of the SW Dike to protect the

developments in the Town. The Appellants further argued the Director should have included

terms and conditions in the Approval that protected both the developments in the Town and the

properties downstream of the SW Dike before allowing the SW Dike to proceed.

[140]

The Appellants argued they were in a worse position because of the SW Dike.

The Appellants argued any benefits of flood mitigation they may have previously experienced

from the Town’s dikes built after 2013 were undermined by the addition of the SW Dike, and

they no longer had the same level of protection.

29

Appellants’ Written Rebuttal Hearing Submissions, December 23, 2020, at paragraph 14.

30

Appellants’ Written Rebuttal Hearing Submissions, December 23, 2020, at paragraph 17.

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[141]

The Appellants noted the Director stated the Approval does not contain

conditions to address potential impacts to the Appellants if there is a flood with a peak flow of

1820 m³/s. The Appellants further noted the Director had stated any impacts to the Appellants

will flow from the project design. The Appellants argued that the SW Dike’s design does not

address the impacts on the Appellants. The Appellants further argued the Town and the Director

had an obligation to mitigate and reduce impacts to downstream residents where possible, but

the Director chose not to do so.

[142]

At the hearing, the Appellant’s expert witness, Dr. Michael Bender, stated the

2013 Flood Model was very good and effectively used the available data. He stated the model

was an impressive accomplishment. He noted there were many uncertainties associated with

hydraulic models involving split flow and significant overland flow. Dr. Bender stated that in

the best possible situation with a well-defined single path, a hydraulic model does well to

represent water within 0.3 metres of accuracy. Dr. Bender noted most hydraulic models with

significant overland flow could not claim accuracy within 0.5 metres, as WorleyParsons

contended for the 2013 Flood Model.

[143]

Dr. Bender noted there are many uncertainties associated with future floods, and

they will not occur precisely like the 2013 Flood. He further stated that in Edeys’ case, there

were differences between the 2013 Flood Model and the 2013 Flood. These differences

included the 2013 Flood Model not depicting flooding of the shop. Dr. Bender explained future

floods would also occur differently from the 2013 Flood, as their conditions will vary from the

known 2013 Flood conditions.

[144]

Dr. Bender explained two key uncertainties he wished to highlight. One was the

timing of the flood, and the other was the effect of the roughness (vegetation) of overland flow

paths.

[145]

Dr. Bender stated the flood season, as managed by the City of Calgary, is from

May 15 to July 15. He explained that early in the spring, there is very little vegetation to slow

down overland flow or prevent erosion. He stated that at the end of the season, there is more

vegetation to slow down the flow, raise the water level, and reduce erosion. The effect of the

roughness could easily double from the start of the flood season until the end. Dr. Bender

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explained that, consequently, roughness significantly impacts flow depth and model accuracy.

Based on these factors, Dr. Bender recommended a margin of error of +/- 1 metre.

[146]

According to Dr. Bender, the comparisons presented using the 2013 Flood Model

suggest a tremendous benefit to the downstream properties. Dr. Bender suggested it would be

more appropriate to make the comparison with all of the current dikes in place with the addition

of the SW Dike and the 1:100 Flood.

[147]

The Appellants argued the Town failed to answer the criticism that the swale

increases the diversion of floodwaters.

[148]

The Appellants argued it was not reasonable or fair to expect the Appellants to be

able in the short time available, having regard to cost, to provide a full-blown engineering

analysis in support of the Millennium opinion regarding the swale.

[149]

The Appellants argued the swale is intended to move water from in front of the

SW Dike and convey it more quickly and at greater depths towards downstream properties,

including those of the Appellants and Intervenors.

[150]

The Appellants noted both the Town and Director argued they did not provide an

engineering analysis for the proposed breach of the CPR embankment. Noting it took the Town

seven years and millions of dollars to arrive at its design for the SW Dike, the Appellants argued

it was not reasonable to expect the Appellants to provide detailed engineering analyses in

support of the engineered breach proposal.

[151]

Dr. Bender explained while further studies were required, the concept for the

engineered breach was sound. He further explained an engineered breach would create a path

for the floodwaters and lessen the uncertainty of downstream impacts rather than let them find

their way to the Little Bow River. He noted there was a lack of hydraulic connection to the

Little Bow River.

[152]

With respect to the proposed engineered breach, Dr. Bender acknowledged the

CPR embankment was outside of the Town’s boundaries. He stated he looked for solutions and

not at administrative boundaries. Dr. Bender further noted a sudden failure in the embankment

with an un-engineered breach is a concern as there is no control over where the floodwaters

flow.

Classification: Public

- 26 -

[153]

Dr. Bender stated he had not noted the height of the CPR embankment, but as the

embankment holds and disrupts the flow of water, he considers it a dam.

[154] When asked if flood debris could impact flow, Dr. Bender replied flood debris

could significantly impact overland flow along shallow areas. Dr. Bender noted debris would

catch in shallow areas and create a blockage but would flow along in deeper areas. He explained

models typically do not account for debris blockage as it is impossible to account for, and this

uncertainty is accommodated for by in the margin of error range.

[155]

Dr. Bender further explained the recommendations and margin of error account

for the fact that the future conditions, such as vegetation and the timing of a flood, are unknown.

[156]

According to the Edeys, the County intended to provide the same level of

protection as the Town through buyouts. However, initial buyouts under the Federal/Provincial

Flood Disaster Recovery Program could only be offered to impacted residences within AEP’s

1:100 Flood mapped floodway in the High River area, which did not include properties located

south-east (downstream) of the CPR embankment, including the Edey properties.

[157]

The Appellants’ stated the SW Dike will adversely impact their properties by

increasing flooding, and the Approval fails to provide any terms and conditions designed to

mitigate those adverse impacts. In the absence of mitigation, the Appellants stated they believe

they are entitled to compensation. The Appellants further stated they understand and

acknowledge the Board does not have the jurisdiction to order the payment of compensation.

C.

Town of High River

[158]

The Town presented the following evidence and arguments, advancing five main

arguments at the hearing:

a. the scientific and technical data is accurate and reliable;

b. the location of the SW Dike is appropriate;

c. the Appellants were adequately consulted;

d. the Director had the authority to issue the Approval and properly

exercised that authority; and

e. the terms and conditions of the Approval are appropriate.

Classification: Public

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[159]

The Town relied on Kostawich, Re, and argued the Appellants bore the onus of

demonstrating that the Approval should be rescinded or varied on the grounds as alleged by the

Appellants.³¹

[160]

The Town noted the Edeys’ written argument stated their East Property was

flooded significantly in the 2013 Flood while their West Property received minimal flooding.

The Town stated this was consistent with the modelling for the 2013 Flood, which indicates 5.7

acres of the East Property flooded, while only 2.5 acres of the West Property flooded.

[161]

The Town further noted the Edeys’ statement of concern stated that following the

construction of the SW Dike, 50% of their East Property would flood, and their West Property

could be completely underwater.³²The Town stated the 2013 Flood Model indicates the

inundation to the Edeys’ East Property will decrease to approximately 2.9 acres, while the

inundation of the West Property was expected to be 4.9 acres.

[162]

The Town acknowledged that small local landscape features or low gradient

ground could impact the localized accuracy of the model. The Town stated the 2013 Flood

Model “…likely has a margin of error of less than -10 to -15 cm on the Edey property based on

high water mark comparisons collected in the area surrounding the property and based on

comparison with photographs provided in the June 30, 2020, [Millennium Report]”.³³The

Town further noted the SW Dike modelling was completed using both a peak flow of 750 m³/s

and 1820 m³/s.

[163]

The Town noted the Macklins and Intervenors stated their properties and their

shared access road flooded in 2013. The floodwaters entered their properties from the northeast

and west of the overtopped CPR embankment. The Town further noted the Macklins stated

approximately 20% of their property flooded in 2013. The Town argued the Macklins’ and

Intervenors’ information was largely consistent with the 2013 Flood Model, which showed that

2.2 of the 16.2 acres are expected to flood, or roughly 13.5% of their properties.

31

Town’s Written Hearing Response Submissions, December 16, 2020, at paragraph 6, citing: Kostawich,

Re, [2011] A.W.L.D. 3030 at paragraph 83.

32

Appellants’ Initial Written Hearing Submissions, December 9, 2020, Edeys’ Impact Statement, at page 3

and Director’s Record, Tab 143.

33

Town’s Written Hearing Response Submissions, December 16, 2020, at paragraph 12, citing

WorleyParsons Report, November 25, 2020, at page 4, (“November 25 WorleyParsons Report”).

Classification: Public

- 28 -

[164]

The Town noted the Howies’ stated approximately half of their property flooded

in the 2013 Flood. The Town argued this was consistent with the 2013 Flood Model, which

indicated that 69.7 of their 160.9 acres were inundated.

[165]

The Town argued the 2013 Flood Model was intended to provide a reasonable

approximation of the flow conditions and not to represent the exact conditions of the 2013

Flood. The Town stated the model’s accuracy depends on input data, resources, high water mark

accuracy used, and other related variables. Some flooded areas predicted from the model may

be more accurate than others. The Town added, “[i]n general, the majority of the modelled area,

calibration results of the 2013 Flood Scenario show the model to be within +/- 0.3-metre range

for the simulation in the area that includes the Appellants’ properties… A model accuracy of +/-

0.3 metres is often accepted as providing suitable hydraulic representations of flood conditions

for design, planning and effects assessment.”³⁴

[166]

The Town argued the Appellants have not raised a credible challenge to the

modelling completed for the SW Dike.

[167]

The Town acknowledged the location of the SW Dike and its obstruction of the

floodplain was an issue that had gained the attention of the Director. The final design of the SW

Dike was not the first option the Town had explored³⁵but was the only option the Town felt was

feasible. The Town stated there were constraints on the design and location of the SW Dike,

including the previous dikes constructed as a part of the Town’s Flood Mitigation Program.

[168]

The Town explained the Town, WorleyParsons, the Director, and River

Engineering had undertaken a fulsome review of the issue. It had provided its rationale for the

location of the SW Dike in its letter dated June 7, 2019, and had met with River Engineering on

July 3, 2019, to discuss the issue of the location of the SW Dike.

34

Town’s Written Hearing Response Submissions, December 16, 2020, at paragraph 35.

35

The Town had considered an “S” curve design with a wider swale as well as a “Hockey Stick” design See:

2016 ISL Engineering Final Report, Southwest Dike Choose-Design Report, (the “ISL Report”) in the Director's

Record, Tab 68 (ISL Report at pages 17 to 19). See also the Little Bow Enhanced Natural Floodway (LB-ENF)

Regulatory Permit Application (Revision 3) dated July 23, 2018 prepared by WorleyParsons Canada

(WorleyParsons Report) in the Director’s Record, Tab 5, at pages 2 to 8.

Classification: Public

- 29 -

[169]

The Town argued the Approval’s issuance was consistent with section 38 of the

Water Act.³⁶The Town stated the Application was subject to a rigorous review by the Director,

who then concluded it was appropriate to issue the Approval.

[170]

The Town stated there is no regulatory prohibition against constructing a dike in a

floodplain. The Town further argued the Director has significant discretion pursuant to section

38 of the Water Act³⁷and that discretion could not be fettered in the manner proposed by the

Appellants. The Town stated the Director was aware of the issue, sought further information

from subject matter experts within AEP and the Town, and considered that information before

making a decision. The Town argued the issuance of the Approval after these steps was the

proper exercise of the Director’s discretion.

[171]

The Town argued the Director’s Record demonstrated the Town consulted and

engaged the Appellants throughout the application process.

[172]

The Town stated it had informed the Edeys and the Howies that their properties

would see a net decrease in flooding due to the construction of the SW Dike. The Town further

stated it had advised the Macklins that should another flood event with a peak flow of the 2013

Flood occur, although their property would see an increase in flooding, their home and other

buildings would not be impacted.

[173]

The Town noted that despite their arguments to the contrary, the Appellants were

individually engaged through the general information provided via public notices, letters, and

36

See note 33 above.

37

Section 38 of the Water Act states in part:

“(2) In making a decision under this section, the Director

(a) must consider, with respect to the applicable area of the Province, the matters and factors that must be

considered in issuing an approval, as specified in an applicable approved water management plan,

(b) may consider any existing, potential or cumulative

(i)

effects on the aquatic environment,

(ii)

(iii)

hydraulic, hydrological and hydrogeological effects, and

effects on household users, licensees and traditional agriculture users,

that result or may result from the activity, and

(c) may consider

(i)

effects on public safety, and

(ii)

any other matters applicable to the approval that, in the opinion of the Director,

are relevant.

(3) The Director may issue an approval subject to any terms and conditions that the Director considers

appropriate.”

Classification: Public

- 30 -

public information sessions during the application process. The Town noted that information

was provided to the Appellants at public meetings, at multiple engagement meetings with the

Town, or to the Appellants directly from 2014 through 2020.

[174]

The Town stated it provided project updates to individual landowners who were

expected to experience increased inundation on February 9 and October 24, 2017. The Town

further stated it had conducted in-person meetings and direct phone calls with various

landowners to provide project information and discuss appraisals and inundation of their

properties.

[175]

The Town argued, “[t]he Appellants complaints about engagement stem from the

engagement not resulting in their preferred outcome.”³⁸The Town further argued filing a

statement of concern or participating in a public engagement process did not give the Appellants

a right of veto.

[176]

The Town stated it has always been and continues to be, prepared to engage in

discussions with the Appellants regarding financial compensation issues arising from the SW

Dike.

[177]

The Town stated the SW Dike is the final phase of a series of dikes constructed to

safeguard citizens and infrastructure in the Town in a future flood. The Town further stated the

SW Dike was subject to a thorough review by the Director and various departments both within

and outside AEP during the application process. After this review process, the Director

determined it was in the public interest to issue the Approval.

[178]

The Town argued the Appellants have not alleged any term or condition of the

Approval should be amended or removed and noted instead, the Appellants asked for three

variations to the terms and conditions of the Approval. The Town argued the Appellants had

failed to establish a legal, factual, or technical basis for those variations.

[179]

The Town argued modelling was conducted for the SW Dike (Scenario 53A)

under the peak flow of 750 m³/s and 1820 m³/s. The Town stated that in a flood with a peak

flow of 750 m³/s there are no impacts to the Appellants’ properties. The Town further stated that

38

Town’s Written Hearing Submissions, December 16, 2020, at paragraph 33.

Classification: Public

- 31 -

impacts to the Appellants’ properties only occur in a flood with the same magnitude as the 2013

Flood as represented by the 1820 m³/s peak flow.

[180]

The Town stated that during a flood with a peak flow of 1820 m³/s, the Macklins

and the Edeys’ West Property would experience a marginal increase in inundation. However,

the inundation was not expected to affect any of the buildings on their properties. The Howies

property and the Edeys’ East Property will experience a decrease in inundation following the

construction of the SW Dike, compared to the 2013 Flood and from the existing flood mitigation

conditions post-2013 Flood and prior to the construction of the SW Dike.

[181]

The Town noted that the Edeys’ statement of concern stated that following the

construction of the SW Dike, 40-50% of the East Property would flood, while their West

Property would be completely under water. According to the Town, the 2013 Flood Model

showed 2.9 of the 10 acres of the East Property would flood, and approximately 2 acres of the

West Property would flood. The Town stated that the 2013 Flood showed the total amount of

flooding on the Edey properties is expected to increase to approximately 4.9 acres.

[182]

According to the Town, the SW Dike modelling demonstrates a decrease in

inundation on the Edeys’ East Property due to the SW Dike. The Edeys’ West Property will

experience an increase in inundation due to the SW Dike.

[183]

The Town argued that the Edeys referenced comments made by AEP in the July

2018 WorleyParsons Report without actually referencing the Town’s corresponding explanations

in response to those comments. The Town noted:

“‘The proposed dike will increase the discharge and resulting water levels

downstream of High River and around the dyke under design conditions. This

may be a concern for the affected landowners and residents’ which was responded

to by the Approval Holder directly below the referenced comment where it was

explained the changes in flow during extreme flood events to the Little Bow

River was the result of the existing dikes constructed post[-]2013 and that the

[SW Dike] would have a minimal impact of the quantity of water entering the

Little Bow River. The Edeys’ impact statement also references [AEP’s] comment

2 which states ‘The proposed design results in increased water levels west, south

and southwest of the dyke of up to 1 metre or more under the design conditions

compared to the current conditions, until the flow reaches the Little Bow River

Channel.’ The response provided explained that the alternative proposed to the

[SW Dike] scenario also resulted in a significant water level increase and the [SW

Classification: Public

- 32 -

Dike] scenario was selected following consultation with the Primary Impacted

Landowner who opposed the alternative option.’”³⁹

[184]

The Town argued that the area with greater than 1-metre depth of flooding is

located on the primary affected landowner’s property, where the SW Dike is built. The Town

further argued that the primary impacted landowner did not appeal the Approval.

[185]

The Town acknowledged that the modelling showed an increase in flooding from

2.2 acres to 5.5 acres on the Macklins’ property and noted there will be no impact on any

infrastructure or buildings on the property.

[186]

The Town disputed the Intervenors’ claim that every drop of diverted floodwaters

will pass through their land. The Town argued that modelling for the SW Dike demonstrated

that not all of the flow associated with the SW Dike would pass through the Intervenors’

property.

[187]

The Town stated that modelling showed that following the construction of the SW

Dike, inundation on the Howies’ land will decrease from 69.7 acres during the 2013 Flood to

11.7 acres. The Town explained that this decrease in flooding is anticipated to occur in both the

2013 Flood Model scenario and the 37A Scenario. However, following the construction of the

SW Dike, the flooding occurs on the southwest section of the property and not the northwest

section of the property, neither of which are improved land.

[188]

The Town noted that the Millennium Report proposed the elimination of the

swale but was unaccompanied by an engineering analysis or calculation.

[189]

The Town argued that the purpose and effects of the swale were addressed in the

WorleyParsons Report, where at the top of page 4, the following was stated:

“As explained in the [WorleyParsons] (2018) Application support document,

Highwood River flow during extreme flood events splits upstream of the Town.

Part of this flow is directed north along the main channel of the Highwood River.

The other part of the flow is diverted southeast toward the Little Bow River. The

[SW Dike] (including the swale on its western side) was designed and located to

have negligible impact on this flow split when compared to existing conditions at

the time of Application (i.e. Scenario 37A) as stated in the Application support

39

Town’s Written Hearing Response Submissions, December 16, 2020, at 14, citing the July 2018

WorleyParsons Report, at Director’s Record, Tab 5.

Classification: Public

- 33 -

document ([WorleyParsons] 2018). The amount of flow directed north and south

at the flow split during extreme flood events (e.g. during the 2013 flood) is

determined by major hydraulic controls upgradient (west) of the [SW Dike] such

as: diking along the Highwood River upstream of the Town; diking along Baker

Creek upstream from 72nd St. East; and paved public roads that control flow (e.g.

72 St. East, 12 Ave. Southwest, etc.) in this upstream area. Hence, as per the

design intent, the [SW Dike] (including swale) does not significantly influence

flow magnitude directed downstream to the Little Bow River when compared to

existing conditions (Scenario 37A) presented in the Application.”⁴⁰

[190]

The Town further argued that the proposal to remove the swale was responded to

by WorleyParsons, who had stated that based on the modelling results and design intent, the SW

Dike swale does not impact peak flow magnitude diverted from the Highwood River to the Little

Bow River. WorleyParsons further stated the flow directed to the Little Bow River during an

extreme flood event is controlled by features upstream of the SW Dike and swale and that these

results are supported by the modelling:

“These results indicated that the peak flow directed to the Little Bow River under

these two scenarios, one with the swale and one without the swale, is nearly

identical (i.e. 320 m3/s versus 325 m3/s). The [SW Dike] swale was incorporated

into the design to decrease the local ponding effect on the west side of the dike,

which in turn decreases the required height of the dike and reduces localized

ponding. Local increases of depth and velocity at the swale (and next to the dike)

were addressed during the design process for the [SW Dike].”⁴¹

[191]

The Town argued the Millennium Rebuttal does not offer any engineering

analysis to contradict the November 25 WorleyParsons Report.

[192]

The Town argued the Millennium Report lacked an engineering analysis related

to the inclusion of an engineered breach in the CPR embankment. The Town argued the

November 25 WorleyParsons Report discusses the engineered breach in detail and concludes

there is no engineering or technical justification for this measure.

[193]

The Town stated it does not own or control the land proposed for the location of

the engineered breach. The Town also argued it is highly probable that the railway embankment

40

Town’s Written Hearing Response Submissions, December 16, 2020, at 22: citing WorleyParsons Report,

November 25, 2020, at page 4 (“November 25 WorleyParsons Report”).

41

Town’s Written Hearing Response Submissions, December 16, 2020, at 25: citing November 25

WorleyParsons Report, at page 5.

Classification: Public

- 34 -

would erode in several locations before the peak, limiting the risk of an increase in the peak flow

and making the engineered breach unnecessary.

[194]

The Town argued that the Millennium Report incorrectly stated without support

or explanation that WorleyParsons agrees an engineered breach through the CPR embankment

would provide greater certainty with respect to downstream impacts.

[195]

The Town noted that one of the Appellants’ primary concerns with the SW Dike

appears to be related to their dissatisfaction with the discussions regarding financial

compensation. The Town argued compensation is beyond the purview of the Board.

[196]

The Town argued this issue was dealt with by the Board in Hebner v. Director,

Central Regional Services, Alberta Environment,⁴²at paragraphs 28 and 45:

“28 Although the Board is not willing to classify this appeal as frivolous or

vexatious, it does have concerns regarding the real motive behind the

appeal. The arguments provided by the Appellants refer to the Approval

Holder’s unwillingness to purchase their property or treat them as though

they reside in the development zone. The Board's jurisdiction is limited

pursuant to the acts and regulations that govern it. The Board's role is to

review decisions made by a director under EPEA or the Water Act, R.S.A.

2000, c. W-3. It does not have the jurisdiction to review a policy decision

implemented by a company regarding the purchase or offer to purchase of

lands…

45 The Board is uncertain as to whether the Approval Holder and the

Appellants discussed the policy since the AEUB hearing, but it is hoped

both sides have made some effort to come to an understanding of the others’

issues and concerns. The Board cannot force the Parties to meet regarding

these issues, but it would be beneficial to all concerned to settle the

matter.”⁴³

[197]

The Town argued that the Board does not have jurisdiction to award

compensation to parties alleging to have suffered financial harm as a consequence of issued

42

Hebner v. Director, Central Region, Regional Services, Alberta Environment re: EPCOR Generation Inc.

and Epcor Power Development Corporation Ltd. (24 January 2005), Appeal No. 03-117-D (A.E.A.B.) (“Hebner v.

Director, Central Regional Services”).

43

Town’s Written Hearing Response Submissions, December 15, 2020, at paragraph 29, citing Hebner v.

Director, Central Region, Regional Services, Alberta Environment re: EPCOR Generation Inc. and Epcor Power

Development Corporation Ltd. (24 January 2005), Appeal No. 03-117-D (A.E.A.B.), at paragraphs 28 and 45.

Classification: Public

- 35 -

approvals. The Town further argued that it follows that the Board does not have the jurisdiction

to order negotiations with a view to resolving compensation issues.

D.

Director

[198]

The Director presented the following evidence and arguments, advancing four

main arguments:

a. the scientific and technical studies were accurate and reliable;

b. it was appropriate for the Approval to authorize construction of the SW

Dike in the Highwood River’s floodplain;

d. the terms and conditions of the Approval are appropriate; and

c. the design of the SW Dike could not be altered through the appeal

process.

[199]

Ms. Pauline Scoffield, an Approvals Coordinator with AEP, provided a summary

of the application process and her role within that process. She stated the Application process

and its review involved:

a. an application;

b. referral to subject matter experts within AEP;

c. public notice of the application;

d. recommendation for decision;

e. draft of the approval; and

f. a decision by the Director to issue or refuse to issue the approval.

[200]

dike in a series of dikes which formed the Town’s flood mitigation program.

Ms. Scoffield explained the Application included: the application form,⁴⁴

engineered plans,⁴⁵the modelling by WorleyParsons,⁴⁶and the landowner’s consent.

Ms. Scoffield advised it was AEP’s understanding that the SW Dike was the final

[201]

[202]

Ms. Scoffield further explained although it was not necessarily required by

section 37 of the Water Act,⁴⁷landowner consent to impact land not owned by the applicant is

44

Director’s Record, Tab 3.

45

Director’s Record, Tab 4.

46

Director’s Record, Tab 5.

Classification: Public

- 36 -

often requested. She stated that in this particular case, the consent was provided in the form of

an agreement for purchase and sale, which demonstrated the Town owned the land impacted by

the construction of the SW Dike.⁴⁸In this case, consent was obtained from the landowner on

whose land the SW Dike was to be built.

[203]

Ms. Scoffield stated that the purpose of the referral process is to obtain comments

and information from internal subject matter experts to assist the Director in making an informed

decision. She explained the current application was reviewed by an AEP Hydrogeologist, AEP

Wildlife Biologist, River Engineering, and AEP Technical Services.

[204]

Ms. Scoffield stated the AEP Hydrogeologist advised there were no concerns with

impacts to groundwater.⁴⁹She explained the AEP Wildlife Biologist advised there was a low

risk of long-term impacts on wildlife habitat and a low risk of disturbance and destruction to

wildlife habitat.⁵⁰

[205]

Ms. Scoffield explained the Director required public notice of the application,

which is seven days for an approval. She noted that in this case, the Town was required to place

notice twice.⁵¹

[206]

Ms. Scoffield further explained the Water Act allows for public input in response

to a notice of application and provides members of the public an opportunity to communicate

with the Director by filing a statement of concern.⁵²She stated that in this case, AEP received

fifteen statements of concern. The Director considered eight filers to be directly affected. She

noted all the statements of concern were considered in the final decision to issue the Approval,

even though not all of the filers were considered directly affected.

47

Section 37(4) of the Water Act provides: “(4) If an applicant for an approval does not own the land in fee

simple or the undertaking to which the approval is to be appurtenant, if required by the Director, the applicant must

submit the written consent of the owner of the land or of the undertaking as part of the application for the approval.”

48

Director’s Record, at Tab 69.

49

Director’s Record, at Tab 69.

50

Director’s Record, at Tab 63.

51

Director’s Record, at Tab 85.

52

Section 109 of the Water Act states: “If notice is provided [per Section 108(1)(a)] (a) under section 108(1),

any person who is directly affected by the application or proposed amendment, and … may submit to the Director a

written statement of concern setting out that person’s concerns with respect to the application or proposed

amendment.

Section 108(1)(a) of the Water Act states: “An applicant (a) for an approval, … shall provide notice of the

application in accordance with the regulations.”

Classification: Public

- 37 -

[207]

According to Ms. Scoffield, the Water Act is silent on responding to a statement

of concern. She explained the statements of concern were shared with the Town in this case.

She further explained the concerns raised were either dealt with directly with the statement of

concern filer or indirectly by the applicant providing information that addressed the concerns and

comments of the statement of concern filer to AEP.⁵³

[208]

Ms. Scoffield explained that when she is making a recommendation for a

decision, her role is to ensure the application process and the relevant portions of the Water Act

are followed and satisfied. The recommendation is based largely on the information contained in

the application and gathered during the application process, including all technical information

and comments from subject matter experts.

[209]

Ms. Scoffield further explained she also prepared the draft approval. According

to Ms. Scoffield, in order to choose the most appropriate terms and conditions applicable when

preparing the draft approval, she considered the recommendations from subject matter experts

and the types of activities proposed.

[210]

Ms. Scoffield commented there was no reason to deviate from AEP’s template

and stated the conditions of the Approval were specific to the construction of a dike. These

include conditions to mitigate or reduce impacts when the activities are to be carried out, the date

the activities must cease, and the effective and expiry dates of the Approval.

[211]

Mr. Jim Choles, River Hydraulics Engineer with River Engineering, explained he

had provided a technical review of the reports and plans in the Application for consequences and

potential problems. He noted that AEP assumes a signed and stamped report is accurate unless

there is some reason not to do so. He stated the Town’s models were considered reasonably

accurate and reliable.

[212]

Mr. Choles further explained River Engineering does not redesign a project but

rather comments on a project as presented. These comments are intended to help AEP

Approvals make decisions by pointing out information they should be aware of and will also

53

Director’s Record, at Tab 139. Note this Tab contains the Director’s decision document on which

statements of concern to accept and contains summaries of the Town’s comments regarding each statement of

concern.

Classification: Public

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comment on potential impacts to flood hazard maps. He indicated they operate in an advisory

capacity only.

[213]

Mr. Choles stated the April 16, 2019 comments,⁵⁴superseded all other comments

provided by River Engineering. He noted the SW Dike would block the identified floodway

identified in the 1992 High River Flood Risk Mapping Study.⁵⁵

[214]

According to Mr. Choles, the main concern was the SW Dike changing the

flood’s path by blocking the main flow path just south of 12^thAvenue, which would run parallel

to 12 Avenue in the east, forcing it south and concentrating the water there. He explained this

led to concerns regarding unintended consequences. These concerns included: erosion in the

channels, which may result in additional overflow; a change in flow characteristics, including

flow split,⁵⁶change in water levels,⁵⁷and river flow velocities.⁵⁸

[215]

According to Mr. Choles, River Engineering participated in a meeting between

AEP Approvals and the Town to discuss River Engineering’s comments on July 3, 2019.

[216]

Mr. Choles explained a flood hazard map is based on a single flood event, the

1:100 Flood. He further explained this does not mean a flood of this magnitude will happen

once every 100 years, but rather, it is a flood with a one percent chance of occurring every year.

He further explained that the 1:100 Flood is used because it is deemed an acceptable level of

risk, though larger and smaller floods are possible.

[217]

According to Mr. Choles, a flood could be caused by an open water flood event

or an ice jam event depending on the flood history and severity of past flooding.

[218]

Mr. Choles elaborated by stating the flood hazard map program was based on the

premise that the best way to reduce flood damage is to identify flood-prone areas and then

regulate development to minimize flood damage.

54

Director’s Record, at Tab 23.

55

Director’s Record, Tab 5, Figure 3. Attached as Appendix “E”- Flood Fringe and Floodway in the Vicinity

of the SW Dike, is a study of the floodway and flood fringe of the 2013 Flood which shows the flood’s path and the

“two fingers” which would normally flow towards the east, but are now being redirected to the south by the SW

Dike.

56

Director’s Record, at Tab 5, Figure 4.

57

Director’s Record, at Tab 5, Figure 11.

58

Director’s Record’s at Tab 5, Figure 12.

Classification: Public

- 39 -

[219]

According to Mr. Choles, the magnitude of the event is determined by a

hydrological assessment. He stated the 1992 study had described a 1:100 Flood as an open

water flow of 750 m³/s. He further stated several large floods had occurred since the study, in

1995, 2005, and 2013, and some smaller ones in 2008 and 2011. He commented a 1:100 Flood

was expected to now be larger than 750 m³/s.

[220]

Mr. Choles explained the area that gets wet or inundated from a design flood is

known as the flood hazard area. The flood hazard area is divided into two zones, the floodway

and the flood fringe.⁵⁹

[221]

According to Mr. Choles, inundation maps show wet areas during a flood without

divisions into zones. He explained these maps are helpful for emergency management. The

flood forecasting group uses the maps for flood warnings which local governments can then use

to plan their emergency management, making decisions such as bridge closures or evacuations.

[222]

Mr. Choles explained in both cases that the purpose of inundation maps and flood

hazard maps is to provide technical information to a community. According to Mr. Choles, they

are an advisory tool only, and as such, there are no provincial laws or policies to regulate

development in flood-prone areas.

[223]

Mr. Choles also explained it was the intent to have local governments recognize

flood hazard maps, use them to regulate their development, and incorporate the flood hazard

maps into their development bylaws.

[224]

Mr. Choles further explained the floodway typically includes the river channel

and the adjacent riverbanks as appropriate. He stated the main criteria to determine the

floodway are depth and velocity, along with some other minor criteria. He noted the purpose of

the floodway is to have a path reserved for the river flow. He explained the deepest and fastest

flowing water is unsafe and can cause damage.

[225]

According to Mr. Choles, obstructing the flow of a floodway is against the AEP

guidelines because of the potential for damage, public safety concerns, and unintended

59

Attached as Appendix “F” – General Flood Hazard Area Diagram, is a diagram depicting the floodway and

flood fringe, generally. See also Appendix “E” – Flood Fringe and Floodway in the Vicinity of the SW Dike for a

study of the floodway and flood fringe of the 2013 Flood.

Classification: Public

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consequences. He explained the guidelines allow for development in the flood fringe, provided

the development is floodproofed.

[226]

Mr. Choles explained in terms of the 1992 floodway,⁶⁰the downstream boundary

of the study is shown, and they know the water will continue to the east to the Little Bow River.

He explained the floodway was shown in red, the flood fringe in orange, and the overland flow,

which was still part of the flood fringe, was shown in blue.

[227]

Mr. Choles further explained the SW Dike cuts off two of the fingers of the four

fingers of the floodway to the east of the Highwood River and forces the flow, which is

significant, into other channels.

[228]

According to Mr. Choles, concentrating the flow of floodwaters into a smaller

area causes concerns about potential erosion in the southern channels as they will convey more

water. He explained this could lead to more overflow in the long term, destruction of floodways,

changes in flow levels, flow split, and changes in velocity. He noted that AEP met with the

Town to discuss these concerns.

[229]

At the hearing, Mr. Andun Jevne, the Director, stated the Water Act sets out the

process for AEP to receive an application, provide public notice, and make a decision on

whether to issue an approval.

[230]

The Director also provided a brief overview of the application and his review of

the Application:

a. the Town submitted an application and supporting documents on August

17, 2018, for an approval under the Water Act authorizing the

construction of the SW Dike and associated activities;

b. the application and supporting documents, including the WorleyParsons

Report, the plans for the SW Dike dated July 18, 2018, prepared by

WorleyParsons, a Vegetation Assessment, Response to Matters and

Factors, and Landowner Engagements were reviewed;

c. comments and recommendations from AEP specialists were provided

and considered, including those from River Engineering, a

hydrogeologist and a wildlife biologist;

60

Director’s Record, Tab 5, Figure 3. See Appendix “E” – Floodway and Flood Fringe in the Vicinity of the

Southwest Dike. (Note that in greyscale the floodway appears in dark grey, the flood fringe in light grey, and

overland flow, which was still part of the flood fringe, was shown in medium grey.)

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d. consideration of the applicable matters and factors of the Approved

Water Management Plan for the South Saskatchewan River Basin

(Alberta) (“SSRB Plan”), specifically the existing potential and

cumulative effects on the aquatic environment and existing and

cumulative hydraulic, hydrological, and hydrogeological effects; and

e. consideration of other applicable policies and guidance documents,

including the Water Management Plan for the Watersheds of the Upper

Highwood and Little Bow Rivers.

[231]

The Director argued he issued the Approval to the Town because the proposed

activities met the requirements of section 38(2) of the Water Act.

[232] The Director stated he recognized the Appellants would experience downstream

impacts if another flood occurred with a peak flow of the 2013 Flood (1820 m³/s), and he had

reviewed modelling from the Town which showed those impacts. The Director stated that the

question before him was whether those impacts were significant.

[233]

The Director stated the SW Dike would cause a 10 m³/s increase in the

downstream flow on the Highwood River during an 1820 m³/s magnitude flood. The Director

explained this effect was considered small as it represented an increase of less than one percent,

would be difficult to measure downstream, and in terms of flow, was not considered significant.

[234]

The Director stated he reviewed the file in its entirety and met with Approvals,

River Engineering, the Town, and WorleyParsons several times to ensure he understood the

modelling and the impacts generated for each statement of concern filer.

[235]

According to the Director, per the Application, when the Highwood River reaches

an instream flow of 700 m³/s, a portion of the flow overtops the banks of the Highwood River

and travels towards the Little Bow River.

[236]

The Director explained this was the flow split from the Highwood River to the

Little Bow River. He further explained there would be an increase in the flow to the Highwood

River because of the SW Dike. However, there would be no increase in the flow of the Little

Bow River.

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[237]

The Director explained the change in the instream flow of the Highwood River

was approximately one percent and was not considered significant from a public safety

standpoint.

[238]

The Director stated he considered where the increased flow would go and the

impacts of the flow and relied on the Town’s modelling. The Town’s modelling indicated the

Town, most of the statement of concern filers, and many of those downstream would likely

receive greater protection to their residences and infrastructure, as a result of the SW Dike’s

construction, than with just the existing dikes.

[239]

The Director explained residents in the Town are at greater risk of impact during

smaller magnitude events. He further explained smaller magnitude events are more frequent and

are expected to happen. The Director restated the purpose of the SW Dike was to protect critical

infrastructure to the south and southwest of the Town.

[240]

increase in the areas protected and changes in areas of inundation.⁶¹

The Director stated that during a flood with a peak flow of 1820 m³/s, there is an

[241]

The Director explained that when considering whether the impacts on the bare

land met the significant threshold, he considered the probability and duration of events in the

magnitude of the 2013 Flood in the future.

[242]

According to the Director, the 2013 Flood was the largest flood event on record,

well above a 1:100 Flood. He explained the modelling used was between a 100 and 200 return

period and that such a flood had less than a one percent chance of occurring in any given year.

[243]

The Director further explained the duration of high-water events was also

considered, with an understanding that any new areas of flooding resulting from the SW Dike

are expected to be bare land.

[244]

The Director stated that when considering the impacts on bare land, he considers

the probability and duration of floods and the potential significance of those events. According

to the Director, the duration of time at different flow levels were as follows:

a. 1820 m³/s – 0.5 hours;

b. 1750 m³/s – 3.5 hours;

61

Director’s Record, Tab 5, Figure 13.

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c. 1000 m³/s – 13.5 hours; and

d. 750 m³/s – 17 hours.

[245]

According to the Director, potential land-use changes and development

restrictions that the County could impose are outside of the Water Act, his considerations, and

the scope of the appeals.

[246]

The Director discussed the AEP meeting with WorleyParsons on July 3, 2019, in

greater detail. He explained they met to discuss the modelling and the impacts of the SW Dike

on each statement of concern filer. He stated WorleyParsons created a fact sheet of responses

for each statement of concern filer. According to him, the fact sheets contained information

related to the type of property, whether the property was bare land, and compared the number of

acres wet during the 2013 Flood to the number of acres predicted to be wet during an event of

similar magnitude with the SW Dike in place. He explained other figures demonstrated the

comparison between the current mitigation and the addition of the SW Dike.

[247]

The Director stated he accepted eight statement of concern filers in November

2019 as being directly affected by the Town’s application, including the Edeys, the Howies, and

Rodd and Nicole Macklin.

[248]

The Director further stated WorleyParsons provided additional information to

AEP to address a concern raised by Alberta Transportation about the potential impacts of the

SW Dike on Highway 2 and to address the concerns of the statement of concern filers between

December 2019 and January 2020.

[249]

The Director argued the decision should not be interfered with, as the decision to

issue the Approval was within the range of possible, acceptable outcomes and supported by law

and fact.

[250]

The Director stated he would not have issued the Approval if the technical

information indicating impacts arising from the application were found to be inaccurate or

unreliable. He stated he relied on professional and technical experts to provide accurate and

reliable information as with other technical reports.

[251]

The Director further explained he had issued the Approval knowing there were

mechanisms outside of the Approval to mitigate potential impacts to downstream landowners

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should another significant flood occur. He argued considerations regarding compensation were

outside the scope of this appeal.

[252]

The Director stated he considered all the available information, including the

WorleyParsons Report, and properly applied all applicable policies before issuing the Approval.

The Director said the Approval contains terms and conditions to manage the activities required

to construct the SW Dike.

[253]

According to the Director, WorleyParsons modelled the impacts of the SW Dike

using the Highwood River Flood Model RMA-2, and those models were signed and stamped by

a professional engineer.

[254]

The Director stated he referred the modelling to River Engineering and Technical

Services for review. He noted that River Engineering found the modelling to be reasonably

accurate and reliable.

[255]

The Director stated that WorleyParsons had answered any questions AEP had

regarding the modelling and its impacts on downstream landowners.

[256]

The Director further stated the November 25 WorleyParsons Report addressed

any concerns about the accuracy of the Town’s modelling raised by Millennium’s Report.

According to the Director, the November 25 WorleyParsons Report confirmed the modelling

was within +/- 0.3-metre range of accuracy in general, over a large majority of the modelled

area. He stated that AEP understood this to mean the model may depart +/- 0.3 metres in some

modelled areas, particularly at a localized level. He noted, however, that this did not mean the

model was flawed. The Director stated that based on the information provided by

WorleyParsons, the technical and scientific studies were accepted as reasonably accurate and

reliable.

[257]

According to the Director, River Engineering and the Town had several

exchanges. They met to discuss River Engineering’s comments about the location of the SW

Dike in the floodway of the Highwood River.

[258]

The Director argued the Appellants had misconstrued the statements of River

Engineering as statements of AEP departmental policy. He stated there is no departmental

policy prohibiting the construction of a dike in a floodway or floodplain. The Director noted it is

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not an approach AEP River Engineering would generally recommend, but it is not prohibited.

The Director noted he considered River Engineering’s remarks as a part of his decision and

further noted there was no legislative prohibition against constructing the SW Dike in the

floodplain.

[259]

According to the Director, the SW Dike had to be located in the floodplain

because of design constraints, including previous dike construction. He stated that as part of the

hydraulic effects under the matters and factors in the SSRB Plan, he considered the effects

caused by the SW Dike’s location in the floodplain.

[260]

The Director noted the Appellants and Intervenors had raised concerns about

updated flood hazard maps for the Highwood River. The Director argued there is a difference

between flood inundation maps and flood hazard maps. The Director stated that AEP could not

speak to unpublished mapping.

[261]

The Director further noted the Appellants and Intervenors’ concerns regarding the

flood hazard mapping related to compensation. The Director argued issues regarding

compensation for impacts to property and loss of development opportunities are outside the

scope of the Water Act. He noted he had explicitly stated this in response to any statement of

concern filers who had raised those issues.

[262]

According to the Director, the Town’s explanations of the impacts on the

Appellants and fact sheets prepared by the Town in response to each of the Appellants’ concerns

formed part of the memorandum to the Director and the event tracking sheet, which the Director

reviewed prior to making his decision.

[263]

The Director noted that in making a decision, he must consider the matters and

factors in the applicable approved water management plan. He further noted the Application

was subject to the SSRB Plan. The Director commented the relevant matters and factors are set

out in Table 2 of the SSRB Plan,⁶²and the thresholds in deciding whether to issue an Approval

were:

a. no significant existing, potential and cumulative adverse effects on the

aquatic environment;

62

Approved Water Management Plan for the South Saskatchewan River Basin, Alberta Environment and

Parks, August 2006. See Table 2, at page 15, for the complete list of matters and factors.

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b. no significant existing, potential and cumulative adverse hydraulic,

hydrological and hydrogeological effects that may result from the

activity.

[264]

The Director stated that in addition to the matters and factors, the Director may

also consider effects on public safety and any other matters applicable to the approval that the

Director considers relevant. The Director stated he also considered the Water Management Plan

for the Watersheds of the Upper Highwood and Upper Little Bow Rivers.⁶³

[265]

The Director stated the WorleyParsons email to the Approvals Coordinator

explained that due to dikes built after the 2013 Flood (Scenario 37A), at a peak flow of 750 m³/s,

there is an additional 10 m³/s of instream flow in the Highwood River at the 498th bridge and

Highway 2. He further stated there is no significant change in the flows downstream of the

Town on the Little Bow River. According to the Director, no significant change in instream

flow is anticipated as a consequence of the SW Dike’s construction.

[266]

The Director stated the Town responded to AEP’s concerns and indicated it had

considered many designs and the feasibility of potential options prior to the Application. He

stated the Town had indicated previous development had occurred, which needed to be

considered as a part of the design choice. The Director further explained the Town had also

indicated a current development, the Montrose subdivision, was in place. According to the

Director, the Town had advised AEP that it did not believe it had a feasible design option to

protect the existing residential developments without avoiding obstruction of the floodway.

[267]

According to the Director, once the Town submitted the SW Dike’s design and

explained the constraints, he then considered his ability to approve a dike in a floodway or a

floodplain and noted there is no legislative prohibition. The Director restated that AEP does not

redesign a project or an activity for an applicant.

[268]

The Director stated concerns regarding the future development potential of land

are outside of the scope of his jurisdiction.

[269]

The Director stated the landowners downstream of the SW Dike, including the

Appellants and Intervenors, would experience increased flooding to bare land during significant

63

Water Management Plan for the Watersheds of the Upper Highwood and Upper Little Bow Rivers, Alberta

Environment and Parks, June 2008.

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events with a peak flow similar to the 2013 Flood. The Director said he considered the impacts

of issuing the Approval against the risks of not issuing the Approval and leaving the southwest

portion of the Town and some downstream properties with possible flooding to infrastructure

and homes.

[270]

The Director explained he issued the Approval because the Application met the

requirements of section 38(2) of the Water Act⁶⁴and specifically the SSRB Plan threshold

requirement of having no significant adverse effect on the aquatic environment and no

significant hydraulic effects. The Director further explained that the SW Dike has minimal

effect on flood storage.

[271]

The Director stated the purpose of the Approval is to construct the SW Dike in

accordance with the design plans contained in Table 3-1 of the Approval. He noted the

Approval has a short life span. He further noted Clause 3.2 of the Approval states: “[t]he

Approval Holder shall not undertake the Activity in any manner or use any material that causes

or may cause an adverse effect on the aquatic environment, human health, property or public

safety.”⁶⁵

[272]

The Director explained Clause 3.2 operates while the SW Dike is under

construction. He stated it does not address all possible downstream impacts if a significant

future flood occurs. He further explained possible impacts flow from the project design.

Consequently, there are no conditions in the Approval to specifically address the potential

impacts to the Appellants and Intervenors if there is another flood with a peak flow of 1820 m³/s.

64

Section 38(2) provides:

“(2) In making a decision under this section, the Director

(a) must consider, with respect to the applicable area of the Province, the matters and factors that

must be considered in issuing an approval, as specified in an applicable approved water

management plan,

(b) may consider any existing, potential or cumulative

(i)

effects on the aquatic environment,

(ii)

(iii)

hydraulic, hydrological and hydrogeological effects, and

effects on household users, licensees and traditional agriculture users,

that result or may result from the activity, and

(c) may consider

(i)

effects on public safety, and

(ii)

any other matters applicable to the approval that, in the opinion of the Director,

are relevant.”

65

Approval, at Condition 3.2.

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[273]

The Director explained he did not make the decision lightly. According to the

Director, many of the statement of concern filers and the downstream landowners would likely

receive greater protection for their residences and infrastructure due to the SW Dike.

[274]

The Director stated the impacts to downstream users with new areas of flooding

to bare land do not meet the threshold of significant adverse hydraulic effect, and without the

dike in place, other residences and infrastructure were at risk of flooding during lower

magnitude and higher frequency events.

[275]

The Director further stated building the SW Dike was considered to be in the

public interest.

[276]

The Director referred the Board to his considerations in granting the Approval

and, in particular, the consideration of public safety if the SW Dike were not authorized.

[277]

The Director noted the Appellants and Intervenors requested the Board vary the

Approval by requiring a breach in the CPR embankment and filling in of the swale.

[278]

Regarding the removal of the swale, the Director stated he accepted the

conclusions in the WorleyParsons’ Report, which indicated the swale does not significantly

influence the flow magnitude directed towards the Little Bow River during extreme flooding

when compared to Scenario 37A.

[279]

Regarding an engineered breach on the CPR embankment, the Director stated

there is insufficient technical information to support how such a breach should be engineered or

its impacts on other landowners to support amending the Approval through the appeal process.

The Director commented the breach could possibly be authorized through a separate approval if

it was supported by further modelling, went through public notice, and met the criteria of section

66

38(2) of the Water Act.

He noted CPR’s consent would also be required for an approval

application that would impact its lands.

66

Section 38(2) of the Water Act states:

“(2) In making a decision under this section, the Director

(a) must consider, with respect to the applicable area of the Province, the matters and factors that

must be considered in issuing an approval, as specified in an applicable approved water

management plan,

(b) may consider any existing, potential or cumulative

(i)

effects on the aquatic environment,

Classification: Public

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[280]

The Director further argued there are not enough technical details to assess the

efficacy and potential impacts of the Appellants’ proposed changes to the SW Dike’s design.

The Director stated any design changes would require additional technical support in order to

understand how the proposed changes would impact flow patterns and downstream landowners.

He explained this would require further modelling, public notice, and consideration of the

criteria under section 38(2) of the Water Act.

[281]

The Director restated that negotiations between the Town, the Appellants, and the

Intervenors with respect to compensation are outside the scope of the Water Act and the appeals.

[282]

The Director stated the modelling showed the SW Dike had a minimal effect on

the peak flows of the Highwood and Little Bow Rivers during a flood. He further stated the

Town’s modelling showed a reduction in overall flooding to properties as a result of the SW

Dike.

[283]

According to the Director, the new areas of flooding are bare land. Consequently,

in his view, the terms and conditions of the Approval are appropriate.

[284]

When asked if the SW Dike acted as a stormwater management project, the

Director responded he considered the SW Dike a redirection of overland flows.

[285]

The Director stated he had not considered an adequate outlet for the SW Dike.

He referred back to the flow split and explained many discussions had occurred around the

impacts of the redirected flow and how the redirected water would reach the Little Bow River

with the SW Dike in place. The Director stated a change was not expected in the volume,

magnitude, or flow of the Little Bow River. Consequently, he did not consider an adequate

outlet for the flow.

[286]

According to the Director, an approval is required for where infrastructure is

placed. The Director explained every approval requires an appurtenance statement, and the

(ii)

hydraulic, hydrological and hydrogeological effects, and

(iii)

effects on household users, licensees and traditional agriculture users,

that result or may result from the activity, and

(c) may consider

(i)

effects on public safety, and

(ii)

any other matters applicable to the approval that, in the opinion of the Director,

are relevant.”

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approval is tied to the land on which the activity is appurtenant. He further explained consent is

typically required for lands appurtenant to an approval, but not for lands that may be impacted

by an activity.

[287]

The Director also explained two concepts are involved, appurtenance and

landowner consent. He stated appurtenance is required, and an approval is appurtenant to land

or the activity. He further stated consent “may be required” for an approval. The Director stated

when an approval is appurtenant to the land, the consent of the landowner is typically required.

[288]

When asked if the Town had proposed a project which placed a pipe at the end of

the swale to redirect the flow to a downstream location or outlet, if the pipe would have required

landowner consent or have been appurtenant to the project, the Director answered confirmation

of landowner consent is asked for where the project is being built, and he would have

considered, if a pipe were proposed, where the pipe was to be constructed and whether

landowner consent would be required.

[289]

When asked how he considered section 37(4) of the Water Act⁶⁷and whether the

Appellants’ lands were appurtenant and their consent was required, the Director stated he did not

consider the lands appurtenant but rather “impacted.” He acknowledged the Appellants’ lands

were necessary to the function of the SW Dike but did not consider the impact significant on the

whole.

[290]

The Director stated he had not considered whether the Appellants’ lands should

have been included as a part of the SW Dike to ensure the SW Dike was viable twenty to fifty

years in the future.

[291]

The Director stated while SW Dike was designed to protect against a flood with a

peak flow of 1820m³/s plus a metre of freeboard, he had only considered the effects of a 1:100

Flood. He stated he would have accepted a design that protected to the magnitude of a 1:100

Flood, as this is the minimum standard. He further noted the SW Dike was not designed to

protect downstream landowners.

67

“

Section 37(4) of the Water Act states: If an applicant for an approval does not own the land in fee simple

or the undertaking to which the approval is to be appurtenant, if required by the Director, the applicant must submit

the written consent of the owner of the land or of the undertaking as part of the application for the approval.”

Classification: Public

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[292]

The Director acknowledged flood hazard identification could impact the

Appellants, and he considered it. He stated he had also considered the impacts of having the SW

Dike in place versus not having the SW Dike in place.

V.

Analysis

[293]

Under section 99(1) of EPEA, the Board must provide the Minister with its

recommendations regarding the issues in these appeals.⁶⁸

[294]

The Board considered the oral evidence, arguments, and written submissions

provided by the Parties, the Director’s Record, and relevant legislation in making its

recommendations to the Minister.

[295]

The Board appreciates the participation of the Intervenors at the hearing. The

Intervenors provided the Board with additional information regarding the 2013 Flood and the

downstream impacts of the SW Dike on the Intervenors’ lands.

1. Accuracy and Reliability of the Scientific and Technical Studies

[296]

Regarding the first issue in the appeals, as noted above, the Appellants challenged

the data and variables upon which the 2013 Flood Model was based. The Appellants argued the

2013 Flood Model developed by WorleyParsons did not accurately represent the 2013 Flood or

its impacts to the Appellants’ properties, in particular, the Edeys’ properties. The Appellants’

argued there were too many uncertainties in the modelling for the Director to have relied on

them in making his decision to issue the Approval. The Intervenors supported the Appellants’

arguments, and both argued WorleyParsons minimized the inherent uncertainties in, and

limitations of the models.

[297]

The Board heard the Appellants’ and the Intervenors’ properties had residences,

workshops/garages, irrigation infrastructure, and access roads located on them. The Board also

heard much of the Appellants’ and Intervenors’ lands are actively used in agricultural

production.

68

Section 99(1) of EPEA states: “In the case of a notice of appeal referred to in section 91(1)(a) to (m) of

this Act or in section 115(1)(a) to (i), (k), (m) to (p) and (r) of the Water Act, the Board shall within 30 days after the

completion of the hearing of the appeal submit a report to the Minister, including its recommendations and the

representations or a summary of the representations that were made to it.”

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[298]

The Board heard evidence that the 2013 Flood impacted each of the Appellants’

and Intervenors’ properties. The Board heard evidence that approximately half the Howies’

property was flooded in the northwest and east, and that the floodwaters came from the west.

The Board heard the Macklins’ and Intervenors’ properties were flooded by water from the east

and northeast of the properties, which overtopped the CPR embankment and 88 Street. Evidence

was presented that a significant length of the access road they shared was inundated to a height

of approximately four to five inches.

[299]

As noted above, the Appellants raised the Edeys’ East Property as an example of

the 2013 Flood Model’s biggest flaw, stating the model inaccurately indicated the overland flow

would stop three feet from the Edeys’ home. The Board heard evidence that during the 2013

Flood, the Edeys’ residence on their East Property was flooded to a height of approximately 1.04

metres as measured on the exterior of their residence. The inside of their residence was flooded

to a height of 0.86 metres, and their shop/garage was flooded to the height of 1.52 metres. The

Board heard additional evidence that floodwaters came from the Little Bow River from the

north.

[300]

The Town argued the 2013 Flood Model is not intended to provide an exact

representation of the 2013 Flood Model, and the very nature of modelling is to provide an

approximation of overland flow conditions. The Board heard evidence from the Town’s expert,

who stated the accuracy of the model is dependent on the data input into the model and some

modelled areas may be more accurate than others. The Board heard further evidence that the

majority of the calibration results for the 2013 Flood Model show the model is accurate within a

range of +/- 0.3 metres, and this included the Appellants’ properties.

[301]

The Board heard evidence from the Town’s expert that after the 2013 Flood,

high-water marks were collected. The 2013 Flood Model was developed based on these survey

points, high-water marks and these model high-water levels indicated the model was within +/-

0.3 metres of accuracy. The Board further heard verification of the model indicated there was a

very low probability of the model having a range of +/- 1 metres on the Appellants’ and

Intervenors’ properties as alleged by the Appellants.

[302]

The Board heard further evidence from the Town’s expert explaining the model

accuracy for the Edeys’ Properties was likely within the 0.10-0.15 metre range. In support of

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this, he compared the predicted June 2013 Flood Levels and Extents for the Edeys’ East Property

with the LiDAR survey data collected after the 2013 Flood Event. He noted the area of flooding

that was claimed to be inaccurate by approximately 0.5 metres was close to the Edeys’

shop/garage and had a predicted flood level of 1028.31 metres. Evidence was provided to the

Board that the LiDAR indicated the same location was measured at 1028.41 metres, and two

other measurements were within 0.13 metres. The Board heard further evidence that if there

were discrepancies between the model and the 2013 Flood, it was likely because of small local

landscape features such as berms and swales which are not readily visible in the LiDAR. It was

explained small features on the local landscape may influence local flow conditions, and could

create visual anomalies such as the one seen on the Edeys’ East Property.

[303]

The Board heard further evidence from the Town’s expert regarding the high

watermark data and data analysis on locations around the Edey properties, which indicated the

model accuracy was within an expected range of +/- 0.3 metres. It was explained to the Board

that a model accuracy of +/- 0.3 metres is often accepted as providing suitable hydraulic

representations of flood conditions for design, planning and effects assessment.

ii. Outdated 1:100 year peak magnitude flow

[304]

The Intervenors had raised concerns that the peak flow for a 1:100 Flood was

outdated and should not have been used for the modelling. The Board heard the 1:100 Flood is

based on floods leading up to 1992 and has a set peak flow of 750 m³/s. The Intervenors had

raised the fact that there have been several floods⁶⁹since 1992, and these floods should be

averaged into the 1:100 Flood’s peak flow magnitude. The Intervenors further noted Golder,

AECOM, and insurance companies have requested the peak flow magnitude be updated, with

Golder and AECOM specifically seeking increases to 1560 m³/s and 1390 m³/s respectively.

[305]

The Board found this information interesting. The Board noted the expert for the

Director acknowledged the peak flow for the 1:100 Flood would likely change in the future,

there is no evidence before the Board to suggest the 1:100 Flood’s peak flow could not be used

for modelling. Evidence was presented to the Board that the 1:100 Flood was the design

standard, and the Director would have accepted a design based on the 1:100 Flood.

69

Floods occurred in 1995, 2005, 2008, 2011, and 2013.

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[306]

The Director explained at the hearing he considered the 2013 Flood Model and

the 1820 m³/s thresholds but had relied on the 750 m³/s modelling when he made his decision.

As a general observation, the Board notes the Director was also provided modelling data based

on the largest magnitude flood on record in the region, and its peak flow was greater than either

amount the Intervenors attributed to Golder or AECOM.

[307]

The Town’s expert, Mr. Borggard, explained how the 2013 Flood Model was

developed using survey points, high watermarks, and LiDAR. The Town’s expert also

effectively explained why there may be minor discrepancies between the model and flooding

that occurred on the Appellants’ properties.

[308]

Mr. Choles stated the models and reports provided by the Town in support of the

Application were signed and stamped by a professional engineer. He further explained River

Engineering and the Director will rely on signed and stamped reports, unless there is some

reason not to do so. He stated he had no concerns with the technical studies. The Appellants’

expert, Dr. Bender, did not appear to have concerns with the accuracy of the models, noting that

the margin of error accounts for the uncertainties raised by the Appellants. He suggested a

slightly larger margin of error, but appeared to be more concerned with the use of the 2013

Flood data. In his view, such a high peak flow overstated the benefits to properties downstream

of the SW Dike.

[309]

The Board notes models are intended to be representations and not absolute truth.

As models represent the conditions and outcomes of the data input into them, they are inherently

limited despite their usefulness. Consequently, a model will never be an exact replication of the

real world. Knowing these limitations, accuracy and reliability in this context really means

useful approximation.

[310]

The Board further notes the 2013 Flood Model is intended to approximate the

2013 Flood. The SW Dike was designed to protect against a flood with a peak flow equal in

magnitude to the 2013 Flood plus a metre freeboard, which is why the Town included models

relevant to the design’s level of peak flow protection.

[311]

Lastly, the Board notes the modelling has received some measure of review from

both River Engineering and Millennium, and neither have expressed serious concerns with the

modelling.

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[312]

The Board is satisfied with WorleyParsons explanations of the models.

Moreover, the Board is of the view that the models prepared by WorleyParsons were

comprehensive. As a result, the Board finds the modelling is accurate and reliable. The Board

further finds the technical studies based on the modelling are also accurate and reliable.

2. Was it appropriate for the Approval to authorize construction in a floodplain?

[313]

With regard to the second issue in the appeals, the Appellants argued the Director

received advice during his review of the Application that constructing the SW Dike in the

floodplain was contrary to AEP policy and not prudent.

[314]

The Board heard a floodplain includes any land which can be inundated and

includes the floodway and the flood fringe. The Board heard the floodway is the path reserved

for the river flow because this is where the deepest and fastest part of the flow is located, and is

the part of the flow which has the most potential to cause damage. The Board heard the flood

fringe is located within the floodplain and is land that tends to become inundated. Construction

is permitted within the flood fringe, provided the infrastructure is floodproof. The evidence

indicated there were inundation maps available, but flood hazard mapping was not yet completed

for the region.

[315]

The Board heard River Engineering provided comments on the Application on

April 16, 2019, and captured their concerns with the proposed location of the SW Dike in the

Highwood River’s floodplain, and the unintended consequences that may arise.

[316]

River Engineering was concerned that during a flood, the location of the SW Dike

would cut off two fingers which flow to the east, resulting in a concentration in the overland

flow. This concentration in the overland flow could lead to: erosion in the channels which may

result in additional overflow; a change in overland flow characteristics including flow split; a

change in water levels; and a change in river flow velocities.

[317]

The Board heard the flow split would increase the amount of instream flow in the

Highwood River and a change in water levels could cause areas that had not previously been

prone to flooding to flood. Dr. Bender, explained an increase in velocities could result in

erosion, create a new channel and ultimately, risk the avulsion of the Highwood River to the

Little Bow River.

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[318]

The Board heard the Director thoroughly reviewed the concerns raised by River

Engineering with the Town and met with the Town and WorleyParsons on July 3, 2019. During

the July 3, 2019 meeting, it was observed that historically 12 Avenue and the CPR embankment

have cut off the same flood fingers, and the effect of the SW Dike is to cut off those flood

fingers earlier.⁷⁰

[319]

The Board heard there was no legislation prohibiting the SW Dike's construction

in the floodplain. While there was a general guideline against constructing in the floodplain, no

formal AEP policy was in place. Evidence was presented that there was existing development in

the Town which the Town did not feel it could properly protect without the SW Dike in place.

The evidence demonstrated there was a system of dikes in place which also influenced the

design of the SW Dike. In both cases, they limited the design options available to the Town.

[320]

The Board heard the matters and factors of the SSRB Plan were taken into

consideration by the Director when authorizing the SW Dike’s location in the floodplain. The

Director stated he weighed the risks associated with authorizing the construction of the SW Dike

in the floodplain against leaving critical infrastructure and residences in the Town unprotected.

[321]

Based on the evidence, the Board concludes the Director sought and considered

input from the appropriate subject matter experts within AEP and the Town to clarify the

impacts arising from locating the SW Dike in the floodplain.

[322]

The Board accepts previous flood mitigation works and development within the

Town placed design constraints on where the Town could construct the SW Dike. The Board

understands best practices are to avoid constructing in the floodplain. The Board finds the

Director considered the potential adverse outcomes associated with the SW Dike’s construction

in the floodplain, particularly the initial redirection of overland flow to the south.

[323]

As there is no prohibition against constructing the SW Dike in the floodplain, and

there were limitations on the design options available to the Town, the Board finds it was

appropriate for the Approval to authorize construction of the SW Dike in the floodplain.

3. Are the terms and conditions of the Approval appropriate?

70

Director’s Record, at Tab 40, AEP Meeting Notes – Town of High River File – SW Dike Project –

Memorandum dated July 3, 2019, AEP.

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[324]

At the hearing the Appellants acknowledged the need to protect the infrastructure

in the Town. The Appellants objections stem from how the Town chose to design the protection.

Instead of taking issue with specific terms and conditions in the Approval, the Appellants argued

the Approval failed to adequately mitigate the risk of adverse effects posed by the SW Dike.

[325]

The Appellants suggested this failure to mitigate risks was internally inconsistent

with condition 3.2 of the Approval, and asked the Board to include three additional conditions to

the Approval requiring:

a. the Town to work with CPR to create an engineered breach in the CPR

embankment;

b. the Town to fill in the swale; and

c. the Town to enter into good faith negotiations with the Appellants and the

Intervenors regarding compensation for the properties affected by the

redirected floodwaters from the SW Dike.

[326]

Condition 3.2 of the Approval requires the Town to “… not undertake the

Activity in any manner that or use any material that causes or may cause an adverse effect on the

aquatic environment, human health, property, or public safety.”⁷¹The Appellants claimed

contrary to condition 3.2, the Approval guaranteed there would be an adverse effect on their

property and threatened their safety, without any mitigation.

[327]

At the hearing, the Board was presented evidence that the Approval is a relatively

short-lived document that exists during the construction phase of the project. The purpose of the

Approval is to manage the construction of, and any adverse effects that may arise during the

construction of, the SW Dike. Consequently, any adverse effects caused by the SW Dike itself

are expected to be managed through the project design. The Board acknowledges the distinction

between the Approval managing the effects of the work associated with the activity, and the

project design managing the effects of the activity.

i. Engineered Breach

[328]

As was previously mentioned, the Appellants asked the Board to include a

condition requiring the Town to work with CPR to include an engineered breach at the CPR

embankment. The Board understands the length of the embankment is approximately 500-600

metres and it cuts across the overland flow. At the hearing, Dr. Bender provided his opinion that

71

Approval, at Condition 3.2.

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the CPR embankment acts as a dam because it holds and disrupts the flow of water. The Board

heard in his view a sudden breach of the CPR embankment is concerning as there is no control

over the overland flow. Evidence suggested an engineered breach would provide a path for the

overland flow and would lessen the uncertainty surrounding the downstream impacts. During

questioning, Dr. Bender acknowledged the Town’s arguments that it did not own or have

administrative control over the lands in question. He stated in response he was not focused on

administrative boundaries but solutions.

[329]

The Town and the Director argued the Appellants failed to provide engineering

analyses in support of the proposed engineered breach. The Town also argued an engineered

breach was unnecessary and presented evidence that once the overland flow reached 700 m³/s,

the CPR embankment would be overtopped or possibly eroded in multiple locations.

[330]

The Director presented additional evidence to the Board that any application for

an amendment for an engineered breach would be subject to the Water Act. Practically

speaking, this means the proposed engineered breach would require detailed engineered

analyses, landowner consent, be subject to public notice, and appeal. The Director was against

amending the Approval to include an engineered breach, but did not preclude a separate

application.

[331]

The Board notes the Town neither owns nor has administrative control over the

lands in question. The Board appreciates the Appellants did not have the resources to provide

detailed engineering analyses or modelling in support of the proposed engineered breach.

However, without such technical data, no determination can be made regarding whether or not

the engineered breach meets the requirements of section 38(2) of the Water Act⁷²and does not

72

Section 38(2) of the Water Act states:

“(2) In making a decision under this section, the Director

(a) must consider, with respect to the applicable area of the Province, the matters and factors that

must be considered in issuing an approval, as specified in an applicable approved water

management plan,

(b) may consider any existing, potential or cumulative

(i)

effects on the aquatic environment,

(ii)

(iii)

hydraulic, hydrological and hydrogeological effects, and

effects on household users, licensees and traditional agriculture users,

that result or may result from the activity, and

(c) may consider

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cause an adverse effect on the aquatic environment, human health, property or public safety.

Without these studies, there is no way of determining whether one breach is appropriate or

several, the size, or other factors, or if such a breach may worsen the position of those

downstream of the SW Dike. For these reasons, the Board finds it would not be appropriate to

add a condition to the Approval that requires the Town to engineer a breach at the CPR

embankment. In making this finding the Board does not preclude a future application for an

engineered breach if it is supported by the appropriate technical studies and Water Act

application.

ii. Filling in the swale

[332]

The second condition the Appellants asked the Board to include was a condition

requiring the Town to fill in the swale. The experts for the Parties appeared to agree the swale

acts as a channel to remove water from in front of the SW Dike and direct water downstream. It

appeared however, that the experts could not agree on the long-term implications of channeling

the overland flow downstream.

[333]

The experts for the Appellants and the Director gave opinions that by

concentrating the overland flow and acting as a channel, the swale could cause erosion and

eventually lead to a risk of redirecting the Highwood River into the Little Bow River. Dr.

Bender elaborated and provided his opinion that, swales are designed to move water quickly and

efficiently, in this case away from the area in front of the dike. He explained the depth and

velocity of overland flow in the swale were variable, depending on the time of the season and the

amount of vegetation. He noted earlier in the season floods are most likely to occur, there is less

vegetation, and the overland flow will have greater velocity and less depth. The Board also

noted his comments that debris could potentially become lodged in shallow areas and in the

vegetation as well.

[334]

The Town did not disagree with Dr. Bender’s evidence regarding the general

purpose for a swale or the impact vegetation could have on overland flow. However, the Town

said the swale was important to the design and function of the SW Dike, and should not be filled

in. Mr. Borggard presented evidence demonstrating any increase to the velocity or flow caused

(i)

effects on public safety, and

(ii)

any other matters applicable to the approval that, in the opinion of the Director,

are relevant.”

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by the SW Dike was temporary and limited to the area directly in front of the SW Dike. He

noted the effect was localized and by the time the overland flow approached the area near the

Appellants’ properties, the depth and velocity were expected to be nearly the same as they were

before the construction of the SW Dike.

[335]

Evidence was presented to the Board that the efficient removal of water from in

front of the SW Dike was necessary in order to prevent ponding. Mr. Borggard said the swale

did not increase the overland flow towards the Appellants, and because of the flow split, the

extra 10 m³/s of instream flow was directed downstream on the Highwood River. Consequently,

the amount of overland flow to the Little Bow River remains unchanged.

[336]

Mr. Choles did not disagree with Dr. Bender’s opinion that the swale represented

a risk of redirecting the Highwood River into the Little Bow River, as this was one of the

original comments provided to the Director and Town by River Engineering. However, the

Board understands this issue was given consideration as part of the overall larger issue of the

design and location constraints faced by the SW Dike project. Evidence was presented that

River Engineering met with the Town to discuss its concerns in July 2019, and the Director was

made aware of this concern as a part of his considerations. The Director provided evidence he

had accepted the WorleyParsons Report, and the swale did not significantly impact the overland

flow directed towards the Appellants’ properties during an extreme flood event.

[337]

The evidence before the Board indicates the effects of the swale are expected to

be localized to the SW Dike project site. The Board understands in part, Dr. Bender’s concern

stemmed from a concern that overland flow was increased towards the Little Bow River,

however, the evidence presented demonstrated the increase in flow is expected to be instream, in

the Highwood River. The Appellants have not provided detailed engineering analyses to support

their arguments that the swale should be filled in, or to allow for a determination of the effects of

filling in the swale. Based on the foregoing, the Board finds it cannot amend the Approval to

include a condition requiring the Town to fill in the swale.

iii. Condition to enter into good faith negotiations

[338]

The third condition the Appellants asked the Board to include in the Approval

was a requirement for the Town to enter good faith negotiations with the Appellants regarding

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flood mitigation, compensation or both, for the Town transferring its flood risk to the

Appellants.

[339]

The Appellants did not feel they were adequately consulted and engaged as a part

of the Town’s consultation process. The Appellants gave evidence that while there were

meetings and emails, they did not feel their concerns were addressed. The Board heard the

Appellants were frustrated the Director only sought information from the Town regarding the

Town’s efforts to address their concerns.

[340]

The Board heard arguments that the Director should have required the Town to

comply with AEP policy and address the concerns of statement of concern filers prior to issuing

the Approval. As mentioned previously, evidence was presented that the SW Dike was designed

with the consent of the primary affected landowner (the land where the berm and swale are

built), and a term of the agreement between the Town and the primary affected landowner

prohibited the primary affected landowner from appealing the Approval.

[341]

The Board heard the Appellants were offered flood easements and compensation

for the impacts arising from the SW Dike to their properties. The Board understands the amount

of compensation was only for the difference between the 2013 Flood and the change in overland

flow arising from the SW Dike. The flood easements did not compensate for pre-existing flood

risk, but for changes to the incremental flood risk. In some cases, only a flood easement was

offered, without compensation.

[342]

Evidence was presented indicating the Appellants sought assistance from the

County regarding the SW Dike, and the County advised them that as it was a Town project, all

concerns should be directed to the Town.

[343]

The Appellants provided evidence that several of their concerns and questions

were not answered by either the Town or the County, throughout the application for the

Approval. The Appellants stated representatives from the Town were unable to answer the

Appellants’ questions about the flood easements, impacts to their properties, or their other

concerns during meetings. The Board notes that the Intervenors expressed similar concerns.

[344]

The Board heard from the Appellants that the Town should have been required to

comply with AEP policy and address their concerns prior to the Approval being issued. The

Appellants were concerned the Director did not provide them with an opportunity to raise their

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concerns, but instead relied upon the information provided by the Town when deciding who was

directly affected and regarding concerns when deciding to issue the Approval.

[345]

The Board heard from the Town it had engaged the Appellants and Intervenors

individually through letters, and generally through public notices and meetings. The information

was provided to the Appellants at public meetings, multiple engagement sessions with the Town,

or to the Appellants directly from approximately 2014 through 2017. The evidence showed the

Town provided project updates to property owners who were expected to experience an increase

in inundation on February 9 and October 24, 2017. The Town also conducted in-person

meetings and direct telephone calls with various property owners, to provide information about:

the project, appraisals, and potential inundation to their properties.

[346]

The Board heard that during the Town’s meetings with the Appellants and the

Intervenors, the Appellants and Intervenors were provided with information sheets outlining the

anticipated effects of the SW Dike on their properties during a flood event with a peak flow of

1820 m³/s. Unfortunately, these meetings appear to have not been overly successful because

many of the Appellants and Intervenors questions were left unanswered at the time of the

hearing. The Appellants and Intervenors were also provided with flood easements during those

meetings, discussed in further detail below.

[347]

The Board heard arguments from the Town that filing a statement of concern or

participating in the public engagement process did not give the Appellants a right to veto the

project. The Town added “…[t]he Appellants complaints about the engagement process stem

from the engagement not resulting in their desired outcome.”⁷³

[348]

The Board heard from the Town that one of the Appellants’ primary concerns

with the SW Dike appears to be related to the Appellants’ dissatisfaction with the discussion

regarding financial compensation. The Town relied on Hebner and argued the Board had

already determined it could not award financial compensation to parties alleging to have been

harmed as a result of issued approvals. The Town argued similarly, the Board could not order

the Town and the Appellants to negotiate compensation. These arguments were supported by the

Director, who also argued considerations regarding compensation were outside the scope of the

Water Act.

73

Town’s Written Hearing Response Submissions, December 16, 2020, at paragraph 33.

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[349]

Ms. Scoffield provided evidence on behalf of the Director that the statement of

concern process is designed to provide individuals who believe that they may be directly

affected by a project an opportunity to communicate their concerns to the Director. Ms.

Scoffield stated that the Director received fifteen statements of concern and that he considered

eight of the filers to be directly affected. The Board heard all the statements of concern were

considered in the final decision to issue the Approval.

[350]

Ms. Scoffield stated the Water Act is silent on responding to statements of

concern. The Board heard in this case, the statements of concern were shared with the Town.

Ms. Scoffield stated the concerns were either dealt with directly with the statement of concern

filer or indirectly by way of the Town providing information addressing the concerns and

comments of each statement of concern filer. The Board heard the Town prepared information

sheets which outlined how each statement of concern filer was potentially impacted by the SW

Dike, and this information was discussed at meeting between the Town and the Director in the

summer of 2019.

[351]

At the hearing, the Board was presented with a copy of the flood easement

agreements the Town provided to the Appellants and the Intervenors. The Board understands

the flood easements were intended to compensate persons whose properties were affected by the

SW Dike for the incremental difference in inundation to their properties. The Board heard that

the Director was provided a copy of the flood easement agreements, however the Director does

not appear to have required the agreements to be executed prior to making his decision to issue

the Approval.

[352]

As was previously mentioned, the Appellants acknowledged that matters of

financial compensation awards are outside the jurisdiction of the Board. In the Board’s view, a

condition requiring the Town to negotiate compensation with the Appellants was equally outside

the Board’s jurisdiction.

iv. Approval terms and conditions

[353]

The Director’s authority to issue the Approval is balanced against the

responsibility of ensuring the Director thoroughly reviews an application and supporting

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documentation against the criteria in section 38(2) of the Water Act.⁷⁴The Director and AEP

staff stated it is not their role to redesign a proposed project for applicants.

[354]

As mentioned above, the Appellants did not take issue with a specific term or

condition of the Approval. Instead, the Board heard from them that by building the SW Dike

and concentrating the overland flow to the south, the Town had transferred its flood risk to the

Appellants and others downstream in the County. The Appellants object to the lack of terms or

conditions in the Approval to protect the Appellants or others downstream of the SW Dike, or to

mitigate the adverse effects caused by the SW Dike.

[355]

Also mentioned above, the Board heard from the Appellants the impacts of the

overland flow directed towards their properties by the SW Dike could not be predicted to the

degree of certainty as claimed by the Town. There is infrastructure on the Appellants’ and

Intervenors’ lands, and consequently, little room for error in the calculations. Mr. Borggard

provided evidence that WorleyParsons was confident in its error margins to +/- 0.3 metres, and

in the case of the Edeys’ properties, within 0.15 metres in some locations. Although the Board

finds the modelling accurate and reliable, the Board notes again that models are intended to be

representations, not absolute truth, and are inherently limited despite their usefulness. In this

context, the model is a useful approximation of the overland flow directed towards the

Appellants’ properties by the SW Dike. However, the Board is concerned that if the modelling

results are inaccurate by a metre or two, some of the Appellants homes could be inundated

during a large magnitude flood event. Whether the peak flow lasts for one hour or five, once a

home is flooded, there is damage.

74

Section 38(2) of the Water Act states:

“(2) In making a decision under this section, the Director

(a) must consider, with respect to the applicable area of the Province, the matters and factors that

must be considered in issuing an approval, as specified in an applicable approved water

management plan,

(b) may consider any existing, potential or cumulative

(i)

effects on the aquatic environment,

(ii)

(iii)

hydraulic, hydrological and hydrogeological effects, and

effects on household users, licensees and traditional agriculture users,

that result or may result from the activity, and

(c) may consider

(i)

effects on public safety, and

(ii)

any other matters applicable to the approval that, in the opinion of the Director,

are relevant.”

Classification: Public

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[356]

The Director presented evidence that when making his decision he appreciated

the Appellants and Intervenors would experience impacts from the SW Dike. He advised the

Board he weighed the benefits of the SW Dike and the protection it would provide to the homes

and critical infrastructure in the SW portion of the Town against the impacts to the Appellants.

In his view, those impacts were not significant, as they would be impacts to bare land. The

Director stated he issued the Approval knowing there were other mechanisms outside of the

Approval to address the Appellants’ concerns.

[357]

The Board heard evidence WorleyParsons prepared a report regarding

compensation for properties impacted by the changes in the overland flow and inundation levels

caused by the SW Dike, for each statement of concern filer. The Director was provided the

report.

[358]

It has been noted several times in this Report the SW Dike was constructed to

protect against a peak flow of 1820 m³/s plus a metre freeboard. The Board understands the SW

Dike was constructed to protect against 1820 m³/s plus a metre freeboard as this was the

magnitude of 2013 Flood and represents the worst-case scenario to date. The Board heard

evidence the Director considered the modelling for the higher peak flow but based his decision

on the modelling for a 750 m³/s magnitude event, as this is the accepted design standard and

smaller magnitude events are more likely to occur. It is these smaller events that are more likely

to affect the Appellants and those downstream of the SW Dike. The Board heard however, that

as constructed, the SW Dike protects against a 1:100 Flood to 1:200 Flood.

[359]

The Board notes the materials that accompanied the flood easement agreement

appeared to compare the impacts of the 2013 Flood with the projected impacts to the Appellants

properties arising from all the Town’s flood mitigation program, including the SW Dike. The

Board was unable to locate detailed information in the package which outlined the impacts to the

Appellants’ properties arising from a 1:100 Flood. The Board finds this concerning as the

Director stated that floods at lower magnitudes were more likely to occur and cause impacts to

the Appellants. As a general observation, the Board believes it may be helpful if the Town were

to provide this information to the Appellants and the Intervenors.

[360]

The Board heard that the Appellants and Intervenors had questions about the

flood easement agreements provided by the Town and the associated information outlining the

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impacts of the SW Dike, but the Town’s consultants were not able to address their questions.

The Town suggested the Appellants were dissatisfied with the outcome of the consultation and

engagement, but the consultation and engagement efforts were adequate. The Director similarly

stated the concerns of the Appellants were addressed, either by the Town addressing them with

statement of concern filers or by providing information to the Director.

[361]

The Board heard from the Appellants how stressful the construction of the SW

Dike and appeal process has been for them. The Appellants raised several questions over the

course of the hearing, and as noted above, stated the Town’s consultants did not answer their

questions. It appears to the Board that part of this stress appears to stem at least in part from the

uncertainty arising from the SW Dike’s construction, impacts arising from it, and questions left

unanswered. Considering this, the Board has concerns regarding the adequacy of the Town’s

engagement with the Appellants.

[362]

The Board notes that the Appellants’ and Intervenors’ properties have access

roads, homes, garages and workshops, and irrigation equipment located on them. At a

minimum, much of the Appellants’ and Intervenors’ lands are being actively used in agricultural

production, from which some of their livelihoods are being earned. The Board heard the

Director considered the impacts to the Appellants and Intervenors to be insignificant because the

impacts were to bare land. Rather than being bare land, the properties were being lived on and

actively used by the Appellants.

[363]

Whether the properties may have been impacted by the 2013 Flood or whether

the properties would have been impacted to a lesser degree by the interim mitigation measures

undertaken by the Town, it is apparent from the evidence before the Board that the SW Dike has

permanently redirected overland flow from the Highwood River during a flood event and the

path the overland flow travels towards the Little Bow River as a result of the SW Dike, including

over the Appellants’ and Intervenors’ properties.

[364]

The Board notes the Director could have required further investigation or a report

into the downstream impacts of the SW Dike, recognizing the problems created by the Town’s

flood mitigation efforts. The Board heard evidence other options were presented to AEP by the

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Town, and there was at least one report⁷⁵supplied in the Application which did not preclude

additional mitigation efforts.

[365]

The Board heard evidence from Dr. Bender the primary flaw in the design of the

SW Dike is the redirection of a significant amount of overland flow towards the Appellants and

others’ properties downstream in an uncontrolled manner, without a proper hydraulic connection

to the Little Bow River. The Board heard further evidence from Dr. Bender it was difficult to

predict with exact certainty how the overland flow would behave and various factors such as

roughness could impact its depth and velocity.

v. Applicability of the Stormwater Management Guidelines

[366]

During the course of the Board’s deliberations, the Board noted none of the

Parties addressed the question of the applicability of the Stormwater Management Guidelines⁷⁶

to the SW Dike in their closing arguments. This question was raised by the panel during the

hearing. In light of this question not being addressed during the hearing, and the amount of

overland flow being directed towards the Appellants and others downstream, subsequent to the

oral hearing and prior to the close of the hearing, the Board asked the Parties to consider the

application of the Guidelines to the SW Dike and whether or not an adequate outlet was

required.

[367]

The Appellants presented arguments to the Board that the Guidelines apply to the

SW Dike. They argued the SW Dike is a project intended to protect the largely undeveloped

area on the south edge of the Town from overland flooding, yet its design fails to incorporate

overland flood routes beyond the south end of the dike to handle excess flows, and is therefore,

not consistent with the requirements of the Guidelines.

[368]

The Appellants further presented arguments to the Board that the Guidelines

address design criteria for stormwater management plans including water quantity, noting that if

there is a potential for a flood hazard directly downstream from a proposed site, water quantity

controls must be implemented. The Board heard from the Appellants’ expert, who raised the

fundamental flaw with the SW Dike is that it relies on uncontrolled overland drainage between

75

2016 ISL Engineering Final Report, Southwest Dike Choose-Design Report, (the “ISL Report”), at pages

17-19, Director’s Record, Tab 6, pages 181-83. See also the Little Bow Enhanced Natural Floodway (LB-ENF),

WorleyParsons Report, at pages 2-8, and Tab 5, pages 70-78.

76

Stormwater Management Guidelines, Alberta Environment and Parks, January 1999 (the “Guidelines”).

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the end of the SW Dike and the Little Bow River. The Appellants stated the reliance on

uncontrolled overland flow is not consistent with the Guidelines’ requirements for water quantity

control when there is a potential flood hazard directly downstream from the SW Dike.

[369]

The Appellants further argued the SW Dike meets the definition of a major

drainage system as it is essentially a drainage route to transport overland flow during major

storm events. The Appellants relied on Kohlman⁷⁷and Belland⁷⁸and argued they were expressly

applicable. The Appellants further described that in situations involving projects by urban

municipalities to convey stormwater across adjacent urban lands the core issue in each case was

the impact of the project on downstream rural property owners. The Appellants argued there

was no reason to distinguish these cases from the case before the Board in terms of the

applicability of the Guidelines.

[370]

The Appellants further noted the Director in those cases acknowledged a

requirement to ensure downstream property owners were protected from flooding and to ensure

the impacts of flooding were properly mitigated. The Appellants stated the Director owed the

same obligation to downstream property owners in this case, yet failed to require the Town to

protect downstream owners from the flooding caused by the SW Dike. The Appellants argued

the Board should vary the Approval to ensure there were overland flow routes designed beyond

the south end of the dike to control the quantity of water impacting downstream properties.

[371]

The Town stated the Guidelines were not the applicable regulatory regime for

permitting the SW Dike. The Approval Holder argued the SW Dike is a flood mitigation

activity regulated by the Water Act whereas the Guidelines apply to stormwater drainage

systems subject to EPEA and its supporting regulations. The Town stressed the Guidelines are

described in terms of outlined objectives for stormwater management and available

methodologies, and concepts and designs for the planning, design, and operation of stormwater

management systems.

[372]

The Town argued the definition of storm drainage contained in the Waste Water

and Storm Drainage Regulation, Alta. Reg. 119/1993, indicates storm drainage under EPEA is

77

Kohlman v. Director, Central Region, Environmental Management, Alberta Environment, re: Town of

Ponoka (3 June 2011), Appeal No. 09-022-R (A.E.A.B.) (“Kohlman”).

78

Belland v. Director, Regional Compliance, Red Deer-North Saskatchewan Region, Alberta Environment

and Parks (21 June 2019), Appeal No. 18-014-R (A.E.A.B.), 2019 ABEAB 18 (“Belland”).

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intended to apply to the management of precipitation, whereas the Water Act is intended to

regulate water flows including those that occur during a flood.

[373]

The Town elaborated, stating EPEA governs the management of stormwater

through storm drainage systems, which are systems of collecting, storing, conveying, and

disposing of precipitation which falls on a development, such as a city or town, through the use

of sewers, pumping stations, and similar infrastructure. This was contrasted with the Water Act,

which regulates various activities including activities such as the construction of the SW Dike.

The SW Dike was constructed to protect against a waterbody overflowing its banks. Therefore

argued the Town, the Guidelines are not engaged in respect of the regulatory permitting for the

SW Dike.

[374]

The Town stated stormwater runoff from localized rain events at the SW Dike

site is many magnitudes lower than the annual floods in the Highwood River Basin, and

therefore, the design measures taken to address flow passage for the extreme flood events under

the Approval also constitute best management practices for stormwater management and far

exceed what would be required under the Guidelines for those purposes. According to the

Town, changes in downstream flows from normal stormwater events are also negligible given

the agricultural land use, which is permeable.

[375]

According to the Town, the SW Dike design does not include any new storm

drainage systems or stormwater outlets that require approval. The Town noted the SW Dike site

drainage has well defined routing and adequate outlets in all directions including existing

watercourses, culverts, and stormwater management ponds. In sum, the Town argued the SW

Dike design was made for the passage of an extreme flood event and therefore, already addresses

and exceeds all best management practices that would be required for the Guidelines. There are

no practical or physical changes to the design of the SW Dike arising from consideration of the

Guidelines.

[376]

The Director similarly argued the Guidelines do not apply to the regulatory

permitting of the SW Dike as the dike does not have the indicia of a storm drainage project

under EPEA, and is an activity regulated under the Water Act. According to the Director,

applying the Guidelines to the SW Dike would be a significant regulatory departure from the

approval of other dikes and flood mitigation works in the province. The Director did not

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describe to the Board how this was a significant departure when asked. The Director gave

evidence he did not consider the SW Dike to be a stormwater management project, but rather a

redirection of floodwaters to protect the Town. Consequently, he did not consider the

Guidelines as a part of his review of the Application. The Director stated his position remained

the same after considering the Guidelines.

[377]

The Director acknowledged stormwater and floodwater are not defined, but noted

they are treated differently by AEP. The Director stated a storm drainage system is defined by

EPEA and an EPEA authorization is required for one. The Director added flood mitigation

projects are contemplated by the Water Act. The SW Dike’s application was under the Water

Act, for the construction of a berm and swale in the Highwood River’s floodplain, resulting in

the permanent alteration of the flow, direction of flow, and water levels. The Director restated

his evidence from the hearing that the SW Dike is intended to redirect floodwaters from the

Highwood River and this redirection of overland flow is why a Water Act approval is required.

[378]

The Director explained, storm drainage systems differ from flood mitigation

projects as storm drainage systems are intended to manage increases in volumes of water

generated by development i.e. changes to grades, impervious areas, point source release versus

nonpoint. Conversely, flood mitigation infrastructure is intended to minimize impacts from

watercourses overflowing and inundating a floodplain. He noted design considerations and

examples provided within the Guidelines are specific to storm drainage systems. They are not

intended to provide guidance on the design considerations of river flood mitigation structures.

[379]

According to the Director, there are other AEP storm drainage policies in addition

to the Guidelines, from which the concept of adequate outlets was developed. An adequate

outlet is a design consideration of a storm drainage system and not of a flood protection project.

The Director explained a storm drainage system which is considered to have an adequate outlet,

will discharge treated effluent from a storm drainage treatment facility at a rate which prevents

the impact of post development flows from being detected. An adequate outlet will perform

within its design capacity during the peak 1:100 24 hour storm event and will not create an

adverse effect on the environment.

[380]

The Director also stressed the Guidelines are a guidance document intended to

assist municipalities, local authorities, consulting engineers, and developers in the planning and

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design of storm drainage systems. He stated there is no legislative requirement the Guidelines

be applied by the Director in his review of the Application.

[381]

He further argued applying the Guidelines would change the design intent of the

project. He noted the Guidelines identify the importance of understanding floodplain inundation

for the purposes of developing watershed drainage plans. Floodplain inundation is a factor to be

considered when determining the placement of urban development and corresponding storm

drainage systems in a large area or watershed, and not for site-specific projects related to flood

protection.

[382]

The Board appreciates the Parties additional responses regarding the

Guidelines. As a general observation, the Board believes it would be helpful for AEP to issue a

guidance document reconciling the Water Act: Stormwater Management fact sheet,⁷⁹the

Guidelines, and the Wastewater and Storm Drainage Regulation⁸⁰with each other.

[383]

The Board acknowledges there is no clear definition of floodwaters. The

Board notes there appear to be two separate regulatory regimes for stormwater management

systems and flood mitigation works, and the Guidelines do not appear to apply to the SW Dike

project. However, while the Guidelines may not necessarily apply, some of the principles in

them may be of assistance. Specifically, the Board notes the Guidelines require the provision of

an adequate outlet, which if located on private land, requires the landowner’s consent. Under the

Guidelines a project proponent cannot simply send a significant amount of water towards its

downstream neighbours unchecked.

[384]

The Board understood from the evidence presented that the SW Dike project was

a flood mitigation project and not a stormwater management project. Consequently, in the

Director’s view, the Appellants and Intervenors are impacted by the SW Dike, but their land is

not appurtenant to the SW Dike. When asked if he would have considered if the Appellants’ and

Intervenors’ lands were appurtenant to the Approval if the Town applied for a pipe to be buried

under their lands to carry the floodwaters to the Little Bow River, the Director stated he would

have considered if their lands were appurtenant and if their consent as landowners were required.

79

Water Act: Stormwater Management, Alberta Environment and Parks, June 2018.

80

Wastewater and Storm Drainage Regulation, Alta. Reg. 119/1993.

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[385]

The Board is troubled by the Director not requiring the Appellants’ consent in

the scenario where the overland flow is redirected over their lands unchecked, but would

theoretically have required their consent for a pipe that would have allowed the overland flow to

be redirected in a far less impactful manner. While only a hypothetical, the Board considers this

example illustrative of the importance of section 37(4) of the Water Act,⁸¹appurtenance, and the

reason the Board is of the view the Director was too narrow in his interpretation of

appurtenance.

[386]

The Board notes that the Water Act requires all authorizations to have an

appurtenance statement.⁸²An authorization is inseparable from and runs with the undertaking or

land to which it is appurtenant.⁸³The Water Act further provides that if the licence holder does

not own the land or undertaking to which the licence is appurtenant, the licence holder must

acquire the consent of the owner of the land or undertaking. In the case of an approval holder,

the approval holder may be required to acquire the consent of the owner of the land or

undertaking.⁸⁴The Board further notes that AEP policy as set forth in the Guidelines Regarding

Appurtenance⁸⁵specifically provides that, for an application to be considered complete,

including applications for Water Act approvals, authorization holders that do not own the land or

undertaking to which the authorization is appurtenant must obtain the consent of the owner. The

Director also confirmed the need for consent when he stated the consent of the landowner is

typically required when an approval is appurtenant to the land.

[387]

The Board further notes that the predecessor to the Water Act, the Water

Resources Act, R.S.A. 1980, c. W-5 (“Water Resources Act”) contained similar language and

stated “… every permit, interim licence and licence issued pursuant to this Act shall specify on it

81

Section 37(4) of the Water Act provides: “If an applicant for an approval does not own the land in fee

simple or the undertaking to which the approval is to be appurtenant, if required by the Director, the applicant must

submit the written consent of the owner of the land or of the undertaking as part of the application for the approval.”

82

See section 45 (approvals), section 58 (licences), section 72 (preliminary certificates), and section 75

(registrations).

83

See section 45(2) (approvals), section 58(2) (licences), section 72(2) (preliminary certificates), and section

75(2) (registrations).

84

See section 37(4) (approvals), section 50(4) (licences), and section 81(4) and (5) (transfer applications

before the application is considered complete).

85

Guidelines Regarding Appurtenance, Alberta Environment and Parks, April 23, 2014, (“Guidelines

Regarding Appurtenance”).

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the land or the undertaking to which the licence to divert is appurtenant.”⁸⁶The Water

Resources Act also provided the permit, interim licence and licence were appurtenant to the land

or the undertaking, inseparable from the land or the undertaking, and ran with the land or the

undertaking. The Water Resources Act also provided all property and easements acquired

pursuant to a permit, interim licence, or licence were appurtenant to the land or undertaking,

were inseparable, and ran with the land or undertaking.

[388]

Of particular interest to the Board was section 34(1) of the Water Resources

Act, which required landowner consent to flooding caused by works, including dikes,⁸⁷located

on other land, prior to a licence being issued.⁸⁸Under this regime, after consent was acquired,

the Controller of Water Resources would issue a certificate setting out the facts regarding the

consent, provide it to the Minister, after which a licence was issued.

[389]

After the licence was issued, the Controller of Water Resources would issue a

certificate to the Registrar of Land Titles which stated the licence had been issued, information

regarding the licence, legal description of the lands on which the works are located, and legal

86

Section 23 of Water Resources Act provides:

“23(1) Every permit, interim licence and licence issued pursuant to this Act shall specify on it the

land or the undertaking to which the licence to divert water is to be appurtenant.

(2) Every permit, interim licence and licence and all property and easements acquired pursuant

thereto and all works constructed thereunder are appurtenant to the land or the undertaking

specified in the licence and are inseparable therefrom and pass therewith on any demise, devise,

alienation, transfer or other disposition of the land or undertaking whether by operation of law or

otherwise, unless the Lieutenant Governor in Council orders to the contrary in any case specified

in the order.”

87

Section 1(x) provides in part:

“works” means

(i) any structure, device or contrivance, …

and without restricting the generality of the foregoing, includes any dykes, dams, weirs, flood-

gates, breakwaters, drains, ditches, basins, reservoirs, canals, tunnels, bridges, culverts, cribs,

embankments, headworks, flumes, aqueducts, pipes, pumps, measuring weirs, any contrivance for

carrying or conducting water, and other works that are authorized to be constructed under this

Act.”

88

Section 34 of the Water Resources Act provides in part:

“34(1) When

(a) it appears from the application filed or the engineer's or other officer's inspection that land

other than that on which the works are located is or will be flooded,

(b) the registered owner of the land that is or will be flooded, and any purchaser of it who has filed

a caveat, have by writing consented to the construction of the works and the flooding of the land,

and …

the Controller of Water Resources may issue a certificate setting out the facts and forward it to the

Minister.”

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description of the portion of the lands affected by the works. On receipt of the certificate from

the Controller of Water Resources, the Registrar of Land Titles was required to register an

easement in favour of the land on which the works were located for the purposes and to the

extent shown in the application or plans. This easement ran with the land for the lifetime of the

licence,⁸⁹and the easement was appurtenant to the licence. The process of establishing the

appurtenance of impacted lands was described in the above-noted sections.

[390]

In the Board’s view, this was sound policy and consistent with the common

law pertaining to the torts of nuisance and trespass to property.⁹⁰The Board notes the mischief

the Water Resources Act appears to be trying to prevent was an inadvertent authorization of a

nuisance or trespass to the land of a neighbour or person downstream by the applicant. Though

89

Section 34(2) of the Water Resources Act provides in part:

“(2) On receipt of the certificate the Minister may issue a licence, and when the licence is issued

the Controller of Water Resources shall forthwith issue and forward to the Registrar of Land

Titles a certificate

(a) stating that the licence has been issued,

(b) stating the date of the licence and the name and address of the licensee,

(c) containing a description of the land on which the works are located, and

(d) containing a description of the portion of the land that will be affected by the works.

(3) In a certificate issued under subsection (2) the land shall be described by reference to the legal

description of the land affected or by reference to a plan or plans registered in the land titles

office.

(4) A certificate issued under subsection (2) shall be signed by the Controller of Water Resources

in the presence of a witness who shall attest it, but no other formality is required as a condition of

the acceptance of the certificate for registration.

(5) On receipt of the attested certificate of the Controller of Water Resources, the Registrar of

Land Titles shall without fee register the certificate against the land therein described, and

thereupon an easement is created whereby the owner of the servient tenement grants to the owner

of the dominant tenement the right to use his land for the purposes and to the extent shown in the

application or plans.

(6) The right runs with the land and is binding on the owner of the servient tenement, his heirs,

executors, administrators and assigns.”

90

In Rylands v. Fletcher, [1866] L.R. 1 EX 256, the Court established the tort of nuisance, the legal roots of

trespass to property, and entrenched the principles of strict liability and one’s right to enjoy their property free of

interference. In this particular case, Rylands had employed contractors to construct a reservoir on his land and those

contractors failed to properly seal a debris filled mineshaft. Shortly after the reservoir was filled, it burst and caused

flooding in a neighbouring mine. One of the determining factors in the case was Rylands having brought a large

amount of accumulated water onto his land for his own purpose and despite care taken, the water having caused

harm to Fletcher.

See also Kerlenmar Holdings Ltd. v. Matsqui (District).[1991] 5 W.W.R. 481, [1991] B.C.W.L.D. 1683

(BCCA). The defendant municipality along with another municipality was held liable in nuisance for the decreased

agricultural capacity of the plaintiff’s land which was caused by the increased urban growth of the defendant, who

drained its storm water drainage system into a creek that crossed the plaintiff’s land. The Court held the nuisance

was a continuing one, and a new cause of action arose each time damage occurred.

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the language has changed in the Water Act and simplified, these concepts appear to be carried

forward.

[391]

As noted several times in this Report, section 37(4) of the Water Act together

with AEP policy requires consent of the landowner if the work or activity is to take place on land

that is appurtenant to the approval and is not owned by the applicant. ⁹¹Section 1(1)(b) provides

in part that the definition of activity means: the placing, constructing, operating, maintaining,

removing and disturbing works; carrying out any undertaking; and altering the flow, direction of

flow or level of water or changing the location of water for the purposes of removing an ice jam,

drainage, flood control.⁹²An undertaking is further defined in the Water Act as a project

established or carried on pursuant to the Water Act by a person related to an activity, diversion of

water, or operation of works.⁹³The definition of works includes a structure, device, contrivance

and the land associated with it, and any mitigative measures associated with it.⁹⁴

91

“

Section 37(4) of the Water Act provides: If an applicant for an approval does not own the land in fee

simple or the undertaking to which the approval is to be appurtenant, if required by the Director, the applicant must

submit the written consent of the owner of the land or of the undertaking as part of the application for the approval.”

92

Section 1(1) of the Water Act provides in part:

“(b) ‘activity’ means

(i) placing, constructing, operating, maintaining, removing or disturbing works,

maintaining, removing or disturbing ground, vegetation or other material, or carrying out

any undertaking, including but not limited to groundwater exploration, in or on any land,

water or water body, that

(A) alters, may alter or may become capable of altering the flow or level of

water, whether temporarily or permanently, including but not limited to water in

a water body, by any means, including drainage,

(B) changes, may change or may become capable of changing the location of

water or the direction of flow of water, including water in a water body, by

drainage or otherwise,

(C) causes, may cause or may become capable of causing the siltation of water

or the erosion of any bed or shore of a water body, or

(D) causes, may cause or may become capable of causing an effect on the

aquatic environment;

(ii) altering the flow, direction of flow or level of water or changing the location of water

for the purposes of removing an ice jam, drainage, flood control, erosion control or

channel realignment or for a similar purpose;

(iii) drilling or reclaiming a water well or borehole;

(iv) anything defined as an activity in the regulations for the purposes of this Act

but does not include an activity described in subclause (i) or (ii) that is conducted by a licensee in

a works that is owned by the licensee, unless specified in the regulations;”

93

Section 1(1) (ddd) of the Water Act provides:

“(ddd) ‘undertaking’ means a project that is established, proposed to be established, required to

be established or carried on pursuant to this Act by any person and that is related to

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[392]

The current legislation recognizes persons who are directly affected.⁹⁵It is the

effects of proposed activities that a proponent must try to mitigate. As noted previously, at the

hearing, the Board was presented with a copy of the flood easement agreements the Town

provided to the Appellants and Intervenors. The Board understood that these flood easements

were intended to compensate persons whose properties were affected by the SW Dike for the

incremental differences in inundation to their properties. The Board heard the Director was

provided copies of the flood easement agreements, however he does not appear to have required

them to be signed prior to making his decision to issue the Approval.

[393]

The Board further heard from the Director he considered the Appellants and

Intervenors directly affected because the proposed activity impacted their properties. The Board

further heard he considered the impacts to be to bare land, and consequently did not consider

those impacts to be significant when compared against the risks faced by the Town if the

Approval were not issued. The Director stated financial compensation and development

potential were outside of his considerations under the Water Act.

[394]

In the Board’s view, the Director was overly narrow in his interpretation of

appurtenance, his minimization of the impacts to the Appellants’ and Intervenors’ properties,

and whether landowner consent was required. It is apparent from review of the historical and

neighboring legislation that appurtenance and consent are about more than solidifying the

applicant’s rights of access around or the use of the locations required for the works and

undertakings. In this context, consent must also mean consent to materially impact property

owned by others. Such consent would be consistent with the common law on nuisance and

trespass, and avoids an inadvertent authorization of either tort.

(i) an activity, diversion of water or operation of a works, and

(ii) anything that is defined as an undertaking in the regulations for the purposes of this Act;”

94

Section 1(1)(mmm) of the Water Act provides:

“(mmm) ‘works’ means any structure, device or contrivance made by persons, or part of it,

including a dam and canal, and

(i) land associated with it, and

(ii) mitigative measures associated with it,

and includes anything that is defined as a works in the regulations for the purposes of this Act.”

95

See section 109(1)(a) of the Water Act and sections 44(6) and 73(1) of EPEA for examples of the use of

directly affected.

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[395]

Moreover, AEP polices recognize the need to obtain consent to materially

impact property. For example, the Dewatering/Pumping Approval Application Requirements,

state an application for dewatering must in addition to providing the dewatering site or source of

flooding (legal land description), provide the landowner’s consent of the land receiving the

water. ⁹⁶The Guidelines Regarding Appurtenance state for an approval issued for the purposes

of a stockwatering dam or fish ponds, if flooding of lands occurs on lands not owned by the land

owner at the point of diversion, the project may be appurtenant to the undertakings (points of

use). The Guidelines Regarding Appurtenance further provide in such scenarios, and in

scenarios where reservoirs are constructed, the points of use are lands affected by the

storage/flooded area.⁹⁷By operation of the legislation and AEP policy, once the lands are

appurtenant to the approval, if not owned by the applicant, consent of the landowner must be

acquired.

[396]

The Board heard the Director determined the Appellants were impacted by the

activity, but those impacts were not significant because they were to bare land. The Board

further heard from the Town and the Director that the Town was limited in the design choices

available to the Town, and the choice was to impact bare land or for critical infrastructure in the

Town to remain unprotected.

[397]

The Board notes prepared three different project designs: the reverse “S”

curve, the “Hockey Stick,” and the “S” curve. The Town had more than one design option

available to choose from, which likely would have impacted the Appellants’ lands to a lesser

degree. ⁹⁸The Board further notes the Town chose a design which intentionally cuts off two

fingers of the overland flow travelling towards the East and redirected their flow to the South.

[398]

The Town was able to design the SW Dike with a fair bit of precision and

made an informed choice in selecting the SW Dike’s design. As noted above, the Town’s expert

presented evidence the 2013 Flood Model had an error margin of +/- 0.3 metres, and on the Edey

properties, the error margin far less, 0.10-0.15 metres.

96

Dewatering/Pumping Approval Application Requirements, Alberta Environment and Parks, April 3, 2018,

at pages 1 and 2.

97

Guidelines Regarding Appurtenance, at page 6.

98

Attached as Appendix “G” is Draft Figure 28A – Predicted Flood Levels at the Peak of the ‘June 2013 –

1,820cms’ Flood for the Post-Mitigation Conditions, Southwest Dike Choose-Design Report, ISL Engineering and

Land Services, February 2016, Director’s Record, Tab 65, at page 53.

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[399]

In this case, the Town has taken control of the overland flow of floodwaters

from High River as it travels towards the Little Bow River, and changed its direction. In the

Board’s view the Appellants’ and Intervenors’ properties are integral to the design and function

of the SW Dike, as the overland flow is being directed downstream and towards their properties.

The overland flow must pass over their lands to reach the Little Bow River. Ideally, the Director

should have considered if there was a material change in the overland flow of floodwaters over

the Appellants’ and Intervenors’ properties, and how this change in overland flow may impact

the Appellants’ and Intervenors’ properties. The Board distinguishes this from the Director’s

considerations of whether the impacts of the activity are hydraulically significant. The Board

considers this an important nuance, as consideration of the impacts of the activity on the

Appellants and Intervenors goes beyond an environmental consideration of the watershed in

which they reside. The Appellants and Intervenors each have individual concerns in their

statements of concerns, are each uniquely impacted, and what may not be significant when

viewed against the watershed, may be significant when considered on an individual basis.

[400]

As brief examples, Mr. R. Macklin stated that he would now have to flood

proof buildings, reconsider gifting his daughter a parcel, and relocate a planned business. He

further expressed concerns regarding his access road that he shares with the Intervenors, which

will receive more overland flow, may be eroded or damaged. Mr. Howie stated that water had

been removed from a non-developable area to a highly developable area. Mr. Edey stated that

water had been moved from his East Property to his West Property, and that the West Property

had irrigation infrastructure, was actively farmed and a workshop/garage located on it. All the

Appellants expressed concerns regarding the loss in value, development potential, and the

salability of their properties. The Board notes that almost all the Appellants’ and Intervenors’

properties were being actively used in agricultural production, some had irrigation infrastructure,

and other infrastructure located on them.

[401]

The potential impacts to the Appellants and Intervenors are greater than those

faced by bare land. The Appellants and Intervenors noted these concerns in their statements of

concern, submissions, and during the hearing.

[402]

A change in the overland flow of floodwaters can entail a withdrawal of

overland flow from a property, or the redirection of overland flow over a property. The degree

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to which the change in overland flow materially impacts a property should form part of the

consideration. In the case of the Appellants and Intervenors, it happens to be a withdrawal of

overland flow from one portion of their property and a redirection of overland flow to another

portion of their property.

[403]

Applying the concept of change in overland flow to the Appellants and the

Intervenors, each of the Appellants and the Intervenors will experience a marked change in the

overland flow over their properties. The result of this change in overland flow is lost

development potential, risk of damage to infrastructure, risks to some of the Appellants’ and

Intervenors’ livelihoods, and safety concerns. On an individual basis, the change in overland

flow appears to have greater impacts to each Appellant and the Intervenors, than when

considered as a part of the larger watershed. The redirection of overland flow will result in a

material impact to the Appellants’ and Intervenors’ properties. In the Board’s view, the Director

should have considered this material impact to the Appellants and Intervenors’ properties in the

context of appurtenance and section 37(4), once he determined the Appellants and Intervenors

would be impacted by the redirected overland flow.

[404]

Moreover, in the Board’s view, the Director should have required the Town to

obtain the Appellants and Intervenors’ consent for removing the overland flow from their lands

and their consent for redirecting the overland flow to a different location on their lands, pursuant

to section 37(4) of the Water Act.⁹⁹In addition, it is also the Board’s view that in these

circumstances, given the individual impact of the SW Dike on the Appellants and the

Intervenors, there is no substantive reason that would cause the Director to deviate from AEP

policy to require such consent.

[405]

As the Appellants and Intervenors’ properties are integral to the design and

proper function of the SW Dike, the Board finds the Appellants’ and Intervenors’ properties

should be appurtenant to the Approval. In making this finding, the Board notes the Director’s

comments this is a departure from the norm. The Board also notes the Director did not elaborate

on why it was a departure to include the Appellants’ or Intervenors’ properties or the

consequences arising from including their properties. In the Board’s view it is prudent to

99

“

Section 37(4) of the Water Act states: If an applicant for an approval does not own the land in fee simple

or the undertaking to which the approval is to be appurtenant, if required by the Director, the applicant must submit

the written consent of the owner of the land or of the undertaking as part of the application for the approval.”

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preserve the design and function of the SW Dike, and include all the lands necessary to its

proper function.

[406]

Moreover, as the Approval essentially authorizes a change in the overland flow

of floodwaters that may flow over the Appellants and Intervenors’ properties and a subsequent

material impact to the Appellants’ and Intervenors’ properties, the Board finds the Town should

have been required to obtain the written consent of the Appellants and Intervenors to the

withdrawal and redirection of overland flow pursuant to section 37(4) of the Water Act. The

Board again notes that it would be a departure from AEP policy for the Director not to require

consent for all lands to which the Approval is appurtenant.

[407]

The Board notes the Director stated matters of financial compensation are

outside of the considerations of the Water Act. However, in determining the Appellants and

Intervenors impacts were insignificant and to bare land, and by not requiring their consent as

landowners, the Director in effect made a determination that the Appellants and Intervenors were

not entitled to compensation for the material impacts to their properties. The Board is not

deciding financial compensation by requiring their consent to the impacts to their properties, and

notes there is more than one way or means by which impacts can be mitigated and consent

established.

[408]

As one final issue the Board notes that the flood hazard mapping has yet to be

published for High River. The Board heard evidence that the SW Dike was likely going to

impact the flood hazard mapping. The Board recommends that the Town be required to submit

the as-built plans for the SW Dike as well as any other information requested by AEP to assist

with the flood hazard mapping.

V.

CONCLUSION

[409]

The issues before the Board were:

1.

The accuracy and reliability of the technical and scientific studies that

informed the Director’s decision to issue the Approval. This includes but

is not limited to any modelling that was undertaken.

2.

3.

The appropriateness of constructing a dike in a floodway or floodplain as

authorized by the Approval under appeal before the Board.

Are the terms and conditions of the Approval appropriate having regard to

the potential environmental impact of the approved activity? This

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includes but is not limited to the potential impact of the Approval on each

of the Appellants (i.e. property, business, safety).

[410]

The onus is on the Appellants to provide sufficient, reliable, and relevant

evidence for the Board to recommend to the Minister to confirm, reverse, or vary the Approval.

The Board finds that in principle, the terms and conditions of the Approval are appropriate.

However, the Board also finds that the evidence supports a recommendation that the Approval

be varied.

[411]

The Board is recommending the Approval be varied by making the Appellants’

and Intervenors’ lands, and Mr. Gerrit and Ms. Jantje Top’s¹⁰⁰land, appurtenant to the Approval.

[412]

The Board is recommending the Director reassess the accepted statements of

concern to determine which lands should be appurtenant to the Approval and that the Director

prescribe those lands in writing to the Approval Holder.

[413]

The Board is further recommending that in accordance with section 37(4) of the

Water Act and AEP policy, the Town provide the written consent of the owners of lands

appurtenant to the Approval that it does not own within six months of the date of the Minister’s

decision.

[414]

The Board is recommending the Town be given six months to acquire the

consents of the landowners of the lands appurtenant to the Approval that it does not own, and the

Director be given the discretion to extend the time to acquire the consents if necessary.

[415]

The Board is further recommending the Town provide its as-built plans for the

SW Dike and any other information required by AEP to assist with AEP’s flood hazard

mapping.

[416]

As a general observation, the Board believes it would be helpful for AEP to issue

a guidance document that reconciles the Water Act: Stormwater Management fact sheet,¹⁰¹the

Guideline, and the Wastewater and Storm Drainage Regulation¹⁰²with each other.

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Mr. Gerrit and Ms. Jantje Top had filed an appeal of the Approval (19-090), but withdrew their appeal

shortly before the hearing. Based on the information before the Board, the Board considers it appropriate to make

their land appurtenant to the Approval.

101

Water Act: Stormwater Management, Alberta Environment and Parks, June 2018.

102

Wastewater and Storm Drainage Regulation, Alta. Reg. 119/1993.

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VI.

RECOMMENDATIONS

[417]

The Board recommends the Minister vary the Approval as follows:

Amend condition 3.0 by adding the following after (a):

1.

“(b) All of the Legal Subdivisions 11 and 12 and the South Halves of

Legal Subdivisions 13 and 14 in the NW 25-18-29-W4M,

containing 48.6 hectares (120 acres) more or less, excepting

thereout Plan 0213185 Subdivision, 6.57 hectares (16.23 acres);

Plan 0219185, Black 4, Lot 1, in NW 25-18-29-W4M, containing

approximately 16.24 acres;

The North Halves of Legal Subdivisions 5 and 6 in the SW 25-18-

29-W4M containing 8.09 hectares (20 acres) more or less;

Plan 1014136, Block 1, Lot 4, containing 4.05 hectares (10.0

acres), in the SE 25-18-29-W4M;

Plan 1014136, Block 1, Lot 1, containing 3.33 hectares (8.23

acres), in the SE 25-18-29 W4M;

Plan 0213188, Block 1, Lot 1, containing 65.2 hectares (161.11

acres) more or less, in the NW 25 and SW 36-18-29-W4M; and

NE25-18-29W4; and

(c)

any other lands as the Director prescribes in writing pursuant to the

Minister’s Order in the appeal of this Approval.”

2.

3.

By adding the following condition after condition 3.1:

“3.1.1 The Approval Holder shall within six months of the date of the

Minister’s Order in the appeal of this Approval, acquire and submit the

written consent of the owners of the lands listed in Condition 3.0(b) and

(c) for the use their lands arising from the Activity.”

By adding the following condition after condition 5.1:

“5.2 The Approval Holder shall submit

(a)

(b)

the as-built plans for the undertaking; and

any other information requested in writing by the Director.”

[418]

The Board is recommending that within 60 days of the Minister’s decision, the

Director review the statements of concern accepted in relation to Water Act Application No.

001-00419723, determine which of the lands associated with those statements of concern, if any,

should be appurtenant to the Approval, and provide written notice to the Approval Holder to

include those lands as being appurtenant.

[419]

The Board is further recommending that, in accordance with section 37(4) of the

Water Act and AEP policy, the Town be required to provide the written consent of the

Classification: Public

Appendix “A” - Town of High River Flood Mitigation Program

Classification: Public

Appendix “B” – Predicted Changes in Peak 1:100 Flood Flow Velocities (53A vs 37A)

* Note this figure also demonstrates the areas that will be dry before and after the addition of the SW Dike

Classification: Public

Appendix “C” – Predicted Changes in Flood Flow Velocities (53A vs 37A)

for a Flow Magnitude of 1820m³/s

* Note this figure also demonstrates the areas that will be dry before and after the addition of the SW Dike

Classification: Public

Appendix “D” – Model Accuracy on the Edeys Properties

Classification: Public

Appendix “E” – Flood Fringe and Floodway in the Vicinity of the SW Dike

Classification: Public

Appendix “F” – General Flood Hazard Area Diagram

Classification: Public

Appendix “G” – Draft Figure 28(A) Predicted Flood Levels at the Peak of the ‘June 2013 –

1,820cms’ Flood for Post Mitigation Conditions, “Hockey Stick” Design

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2 0 2 2 A B E A B 2 5 ( C a n L I I )