National Assessment of First Nations Water and Wastewater Systems: 2009 to 2011
A comprehensive assessment of 4,000 water and wastewater systems serving 571 participating First Nations that was conducted between 2009 and 2011.
On this page
Process
The purpose of the national assessment was to define deficiencies and operational needs of water and wastewater systems in First Nations communities, as well as to recommend infrastructure development strategies over 10 years.
Neegan Burnside, the independent contractor that conducted the national assessment, visited and assessed 4,000 on-reserve communal water and wastewater systems, as well as other systems such as wells, cisterns, and septic systems, serving 571 First Nations communities.
From September 2009 to November 2010, Neegan Burnside inspected:
- 1,300 water and wastewater systems
- 800 wells
- 1,900 septic fields
First Nations communities helped gather information on existing water and wastewater systems and coordinating site visits. Discussions with band officials, water and wastewater operators and others during site visits contributed to the information gathered on community systems and requirements. The contractor collected background data and information about each community then prepared individual community reports for each participating First Nation. Draft reports were shared with the First Nation to enable each community to provide feedback on their report prior to its finalization.
The national assessment provides a more complete picture of water and wastewater infrastructure on First Nations by reviewing a broader range of systems including:
- private systems
- systems belonging to Self-Governing First Nations
- off-reserve systems providing services to on-reserve communities
The assessment also included the inspection of a larger number of water and wastewater systems than in the past. Over 200 more water systems were evaluated than in the 2006 inspection process.
Results of the national assessment were announced on July 14, 2011. The national assessment cost approximately $9.3 million.
Risk assessment
The national assessment reports include a risk assessment rating for each of the water and wastewater systems in the participating First Nations communities. Risk is assessed in order to determine how well a system is functioning and what maintenance and repairs are required.
Risk is assessed for 5 aspects of a water or wastewater system:
- system design (30%)
- system operation and maintenance (30%)
- operator training and certification (20%)
- record keeping and reporting (10%)
- analysis of the water source and wastewater effluent receiver (10%)
Each element of a system is assigned a low, medium or high risk ranking based on a scale between 1 and 10. It is important to note that these risk numbers are only a measure of the overall system management risk and not a measure of water safety or quality.
A low risk system indicates that there were few or no deficiencies found when the system was inspected. Medium risk systems have minor deficiencies in several areas or major deficiencies in one or two areas. A high-risk drinking water system is defined as a system that has major deficiencies in several aspects, from technical such as water source, design and operation, to administrative such as reporting and operator training. In many cases, systems identified as "high risk" are providing safe water to communities.
Cost estimates
The national assessment reports include cost estimates and projections provided by the independent contractor. These can be divided into 2 categories: the cost of upgrading First Nations water and wastewater systems to meet the department's water and wastewater protocols, and the cost of meeting the population and housing growth in these communities over the next 10 years.
The financial figures in the National Assessment results are estimates and projections to be used as a tool for financial planning. They are not actual costs. As the contractor notes in the report, the National Assessment's 10-year growth estimates were based on a series of assumptions. For example, the national assessment recommends full piped systems for many communities where such a system may not be the most cost-effective or sustainable option that also meets health and safety requirements. Another example is future growth requirements which are based on a projected housing growth of 4,400 houses per year. This is significantly higher than the average net growth of 1,700 houses per year over the 5 years prior to the national assessment being conducted.
Water and wastewater protocols
The results of the national assessment included the estimated cost of upgrading First Nations water and wastewater systems to meet the standards outlined in the department's water and wastewater protocols.
The protocols are standards for the design, construction, operation, maintenance and monitoring of water and wastewater systems on reserve that receive funding through the department. These standards provide direction to First Nations on issues such as water treatment, management and design of water systems.
These protocols complement local provincial standards or regulations. If the provincial standards are more stringent than the requirements of these protocols, then the higher objective shall be adhered to.
The department has established 3 protocols:
Data verification
Several steps were taken to verify the data in the National Assessment and it is important to recognize that many aspects of a water system can change frequently. Annual inspections of water and wastewater systems are conducted to provide more recent information. Detailed financial planning is conducted through the processes the department has developed with First Nations, including priority rankings and feasibility studies, prior to investing in major capital projects.
Results
The results were compiled into a national summary, a national roll up report and 8 regional reports.
The results of the national assessment included recommendations made by the independent contractor to help the department address the water and wastewater needs of First Nations communities across Canada. These recommendations focused on:
- infrastructure
- capacity and operations
- standards and regulations
The results demonstrate a range of actions are needed to address current and future water and wastewater system needs in First Nations communities. While funding for capital projects is a possible solution, design only accounts for 30 per cent of the risk identified. Operation and maintenance, operator qualification and record keeping account for 60 per cent of the risk measured.
This highlights that although design and construction are important, once a system is built, ensuring that it continues to produce safe water for a community is dependent on the people operating the system. The report underscores the vital importance of having trained and certified operators for reducing risk and helping to ensure safe drinking water in First Nations communities.
The costs outlined in the National Assessment are estimates which were provided to support planning to meet both short-term and long-term water and wastewater needs of First Nation communities. However, the estimates will not replace the more detailed feasibility studies needed to assess and price specific projects.
National report
Key findings
Water Systems
Of the 807 water systems inspected the contractor assessed:
- 39 per cent were high overall risk
- 34 per cent were medium overall risk
- 27 per cent were low overall risk
Of the 314 water systems labelled high risk, 161 were under drinking water advisories in February 2011. These advisories impacted up to 18,900 people, approximately 3.9 percent of the total on-reserve population cited at the time.
Wastewater Systems
Of the 532 wastewater systems inspected the contractor assessed:
- 14 per cent were high overall risk
- 51 per cent were medium overall risk
- 35 per cent were low overall risk
The majority of high risk systems serve a small population
Water systems in remote communities are 2.5 times more likely to be high risk than low risk. The assessment suggests that overall risk of a water system increases with remoteness, and some regions have more remote communities than others. Remoteness influences a number of aspects of running a water and/or wastewater system, including the availability of trained operators, or access to parts and repair services.
The number of municipal type agreements (MTAs), agreements that First Nations make with neighbouring off-reserve communities for the supply of water and/or wastewater services, also varies across the regions. Communities with MTAs tend to have lower overall water risk scores.
Cost estimate
Contractor's total estimated cost to meet water and wastewater protocols: $1.2 billion
Note: This includes, amongst other factors, the development of better management practices, improved operator training, increasing system capacity, and the construction of new infrastructure when required.
Contractor's cost projection over 10 years to ensure that water and wastewater systems are able to grow with First Nation communities: $4.7 billion
Note: Of this, the contractor estimated future servicing costs in excess of $60,000 per home for 55 per cent of the communities. As this cost per home is high, the contractor also recognized that, at a certain point, the cost of providing a typical servicing solution may begin to exceed the benefits of that solution.
Regional reports
Each regional report included data for each of the 571 First Nations communities visited. Recommendations were included in each report and help provide the department, First Nations and other stakeholders with a starting point in addressing the needs identified in the national assessment.
The reports, developed by engineers after on-site visits, describe:
- current service methods
- system performance
- operating practices
- compliance with applicable standards
These reports provide:
- a detailed record of the various types of water and wastewater systems used in these communities
- comprehensive evaluations of the systems using a risk rating
- cost estimates and overall recommendations to help with financial planning and decision making
- a serviceability analysis to identify and recommend appropriate water and wastewater services for each community.
Atlantic Region
Atlantic Regional Roll-Up Report
Summary:
The national assessment surveyed water and wastewater systems in 33 First Nations in the Atlantic provinces.
Risk
Water systems inspected: 35
- High risk: 6
- Medium risk: 19
- Low risk: 10
Wastewater systems inspected: 28
- High risk: 7
- Medium risk: 12
- Low risk: 9
Cost estimate
Total estimated cost to meet the department's protocols: $42 million
Projections for servicing cost over 10 years: $210 million
Quebec Region
Quebec Regional Roll-Up Report
Summary:
The national assessment surveyed water and wastewater systems in 37 First Nations in Quebec.
Risk
Water systems inspected: 39
- High risk: 7
- Medium risk: 12
- Low risk: 20
Wastewater systems inspected: 39
- High risk: 7
- Medium risk: 26
- Low risk: 6
Cost estimate
Total estimated cost to meet the department's protocols: $28 million
Projections for servicing cost over 10 years: $380 million
Ontario Region
Ontario Regional Roll-Up Report
Summary:
The national assessment surveyed the water and wastewater systems of 120 First Nations in Ontario.
Risk
Water systems inspected: 158
- High risk: 72
- Medium risk: 61
- Low risk: 25
Wastewater systems inspected: 77
- High risk: 28
- Medium risk: 38
- Low risk: 11
Cost estimate
Total estimated cost to meet the department's protocols: $309 million
Projections for servicing cost over 10 years: $1 billion
Manitoba Region
Manitoba Regional Roll-Up Report
Summary:
The national assessment surveyed the water and wastewater systems of 62 First Nations in Manitoba.
Risk
Water systems inspected: 74
- High risk: 21
- Medium risk: 32
- Low risk: 21
Wastewater systems inspected: 61
- High risk: 6
- Medium risk: 38
- Low risk: 17
Cost estimate
Total estimated cost to meet the department's protocols: $82 million
Projections for servicing cost over 10 years: $690 million
Saskatchewan Region
Saskatchewan Regional Roll-Up Report
Summary:
The national assessment surveyed the water and wastewater systems of 69 First Nations in Saskatchewan.
Risk
Water systems inspected: 103
- High risk: 27
- Medium risk: 47
- Low risk: 29
Wastewater systems inspected: 88
- High risk: 4
- Medium risk: 44
- Low risk: 40
The operator risk scores were very low in Saskatchewan as a result of an aggressive and effective program that facilitates the certification of First Nations water and wastewater operators. This program is supported by an effective regional Circuit Rider Program.
Cost estimate
Total estimated cost to meet the department's protocols: $203 million
Projections for servicing cost over 10 years: $680 million
Alberta Region
Alberta Regional Roll-Up Report
Summary:
The national assessment surveyed the water and wastewater systems of 44 First Nations in Alberta.
Risk
Water systems inspected: 82
- High risk: 21
- Medium risk: 48
- Low risk: 13
Wastewater systems inspected: 73
- High risk: 12
- Medium risk: 44
- Low risk: 17
Cost estimate
Total estimated cost to meet the department's protocols: $162 million
Projections for servicing cost over 10 years: $800 million
British Columbia Region
British Columbia Regional Roll-Up Report
Summary:
The national assessment surveyed the water and wastewater systems of 188 First Nations in British Columbia.
Risk
Water systems inspected: 290
- High risk: 154
- Medium risk: 52
- Low risk: 84
The majority of high risk systems serve a small population and 42 per cent of the systems in British Columbia are classified as small systems.
Wastewater systems inspected: 153
- High risk: 8
- Medium risk: 69
- Low risk: 76
Cost estimate
Total estimated cost to meet the department's protocols: $324 million
Projections for servicing cost over 10 years: $710 million
Yukon Region
Summary:
The national assessment surveyed the water and wastewater systems of 17 First Nations in the Yukon.
Risk
Water systems inspected: 24
- High risk: 6
- Medium risk: 5
- Low risk: 13
Wastewater systems inspected: 11
- Medium risk: 1
- Low risk: 10
Cost estimate
Total estimated cost to meet the department's protocols: $11 million
Projections for servicing cost over 10 years: $50 million