Water Allocation in the Red Deer River Watershed: Balancing Needs in a Changing Climate

The Red Deer River watershed plays a vital role in central Alberta's water security, facing increasing pressures from competing demands and climate change impacts. This comprehensive analysis examines the complex systems governing water allocation in this crucial watershed, exploring current frameworks, challenges, and future adaptation strategies to ensure sustainable water management.

Geographic and Hydrologic Context

The Red Deer River watershed occupies 49,650 square kilometers or approximately 8% of Alberta's landmass, making it a significant hydrological feature in the province1. The watershed stretches across five distinct natural regions—Rocky Mountains, Foothills, Boreal Forest, Parkland, and Grassland—creating a diverse landscape with varying precipitation patterns and water needs13. The river's headwaters originate in the Skoki Valley of Banff National Park, with the river flowing eastward over 724 kilometers before joining the South Saskatchewan River in Saskatchewan1.

Despite its considerable size, the Red Deer River Basin has a relatively narrow western portion compared to the Bow and Oldman River basins, resulting in a much smaller land base in the high mountains and foothills where winter snows and summer rains significantly contribute to annual river flow volumes2. This geographic limitation has important implications for water availability within the watershed, as the mountain and foothill lands in the Bow and Oldman basins account for their annual river volumes being more than double that of the Red Deer River2.

The watershed is home to approximately 300,000 people, with about one-third living in the City of Red Deer12. There are 55 urban and 18 rural municipalities within the basin, with population density being highest along the Highway 2 corridor2. The watershed also contains 15 smaller sub-watersheds, creating a complex hydrological system that requires careful management19.

Flow patterns in the Red Deer River exhibit significant seasonal and annual variability. The mean annual discharge at the City of Red Deer is 47.5 m³/s with a contributing drainage area of 11,600 km²4. Recorded annual flow volumes have ranged dramatically from a high of 4.0 billion m³ in 1954 to a low of 0.66 billion m³ in 1984, with a long-term average of 1.5 billion m³4. Under natural conditions, approximately 75% of the median annual flow occurs during the summer months2.

Legal Framework Governing Water Allocation

The Water Act and FITFIR Principle

Water allocation in the Red Deer River watershed is governed by Alberta's Water Act of 2000, which establishes the legal framework for managing water resources throughout the province58. A cornerstone of Alberta's water allocation system is the "First in Time, First in Right" (FITFIR) principle, which has been in place since 1894 when the North-West Irrigation Act was first established67.

Under the FITFIR system, water licenses are assigned priority numbers based on the date a complete application was received56. During water shortages, senior license holders (those with earlier priority dates) have the right to receive their full allocation before junior license holders receive any water57. This priority-based system does not distinguish between types of water use; priority is solely determined by application date6.

As stated in the Alberta Water Act fact sheet: "This 'First in time, first in right' (FITFIR) system has been a key principle of granting and administering water allocations in Alberta since 1894"6. However, this system has been criticized, particularly by Indigenous communities who point out that it was "created without the consent of the Crown's Treaty Partners"16.

Water Licenses and Components

Each water license in Alberta consists of five key components6 7:

Priority number
Maximum annual water volume
Maximum diversion rate
Source and location
Purpose for use

The Water Act also includes provisions for water mastering, priority calls (Section 30), water sharing (Section 33), and transfers (Section 81)67. During water shortages, license holders can "call priority" to assert their right to water based on seniority, or they can voluntarily participate in water sharing agreements to distribute the available supply more equitably7.

Current Water Allocation in the Red Deer River Watershed

Allocation Limits and Current Status

The Approved Water Management Plan for the South Saskatchewan River Basin (2006) established a total surface water allocation target for the Red Deer River watershed of 550,000 dam³ (cubic decameters), representing approximately 33% of the mean annual flow215. This limit was strategically set lower than for the Bow and Oldman rivers to regularly meet water conservation objectives15.

As of recent data, approximately 300,000 dam³ or 55% of this limit has been allocated, leaving about 250,000 dam³ available for future allocations15. In more specific terms, as of February 2020, total surface water allocations in the basin were 307,045 dam³, including both term licenses (300,904 dam³) and Temporary Diversion Licenses (TDLs) (6,141 dam³), equating to 51% of the allocation target13.

The management plan stipulates that when the allocation limit of 550,000 dam³ is approached, the Province must review the health of the river, and if conditions warrant, the allocation limit may be increased to 600,000 dam³215.

Sectoral Water Allocation

Water allocations in the Red Deer River watershed are distributed across various sectors, with agriculture being the largest water user. Based on February 2020 data for term surface water allocations13:

Agriculture: 31%
Municipal use: 27%
Industrial use: 23%
Water management: 12%
Commercial use: 4%
Other uses: 3%

Within these broader categories, hydraulic fracturing accounts for a relatively small portion at 0.76% of all term allocations, or 2.73% if both term and TDL licenses are considered13.

Of the remaining 250,000 dam³ available for allocation, proposed agricultural and irrigation projects in the Special Areas and Acadia Valley may require approximately 90,000 dam³, leaving about 160,000 dam³ for other water use sectors15. This highlights the continuing pressure on water resources in the watershed, particularly from agricultural expansion.

Indigenous Water Rights and Issues

Historical Context and Treaty Rights

The Red Deer River watershed spans both Treaty 6 and Treaty 7 territories, and Indigenous water rights in this region present a complex historical and legal landscape17. When the FITFIR water licensing system was established in 1894, it was created without Indigenous consent, a fact that continues to be a point of contention1617.

Under Treaty 7, there was no separate mention of waters aside from giving the Crown certain navigation rights17. The absence of specific water provisions suggests that all other water rights were retained by Indigenous communities, who would have held common law riparian rights allowing water use for domestic purposes17.

As Jesse Cardinal, Keepers of the Water executive director, states: "We are looking at an outdated water licensing process purposely created without Indigenous Traditional Knowledge, and we are currently experiencing the results of the absence of Indigenous Science"16. This critique highlights the fundamental issues with the current water governance system from an Indigenous perspective.

Current Challenges and Advocacy

Most First Nations continued using water without licenses, and now would only qualify for junior licenses that might provide no water during droughts17. Indigenous communities assert inherent water rights predating settlement and advocate for co-management of water resources16 1718.

Indigenous groups strongly advocate for co-governance approaches to water management. As expressed by Keepers of the Water: "We strongly advocate for co-management with First Nation and Métis communities in water management in Alberta. Indigenous Peoples' right to water governance in our traditional territories is not just a solution but the only way to ensure sustainability for all future generations"16.

The federal government has expressed commitment to establishing water co-governance agreements with Indigenous governing bodies to better recognize their rights and authorities over water in their territories18. The brief to the Standing Committee on Environment and Sustainable Development recommends: "Establish the ability of the federal government to create water co-governance agreements with Indigenous governing bodies within the Canada Water Act"18.

Climate Change Impacts on Water Availability

Historical Trends and Projected Changes

Climate change poses significant challenges for water allocation in the Red Deer River watershed. Historical data already shows a slight decline in river flows at a rate of approximately -0.13% per year1921. If this trend continues, it could result in a 10% reduction in flows from the mid-1970s to mid-2050s19.

The Red Deer River Basin is situated between the warmer, drier climate of southern Alberta and the generally cooler, wetter climate of northern Alberta, making it particularly sensitive to climate shifts3. Temperature increases are projected to be substantial, with average temperatures expected to rise by 2.2°C by 2050 and 3.8°C by 2080319.

These warming temperatures will significantly impact the watershed's hydrology in several ways:

Earlier snowmelt: Modeling studies suggest that snow melt could occur 10-38 days earlier in the year319.
Altered seasonal flow patterns: Higher spring flows are expected due to earlier snowmelt, while summer, fall, and winter flows are projected to decrease3 1921.
Increased evapotranspiration: Higher temperatures will lead to increased evaporation from reservoirs and lakes, and plants will need more water due to higher rates of transpiration319.
Greater variability: Models suggest increased climate variability with both extreme flooding and extended droughts possible, sometimes within the same 30-year timeframe319.

As one study notes: "Single lowest annual flow year and the single wettest annual flow year could occur within the same 30-year timeframe"3. This increased variability presents significant challenges for water management and allocation policies.

Implications for Water Supply and Demand

The Pembina Institute report "Heating Up in Alberta: Climate Change, Energy Development and Water" emphasizes that "available fresh water resources [are] expected to decrease as a result of climate change," while Alberta simultaneously faces "growing demand for water for energy production and to meet the needs of a growing population"20.

For the Red Deer River specifically, projections indicate a 13% decrease in summer stream flows by 2050 at the Blindman location19. This reduction in water availability during peak demand periods will exacerbate competition among water users and potentially test the FITFIR allocation system during drought conditions.

Management Strategies and Adaptation Initiatives

Infrastructure Development and Studies

Recognizing the challenges of future water security, the Alberta government is investing in water management infrastructure. In 2024, the provincial government announced plans to invest more than $35 million to "help maximize how water is used and prevent future droughts from affecting communities," if Budget 2024 passes22. This includes $4.5 million specifically allocated to study a new water reservoir in the Red Deer Basin at Ardley, a hamlet near the City of Red Deer22.

This potential reservoir project aligns with recommendations from the Adaptation Roadmap for Sustainable Water Management in the South Saskatchewan River Basin, which proposed "a new reservoir midstream in the Red Deer system, potentially at the previously identified Ardley site, to support and enable significant future growth in the sub-basin by providing water supply security for future licences and to offer flood mitigation to downstream communities"23.

Water Sharing and Drought Response

In response to drought concerns, Alberta has established a Drought Command Team and completed a 2024 Drought Response Plan24. A key component of this response involves facilitating water sharing agreements among license holders through Memorandums of Understanding (MOUs)24.

Red Deer County is a participating signatory for the Red Deer River Basin Water Sharing MOU, demonstrating local commitment to cooperative water management during shortages24. These voluntary agreements allow license holders to share the impacts of water shortages by determining how to distribute the available water supply outside the strict FITFIR system24.

The Adaptation Roadmap also recommends adjusting Dickson Dam operations to better consider downstream needs, potentially improving flow regulation during both drought and flood conditions23. Additionally, it suggests considering reduced minimum flows through municipalities and other downstream users as an exceptional measure during drought years to temporarily slow the draining of upstream reservoirs23.

Watershed Planning and Management

Several organizations play crucial roles in watershed planning and management for the Red Deer River:

Red Deer River Watershed Alliance (RDRWA): Serves as the designated Watershed Planning and Advisory Council for the watershed under the Government of Alberta's Water for Life Strategy9. The RDRWA works collaboratively to advance understanding of key watershed issues and guides practical actions to improve watershed health outcomes9.
Red Deer River Municipal Users Group (RDRMUG): An association of rural and urban municipalities within the watershed that provides a forum for discussing water quantity, quality, and use11. The RDRMUG advocates for municipal interests in water availability and has produced reports emphasizing that "water is the lifeblood of municipalities"11.
Alberta Water Council: A multi-stakeholder partnership established in 2004 that provides leadership for implementing Alberta's Water for Life strategy1012. The Council uses a consensus-based decision-making process to address water management issues in Alberta10.

These organizations promote an integrated approach to watershed management, emphasizing the interconnection between land use planning, source water protection, and watershed conservation11.

Challenges and Future Outlook

Balancing Competing Interests

A significant challenge in water allocation for the Red Deer River watershed is balancing competing interests while ensuring environmental protection. As noted in the Adaptation Roadmap, "Building new water management infrastructure should build adaptive capacity; it should not lead to new licence allocations in closed basins"23. This principle highlights the tension between development pressures and conservation needs.

Agriculture remains both the largest water user and a sector with growth potential, particularly as climate change may extend growing seasons and shift agricultural zones northward1921. However, increased agricultural water use must be balanced with municipal, industrial, and environmental needs in a context of potentially decreasing water supply.

Indigenous Water Governance

Addressing Indigenous water rights and co-governance remains a critical challenge. As noted by the Centre for Indigenous Environmental Resources: "Federal and provincial governments make decisions about water without the processes in place to collaborate with Indigenous governments who are on the frontlines of combatting the ongoing water crisis and who hold inherent rights over the water on their territory"18.

Progress toward meaningful co-governance will require significant policy changes and genuine commitment to government-to-government relationships with Indigenous nations1618.

Adapting to Climate Uncertainty

Perhaps the greatest challenge is adapting water allocation systems to the uncertainty of climate change. The Adaptation Roadmap observes that "The uncertain length of a drought makes it challenging to develop management responses" and "Flood mitigation and drought mitigation can be achieved in the same season, but not at the same time using the same infrastructure capacity"23.

These observations highlight the need for flexible, responsive water management systems that can adapt to changing conditions on multiple timescales. As noted in the Roadmap: "To build resilience and sustainability in the face of climatic and environmental change and increased growth, a layered approach will be needed, as no single solution can meet every need"23.

Conclusion

Water allocation in the Red Deer River watershed represents a complex interplay of historical legal frameworks, competing sectoral demands, Indigenous rights, and emerging climate challenges. The current FITFIR system, while providing certainty and clarity regarding priority during shortages, faces growing criticism for its lack of flexibility and failure to incorporate Indigenous perspectives and rights.

As the watershed faces increasing pressures from climate change and growing demand, the need for adaptive, collaborative approaches to water allocation becomes more urgent. Initiatives such as water sharing agreements, infrastructure development, watershed planning, and co-governance frameworks with Indigenous communities will be essential components of a sustainable water future for the Red Deer River watershed.

The path forward will require balancing traditional allocation systems with innovative approaches that recognize both the changing climate reality and the diverse values and rights associated with water in the region. As the Pembina Institute aptly stated: "We need to plan ahead and consider the impact that climate change is likely to have on fresh water resources in Alberta"20. For the Red Deer River watershed, this planning must integrate scientific understanding, policy innovation, and cross-cultural collaboration to ensure water security for all users and the ecosystem itself.

Citations:

Answer from Perplexity: pplx.ai/share

Alberta West News

CanadianPlanet

Welcome To Alberta West Online News

Blog Archive

About Me

Wednesday, March 26, 2025