The projects, located near the Red River on the U.S. side, has drawn the scrutiny of the International Joint Commission (IJC) following pressure from Manitoba’s environment minister, the province announced on Oct. 9.

The operations in question are Abercrombie Dairy, which will be a 12,500-head milking operation near Wahpeton, south of Fargo, and Herberg Dairy, a 25,000-head operation slated near Hillsboro, north of Fargo. The projects got permits to start construction in January 2025. Both are owned by Riverview LLP, a Minnesota-based dairy agribusiness.

Those dairy mega-projects could add more nutrients to an already struggling Lake Winnipeg downstream, according to Mike Moyes, Manitoba’s environment and climate change minister.

“We’re happy that the IJC was referred and that they’re looking at it (and) going through that process,” Moyes said. “Obviously, we want to move as quickly as possible. This is a major operation, and we want to make sure that all the different dairies, including those in North Dakota, are taking this seriously and doing everything they can to mitigate any nutrients that potentially could go into the waterways.”

WHY IT MATTERS: Manitoba is pushing for an international review of two massive North Dakota dairy operations that it worries could dump well over targeted phosphorus levels into Lake Winnipeg.

According to the province, the International Joint Commission has told its offshoot, the International Red River Watershed Board (IRRWB), to look at permits and information related to the dairy projects. The board will assess whether the projects properly considered impacts on water quality and aquatic ecosystems at the international boundary, particularly regarding nutrient targets for the Red River.

The Red River contributes only about 15 per cent of total water flow into Lake Winnipeg. A late 2024 provincial report on nutrient targets, however, reported that it carries the largest load of nutrients into the lake out of all the water body’s major tributaries.

“The health of Manitoba’s lakes and rivers is a top priority for our government, and we want to be sure that developments upstream don’t negatively affect Lake Winnipeg and the Red River,” Moyes said. “We are working with partners upstream and taking action at home to ensure developments address the risk of sending even more algae-causing nutrients into Lake Winnipeg. We must protect Lake Winnipeg for generations to come.”

Water nutrient levels have been a loaded issue in Manitoba. Animal agriculture, the pork industry in particular, has taken significant public heat over the issue. The sector, in turn, has repeatedly pointed to improvements in their sector, such as better manure management. Fertilizer runoff in the grain sector has been another investigated source.

Local agriculture, meanwhile, strongly contests that blame, with arguments pointing fingers at the City of Winnipeg and incidences of sewage flowing into the river following major rain events, or to nutrient sources coming in from further south.

Operations would quadruple North Dakota herd

The two North Dakota facilities will add 37,500 milking cows to the state, more than quadrupling the current herd of about 8,900 cows and nearly matching Manitoba’s entire provincial herd of roughly 45,000 cows across 240 farms, the Canadian Centre for Policy Alternatives (CCPA) said in a post May 25.

The operations are located within 1.5 miles of the Red River or its tributaries. The Manitoba Eco-Network said on its website that waste from the operations will be stored in lagoons covering an area equivalent to 52 Canadian football fields, with no municipal wastewater treatment. The manure slurry will be spread on agricultural fields as fertilizer.

“Our concern about this operation is just the sheer amount of dairy cows this close to the watershed,” Moyes said. “We’re talking about tens of thousands of dairy cows about a mile away.”

The CCPA has echoed Manitoba’s concerns that excess manure application could lead to accumulation of phosphorus and nitrogen in rivers and lakes, which feed blue-green algae blooms in Lake Winnipeg. They also said that pollution from the operations could contain antibiotics, hormones, bacteria and heavy metals.

Moyes was clear that the government’s concerns are not anti-agriculture.

“We recognize the importance that agriculture plays in in our economy, in our world and especially in water management,” he said. “We stand with farmers. We stand with all the producers, but it needs to be done in the right way.”

The Manitoba Eco-Network, along with the Save Lake Winnipeg Project and Animal Justice, called on both federal and provincial governments to refer the issue to the IJC.

Moyes is also encouraging concerned citizens to get involved.

“We’re trying to really raise that alarm bell that this is a concern for our water, that mitigation measures have to be taken for these mega dairy farms, and so any Manitoban out there, if they’re concerned, reach out to your to your local MLA and try to let them know how important this is.”

Phosphorus levels over target

In late 2022, the governments of Canada and the U.S. approved a nutrient loading goal for the Red River of 1,400 tons of phosphorus and 9,525 tons of nitrogen per year, based on recommendations made by the IJC.

That phosphorus target is a reduction of about 45 per cent from current levels, according to the Manitoba Eco-Network. The CCPA said that Manitoba’s 2024 nutrient report shows an average of 2,500 tonnes of phosphorus per year flowing from the U.S. through the Red River through 2023.

Manitoba, meanwhile, set its own nutrient reduction targets for Lake Winnipeg late last year, broken down by tributary. The goal for the Red River, in that plan, was a loading target of 2,800 tonnes per year of phosphorus and 19,050 tonnes of nitrogen, as measured at Selkirk.

Nutrients from multiple sources

Previous studies have suggested that about half the nutrients in Lake Winnipeg come from within Manitoba, with the rest flowing in from upstream areas such as Ontario, Saskatchewan, Alberta, North Dakota, Minnesota, and small areas of South Dakota and Montana. The Winnipeg, Saskatchewan and Dauphin rivers also contribute significant amounts of nutrients and water flow to the lake, the Manitoba government’s December 2024 report said.

The province is taking a holistic approach to water management, bringing on a new advisory board for Lake Winnipeg and working with other stakeholders like nearby municipalities and the City of Winnipeg, Moyes said.

“We’re trying to protect more nature and wetlands and peat…and we want to work with with agriculture. We want to work with with everyday farmers on their operations to make sure they’re that they’re as efficient as possible.”

Moyes wrote to the IRRWB in June, then followed up with letters to North Dakota Governor Kelly Armstrong and Canada’s Foreign Affairs Minister Anita Anand. He asked them to support the IJC’s work and act on any recommendations that come out of the review.

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The International Souris River Study Board finished its public consultation on its report on the basin on September 7.

The board studied a 1989 treaty between the United States and Canada on how they will manage the basin, which spreads across southwestern Manitoba, southeastern Saskatchewan and North Dakota.

Between hydrologic model simulations and consultation, the board found that overall the operating plan in the agreement had performed well, according to the study’s draft report. Their simulations showed that how the basin is managed has reduced flooding in almost every case.

The board found the management of the system led to more even distribution of stream flow throughout the year, and it found that in addition to flood and water supply management, the reservoirs provided other benefits like recreation.

The draft report made several recommendations for the management of the basin for “incremental or marginal improvements,” including:

• Modify winter drawdown targets for reservoirs so they can be operated with greater flexibility for moisture conditions in the basin.
• Extend the winter drawdown periods for the reservoirs from February 1 to March 1 to provide greater river flow and improved environmental benefits in February.
• Lower the spring maximum flow limits to reduce flood peaks and agricultural flood risk during small or moderate floods in North Dakota.
• Establish a summer operating plan for more guidance for reservoir operators.

Among other counsel, the board also recommended better methods for gathering and communicating hydrologic data like flood forecasting and water flows.

The report also addressed concerns people raised during public consultations. For instance, people were concerned about the effect of artificial drainage, e.g. farmland drainage, on flooding.

The study concluded that during extreme floods, like that in 2011, wetland drainage had very little impact. However, “It is likely that wetland drainage has the greatest impact in the basin in average to moderate run-off events and floods,” which the report said could result in more frequent one-in-10-year floods.

Wetland drainage is “potentially” deteriorating water quality in the Souris River Basin, the report said. However, it wasn’t possible to quantify the impact separate from other factors like changing land management practices.

Based on public concerns about water quality, the study board concluded that water-quality monitoring needs to be continued.

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That’s the goal of the International Souris River Study Board (ISRSB) which, over the next two years, will look at different options for improving the 1989 international agreement between Canada and the U.S.

Its efforts aim to improve the understanding of flooding in the Souris River basin and recommend measures to reduce the risks it poses, said Jeff Woodward, Regina-based manager of the engineering division with Environment and Climate Change Canada and a Canadian (alternate) co-chair of the ISRSB.

Woodward spoke about the initiative at the Assiniboine River Basin Initiative (ARBI) meeting here Feb. 14.

The 700-km-long Souris River originates in Saskatchewan, passes through North Dakota and crosses into Manitoba before flowing into the Assiniboine River.

This study will look at the Souris River proper as it crosses international boundaries, Woodward said. The recommendations it makes for improvements to the 1989 agreement will go to the International Joint Commission.

There are several components to the study, Woodward said, including trying to better understand river flows in relation to rainfall, snowmelt and evaporation.

Pre-existing moisture conditions play a huge contributing factor along the Souris River, he said.

“Sometimes we could get the equivalent volume of rain or snow on the ground and if the basin is dry we would never see this kind of flow,” he said. “This is a basin that is extremely variable.”

The effort will also examine and propose alternative approaches for flood control and other water uses, ways to improve hydrologic modelling, and improve the wording of the 1989 Operating Plan agreement so it’s clearer and more understandable.

In 2011, water levels along the Souris River reached 2-1/2 to three times beyond the historic range, causing millions of dollars of damage and destruction to homes, farms and businesses in parts of North Dakota, Saskatchewan and Manitoba.

The International Joint Commission established the ISRSB in September 2017 and has given it until February 2020 to complete the study and make recommendations.

Public input sought

A draft work plan for the study is now complete and public input on it will be received until mid-March.

Manitoba municipal leader Debbie McMechan is the Canadian co-chair of a 10-member public advisory group, comprised of equal numbers of Canadians and Americans.

Their job is to engage with landowners and residents about the study and keep people informed about upcoming meetings where public input will be sought.

The ISRSB very much wants the broader public’s input into this, said McMechan, who is also reeve of the Municipality of Two Borders.

“I have been assured that this is a major part of this endeavour,” she said. “They don’t want to produce something that has no real input from folks who live in the basin.”

The advisory group will work with the Assiniboine River Basin Initiative (ARBI) to identify and contact Souris River basin municipalities in Saskatchewan and Manitoba to update them on the study as it progresses as well as let them know of future public meetings, she said.

There’s also a website for public feedback.

An initial open house hosted by the ISRSB was held February 20 in Minot, N.D. to talk about the study’s draft plan.

Comments on the work plan will be received via the website until March 12.

McMechan attended the Minot meeting and said she heard the same issues and concerns raised south of the border as heard throughout affected areas in Saskatchewan and Manitoba.

“I was also struck by their very genuine interest in, when solutions are found, that they’re for everyone, she added.

To sign up for news and updates on the study log on to: ijc.org/en_/isrsb.

Public comments on the draft work plan are being received until March 12.

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The province needs to step up its efforts in the area hard hit by severe overland flooding of the Souris and Assiniboine rivers almost one year ago, said Rick Plaisier, co-chair of the Southwest 2011 Flood Strategy Committee and reeve of the RM of Sifton.

“They’ve made some progress, but not enough as far as we’re concerned,” said Plaisier.

The group lauded the government’s decision to conduct an independent flood review, but alleged the flood mitigation study’s special focus on Lake Manitoba and Lake St. Martin shows that some areas are “favoured over others.”

“Our organization strongly feels that our southwest corner is not being treated equally” said Plaisier. “If this kind of flood had happened on the Red River, there would be an instant program.

“The present provincial government favours where it gets the majority of its votes from. But you know what? The rest of us are not second-class citizens.”

But a senior provincial official says flood management and mitigation is a “critical” issue, and a major flood-mitigation study, undertaken by an independent consultant, will also look at “all potential methods” for alleviating flows on the Assiniboine, Qu’Appelle and Souris rivers and the Dauphin Lake area.

It also includes a proposal for a provincial surface-water management strategy to create a co-ordinated approach combining farm groups, municipalities, conservation districts and other agencies, said Steve Topping, executive director for Manitoba Infrastructure and Transportation.

“The surface-water management strategy will be kicked off very quickly,” said Topping, adding a firm timeline has not yet been established.

Topping denied that certain areas are being favoured, noting for example that a home, business and farm flood-mitigation program is in place province-wide, and a community diking program has invited RMs and towns to submit applications.

Among a list of other grievances outlined in a recent press release, Plaisier called for special compensation in the southwest for landowners who are forced to hold surface water to prevent damage farther downstream, and special compensation or grants to assist RMs not covered by present programs to help repair roads affected by washed-out bridges and traffic diversions.

Plaisier also criticized the NDP government’s “tardiness” and “inconsistency” in rolling out disaster financial assistance to affected homeowners.

“Some people have sent their applications three times because DFA indicates that they’ve lost their applications,” said Plaisier.

Topping said that he has had numerous discussions with Plaisier about overland flooding on the Oak Lake and Plum Creek marshes. Last spring, officials decided they could not comply with the Sifton reeve’s call that PTH 254 be cut to give relief to flooded landowners in the area due to the risk of aggravating damage to properties downstream in nearby Souris.

Although a special program like the one for the area near Hoop and Holler Bend is not in place, compensation for affected landowners is being paid out under the Disaster Financial Assistance program, said Topping, noting 82 private and one public claim has been filed in Plaisier’s RM.

“There have been a significant number of claims filed to date, and over $500 million has been paid out,” he said.

Preliminary repair work for road and bridge infrastructure is well underway, with $105 million committed, “but it does take a substantial amount of time,” said Topping.

Plaisier also complained of a lack of effort on the part of the province in getting Saskatchewan and North Dakota to work with Manitoba to find ways to control water entering the southwest corner of the province. He noted that officials from the northern U.S. state and Saskatchewan have already sat down for talks.

“We’re wondering why Manitoba isn’t at the same table,” he said.

Topping, who sits on the Prairie Provinces Water Board, said “tremendous” co-operation is coming from Saskatchewan on the issue. He added that Manitoba is also part of the International Joint Commission which has a mandate to prevent flooding on the Souris River watershed.

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Representatives of North Dakota, Minnesota and Manitoba, the Red River Basin Commission (RRBC) and federal agencies from both countries have agreed to work together across various jurisdictions within the watershed.

“The reduction of nutrients will improve water quality and the health not only of Lake Winnipeg but of all surface waters across the international Red River watershed,” said Nicole Armstrong, director of Manitoba’s Water Science and Management Branch of Manitoba Conservation and Water Stewardship.

Information on nutrient reduction efforts already underway will be collected, and committee members will exchange information on nutrient control activities such as treatment technologies, best management practices and educational programs.

Reducing nutrient inputs in respective jurisdictions will also be discussed, as well as efforts to develop nutrient load allocation and/or water quality targets for nutrients for the Red River.

Implementation of the outcomes of the nutrient management strategy will be a future topic of discussion between and within jurisdictions.

Nutrients such as phosphorus and nitrogen enter lakes and rivers from fields, discharges from waste water treatment facilities and other sources and cause excessive growth of algae and other plants leading to problems with water clarity and dissolved oxygen levels.

Minnesota Pollution Control Agency commissioner Paul Aasen said the committee will pursue a consensus-based approach to decision-making.

“We recognize that ultimately local jurisdictions will make final decisions regarding the nutrient reduction measures that are most appropriate for their own jurisdictions, but the committee will help facilitate the exchange of information and promote consistency wherever possible.”

Aasen said an important first step will be to identify high-priority areas in order to focus resources on those areas first.

“Another priority is the health of Lake Winnipeg. Monitoring progress in the lake is a good way to gauge the effectiveness of nutrient reduction efforts,” said Aasen.

Dennis Fewless, director of the North Dakota Department of Health’s Division of Water Quality, said that preserving water quality in the watershed is the responsibility of the people who live in it.

“The committee’s goal is to develop a strategy based on sound science and basin-wide co-operation, while retaining the nutrient management efforts unique to each jurisdiction,” said Fewless.

RRBC has been working across the state, provincial and international boundaries for over a decade and has developed a vision for the future called the Natural Resource Framework Plan that has 13 basin-wide goals.

Lance Yohe, executive director of RRBC, said that the nutrient management strategy addresses goal No. 9 – improving water quality.

“We are excited that Manitoba, Minnesota and North Dakota are in agreement on the importance of this issue and are willing to explore a strategy. This is an example of the type of cross-border co-operation that is needed to find solutions that will provide lasting results,” said Yohe, in a press release.

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After a short stint with the Canadian Forestry Association, Bert moved to Manitoba Agriculture where he served as agricultural representative at Selkirk for six years. He then became a vegetable specialist and eventually chief of the horticultural division. Bert’s leadership and diplomacy led to the formation of the Manitoba Vegetable Commission. In 1968, he became part of its management team. Bert understood the importance of positive liaison between growers and the trade. As a member of the International Trade and Tariff Committee of the Canadian Horticultural Council, he was responsible for setting seasonal tariffs on fruits and vegetables coming into Western Canada. Bert also served on a committee of the International Joint Commission to review North Dakota’s Garrison Dam proposal.

In the 1960s, Bert played an instrumental role in the relocation of the vegetable industry to Portage la Prairie, now recognized as one of Canada’s major vegetable-producing regions. Today, Manitoba growers rank as some of the most progressive in the country.

Bert’s belief in the future of the vegetable industry resulted in his working with growers to investigate, develop and implement new production, handling and marketing methods. This led to improved production, shelf life quality and net returns to growers.

Bert also played a key role in the establishment of a dill oil industry in Morden and a silverskin onion plant in Portage. He was also involved in two other successes: the heat drying of onions and the humidity control in carrots.

Besides being active in the Selkirk community, Bert is a member of the local Kinsmen and golf clubs. He served also as a trustee and chairman of Mapleton School Board and played a major role in the establishment of the planning board for St. Andrews and the City of Selkirk. Bert was a leader of the local “Cub pack.”

Bert was awarded a life membership in the Manitoba Institute of Agrologists, an honorary life membership in the Vegetable Growers’ Association of Manitoba and a fellow of the Agricultural Institute of Canada. He was awarded a commemorative medal to celebrate the 125th anniversary of Confederation for his contribution to community, profession and country.

Manitoba vegetable growers recognize that as a result of Bert Sandercock’s leadership, their industry has achieved a national and international reputation for excellence.

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