Author: Brandon Hill

Student Number: 7739782

Word Count: 2265
Bipole III: A Wicked Problem
Manitoba Hydros Bipole III project, a high voltage direct current (HVDC) transmission
line intended to reach completion by 2018, was the subject of intense debate over its every facet.
Even having reached the point where it is beginning to be built, its intentions, benefits, location,
necessity, implementation, and ownership continue to be argued over. Manitoba Hydro is a
crown utilities corporation providing service in Manitoba, and generates much of its electrical
power from hydroelectric dams in the remote north of the province. Bipole III is intended to
augment the system that transports power from the dams down to the population centres in the
south of the province. Drawing on Rittel and Webbers definition in their paper (1973) on
dilemmas in planning theory and practice, this essay will demonstrate that the Bipole III presents
a particularly wicked problem, and should be approached as such. This will be accomplished
first by a reiteration of the requirements for a wicked problem as per Rittel and Webber (1973).
This will then be followed by a discussion of the technological, social, environmental, economic,
and political factors involved with the project using ideas learned in class, and how they fulfill
the requirements for a wicked problem.
Rittel and Webbers 1973 paper Dilemmas in a General Theory of Planning addresses the
nature of wicked social policy problems, and differentiates them from the discrete and
scientific sort of problems. It should be noted that a wicked problem is intended to mean highly
complicated, difficult, and hard to define, and carries no moral sense. They make the point that
wicked problems cannot be approached as traditional tame closed problems. Therein lies the

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issue: One cannot approach a wicked problem in the same way a math or engineering problem,
simply solving for the unique best solution. Rittel and Webber (1973) discuss the governance
of wicked problems, and the limits to how effectively and rationally a government can address
them. As such, much of their paper directly applies to the Bipole III issue, and the involvement
of the provincial government. Defined in their paper are ten principal characteristics of wicked
problems which are paraphrased below:
1.
2.
3.
4.
5.
6.
7.
8.
9.

There is no exactly specifying a wicked problem

Wicked problems have no stopping condition
Solutions to wicked problems are not true-or-false
There is no simple test of a solution to a wicked problem
Every solution has one chance only to succeed
Wicked problems do not have a clear set of potential solutions
Every wicked problem is unique
Every wicked problem can be thought of as a symptom of another problem
The problem can be explained various ways, and how determines the nature of the

problems resolution
10. There is no allowance for being wrong
The Bipole III projects many different sides will be examined, and it will then be compared with
these ten characteristics to show how truly convoluted and wicked this problem is. This is in
order to better understand the problem, and also to demonstrate that it cannot be approached as
an isolated and discrete issue, but as an interconnected, complex and intricate system.

The Bipole III is overtly a technical and infrastructure project. An engineering puzzle
whos solution is simply the one that is most efficient. Move the most power, with the least
resources, and all your goals are achieved. This is not necessarily an easy task, and most
wouldnt consider it simple either. The power transmission engineering models and calculations

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and choices are detailed and specialized, and take significant time and effort. It is however, a
practice that is relatively routine, and the professionals involved have the necessary education
and experience in order to be assured in the requirements and their solution at the end of the
process. In the sense that the problem is clear, and given a predictable period of time the result
will be a solution that everyone agrees with, that follows all applicable codes and standards, and
that has a reasonable guarantee of success, the problem to an engineer is simple. Issues begin to
arise when external considerations start to be added. The Bipole III isnt a theoretical exercise in
a class room on paper. It isnt isolated in scope. Other considerations such as finances and
economy both local and international, society and public opinion, the government and politics
both local and international, the ecological impact on the environment, and landowners and
locally affected populations all contribute to complicating the problem. The sheer number of
parties involved in a project of this scale is enormous. All of these contribute complications, and
their increasingly interconnected nature quickly creates a wicked problem. Each ones
contributions will be reviewed in further detail.
Firstly, fluctuating international and domestic economy drives fluctuations in demand for
utilities. Manitoba hydro sells electricity across to the border to the US, and so both US and
Canadian markets affect the outlook for Bipole III. Demand for electricity is closely linked to the
economy on a general scale, as it is a principal utility in almost all economic functions.
Especially apparent since the process started has been the decline in demand growth due to
global recession. Both domestic and US demand are growing slower than predicted. However,
when growth does fully resume, Manitoba Hydro must be able to meet that demand. As such,
Bipole III is dependant upon market behaviour and outlook, and its budget will fluctuate in
accordance as well.

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Local and international society is important to Bipole III as well. As the Manitoba public
is the customer, so too it is the owner of the crown corporation. Manitoba hydro must seek to
maintain a positive public image, and remain accountable in terms of services and pricing. It
must also consider its effects on society. How do its rates affect class disparity? How do its
hiring practices reflect equality? Are its corporate concerns in line with the publics concerns?
Manitoba Hydro is exceptional in that its rates are some of the lowest in Canada. (CBC News,
2010) Thus electricity is something most everyone in our society can take for granted, but that
may change depending on the effect Bipole III has on rates. Without this project, electricity could
become more scarce, and thus rates would rise, but the cost of the Bipole also has to be factored
in to rates.
The provincial government is a powerful force in a Manitobans life. Much more so in the
day to day business of Manitoba hydro. Exercising power and oversight, the provincial
government and its policies are responsible for guiding and correcting Manitoba hydros
direction. The government has had a major effect on the Bipole III project. Hydro is so intent in
pleasing its political bosses says Will Tishinski (2012), a former vice-president of Manitoba
Hydro, proving that the government has a large effect. This is also demonstrated by their
mandate of a location on the west side of the province, and also a method for obtaining access to
land. The provincial government has its own agenda, such as the UNESCO status bid for the
boreal forest on the east side of the province, which is the primary reason for the mandatory west
side location (CBC News, 2010) . This decision has a cascade effect through the various other
facets of the project. Longer routes, higher expenses, more complicated engineering, less
efficient transmission, and higher provincial electricity prices are all downsides to the decision.
The US political system impacts the project as well. US legislation necessitates that hydroelectric

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power be purchased (CBC News, 2010), eliminating any alternative generating sources if
Manitoba Hydro intends to access the US market.
Intertwined with the societal and political effects and responsibilities are Manitoba
hydros environmental effects and responsibilities. Preservation of natural landscapes such as the
boreal forest, and animals such as the vulnerable caribou is a significant consideration in the
Bipole III project as well. In addition, the increasing use of dams the the Bipole facilitates is of
concern to some as well. Dams flood land, and disrupt rivers natural flow. This is complicated by
different views on environmental responsibility and stewardship. What should be preserved and
how it should be done are questions that must be answered. Ayodele and Chinyere (2014) in their
discussion of hydro power projects state that politics and power relations still dominate practice,
especially in environmental impact assessment processes demonstrating the influence of local
and global politics view on environmental considerations. Manitoba Hydro professes in their
Cultural and Heritage Resource Protection Plan (2013) that the value of Aboriginal Traditional
Knowledge and that this knowledge must be respectfully incorporated in the Site Selection and
Environmental Assessment Process, which shows their consideration of another way of viewing
the environment and sustainability. Ideally, all different viewpoints need to be taken into
consideration.
Finally, consideration of local populations is of prime concern in this project as well. The
Bipole must accommodate local first Nations, as well as farmers and municipalities in its path.
This must be done while also considering the provincial population as a whole. Population
distribution creates issued. Because over half of Manitobas population is concentrated in the
Winnipeg area, it is easy for the Bipole to be a service to them. However, northern populations
benefit directly relatively little from its installation. The effort is to minimize the exploitation of

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any single group, while still serving the majority of the provincial population, which is very
difficult. This effort is complicated in the case of social and cultural differences between groups.
Seen together, these different sub-issues of the Bipole III project create a complicated and
often contradictory set of requirements and potential effects. Consideration of any single part in
isolation from the others is not a practical way to view what begins to seem an insurmountable
problem. The key is that it not be considered as a finite and simple problem, but as an openended wicked problem and be addressed as such. Reviewing Rittel and Webbers (1973)
definition of a wicked problem, it can now be seen that the Bipole III project satisfies every
requirement:
1. There is no exactly specifying the problem with Bipole III
Is it a matter of profitability and provincial infrastructure growth? A matter of
equality for marginalized parts of society? Or a matter of environmental
stewardship? Impossible to define exactly for everybody what the issues are.
2. The Bipole III problem has no stopping condition
Its already being built and its still debated. Its effects and implementation will
continue to be redefined and reconfigured all the way to the projects completion.
3. Solutions to the Bipole III problem are not true-or-false
All that can be achieved is hopefully a good solution amongst a host of other
possibly good solutions.
4. There is no simple test of a solution to the Bipole III problem
Only time will tell if the chosen solution achieves the goals set out, without
unforeseen effects.
5. The Bipole III solution has one chance only to succeed
The Bipole III is so monstrous theres no possibility of a trial run, or a second
chance. It must be completely implemented or not at all.
6. The Bipole III problem does not have a clear set of potential solutions

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Every part of the Bipole III project is up for debate. Out of the myriad of
proposed solutions, each one encompasses so any opportunities for variation, that
there is no way to enumerate them all.
7. The Bipole III problem is unique
No one has ever built a Bipole III in Manitoba before, and no one ever will again.
Theres no book to consult, and no case studies that provide and answer to all the
problems. So many parts of the Bipole project are unique, that somewhat similar
situations and their insights are the best that can be found.
8. The Bipole III problem can be thought of as a symptom of another problem
It is evident that the problems with Bipole III can be thought a result of several
other issues, such as vulnerability of present infrastructure, or unequal
representation of parties involved for example.
9. The Bipole III problem can be explained various ways, and how determines the
nature of the problems resolution
Depending on what the principal issues are defined to be, the Bipole III problem
has different and contradictory evident solutions. If preservation of the Boreal
Forest is the prime concern, then theres only one path available. If economic
sustainability is the main issue, then a completely different path is the only one
acceptable.
10. There is no allowance for being wrong
As a consequence of the fact that Bipole III only has one chance, Manitoba hydro
is liable to all parties involved for that single chance. A failure on this scale would
not be forgiven.

In conclusion, it is evident that the Bipole III presents a significantly wicked problem, and
should be approached as such. As so often is the case, much of the argument surrounding the
project has been focused on a smaller particular facet of the project. When opinions are
constructed based on a limited scope, they fail to address the entirety of what is an extremely

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complex issue. The Bipole III project is an issue involving many social, political, environmental,
cultural, economic, and technological issues, and in order to achieve a good solution, all aspects
must be considered in detail and in conjunction with the others. Interactive governance theory
would therefore argue that wicked problems require interventions at all orders of governance
(Jentoft, 2009, p.559) Only thus with all factors addressed and all parties involved can such a
wicked problem be properly appreciated and addressed.

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References Cited:
Rittel HWJ, Webber MM.
1973, Dilemmas in a general theory of planning. Policy Sciences 4:15569.
Olagunju, Ayodele, and Chinyere Dara
2014, The Role of Indigenous Communities in Environmental Assessment of Hydro
Projects: North or South, Its All the Same? J. Glob. & Sci. Issues, 2(3)
Jentoft, Svein, and Ratana Chuenpagdee
2009, Fisheries and coastal governance as a wicked problem. Marine Policy, 33:553560.
Manitoba Hydro
2013, Bipole III Transmission Project: Cultural and Heritage Resources Protection Plan,
https://www.hydro.mb.ca/projects/bipoleIII/pdfs/environmental_protection/bipoleIII_cult
ure_and_heritage_resources_protection_plan.pdf
CBC News
2010, Hydro's Bipole III proposed route released,
http://www.cbc.ca/news/canada/manitoba/hydro-s-bipole-iii-proposed-route-released1.888301
Will Tishinski
2012, Bipole III: $4-billion political chicanery,
http://www.winnipegfreepress.com/opinion/analysis/bipole-iii-4-billion-politicalchicanery-177603671.html

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