Report on the Minister's 2006 Round Table under the Species at Risk Act

  1. Executive Summary
  2. Purpose of the Round Table
  3. Appendix 1: Consolidated Recommendations

The first Minister’s round table under the Species at Risk Act (SARA) took place on December 6th and 7th 2006. The objective of the round table was to engage participants in a dialogue about improving the conservation of species and the protection and recovery of species at risk, including the role of SARA therein. The 110 participants represented a broad cross section of Canadian society and provided recommendations for the consideration of the Minister of the Environment.

Discussions were structured around three key themes: using an ecosystem approach to protect and conserve species at risk; considering socio-economic factors to improve SARA decision making; and promoting Canada’s conservation legacy. The purpose of the three themes was to guide the discussion and concentrate attention on areas where input would be most beneficial to inform federal implementation of species conservation and recovery efforts. Prior to the meeting, the Environment Canada, Fisheries and Oceans Canada and the Parks Canada Agency solicited input from the public on the themes via a website. In total, there were 14 submissions. These were provided to participants in a summarized form as background for discussions at the round table.

The Minister’s 2006 Round Table under the Species at Risk Act: Summary of Proceedings provides a detailed description of presentations, types of discussions and the recommendations submitted during the two day workshop.

Building from the MRT Proceedings, this report, entitled “Report of the Minister’s 2006 Round Table under the Species at Risk Act” presents a synthesis of the recommendations received at the round table and identifies five key outcomes, two which cross-cut all themes discussed and one for each of the discussion themes. These outcomes are:

  1. Increase overall efficiency in the implementation of SARA.
  2. Facilitate an increased involvement of Aboriginal communities, organizations, and wildlife management boards in SARA and improve consideration of Aboriginal traditional knowledge in SARA implementation.
  3. Improve the incorporation of the ecosystem approach into species at risk conservation and habitat protection, especially at the recovery stage.
  4. Develop a framework on how socio-economic analysis will be applied to inform decision-making under SARA.
  5. Promote a conservation legacy that supports species at risk conservation and encourages Canadians to adopt sustainable behaviours.

The Minister of the Environment, working with the Minister of Fisheries and Oceans, will respond to these key outcomes, and his response will be posted on the SARA Public Registry in the fall of 2007.

Environment Canada, Fisheries and Oceans Canada and the Parks Canada Agency would like to thank all participants of the first Minister’s Round Table under SARA: your input is valued.

On December 6 & 7, 2006, in Gatineau, Quebec, the Minister of the Environment convened a round table of persons interested in matters respecting the protection of wildlife species at risk in Canada to advise the Minister on those matters. This is pursuant to section 127 of the federal Species at Risk Act (SARA)

The round table was attended by 110 participants representing a broad cross section of interested parties. Participants included individuals affiliated with federal, provincial, territorial, regional and municipal governments; Aboriginal peoples and organizations; communities; industry and business groups (including renewable and non-renewable natural resource use and extraction groups); academia; public advocacy groups (including environmental and conservation groups); and youth.

The Minister of the Environment, responsible for the overall administration of SARA, cooperates fully with Fisheries and Oceans Canada and the Parks Canada Agency to ensure effective implementation of the Act to protect species at risk and their habitat. Discussions at this first round table were structured around three key themes to focus input where it would be most beneficial to inform federal implementation of conservation and recovery efforts.

The themes were:

The concepts involved in ecosystem management are not new, but the systematic implementation of ecosystem approaches to conserving and recovering species at risk is in the early stages. Much has been written in recent popular and scientific literature on defining and characterizing ecosystem approaches. Preliminary work to apply the ecosystem approach to conserving and protecting species has been completed. Environment Canada, Parks Canada and Fisheries and Oceans Canada recognize, however, that more needs to be done to define when, where and how to apply the ecosystem approach to advance the protection and conservation of species and habitat. In addition, the Canadian Endangered Species Conservation Council, which is composed of federal, provincial and territorial Ministers responsible for the conservation and management of wildlife species, stated in 2005 that an ecosystem approachto species at risk conservation is an area to examine further and apply.

As the federal government progresses with the implementation of SARA, Environment Canada, Parks Canada and Fisheries and Oceans Canada sought, therefore, input from participants at the round table on how to best implement an ecosystem approach in a consistent, predictable and efficient manner.

The goal of Socio-economic analysis (SE analysis) is to provide relevant information that will assist decision-makers in their work. SE analysis is a tool that provides information on the scale and distribution of benefits and costs associated with the protection of species under SARA. SE analysis also assists in the identification of cost-effective measures to optimize benefits and minimize adverse impacts that arise from listing and recovery measures proposed under SARA to protect species at risk.

Recognizing the importance of integrated decision-making, SARA specifies that the development and implementation of recovery measures need to consider community knowledge and interests, including socio-economic interests. An analysis of all important economic, cultural, social, health, and environmental benefits and costs associated with a given proposal, including the perspectives of partners and stakeholders on those benefits and costs, are part of a balanced, well-documented, and transparent process. This is an active area of SARA program development, and therefore, Environment Canada, Parks Canada and Fisheries and Oceans Canada sought input on the broad range of perspectives represented at the round table to add significant context to the federal government program development.

The Canadian identity is strongly linked with our landscapes and the biodiversity they sustain. Canada’s Biodiversity Strategy notes that individuals and communities must be encouraged to understand and appreciate the value of biodiversity, as well as the causes of its decline, if efforts to conserve biodiversity are to succeed. Strong public support for the actions necessary to sustain biodiversity and recover species at risk, both now and in the future is dependent on an informed receptive Canadian public. Informed, knowledgeable Canadians will make choices that take into consideration the protection of species and their habitat.

The engagement of Canadians in discussions regarding the value of biodiversity and species and their protection will contribute to successfully safeguard Canada’s biodiversity for future generations. Round table participants were well suited to provide input on Canada’s conservation legacy.

The agenda for the round table, including its themes and structure, and a comprehensive discussion document were prepared by officials in Environment Canada, Fisheries and Oceans Canada and the Parks Canada Agency. These documents were informed by discussions with provincial and territorial government personnel and with several individuals and organizations with an interest in wildlife conservation and protection.

Elder William Commanda, spiritual leader of the Algonquin Nation in the region, opened the round table with a traditional blessing. In addition, the former Minister of the Environment, the Honourable Rona Ambrose provided opening remarks, and announced that a National Policy Framework to protect species at risk had been agreed to at a recent meeting with her provincial and territorial colleagues. As a result, she directed Environment Canada and Parks Canada officials to work with the Department of Fisheries and Oceans to aim to finalize the federal SARA policy framework within the next six months.

To set the stage for later discussions, a panel of five senior opinion leaders spoke on what they saw as the priority areas for action in species at risk conservation, and how their respective sectors could contribute to the process. For the remaining day and a half discussions took place in small groups, framed by the three themes. Results were shared in plenary and the draft recommendations of each group were communicated to the round table facilitators by the group-appointed recorder. The conservation legacy theme was discussed at a working dinner following a thought-provoking speech given by Monte Hummel, President Emeritus of WWF-Canada.

The Minister’s 2006 Round Table under the Species at Risk Act: Summary of Proceedings details the recommendations generated at the round table and reports them verbatim as they were delivered during discussions. It also summarizes the proceedings and includes: a brief introduction of the round table, and its objectives and structure; an overview of the presentations and related discussions that occurred; the recommendations that came out of the discussions; and a summary of key messages expressed by participants in the final plenary. A list of the round table participants, the preliminary recommendations, summaries of the contextual comments from participants that were reported in plenary, and the results of the participants’ evaluation of the round table process are presented as appendices.

Recognizing the large number and diversity of participants, and given the breadth and complexity of the themes addressed, there was not consensus on the individual recommendations that participants at the round table submitted. Similar recommendations have, however, been consolidated and are presented in Appendix 1 of this report. Following synthesis of recommendations, in conjunction with the comments received in plenary sessions and written submissions from discussion groups, a number of common cross-cutting issues have been noted.

Partners and stakeholders welcomed the view that responsibility for species at risk conservation is shared. They also demonstrated a strong commitment to accomplish species conservation. There was widespread endorsement that adoption of the principals of conservation first, precaution and prevention would, over time, minimize the need for actions to recover species at risk.

In discussion on all three themes, it was recognized that there is a role for the federal government to provide solid policy direction, good governance processes, transparent decision-making, and timely, clear communication of information. At the same time, it was acknowledged that implementation of the Act must continue as policy is developed and governance processes are established.

Outcome #1: Increase overall efficiency in the implementation of SARA.

Many participants expressed that Aboriginal peoples play a key role in the successful protection and recovery of species at risk. Aboriginal traditional knowledge should be considered when applying the ecosystem approach, considering socio-economic factors to improve SARA decision making, and when promoting Canada’s conservation legacy. This requires significant collaboration and the development of tools to support the significant role that Aboriginal peoples play in the conservation and protection of species and their habitat.

Outcome #2: Facilitate an increased involvement of Aboriginal communities, organizations, and wildlife management boards in SARA and improve consideration of Aboriginal traditional knowledge in SARA implementation.

There was general agreement that the ecosystem approach should be applied to species at risk conservation, and that there is a need for federal leadership/coordination in its application. Caution was expressed that the approach be used where appropriate as it may not be desirable in all cases. It was noted that there is a need for more effort to develop the approach as well as tools to carry out activities in this area. Participants also remarked that efforts to develop the ecosystem approach should go hand in hand with ongoing action on species at risk conservation and not slow down current efforts in that regard.

Outcome #3: Improve the incorporation of the ecosystem approach into species at risk conservation and habitat protection, especially at the recovery stage.

Participants clearly expressed the view that socio-economic analysis needs to be conducted in a consistent and transparent manner. There were numerous suggestions as to what socio-economic analysis should and should not include.

Outcome #4: Develop a framework on how socio-economic analysis will be applied to inform decision-making under SARA.

Participants communicated that the Canadian public values biodiversity and considers its conservation a priority. They identified a variety of mechanisms that could be used to promote a conservation legacy. It was pointed out that there is an important role for education, incentives, and promotion to change behaviour, and to reinforce and foster actions that support species at risk conservation. One possible mechanism, which was supported by all sectors, is the reinstatement of a national survey evaluating the importance of nature to Canadians.

Outcome #5: Promote a conservation legacy that supports species at risk conservation and encourages Canadians to adopt sustainable behaviours.

Pursuant to section 127 of SARA, the Minister’s response will be posted on the SARA Public Registry in the fall of 2007, and will identify priority areas for action.

Some of the recommendations received at the round table are outside the purview of the Minister of the Environment, but as Environment Canada works cooperatively with partners, the spirit of these recommendations will be considered.

The MRT Proceedings details the recommendations generated at the round table, and reports them verbatim as they were delivered during discussions; summarizes the proceedings; and explains how recommendations submitted by participants were produced. Recommendations were put forward by tables of participants: as such they do not represent the consensus of all participants, and may even appear to be contradictory. The following consolidation combines similar recommendations, grouping them topically. In some cases participants identified recommendations as issues to consider; these items are listed under “Points for Consideration” in a separate table.

Consolidated Recommendations
Theme 1: Using and Ecosystem Approach to Protect and Conserve Species
Policy & Governance
1.

That the Minister adopts an existing definition, such as that in Canada’s Biodiversity Strategy, or develop a working definition of the ecosystem approach for Canadians.

Recognizing that:

  • science and Aboriginal traditional knowledge are fundamental components;
  • the human dimension must be integrated;
  • SARA is one tool to remediate ecosystem problems; and
  • this definition must be applied to SARA within the context of the Biodiversity Outcomes Framework

Taken from Proceedings: EA1 recommendations 4, 5 (partially)

2.

That the Minister ensures that the ecosystem approach:

  • is built with federal, provincial and territorial colleagues, Aboriginal peoples, stakeholders and communities, to support shared objectives and to avoid conflicting decisions;
  • adopts a focus on prevention and precaution, putting conservation first
  • does not delay recovery and remedial actions;
  • includes an adaptive management approach.
  • provides for long term monitoring, evaluation and accumulation of baseline information; and
  • is structured to empower local stewards of biodiversity.

Taken from Proceedings: EA recommendation 6, 8, 10, 11

3.

That the Minister explicitly identify the coordinating mechanism, leadership and accountability for the ecosystem approach in Canada, building on the current work done by provinces and territories, sectors, Aboriginal peoples, and communities. The Minister must also recognize that connections to national programs (i.e. Biodiversity Outcomes Framework) and global initiatives (i.e. Convention on Biological Diversity) are needed.

Taken from Proceedings: EA recommendation 9

Implementation & Initiatives
4.

That ecosystem based approaches be used as one tool, where appropriate, to meet species at risk goals and objectives at the action planning stage.

Taken from Proceedings: EA recommendation 5 (partially)

5.

That the Minister begins to develop the required resources and tools for implementing the ecosystem approach in Canada.

Taken from Proceedings: EA recommendation 12

6.

That the Minister develop a tool that existing groups can use to incorporate SARA considerations into their decision-making processes (i.e. build upon existing community consultation forums to develop an ecosystem analysis and recommended approach to dealing with and incorporate endangered species issues into existing community planning vehicles).

Taken from Proceedings: EA recommendation 1

7.

That the Minister, in partnership with other relevant federal Ministers, provincial and territorial governments, Aboriginal communities and stakeholders, supports case studies and pilot projects that would facilitate the exploration and evaluation of the effectiveness of the ecosystem-based approach.

Taken from Proceedings: EA recommendations 2, 3, and consideration 1 (partially)

Theme 2: Considering Socio-Economic Factors in SARA Decision-making
Policy & Governance
8.

That the Minister immediately establishes an independent evaluation of current SARA SE methodologies across departments and jurisdictions.

Taken from Proceedings: SE2 recommendation 8

9.

That the Minister set up an advisory panel of eminent persons (broad cross-section of stakeholders) in the short term to review the current SE framework, methodologies and approaches to consultation on the content of SE analysis. This committee could provide advice on the development of guidelines for practitioners.

Taken from Proceedings: SE recommendation 11

10.

That the Minister establish a committee on social progress and economic development that would offer independent advice on proposed SARA listing which should be made public.

Taken from Proceedings: SE recommendation 10

11.

That guidelines for provincial SE analysis are consistent with the federal SE analysis.

Taken from Proceedings: SE recommendation 9

12.

That the Minister changes the terminology for SE analysis to better reflect the need to incorporate ecological considerations and benefits; suggestions included Ecological SE Evaluation, and Ecological SE Analysis.

Taken from Proceedings: SE recommendations 6 (partially), 16

13.

That the Minister ensures that SE considerations are equally as important in their contribution to decision making.

Taken from Proceedings: SE recommendation 2 (partially)

14.

That SE should be done at the time of legal listing using recovery scenarios to inform ministers of the consequences of listing. Consultation involvement of stakeholders and jurisdictions early in the process and in the review of the results is desirable. SE must be done in the broader context of all available conservation tools (e.g. existing legislation and stewardship programs).

Taken from Proceedings: SE recommendation 4

15.

That SE analysis should not include recovery cost at the listing stage.

Taken from Proceedings: SE recommendation 3

16.

That SE analysis:

  • include consideration of social importance of species, social values and way of life, intrinsic values of species, ATK, economic cost and benefits;
  • give greater weight to social and cultural component of SE than is now given;
  • recognize importance of subsistence values, aboriginal and community use; and
  • be done with engagement of Aboriginal peoples, communities, partners, NGOs, etc.

Taken from Proceedings: recommendations 6 (partially), 18, 20, 21 (partially)

17.

That SE analysis includes full cost accounting. This should encompass potential cost to landowners, the cost of stewardship incentives and land owner compensation that, among other things, addresses the ecosystem based-approach, aboriginal traditional knowledge and the implications on future generations.

Taken from Proceedings: SE recommendation 23

18.

That the Minister meets with aboriginal peoples to discuss the relevant issues of jurisdictions authority, capacity, policy, consultation and funding.

Taken from Proceedings: SE recommendation 17

19.

That the provisions of land claim agreements and processes are respected in the implementation of SARA.

Taken from Proceedings: SE recommendation 19

Implementation & Initiatives
20.

That the government encourage municipalities and industries to take a broader and longer term view of the implications of social and economic development initiatives in order to save money on mitigation in the future.

Taken from Proceedings: SE recommendation 24

21.

That the Minister ensures that not only economists are involved in SE analysis, acknowledging that Aboriginal peoples and landowners have not conducted SE impact studies on reserves and private lands to date, and that this capability needs to be fostered and supported by government.

Taken from Proceedings: SE recommendations 21 (partially), 22

22.

That the Minister ensures the procedure for SE analysis:

  • is standardized, drawing on a broad spectrum of best practices, and reflecting the value of species recovery;
  • takes into account short and long-term considerations;
  • is as transparent as species assessment;
  • is a progressive exercise and is updated as additional information is gathered (including at recovery and action planning stages);
  • publicizes the social and economic implications involved and offers a public comment period on potential SARA listings; and
  • has documentation available in a timely fashion.

Taken from Proceedings: recommendations 1, 2 (partially), 5, 7, 25

23.

That the Minister ensures that recover planning:

  • identifies SE challenges through consultation and consideration of Aboriginal traditional knowledge;
  • identifies the means to address these challenges (e.g. compensation, re-training, economic opportunities, etc.)
  • recognizes that the concern over the socio-economic impact of identification of critical habitat has impeded its designation, and considers how to manage this process effectively.

Taken from Proceedings: SE recommendations 13, 14

Administration
24.

That a website be created that includes all COSEWIC status assessments, tracking them throughout the listing process and stating the reasons for not listing species.

Taken from Proceedings: SE recommendation 12

25.

That the Minister nominates the members of the ATK sub-committee of COSEWIC.

Taken from Proceedings: SE recommendation 15

Theme 3: Promoting Canada’s Conservation Legacy
Policy & Governance
26.

That the Minister develop a process to explicitly formulate a conservation legacy for Canada:

  • working with and engaging Canadians in its development;
  • acknowledging the link to the health of Canadians;
  • addressing key aspects of the changing Canadian demography, e.g. rural communities, cities, the North, new Canadians, youth, etc.; and
  • consider that water be the pillar of the conservation legacy.

Taken from Proceedings: CL3 recommendations 4, 9

27.

That the Canadian Constitution be amended to incorporate the conservation legacy.

Taken from Proceedings: CL recommendation 8

28.

That the Minister makes a long term commitment through supporting, co-funding, and promoting a consortium of all partners, stakeholders and Aboriginal peoples to promote the conservation legacy.

Taken from Proceedings: CL recommendation 11 (partially)

Creation of Incentives
29.

That the government put in place incentives for effective conservation (e.g. negative income tax, rebates for energy efficient products, ecological goods and services, incentives that work for Aboriginal peoples), research and development.

Taken from Proceedings: CL recommendation 3

30.

That the Minister develops reward programs that recognize effective conservation, and reinforce conservation actions, down to the community level (including Aboriginal peoples and private land owners).

Taken from Proceedings: CL recommendation 6 (partially)

31.

That prospects for partnerships with other organizations and local communities be improved by providing seed funding on a timely and consistent basis, similar to that used by the Model Forest program, to ensure species protection and recovery, by:

  • streamlining accountability requirements;
  • exploring use of multi-year funding to ensure continuity; and
  • diverting species at risk funds currently housed in Inuit and Northern Affairs Canada to dedicated aboriginal funds and the Aboriginal traditional knowledge sub-committee within Environment Canada.

Taken from Proceedings: CL recommendation 15

Promotion
32.

That an aggressive marketing campaign for conservation legacy be developed including information on ecosystem benefits to Canadians, and recognizing that domestic tourism contributes to increasing environmental education.

Taken from Proceedings: CL recommendations 2 (partially), 12

33.

That the Minister reinstates the Importance of Nature to Canadians survey so that the marketing of the conservation legacy to Canadians, industry, and funding agencies can be integrated, research based, targeted, and used to support domestic tourism.

Taken from Proceedings: CL recommendation 2 (partially)

34.

That all federal departments and agencies be required to include promotion of nature conservation as a core Canadian value as part of their annual sustainability plan. The government must implement the entire range of tools available to them to instill nature conservation as a core value of Canadians, e.g. hunting, fishing, bird-watching, ecotourism. This could be done, for example, through greater exposure in the media, and use of programs including promotion contests for free day-passes in national parks, wildlife reserves, etc.

Taken from Proceedings: CL recommendation 5, 6 (partially)

35.

That the Minister promote meaningful ways to reduce consumption by individual Canadians by setting the tone, and leading by personal example (political leaders) on government commitments to sustainability.

Taken from Proceedings: CL recommendation 7

Education
36.

Recognizing that understanding is linked to supportive action, that the Minister works with federal, provincial and territorial colleagues and community partners, to develop programs and commit funding to:

  • educate Canadians about SARA and what it means to them (e.g. hunters, trappers, fishers, landowners;
  • promote the link between the conservation of species at risk and other environmental issues, such as climate change; and
  • connect Canada’s youth and new Canadians to nature through environmental awareness and education.

Taken from Proceedings: CL recommendations 1, 6 (partially), 13, 14,

37.

That the Minister provides citizens with information on the condition of their local environment so they are more knowledgeable and are able to make better choices (e.g. reinstate the State of the Environment reporting).

Taken from Proceedings: CL recommendation 10

1.

While the ecosystem based approach has value, it is not applicable in all cases.

Taken from Proceedings: EA recommendation 5 (partially), consideration 1 (partially)

2.

Good bioregional planning is an important prevention tool.

Taken from Proceedings: EA consideration 2

3.

Conservation planning should be sharply focused on identifying and alleviating problems, recognizing that the ecosystem approach is sometimes appropriate to that task.

Taken from Proceedings: EA recommendation 7

4.

Recognize that there are long term commitments by all partners, stakeholders, and Aboriginal peoples to promote conservation and that adopting the principles of conservation first, respect for Aboriginal traditional knowledge, precaution and prevention will, over time, minimize the need for recovering species at risk.

Taken from Proceedings: CL consideration 1, recommendation 11 (partially)

5.

The positive link between awareness/education/experience of nature and human physical and mental health must be recognized.

Taken from Proceedings: CL consideration 2

EA1 – Using an Ecosystem Approach to Protect and Conserve Species

SE2 – Considering Socio-Economic Factors in SARA Decision-making

CL1 – Promoting Canada’s Conservation Legacy

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