0399-C3

Canada's Model Forest Program - Building on Success

John K. Naysmith, R.P.F.¹

Abstract

Canada's Model Forest Program, which emphasizes the importance of engaging people at the local level, has enjoyed considerable success in advancing sustainable forest management in a way that reflects Canada's societal values and diverse forests. Based on Canada's Model Forest experience, it seems that the world's human population, given appropriate opportunities and effective structures, could play a singular role in achieving People and Forests in Harmony on a global basis.

Canada's Model Forest Program (CMFP) was designed so that people with a direct interest in the forest, supported by science and technology, could participate in decisions about how forests could be managed on a sustainable basis. Underlying the Program are three basic elements, namely: relevance to local values and needs; diverse and dynamic partnerships; and sustainable forest management.

From that philosophical core and a decade of growth, CMFP, comprising eleven individual Model Forests (covering 19.8 million hectares) and the Program Network, has developed a unique set of characteristics and strengths. In some cases those qualities apply to a particular Model Forest; in other cases they are common to several or all. In every instance each Model Forest has developed a range of capabilities enabling it to undertake an array of activities at the local level, all of which focus on some aspect of sustainable forest management. Through the national network, comprising all of the Model Forests and the Canadian Forest Service (CFS), Model Forests are able to learn from one another and adapt to their own needs, successful practices developed in other regions of Canada.

Introduction

People and Forests in Harmony, one of the themes of the XII World Forestry Congress, is just what Canada's Model Forest Program is all about. What is intriguing about the Model Forest initiative in Canada, where it originated, and also internationally, is its immense potential. In spite of the many successes achieved to date it is safe to say we have only scratched the surface.

The immense global potential derives not only from the magnitude of the world's forests - more than three billion hectares still - but also from the six billion people who inhabit the earth and, more than we perhaps fully appreciate, depend upon that vast forest for their very health and well-being. The issue with which we are constantly seized, namely the effect an increasing population is having upon the globe's forests, can be, if viewed from a different perspective, the principal catalyst in stabilizing forest depletion, reclaiming degraded forest land and ensuring that the full range of forest values is maintained in a sustainable manner.

How? By adopting the philosophy of the Model Forest. Principles underlying CMFP include consensus building, local people's involvement, and collaboration among governments, researchers and industry. People are an integral part of the forest estate; therefore, people must be an integral part of the process for achieving sustainable forest management (SFM).

The Genesis of Canada's Model Forest Program

By the early 1990's the Canadian forest community had developed a new National Forest Strategy and Canada Forest Accord which incorporated the principles of sustainable development into an overall action plan. As well, new legislation was formulated in some provinces to ensure that forest managers sought input from others in the preparation of forest management plans.

It was clear from the start that forestry issues were too great to be addressed through purely legislative and regulatory change alone. Top-down solutions contained little practical guidance for those wanting to make specific changes in the way they managed the forest at the local level (CMFN 2000). As well, since ecological, social and economic conditions vary from place to place, there could be no single, universal formula for SFM.

It was in this context that the idea of CMFP materialized. The CFS, Natural Resources Canada, recognized the need for a neutral forum that respected individual interests but endeavoured to achieve common goals related to SFM. Model Forests were to be designed so that people with a direct interest in the forest, supported by the most up-to-date science and technology, could participate in decisions about how forests could be sustainably managed.

In 1991 the CFS called for proposals for managing specific areas of at least 100,000 hectares each. Proposals were expected to outline a management structure that would facilitate partnerships and cooperation among institutions and interested partners; a set of objectives to conserve and balance a variety of values; and a set of activities that would demonstrate approaches to SFM.

Model Forests were also expected to support education in the theory and practice of SFM, and to serve as centres for technology transfer. Model Forests were to be designed as large-scale, living laboratories where people with an interest in the forest could participate in decisions about how the forest could be sustainably managed. While it was expected that Model Forests would not exercise decision-making authority over the land base, they were to include in their partnerships those with legal tenure over the land. Fifty proposals were received from across Canada. An independent panel reviewed them and selected ten Model Forest sites which collectively represent all of Canada's major forest regions ( LaPierre, 2002).

The Concept Develops

It has been eleven years since CMFP began. During Phase I (1992-1997), most Model Forests experienced challenges as people who had often been at odds moved ahead with the difficult task of agreeing on what they would need to do to ensure forest sustainability. There was no precedent for such a process, and the first few years were spent determining priorities and how to reach a consensus about what should be done. Phase I focussed on local partnerships, the development of effective working relationships, the enhancement of knowledge of local conditions, and a commitment to work together toward a common goal.

Phase I was successful in creating partnerships among people and organizations. Phase II (1997-2002), by comparison, was designed to build on that success by having the Model Forest participants put into practice what they had learned about SFM and communicate the results of their work to more people. In designing Phase II, the CFS focussed participants on the need to share Model Forest experiences and demonstrate innovations with emphasis on those that could be utilized by other forest users throughout Canada. In Phase II the CFS itself became a full member of the board of directors of each Model Forest. This increased involvement strengthened its role in improving alliances between Model Forests, in disseminating the Model Forest story nationally, and in providing more effective feedback to the forest policy level.

A Network: Working Together, Sharing Experiences

Several strategic initiatives were introduced during Phase II to enhance network-level participation, including local level indicators (see von Mirbach 2000), private woodlot initiatives, and enhanced Aboriginal involvement (CMFN 2002). The latter two initiatives are described below. (Note that because of the network, the strategic initiatives were shared across the country.)

The Canadian Model Forest Network (CMFN) recognized the importance of private woodlots in achieving sustainable forest management in Canada. Over the last decade there have been significant changes in policies and programs aimed at private woodlots. At the same time, the pressure being placed on woodlots to provide a full range of forest benefits has been increasing. The CMFN Private Woodlot Strategic Initiative (PWSI) commenced in 2000/2001 to develop a strategy for addressing private woodlots.

Under the PWSI the CMFN identified two principal areas to be addressed in Phase III (2002-2007), namely, encourage network-wide response to private woodlot issues; and carry out specific projects that reflect issues of national interest, but are conducted at a local level. It is expected that this will result in increased involvement of private woodlot owners in Model Forests, and a corresponding increased support for projects involving woodlot owner groups and other Model Forest partners that address the evolving needs of the woodlot sector. A substantial amount of experience has been developed that can be adapted and disseminated much more widely to advance SFM as it applies to private woodlot management.

The Enhanced Aboriginal Involvement (EAI) Strategic Initiative was designed to enhance First Nation, non-status Indian and Metis communities' participation in the development and accumulation of knowledge and tools associated with sustainable development and the management of forest resources, through Model Forests and socio-economic partnership initiatives (LaPierre 2002). In 1998 the Waswanapi Cree Model Forest (WCMF), Canada's only First Nations Aboriginal Model Forest, was established. In addressing the goal of SFM the Cree advance the principle of socio-economic integrity, in contrast to the emphasis placed on environmental protection and economic development by the non-Cree community.

Through the EAI, Model Forests strive to establish strong, lasting partnerships with Aboriginal communities. In this way Aboriginal communities can effectively participate in resource management planning and integrate their values into the SFM decision-making processes. An example of this kind of partnership involves the Manitoba Model Forest and three Aboriginal partners: Brokenhead Ojibway First Nation, Little Black River First Nation and Hollow Water First Nation (CMFP 2000).

In 1998 and 1999 the three First Nations gathered information from community members and elders on traditional forest uses, activities, history, language and sacred sites related to their traditional lands. First Nations community researchers were trained in the use of Geographic Information Systems applications and entered the results of the community interviews into the system. Funding was provided by the Manitoba Model Forest, the EAI Strategic Initiative, Pine Falls Paper Company and the First Nations. The project provides the communities with a permanent and mapped record - maps and databases have been produced for all communities - of their relationship to the land as well as the Ojibway language used to describe it.

Philosophy, Characteristics, Strengths and Capabilities

Distributed across Canada from Newfoundland to British Columbia, Canada's eleven Model Forests have not only been notably successful but often successful in ways unique in Canada.

One distinguishing feature of Canada's Model Forests for example, is their size. Together they form a network of large-scale working models of sustainable forestry. Five of Canada's now eleven Model Forests exceed one million hectares each, and the eleven cover a total of 19.8 million hectares.

It is important to note that what began as a single-country initiative has now spread to many regions of the world. At the 1992 United Nations Conference on Environment and Development, Canada announced an International Model Forest Network (IMFN) initiative. Initially the program resulted in the establishment of two Model Forests in Mexico and one in Russia, each of which was "twinned" to a Canadian Model Forest. Today the IMFN comprises 19 sites in eleven countries, excluding those in Canada (Besseau et al 2002). Those 19 sites cover eight million hectares.

Since its inception in 1992, CMFP has had at its philosophical core three basic elements, namely:

• relevance to local values and needs
• diverse and dynamic partnerships, and
• advancing Sustainable Forest Management

CMFP has over its eleven-year life developed a set of characteristics, some unique to a particular forest, others common among several. In addition, the Network as a whole has certain characteristics that have developed out of sharing ideas and experiences and through collaboration among Model Forests.

These characteristics include the following:

• Representative partnerships: within each Model Forest there exists a partnership consisting of a broad range of interests including community and public interest groups, various levels of government, Aboriginal groups, industry and educational institutions. The majority of the original participants continue to be involved and many others have joined. This feature more than any other makes the Model Forest Program distinctly different to any other previous or current forest management initiatives in Canada (LaPierre 2002).
• The use of science and technology to aid in decision-making: The Model Forests have been instrumental in the incorporation of research findings into effective decision-making and on-the-ground practices. These include the use of simulation models by planners and managers. They also include biological and social science projects that increase knowledge of ecological processes and awareness of the social and economic impact of forestry activities.
• Linkages developed between the partnerships and science and technology: traditionally it has been a challenge to bring together the manager or administrator of forest land and the research findings of the scientific community. Moreover to bring together the forest researcher and the community at large has been, in the Canadian context, rarely even attempted.

As Canada's Model Forests explore and develop a range of approaches to SFM and partnership building, they at the same time demonstrate a growing number of strengths.

Some of the strengths of Canada's Model Forests include:

• Each Model Forest partnership is a transparent, democratic and usually consensus-based process where the rules for the partnership process are defined by the partners.
• Model Forest partnerships are defined by local conditions. The local base of each of the eleven Model Forests means that locally applicable approaches to issues are developed.
• The Model Forest structure allows for effective exploration of new and innovative approaches to delivering its own programs that in turn reflect local values and needs
• Each Model Forest organization does not in itself have jurisdiction over the forest area it uses as a testing ground. Without jurisdictional responsibility, the Model Forests become forums first for the pooling of resources, both human and financial, and second for the discussion of a wide range of issues and solutions to problems without posing a perceived threat to those with jurisdiction.
• Each Model Forest is part of a higher-level, national network partnership. Through the effective exchange of information, experiences, and ideas Model Forests learn and draw strength from each other.

The characteristics and strengths noted above have given rise to a range of capabilities that enable the Model Forests to:

• examine interactions between human activity and the natural world
• build local capacities for sustainable forest management
• incorporate traditional knowledge and Aboriginal involvement into SFM
• incorporate multiple values into SFM and in turn link SFM to technology
• develop broad functional partnerships for sustainable development
• demonstrate SFM on both public and private lands
• measure and evaluate progress toward SFM
• communicate with the public at large

Illustrations of Model Forest Capabilities

In the discussion below, selected Model Forests illustrate key capabilities chosen from the list above. It should be noted, however, that similar illustrations could be drawn from any of the other Model Forests.

• Broad functional partnerships
  Consensus decision-making is a hallmark of the Fundy Model Forest (FMF). The FMF functions in a governance model that begins at the grass roots when designing initiatives and activities. Goals and objectives are identified by the Partnership as a whole; however, the strategic initiatives and activities designed to meet the goals and objectives come from a number of Working Groups. Annual work plans developed by the Working Groups go through the Partnership Committee. The FMF Partnership comprises thirty-four member organizations. The Partnership Committee (all partner representatives sit on the committee) is the decision-making body of the Program and is responsible for the design and implementation of the activities necessary to meet the objectives.
  
  
• Demonstrating sustainable management on private lands
  Proximity to Canada's capital, over one million people in the Model Forest area and 88 percent of the land area privately owned are some of the distinguishing features of the Eastern Ontario Model Forest (EOMF). A principal focus of the EOMF continues to be working with private landowners to encourage the adoption of SFM practices. Workshops have been developed on various topics, ranging from conifer plantation management to ice storm recovery. Some 1100 landowners have been reached through the delivery of these workshops. One innovative aspect of delivery is the coupling of hands-on learning through visits to forest demonstration sites with information-oriented workshops. The EOMF now has thirty demonstration sites to showcase various aspects of SFM to an estimated 2500 landowners, as well as to students and other members of the public.
  
  To make full use of all resources in private forests, the Bas-Saint-Laurent Model Forest (BSLMF) has enhanced its knowledge of the landbase by conducting studies on non-timber values. A series of pilot projects addressing all forest resources was developed, tested and promoted. These include voluntary wetland conservation in private forests, a beaver habitat management guide, habitat suitability indexes for selected species groups, reintroduction of white pine, low-density reforestation, enhancement of mixed forest silviculture and testing of watercourse crossing techniques. Considerable effort has been devoted to communications with a view to promoting the BSLMF and CMFP, thereby exerting a positive influence on forest activities beyond its own boundaries.
  
  
• Interactions between human activity and the natural world
  
  The Western Newfoundland Model Forest (WNMF) has examined an array of cases involving human activity and the natural world and contributed to the development of strategies to minimize potential detrimental effects. The WNMF assisted Corner Brook Pulp and Paper Limited in the design and implementation of the Main River Landscape Design Project. This project uses landscape design techniques to develop a modified harvesting plan for timber in a portion of the sensitive and unique Main River area. The project integrates aesthetic values into plans for timber harvesting.
  
  Foothills Model Forest (FMF) has successfully developed and implemented a fish and fish habitat monitoring project within fourteen watersheds on the FMF land base. This project allows the FMF Partners to describe the effects of management activities on fish and fish habitat. Data from this project feed directly into the FMF Local Level Indicator project, and will support regional initiatives to promote integrated resource management.
  
  
• Linking sustainable forest management and technology
  The McGregor Model Forest (MMF) Approach to SFM is a participatory and cooperative planning suite of technologies and tools that help to realize efficiencies and generate management strategies to achieve SFM. A significant operational application of the McGregor Approach (2.6 million hectares) is the Morice and Lakes Timber Supply Areas Innovative Forest Practices Agreement, which involves six companies, the Government of British Columbia, communities and local non-government organizations.
  
  The Lake Abitibi Model Forest (LAMF) has shown strong leadership in technology and information transfer through various forums, including quarterly newsletters, publications, science information and technology transfer workshops, and an innovative management-impacts field course. All of these venues have served as effective means for transferring information. To quote a representative of Tembec Industries Inc. "This is a significant accomplishment of the LAMF - drawing together researchers, government and forest industry representatives from Quebec and Ontario to work together in sustainable forest management."

Conclusion

A key strength of Canada's Model Forest Program is the network that has been developed by the eleven Model Forests in concert with the Canadian Forest Service. Experience has shown that this network provides vast potential for learning from one another and opportunities for taking an initiative or practice that proved successful in one Model Forest and adapting it, in whole or in part, to another region of Canada.

Add to that strength the fact that Sustainable Forest Management, to be successful, needs a large infusion of human ingenuity. At the same time, human ingenuity needs to find opportunity for expression in order to flourish. People need to know that they matter, that they have a role. Model Forests, both in Canada and around the world, are designed for that very purpose. Because of that, they have been and will continue to be a landmark success.

Literature Cited

Besseau, P., K. Dansou and F. Johnson 2002. The International Model Forest Network (IMFN): Elements of Success. For. Chron. 78(5): 648-654.

(CFS) Canadian Forest Service. 2002. Phase III Proposals for Canada's Model Forest Program (internal papers)

(CMFN) Canadian Model Forest Network. 2000. Beacons of Sustainability: A Framework for the Future of Canada's Model Forests. Ottawa, ON, 49 p.

(CMFN) Canadian Model Forest Network. 2002. Private Woodlot Strategic Initiative Report on 2001/2002 and Outlook for 2002/2003. Ottawa, ON, 07 p.

(CMFP) Canada's Model Forest Program. 2000. Strategic Initiatives. Ottawa, ON, 22 p.

LaPierre, L., 2002. Canada's Model Forest Program. For. Chron. 78(5): 613-617

von Mirbach, M., 2000. A User's Guide to Local Level Indicators of Sustainable Forest Management: Experiences from the Canadian Model Forest Network. Canada's Model Forest Program. 265 pp. http:www.modelforest.net

¹ Professor Emeritus, Forestry, Lakehead University, Thunder Bay, ON Canada, P7B 5E1.
E-mail: [email protected]