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As noted in Canada's previous report to the NAFC, the Government of Canada adopted new ways to deliver its programs and services at lower cost to Canadians, following a major review. For the most part, Natural Resources Canada (NRCan) and the Canadian Forest Service (CFS) have instituted the required changes and efforts are focusing, once again, on carrying out the business at hand. In this regard, NRCAN recently reviewed its mandate and set upon a revised course of action, based upon its new mission statement: "For the next century, Canada must become the world's "smartest" natural resources developer: the most high-tech; the most environmentally friendly; the most socially responsible; the most productive."
As the premier forestry S&T research and national policy coordination agency in Canada, the CFS will play a leading role in responding to the challenges ahead by generating and transferring knowledge; developing tools and methodologies to measure Canada's progress in sustainably managing its forests; providing support to universities and private research bodies; and communicating the benefits of the tools and technologies developed through science networks.
Canadians endorsed a successor strategy, covering the period 1998-2003, during the National Forest Congress in May 1998. It builds on the 1992-1997 strategy's accomplishments and on the findings of two independent evaluations. National Forest Strategy 1998-2003: Sustainable Forests, a Canadian Commitment sets out 9 strategic directions, contains 31 objectives and identifies 121 commitments to action. Again, the strategy is the result of extensive consultations across Canada since the fall of 1997, involving the range of forest interests: Aboriginals, academics, environmentalists, industry, governments, labour, private woodlot owners, research organizations and others. Five regional and one national fora were held where participants considered how best to update previous strategic directions, objectives and commitments.
Federal legislation was enacted in 1995 to help strengthen the Government of Canada's performance in protecting the environment and promoting sustainable development. As a result, Natural Resources Canada (NRCan) submitted its first report, entitled Sustainable Development Strategy: Safeguarding our Assets, Securing our Future, to Parliament in December 1997. The strategy summarizes key issues surrounding the sustainable development of natural resources; states goals and objectives; and puts forward an action plan for the next three years. Similarly, after two years of consultations with staff, clients and stakeholders, the CFS recently published a document entitled Strategic Plan: Beyond the Millenium 1998-2003. The document outlines the environmental context in which the CFS operates, identifies major challenges and outlines six broad directions.
As part of the Government of Canada's Knowledge Infrastructure Initiative, the CFS is also identifying and assessing its technological requirements and capabilities. To this end, it is spearheading an alliance among industry, universities, provincial and territorial governments, Aboriginal groups and non-governmental organizations to use evolving communication technologies to exchange forestry data and knowledge. The endeavour will link several systems, making it possible to gain access to the range of forestry information through a single window and to combine different types of information into a single product.
NRCan and the CFS continue to be guided by expert advice from outside the department in a number of areas. For example, the Minister established the National Advisory Board on Forest Research (NABFOR) in 1997 to make recommendations on the needs and priorities in forest research. The Forest Sector Advisory Council (FSAC), co-chaired by a company chief executive officer and the head of the Industrial Wood and Allied Workers (IWA) of Canada, reports to the Minister of Industry Canada and the Minister of NRCan. It assists in identifying priorities and formulating strategies to improve international competitiveness and in assessing the impact of federal policies, regulations and legislation.
As well, a National Forest S&T Course of Action was tabled at the National Forest Congress in May 1998. It identifies a strategic agenda for the development and use of scientific and technical knowledge in the forest sector to help Canada meet its international commitments such as the implementation of criteria and indicators for sustainable forest management. The Course of Action has been incorporated into the national forest strategy and will guide Canada's forest science community in the coming years to meet emerging S&T challenges facing the sector.
With regard to criteria and indicators, Canada noted in its last report to the NAFC that it was implementing six criteria and 83 indicators that define and measure sustainable forest management in the Canadian context. Implementation is underway and reports describing Canada's ability to measure the forest values that Canadians want to sustain and enhance were recently published. Technical Report: Criteria and Indicators of Sustainable Forest Management in Canada and Progress to Date: Criteria and Indicators of Sustainable Forest Management in Canada are available on the Internet at http://www.nrcan.gc.ca. In addition, the CCFM approved a plan to collect data and information to report on sustainable forest management, in 2000, through a core set of 49 indicators.
In 1996, NRCan and Indian and Northern Affairs Canada launched the First Nation Forestry Program in partnership with First Nations. Its four objectives are to: 1) enhance the capacity of First Nations to operate and participate in forest-based businesses; 2) increase First Nations cooperation and partnership; 3) investigate different mechanisms for financing First Nations forestry; and 4) improve the capacity of First Nations to sustainably manage reserve forests. Over a five year period, the federal government will provide $24.9 million to communities across the country. First Nations and partners have already invested in excess of $20 million into more than 450 projects in the first two years of operation.
Roughly one million Aboriginal people live in Canada today. Approximately 80 percent live in areas covered by boreal forest or temperate rainforests. They have developed a special cultural and spiritual connection with the land and an intimate knowledge of the forest and other ecosystems. Growing recognition and respect for their unique perspective have led to increased Aboriginal involvement in forest management.
In addition to the CFS, several provincial governments carry out a variety of research programs, as do forestry faculties in Canadian universities and colleges and some of Canada's larger forest companies. Innovative approaches to partnerships among resource agencies, researchers, communities and interest groups are increasingly becoming the norm.
Transfer of technology and information exchange at local, regional and international levels are other core functions in the CFS. Activities take place on several fronts, through a variety of means, including publications, workshops, colloquia, conferences and demonstration projects. They also occur as a result of initiatives designed to build capacity and enhance collaboration in research, such as the First Nation Forestry Program and model forests.
With regard to commitments arising from the Framework Convention on Climate Change (FCCC), Canada issued its second report in May 1997 to the Conference of the Parties. The document presents Canada's greenhouse gas emission inventory for 1990-95, including information on the carbon budget of its total forest area. It also describes Canada's climate change policies and research. As well, work is underway within the CFS and provincial forest agencies to define information needs related to the Kyoto Protocol and the means by which to respond to them.
Canada's first report to the Conference of the Parties to the Convention on Biological Diversity (CBD) describes a number of actions being taken to conserve biological diversity in Canada's forests. The CFS was the first federal agency to release its own action plan for implementing the Canadian Biodiversity Strategy and was commended by Canada's Commissioner of the Environment and Sustainable Development for its leadership. Entitled Biodiversity in the Forest - the Canadian Forest Service Three-Year Action Plan, the document identifies three major goals: measuring forest biological diversity, understanding human impacts and advising on conservation strategies.
Also, Environment Canada recently published a report on Canada's continuing commitment to implement the Canadian Biodiversity Strategy. Conserving Wildlife Diversity: Implementing the Canadian Biodiversity Strategy highlights the efforts of federal agencies, often in partnership with other governments and organizations, to deal with the conservation of wildlife and wildlife habitat. A second Environment Canada report on biodiversity looks at the way people learn about biodiversity and the role they can play in its stewardship. It explores current trends and influences in educational theory and their application to biodiversity education, noting a number of unique and creative initiatives in Canada. The document was prepared in collaboration with biodiversity educators and academics.
As a major player in the forest sector, the CFS will pursue its commitment to sustainable forest management through sound forest science and the development of strategies to improve Canada's understanding of forest ecosystems. Key tasks will be designing, developing and implementing tools, techniques and processes required to expand Canada's knowledge base in sustainable forest management, in collaboration with provinces, territories and forest interests.
INTRODUCTION
Canada's report to the nineteenth session of the North American Forest Commission (NAFC) covers activities since its last submission in November 1996.
It is divided into four sections under the following headings:
organizational changes;
major developments;
UNCED/IPF follow up activities; and
future directions.
A statistical and narrative profile of Canada's forests is given in Appendix 1.
1. ORGANIZATIONAL CHANGES
As noted in Canada's previous report to the NAFC, the Government of Canada adopted new ways to deliver its programs and services at lower cost to Canadians, following a major review. For the most part, Natural Resources Canada (NRCAN) and the Canadian Forest Service (CFS) have instituted the required changes and efforts are focusing, once again, on carrying out the business at hand. In this regard, the department recently reviewed its mandate and set upon a revised course of action, based upon a new mission statement: "For the next century, Canada must become the world's "smartest" natural resources developer: the most high-tech; the most environmentally friendly; the most socially responsible; the most productive."
2. MAJOR DEVELOPMENTS
2.1 NRCan Sustainable Development Strategy
At the federal level, legislation was enacted in 1995 to help strengthen the government's performance in protecting the environment and promoting sustainable development. Through amendments to the Auditor General Act, ministers are required to have sustainable development strategies for their departments. In December 1997, NRCan submitted its first strategy to Parliament entitled Sustainable Development Strategy: Safeguarding our Assets, Securing our Future. It recognizes that Canada will continue to use and develop its resources in a way that protects the health of the natural environment and landmass and ensures a legacy for future generations. The strategy comprises a summary of the key issues surrounding the sustainable development of natural resources; goals and objectives; and an action plan for the next three years. It also identifies areas where NRCan will focus its activities, including making better decisions; enhancing long term social and economic benefits; and maintaining a healthy and safe environment.
2.2 CFS Strategic Plan
The focus and make-up of the CFS has changed significantly since issuing its last corporate strategic plan in 1993 and its Strategic Plan for Science and Technology (S&T) 1995- 2000 in 1994. Though many of the social, economic and environmental issues and challenges remain relevant today, the Government of Canada's Program Review, combined with the federal role outlined in Canada's Framework for Federal-Provincial/Territorial Cooperation in Forestry (January 1995), led the CFS to refocus its priorities and alter its management and operational structure.
Following consultations with key stakeholders and partners in 1996, the CFS launched its ten national S&T networks, restructured its headquarters and established a number of partnerships and advisory bodies. The CFS then embarked on a two-year strategic direction-setting process based on staff, client and stakeholder consultations. The product of this dialogue is the CFS's Strategic Plan: Beyond the Millenium 1998-2003. Published in 1998, it establishes the direction the CFS will be pursuing over the next five years to meet its obligations both nationally and internationally. The document outlines the environmental context in which the CFS operates, identifies key issues and challenges, outlines six broad directions and presents responses to these issues in the form of science and policy commitments. It is a blueprint for action that will guide the preparation of the CFS's annual operating plans.
Specifically, the plan addresses the needs of Canada's forest community into the new millennium; demonstrates the sector's commitment to becoming a forward-looking organization, responsive to change; recognizes the importance of individual staff contributions; and informs employees about the goals and the operational environment of the CFS to help them better respond to the challenges and issues over the next five years.
In terms of public communication, the document has been widely distributed and is available on the Internet at the following address: http://nrcan.gc.ca/cfs/mandat/mandat_e.html.
2.3 Knowledge Infrastructure Initiative
As part of the Government of Canada's Knowledge Infrastructure Initiative, the Canadian Forest Service (CFS) is identifying and assessing its technological requirements and capabilities. To this end, it is spearheading an alliance among industry, universities, provincial and territorial governments, Aboriginal groups and non-governmental organizations to use evolving communication technologies to exchange forestry data and knowledge. The endeavour will link several systems, making it possible to gain access to the full range of forestry information through a single window and to combine different types of information into a single product.
The forestry knowledge initiative will also enhance the exchange of information among the CFS's ten science and technology networks, put in place in 1996, to address strategic national and international forest issues and research priorities. Through partnerships and alliances with outside agencies, the networks focus on the transfer of technology to resource managers and other clients, on linking corporate and sector policies and on international agreements and commitments. As the networks attract more partners, the scope of their work will grow to reflect the full array of needs and opportunities across the sector. Along the same lines, a new bilingual Website provides information on forest industries and products and forestry in Canada. At www.forest.ca, a comprehensive data base allows one-stop access to every forest oriented Website on the Internet.
3. UNCED/IPF FOLLOW UP ACTIVITIES
3.1 Canada's Forest Policy and Program Coordination
As noted in previous reports, the primary mechanism for cooperation in national and international forestry matters is the Canadian Council of Forest Ministers (CCFM). Membership consists of the thirteen federal, provincial and territorial ministers responsible for forests who provide leadership and set the overall direction for the stewardship of Canada's forests. Through ongoing consultations with Canadians, the CCFM stimulates the development of strategies, policies and programs that promote sustainable forest management. To assist it in carrying out its functions, nine committees address issues ranging from forestry communications to aboriginal forestry.
As trustee of the past and current national forest strategies, on behalf of the Canadian forest community and the public, the CCFM established the National Forest Strategy Coalition to promote and oversee implementation. Government and non-government signatories to the Canada Forest Accord make up the membership whose tasks are to advise the CCFM on related matters, encourage adequate planning, facilitate partnerships, report on accomplishments and arrange for independent evaluations of progress at the strategy's mid-term and completion.
3.2 National and Provincial Frameworks for the Management of Canada's Forests
3.2.1 Canada's National Forest Strategy (1998-2003)
In 1992, Canada published a five-year strategy that served, among other purposes, as the principal mechanism for tracking the domestic implementation of commitments made at the United Nations Conference on Environment and Development (UNCED). Before its expiry, an independent panel conducted mid-term and final evaluations of Canada's progress in implementing the close to one hundred commitments. Although solid and impressive gains were found to have been made in improving sustainable forest management, the panel noted that attention needed to be paid to complete an ecological classification of forest lands; complete a network of protected areas representative of Canada's forests; and establish forest inventories that include information on a range of forest values. Further efforts were also required in the areas of Aboriginal forestry, measuring changes on the ground, mid-career training and forestry on private lands.
Canadians endorsed a successor strategy, covering the period 1998-2003, during the National Forest Congress in May 1998. It builds on the 1992-1997 strategy's accomplishments and on the findings of the two independent evaluations noted above. National Forest Strategy 1998-2003: Sustainable Forests, a Canadian Commitment sets out 9 strategic directions, contains 31 objectives and identifies 121 commitments to action. Again, the strategy is the result of extensive consultations across Canada since the fall of 1997, involving the range of forest interests: Aboriginals, academics, environmentalists, industry, governments, labour, private woodlot owners, research organizations and others. Five regional and one national fora were held where participants considered how best to update previous strategic directions, objectives and commitments.
3.2.2 Canada Forest Accord
As with the first Canada Forest Accord, the second Accord reaffirms the pledge of Canadians to practice sustainable forestry. Signed by members of the CCFM and leaders from the Aboriginal community, industry, labour and other major non-governmental organizations, the Accord highlights the beliefs, vision, goals and commitments of Canadians concerned with the future of their forests. In addition, the second Accord commits signatories to prepare and make public, before the end of 1998, measurable action plans that will identify key deliverables and deadlines. An independent third party will again measure progress regarding implementation.
3.2.3 Memoranda of Understanding
The forestry departments of the federal, provincial and territorial governments have been discussing the development of memoranda of understanding (MOU) to facilitate collaboration while recognizing the constitutional rights of individual parties. The first such MOU was signed by Natural Resources Canada's Canadian Forest Service (CFS) and the Ontario Ministry of Natural Resources in December 1997. As a result, it is expected that cooperation on joint priorities will be enhanced, that coordination among participating organizations will be improved and that the development of future cooperative initiatives will be facilitated. The CFS is pursuing similar MOUs with other provinces and territories.
3.2.4 National Advisory Board on Forest Research
The National Advisory Board on Forest Research (NABFOR) was established in 1997 to advise the Minister of Natural Resources Canada on strategic issues in the forest sector. Members from provinces and territories and the full range of interest groups make recommendations on the needs, opportunities and priorities in forest research, science and technology in Canada and on related issues at the international level. In so doing, NABFOR helps set direction, particularly in areas of interest to the CFS, and reports to the Minister on an annual basis.
3.2.5 Forest Sector Advisory Council
The Forest Sector Advisory Council (FSAC) is comprised of representatives from the private sector, including chief executives from forest product companies, value-added wood firms, labour organizations, conservation groups, academia and Aboriginal communities. It reports to the Minister of Industry Canada and the Minister of Natural Resources Canada, providing advice to the federal government on issues of interest to the sector, its allied industries and employees.
FSAC is co-chaired by a company chief executive officer and the head of the Industrial Wood and Allied Workers (IWA) of Canada. In this regard, it is uniquely positioned to represent the views of key stakeholders on issues affecting the performance of the sector and the well-being of its employees. It has been called upon to assist the Government of Canada in identifying priorities and formulating strategies to improve international competitiveness and in assessing the impact of current or proposed federal policies, regulations and legislation.
3.2.6 Canadian Forest Sector S&T Network
The Canadian Forest Sector S&T Network was recently established to oversee the implementation, coordination and evaluation of a strategic agenda and course of action developed by leaders from industry, academia, the Aboriginal community, forest research institutes and governments. In June 1997, close to one hundred participants from governments and the full range of stakeholders met over two days to identify national science and technology issues, examine the gaps in S&T capacity to address these issues and explore avenues for collaboration and partnerships. The outcome of discussions formed the basis of the National Forest S&T Course of Action which was tabled at the National Forest Congress in May 1998.
The Course of Action identifies a strategic agenda for the development and use of scientific and technical knowledge in the forest sector to help Canada meet its international commitments such as the implementation of criteria and indicators for sustainable forest management. It has been incorporated into the national forest strategy and will guide Canada's forest science community in the coming years to meet emerging S&T challenges facing the sector. It consists of seven themes: coordination and management of forest research; development of indicators to measure sustainable forest management, integration of socio-economic factors; understanding ecosystems; economic opportunities; forest management practices; and involvement of the Aboriginal people.
3.2.7 National Forestry Database Program
In 1990, the Canadian Council of Forest Ministers (CCFM) established the
National Forestry Database Program (NFDP) to provide a quantitative description
of the level of activity in any period, to mark change in activity and to
determine changes in the resource itself. Since then, information on the
financial aspects of forest management has been added to the database, along
with information on the use of pest control products.
Expansion of the database into the realm of non-timber forest values continues
to be a challenge. A federal/provincial workshop recently concluded that
it was not possible, with existing data, to develop national comprehensive
data sets on forest-based wildlife, wilderness or recreation. In early 1997,
however, Statistics Canada conducted a national survey to gauge the importance
of nature to Canadians and information is just now becoming available on
their participation in a broad range of activities such as fishing, hunting,
nature study, wildlife viewing, hiking, canoeing and cross-country skiing.
The design of the survey will permit differentiation of the extent to which
activities are occurring in forested regions versus non-forested regions.
In addition to the national initiatives noted above, several provinces are making changes to their systems for pricing timber and financing forest management activities to accommodate the often unpriced non-forest values society is increasingly attributing to the forest.
3.3 Ongoing initiatives
3.3.1 Public Consultations
Throughout 1997-1998, Canada continued to build on its commitments to consult the public to determine priorities with respect to the future of their forests.
In October 1997, Nova Scotia released a position paper for public comment, outlining its proposed strategy to promote sustainable forest practices on private and Crown lands. That same year, Quebec's Department of Natural Resources announced its intention to review the organization of the forest sector and refocus its initiatives on the basic role of government, i.e., the development of policies, statutes and regulations. It also plans to establish and independent administration responsible for the legal framework and for implementing government policy which will rely on public/private partnerships and the involvement of interested groups.
Similarly, Ontario's Ministry of Natural Resources embarked on a comprehensive new planning process called "Lands for Life" in which it is reviewing the use of Crown-owned natural resources. In February 1998, regional round tables comprising environmental groups, tourism operators, Aboriginal people, recreational users and representatives of resource-based industries finalized objectives that will guide the development of land-use options for each planning region.
A provincial committee of a cross-section of forest stakeholders was formed to advise Saskatchewan's Minister of Environment and Resource Management on a wide range of forest management issues. In addition, the Government of Saskatchewan launched public and industry consultations to assist in the development of the forest regulations needed to implement the Forest Management Act, passed in June 1996.
In 1992, British Columbia introduced an open, democratic land-use planning process to resolve difficult issues. By the end of 1997, land-use plans were approved or under development for more than 80% of the province. They identify protected areas as well as lands available for sustainable resource development and the process has improved understanding among industry, environmental groups and government.
3.3.2 Domestic Criteria and Indicators
As noted in previous reports, in 1993, the CCFM launched a process to develop criteria and indicators for sustainable forest management in Canada, in keeping with a commitment contained in the national forest strategy. After two years of nation-wide consultations with governments, academia, industry, Aboriginal communities, environmental organizations and other groups, it released a Canadian framework of six criteria and 83 indicators to define sustainable forest management in the Canadian context, to measure and to report on the sustainability of Canada's forests. The six criteria are: conserving biological diversity; ecosystem condition and productivity; conserving soil and water resources; global ecological cycles; multiple benefits of forests to society; and society's responsibility.
Implementation is underway and reports describing Canada's ability to measure the forest values that Canadians want to sustain and enhance were recently published. Technical Report: Criteria and Indicators of Sustainable Forest Management in Canada and Progress to Date: Criteria and Indicators of Sustainable Forest Management in Canada are available on the Internet at http://www.nrcan.gc.ca. In addition, the CCFM approved a plan to collect data and information to report on sustainable forest management, in 2000, through a core set of 49 indicators.
Although no single criterion or indicator is a measure of sustainability on its own, together they can highlight trends or changes in the status of forests. Some of Canada's indicators address new concepts and no process is yet in place to monitor them across the country. While experience in implementation has shown that it is easier to evaluate indicators for traditional timber values because data have been collected for a number of years, assessing indicators for non-timber values has proven more difficult. Therefore, future efforts in Canada will focus not only on maintaining databases but developing methodologies to collect data for the social elements of sustainability and improving our understanding of forest ecosystems.
Internationally, Canada continues its active involvement in initiatives surrounding criteria and indicators for the sustainable management of all boreal and temperate forests, particularly those outside Europe. It continues to host the Liaison Office for the Montreal Process and, in this capacity, presented the Preliminary First Approximation Report on Criteria and Indicators for the Conservation and Sustainable Management of Temperate and Boreal Forests at the group's ninth meeting in July 1997 in the Republic of Korea. Following discussions and revisions, a presentation was given at the eleventh World Forestry Congress in October 1997 where the report was made available in English, French and Spanish.
3.3.3 Domestic Model Forest Program
In Canada, a network of eleven working scale forests are operational across most of the major forest eco-regions. They range in size from 100,000 to 1,500,000 hectares, cover more than 8.5 million hectares and operate on the basis of partners working together on shared sustainable forest management goals within the parameters of unique social, ecological and economic conditions of each forest area.
At the network level, model forests collaborate on issues of mutual importance, such as identifying local level indicators that measure progress towards sustainable forest management and communicating these achievements more effectively. The indicators developed at each site will be locally significant and consistent with Canada's national criteria and indicators framework.
In October 1996, the CFS announced its renewed commitment to the program, allocating $40 million for the period 1997 to 2002. During this time, efforts will be made to enhance the degree of Aboriginal participation through 1) an Aboriginal-led model forest that was recently established and 2) through a network-wide initiative to increase Aboriginal involvement at the other ten sites.
3.3.4 First Nation Forestry Program
In 1996, Natural Resources Canada and Indian and Northern Affairs Canada launched the First Nation Forestry Program in partnership with First Nations. The program is designed to improve economic conditions in status Indian communities, fully taking into account the principles of sustainable forest management. Its four objectives are the following: 1) enhancing the capacity of First Nations to operate and participate in forest-based businesses; 2) increasing First Nations cooperation and partnership; 3) investigating the feasibility of different mechanisms for financing First Nations forestry; and 4) enhancing the capacity of First Nations to sustainably manage reserve forests.
Over a five year period, the federal government will provide $24.9 million to eligible communities across the country. First Nations and partners responded enthusiastically by investing in excess of $20 million into more than 450 projects approved during the first two years of operation.
To date, this joint investment has created jobs, encouraged financially viable forestry operations and enhanced forest management skills of First Nations peoples through work opportunities and other means. The First Nation Forestry Program will continue to be one of a number of federal programs where communities can obtain assistance to achieve self-sufficiency through forest-related activities while maintaining traditional and cultural uses of forested areas.
3.3.5 Traditional Forest-related Knowledge
Roughly one million Aboriginal people live in Canada today, with the majority belonging to one of some six hundred First Nations (Indian bands). The Métis population numbers 200 000 and the Inuit in the Arctic, 30 000. Each of these groups and their subgroups have their own culture, territory and system of governance. Approximately 80 percent of Canada's Aboriginal people live in areas covered by boreal forest or temperate rainforests. They have developed a special cultural and spiritual connection with the land and an intimate knowledge of the forest and other ecosystems. Growing recognition and respect for their unique perspective have led to increased Aboriginal involvement in forest management.
While incorporating traditional knowledge of forest ecology into forest management is still in the early stages, some advances are being made. The CFS is undertaking research in partnership with provinces, the aboriginal community and industry. For example, an ethnobotany study was conducted in First Nations lands in the boreal forest of the prairie provinces and produced a report containing information on the traditional uses of more than 200 plant species. Ethnobotany research was also conducted on traditional plants by CFS and university scientists, in collaboration with the Garden River First Nation. Studies examined the traditional medicinal uses of the plants and their implications in forest planning. The potential for commercial application, such as herbal teas and pest controls, was also considered. The final report is now being prepared and will contain information on twenty plants commonly used by First Nations.
In northwestern British Columbia, the Gitxsan are gathering and documenting their own site-specific information, enabling them to better analyze government and industry forest plans. This process also gives them a firmer footing on which to lobby for alternative forest practices. Further, provincially funded traditional use studies identify, record and assess aboriginal traditional use sites important to ceremonial and food gathering activities. Since 1995, British Columbia has funded 30 such studies. Similarly, in northern Alberta, mapping significant Aboriginal sites such as burial grounds, sacred places, trails and medicinal plant areas helps forest companies safeguard them from logging.
In Quebec, the Algonquins of Barriere Lake are participating in the drafting of a management plan so as to maintain the forest characteristics important to their land-based way of life. Also operating in Quebec is the first Aboriginal-led model forest, noted previously. The Waswanipi Cree Model Forest, covering 209 000 hectares, is providing Aboriginal people the opportunity to develop approaches to sustainable forest management based on their values, beliefs and traditions.
In Ontario, specific terms and conditions arising from the Environmental Assessment Act require the Ministry of Natural Resources to negotiate with Aboriginal peoples at the local level regarding opportunities for a more equal participation in the benefits of forest management. The decision includes communities, individuals, enterprises and organizations. In July 1998, British Columbia, Canada and the Nisga'a Tribal Council concluded negotiations on the text of a final agreement to resolve the Nisga'a land claim. This breakthrough is the result of 29 months of talks, following an agreement in principle reached in 1996, paving the way for the Nisga'a to build a stronger, more self-reliant community and achieve greater economic stability. In January 1997, the Yukon and fourteen First Nations signed an umbrella agreement that serves as a template for land claims agreements. Four First Nations have since signed land claims treaties, giving them responsibility for oil, gas, forests, minerals, water and lands.
3.3.6 Forestry on Private Woodlots
An estimated 425 000 individual Canadians own forested land, as do a number of municipalities, institutions, small businesses and forest companies. Fully 80% of all privately owned forested area is found east of Manitoba with the highest concentration in the Maritime provinces.
A year ago, the CCFM established a task force to review taxation policies and their impact on sustainable private woodlot management. At its most recent meeting in September 1998, ministers received the study which confirms that taxation regimes in place at all levels of government raise a number of concerns. The report also outlines a comprehensive approach to addressing those concerns through taxation reform. The ministers agreed to forward the study to their respective finance ministers once the full extent of the recommendations are evaluated.
Around the same time as the task force was beginning its work, the National Round Table on the Environment and the Economy (NRTEE) finalized a report entitled, Private Woodlot Management in the Maritimes after consultations were held with stakeholders. It pointed out three overriding problems: over-cutting of a dwindling resource; lack of sustainable management practices; and lack of knowledge about and incentives for investing in sustainability. Provincial governments in the Maritimes have since responded by a) adopting a plan to address issues surrounding the annual allowable cut, increase silviculture spending and carry out technology transfer; b) passing regulations requiring the certification of harvesting contractors; and c) improving the monitoring of wood harvesting and end uses, developing codes of practice and modifying harvesting regulations.
3.3.7 Certification
Growing demands in the marketplace for certified forest products, particularly by buyers' groups in Europe, are resulting in increased interest in certification by the forest industry. Canada does not endorse any particular scheme. It maintains that the role of governments should be to offer technical and research support and other expertise while ensuring initiatives 1) do not become barriers to trade, 2) are developed and implemented in a transparent and non-discriminatory manner and 3) complement forest related and other environmental goals.
In Canada, three certification approaches are available. The Standards Council of Canada (SCC) approved the CSA Sustainable Forest Management System (Z808, Z809) in October 1996. The auditing system is in place and, as of late 1997, 15 major Canadian forest product companies were in various stages of implementation over an area covering 20 million hectares. The first CSA registration is expected in early 1999. It will confirm that the company meets the sustainable forest management standard for a defined forest area and will not directly result in a label.
The FSC has developed standards for the Maritimes and the Great Lakes/St. Lawrence forest regions. Under this scheme, a large private forest of 24 350 hectares, in southern Ontario, and a district forest area of 188 000 hectares, owned by a major firm in New Brunswick, have been certified. Other sites are pending.
The ISO 14001 Environmental Management System Standard, developed in 1996, is generic and designed to apply to all types and sizes of organizations. Thirteen major companies in Canada are in the process of implementation.
3.3.8 Research
The CFS is the premier forestry S&T research and national policy coordination agency in Canada. Among other activities, it generates and transfers knowledge through world-class forestry research by developing tools and methodologies to measure Canada's progress in sustainably managing its forests; providing funding and advice to universities and private research organizations; and communicating the benefits of the tools and technologies developed through its science networks.
Ten such networks address national and international issues from the CFS's five research centres. Put in place in 1996, they work in the following areas, in collaboration with outside agencies: forest health; climate change; forest biodiversity; forest ecosystem processes; effects of forest practices; landscape management; fire management; pest management methods; tree biotechnology and advanced genetics; and socio-economic research.
With regard to fire management, for example, several initiatives are underway. A study entitled Ecosystem Management by Emulating Natural Disturbance (EMEND) focuses on the level of intervention needed to yield post-disturbance ecosystem processes that resemble those of periodic wildfires. A 1,000 ha experimental site has been established in Alberta on land managed by Daishowa Marubeni International. Partners include CanFor, the University of Alberta, the National Centres of Excellence for Sustainable Forest Management and the Alberta Lands and Forest Service.
In addition, forest fire experts from Canada, the United States and Russia are collaborating on important questions about high-intensity crown fires at a huge outdoor laboratory in the Northwest Territories. The CFS is an active partner in the study which will provide fire management agencies throughout the northern hemisphere with better models to determine where to allocate fire detection and suppression resources. The crown fire research, now in its second year of experimental burning, will also help provide knowledge about the potential impacts of climate change.
The CFS also chairs the Interagency Fire Science and Technology Working Group that forms part of the Canadian Interagency Forest Fire Centre. The group, composed of 13 fire management agencies, was established to identify and collaborate on key fire S&T issues in Canada.
Several other initiatives focus on the health of Canada's forests. CFS scientists are at the forefront of worldwide research and monitoring on the risk and impacts of air pollution on forest ecosystems from stressors such as acidic deposition, ground-level ozone and ultraviolet radiation. Research on exotic pests allows for advice to be given to the Canadian Food Inspection Agency, the North American Plant Protection Organization and the US Animal and Plant Inspection Service on matters such as risk assessments and methods of interception. CFS scientists are also studying the impacts of, and developing options for, forest management activities that preserve and enhance biodiversity, ecological processes and other aspects of forest health.
Provincial governments also carry out a wide variety of research programs, as do forestry faculties in Canadian universities and colleges. Canada's industrial forest institutes conduct research and development in forest engineering, wood product development and pulp and paper technology on a cost sharing basis among federal and provincial governments and industry. Examples include work done by the Forest Engineering Research Institute of Canada (FERIC), a private non-profit research and development organization. Its goal is to improve forestry operations in the areas of harvesting and transportation of wood and the growing of trees by providing the knowledge and technology to conduct cost-competitive, quality operations that respect the forest environment.
Forintek Canada Corporation conducts research on wood products in such areas as solid wood and value-added wood, working to develop technical information for safe wood frame construction within the National Building Code of Canada. Research on value-added wood focuses on species assessment, manufacturing processes, product development and analysis of market access issues.
Some of Canada's larger forest companies also conduct applied research and development, usually in cooperation with federal, provincial and academic institutes. Innovative approaches to partnerships among resource agencies, researchers, communities and interest groups are increasingly becoming the norm.
3.3.9 Transfer of Technology and Exchange of Information
Transfer of technology and information exchange at local, regional and international levels continue to be a core function in the CFS. These activities take place on several fronts and through a variety of approaches, including publications, workshops, colloquia, conferences and demonstration projects. They also occur as a result of initiatives designed to build capacity and enhance collaboration in research, such as the First Nation Forestry Program and the Model Forest Program noted earlier. Similarly, the International Model Forest Program remains an effective means for sharing information among natural resource managers and the many individuals and groups that have an interest and a stake in the health and productivity of forests. In addition to testing and transferring research findings and technology, the model forests are a vehicle for countries to work toward defining sustainable forest management, taking into account the different political, economic, social and cultural values of individual nations.
More specifically, the CFS developed a powerful analytical database, a Digital Elevation Model (DEM), that was successfully transferred to Canada's geomatics industry. DEM is a computer-based representation of topography as points (latitude, longitude and elevation) on a regular grid. This technology is now widely used in digital mapping and in geographic information systems (GIS) for land management applications. It can also be used for terrain modeling, for calculating the influence of terrain of line-of-sight, radar imaging, simulating flooding and other applications in agriculture and natural resources management. The CFS developed the DEM for Canada using software from the Australian National University. It is being marketed and sold by the Centre for Topographic Information, a division of Geomatics Canada. Clients include forest companies, oil and gas interests, environmental consultants and universities. For more information on the Canadian Digital Elevation Model, visit the Internet site at www.ctis.nrcan.gc.ca.
The CFS was also instrumental in developing another natural product, in addition to the bacterial insecticide B.t., that pest managers now have at their disposal to help control outbreaks of spruce budworm. CFS scientists learned the mode of action of this natural product that was synthesized in the laboratory by the Rohm Hass Company. Called "Mimic", the product imitates the natural action of an insect hormone which induces molting (shedding of exoskeleton). The CFS team discovered that the compound triggers premature molting but prevents its completion, leading to starvation. Further studies confirmed field efficacy and appropriate dosages under operational conditions. The CFS also assessed environmental impacts on non-target organisms to provide a basis for registration.
3.3.10 Forests in International Conventions
In May 1997, Canada issued its second national report to the Conference of the Parties, as stipulated in the Framework Convention on Climate Change (FCCC). The document presents Canada's greenhouse gas emission inventory for 1990-95, including information on the carbon budget of Canada's total forest area. It also describes Canadian climate change policies and research.
When the Kyoto Protocol to the FCCC enters into force, it will establish a legally binding commitment for Canada to reduce its anthropogenic greenhouse gas emissions to 6% below 1990 levels in 2008-2012. In meeting this target, emissions and removals in 2008-2012 resulting from human activities in reforestation, afforestation and deforestation since1990 will be included. An extensive consultative process has begun to engage stakeholders in examining the impacts, costs and benefits of potential options, including the enhancement of sinks to develop a national strategy to achieve Canada's Kyoto target. Work is also underway within the CFS and provincial forest agencies to define information needs related to the Protocol and establish the means by which to respond to them.
Canadian forest research related to climate change is focusing on the forest carbon cycle, the effects of climate change on ecosystem processes and the causes of forest decline. The CFS continues to lead scientific efforts to model Canada's forest carbon budget and to study the relationship between climate change and forest fires. Results suggest that shifts in natural disturbances related to fire and insects, especially in remote boreal forests, have caused Canada's total forest area to become a net source of atmospheric emissions after being a significant sink for much of the century. Results from Canada and Russia also suggest that the circumpolar boreal forest is not the location of the supposed missing sink for carbon that has been hypothesized for northern latitudes.
With regard to the Convention on Biological Diversity (CBD), Canada's first report to the Conference of the Parties describes a number of actions to conserve biological diversity and sustainably use biological resources in Canada's forests. Moreover, Canada's provincial, territorial and federal governments cooperated in preparing the Canadian Biodiversity Strategy as a guide to fulfilling their commitments in this area.
The CFS was the first federal agency to release its own action plan for implementing the Canadian Biodiversity Strategy and was commended by Canada's Commissioner of the Environment and Sustainable Development for its leadership. Entitled Biodiversity in the Forest - the Canadian Forest Service Three-Year Action Plan, the document identifies three major goals: measuring forest biological diversity, understanding human impacts and advising on conservation strategies.
Also, Environment Canada recently published a report on Canada's continuing commitment to implement the Canadian Biodiversity Strategy. Conserving Wildlife Diversity: Implementing the Canadian Biodiversity Strategy highlights the efforts of federal agencies, often in partnership with other governments and organizations to deal with the conservation of wildlife and wildlife habitat. A second Environment Canada report, Learning About Biodiversity: a First Look at the Theory and Practice of Biodiversity Education, Awareness and Training in Canada looks at the way people learn about biodiversity and the role they can play in its stewardship. It explores current trends and influences in educational theory and their application to biodiversity education, noting a number of unique and creative initiatives in Canada. The document was prepared in collaboration with biodiversity educators and academics.
The Commissioner's report, Canada's Biodiversity Clock is Ticking, points to additional work needed to make the implementation of Canada's Biodiversity Strategy more effective. Suggestions include enhancing scientific knowledge about biodiversity and improving interdepartmental and federal-provincial coordination. The report also notes that the CFS module lacks time frames, resource allocations, performance indicators and, to a large extent, expected results. The CFS will be able to demonstrate progress in subsequent reviews, given that biological diversity figures prominently in most business plans of the CFS's ten S&T networks and is a priority in both NRCan's Sustainable Development Strategy and in the CFS Strategic Plan (1998-2003).
Another main activity in the global arena in which Canada is actively participating is the Intergovernmental Forum on Forests (IFF), established in June 1997 by the Special Session of the General Assembly of the United Nations to build on the work of the Intergovernmental Panel on Forests (IPF). Its program of work consists of three elements, namely, 1) promoting and facilitating the implementation of IPF proposals for action; 2) monitoring and reporting on this implementation; and 3) considering future international arrangements and instruments, including an international forest convention. Canada is actively participating in IFF discussions and is undertaking a major inter-sessional initiative with Costa Rica and others to facilitate technical discussion on legally binding instruments and possible elements.
4. FUTURE DIRECTIONS
Forest management in Canada has become more complex and information demands are multiplying. The resources of public forest research organizations are shrinking and the private sector is assuming more of the costs of forest management, including increased management responsibilities for forest planning, regeneration and public input processes. As a major player within the forest sector, the CFS will pursue its commitment to sustainable forest management through sound forest science and the development of strategies designed to improve Canada's understanding of forest ecosystems. Key tasks will be designing, developing and implementing tools, techniques and processes required to expand Canada's knowledge base in sustainable forest management, in collaboration with provinces, territories and the range of forest interests.
ANNEX I: Overview of Canada's Forests
The Canadian public owns 94 percent of the nation's forests. The remaining 6 percent are the property of more than 425 thousand private landowners. On behalf of the public, provincial governments manage roughly 71 percent of Canada's forests while the federal and territorial governments are stewards of about 23 percent.
Forest management is a matter of provincial jurisdiction. Each province and territory has its own set of legislation, policies and regulations to govern the management of its forests. The federal government's role in forestry pertains to such areas as science and technology, trade, international affairs, the environment, management of federal lands and Aboriginal matters related to forestry.
In 1995, some 7.6% of Canada's forested land was protected by legislation, an increase of 11% over 10 years. In addition, many forests on shallow or rocky soil, on steep slopes or along lakes and waterways are excluded from harvesting by provincial policy.
Forests play a key role in moderating the climate, regulating water systems, preventing erosion, alleviating air pollution, and providing wildlife habitat. They also offer a multitude of recreational opportunities and are enjoyed by Canadians and tourists from around the world.
The forest land base in Canada is enormous. It is also extremely diverse. The eight major forest regions in Canada all have a different mix of predominant tree species. More than 67 percent of the forest cover is composed of softwoods, 15 percent is hardwoods and 18 percent is mixedwoods. All told, there are 180 tree species in Canada. Most of our forests are even-aged because of cyclical and widespread disturbances.
OVERVIEW OF CANADA'S FORESTS
SELECTED STATISTICS
CANADA
| Population (1997) Total area Land area Forest land National parks Provincial parks |
30.4 million 997.0 million ha 921.5 million ha 417.6 million ha 32.4 million ha 22.9 million ha |
Forest resource (1996)
| Ownership | Provincial Federal Private |
71% 23% 6% |
| Forest type | Softwood Hardwood Mixedwood |
67% 15% 18% |
| Allowable annual cuta
Harvesting-industrial roundwood (volume)b Harvesting (area) Insect defoliationc Forest fires
|
233.6 million m3
177.5 million m3 1.01 million ha 7.1 million ha 1.4 million ha |
Status of harvested Crown land (1995)d
| Stocked Understocked |
82% 18% |
a, b, c, d See notes on last page
FOREST INDUSTRY
| Value of exports (1997) Softwood lumber Newsprint Wood pulp |
$39 billion 32% 17% 18% |
| Major export markets (1997) United States European Union Japan Others |
74% 9% 10% 7% |
| Balance of trade (1997) | $+31.8 billion |
| Contribution to GDP (1997) | $+18.1 billion |
| Value of shipments (1995) Sold domestically Exported |
$71.4 billion 42% 58% |
| Number of establishments (1995) 9 636 logging 2 872 wood 686 paper and allied |
13 194 |
| Employment (1997) 365 000 direct jobs 465 000 indirect jobs 1 job in 17 |
830 000 |
| Wages and salaries (1995) | $11.1 billion |
| New investments (1996) | $7.6 billion |
Notes
Data sources: The main sources for the data are the Canadian Forest Service, Statistics Canada and Environment Canada. Most of the information was collected originally by provincial and territorial natural resource ministries.
Forest Land: The data regarding Canada's forest land are based on the 1991 Canada Forest Inventory.
Forest Resource: Ownership data are provided for the total forest land.
aAllowable Annual Cut: The amount of timber that is permitted to be cut annually from a particular area. AAC is used as the basis for regulating harvest levels to ensure a sustainable supply of timber.
bHarvesting: The figures for harvesting include data for industrial roundwood only. Harvest levels for industrial fuelwood or firewood may range as high as 2.3 million cubic metres.
cInsect Defoliation: The data relating to insects were provided by provincial and territorial agencies and include moderate to severe defoliation only. Defoliation does not always imply mortality. For example, stands with moderate defoliation often recover and may not lose much growth. Defoliation is mapped on an insect by insect basis and a given area may be afflicted by more than one insect at a time. This may result in double and triple counting in areas affected by more than one insect, exaggerating the extent of the total area defoliated.
dStatus of Harvest Crown Land: Data for private land are
not included. The term "stocked" refers to land where the forest cover meets
certain timber-production standards established by forest management agencies
in each province or territory. The term "understocked" refers to harvested
land that requires forest management treatments, such as site preparation,
planting, seeding or weeding, to meet established standards. This category
also includes land that has not yet been surveyed. A significant proportion
of recently harvested areas will always be reported as understocked because
of the time lag between harvesting and observable results of subsequent
treatments. The small percentage of the area harvested each year that is
devoted to roads for access is not included in these data.
TABLE OF CONTENTS
| Executive Summary | page 1 |
| Introduction | page 4 |
| 1. Organizational Changes | page 4 |
2. Major Developments
2.1 NRCan Sustainable Development Strategy |
page 4 |
3. UNCED/IPF Follow up Activities
3.1 Canada's Forest Policy and Program Coordination 3.3 Ongoing Initiatives |
page 6 |
| 4. Future Directions | page 18 |
| Annex I: Overview of Canada's Forests | page 19 |