Protecting Biodiversity: Ministries Stake Out Roles
The year 2010 will mark a turning point in the conservation of the world’s biodiversity. Almost every country on Earth, including Canada, will meet in Japan to chart a bold path forward to meet the challenges of this global environmental issue. The international community has firmly committed “to achieve by 2010 a significant reduction of the current rate of biodiversity loss at the global, regional and national level as a contribution to poverty alleviation and to the benefit of all life on Earth.” The 2010 Biodiversity Target was endorsed by the United Nations General Assembly.
Ontario is home to over 4,000 types of plants, 154 fish species, 78 different mammals, 53 amphibians and reptiles, and close to 500 bird species, ranging from beluga whales off the coast of Hudson’s Bay to monarch butterflies that migrate annually from Mexico.
Experts from around the planet have described the current rate of species loss as a mass extinction. Unlike extinction events in the Earth’s more distant past, human impacts on the natural world are primarily responsible for this species loss. The most significant threats are habitat alteration and loss, climate change, invasive alien species, overexploitation, and pollution.
The Ontario government has a crucial role in protecting and restoring biodiversity. The Ministry of Natural Resources (MNR) released Ontario’s Biodiversity Strategy in 2005, setting out “long-term direction and practical steps that can be achieved, measured and reported on in the next five years.” At the time, the strategy represented a significant step forward as the Ontario government first recognized its responsibility to conserve the province’s biodiversity. However, serious shortcomings of this strategy have gone largely unaddressed. The strategy does not specify the responsibilities of the different government ministries, set out timelines to accomplish objectives, or establish measurable targets.
Ontario’s Biodiversity Strategy contains 37 recommendations. Upon its initial release, 10 priority actions were identified and were scheduled to be initiated in 2005. Since that time, no new priority actions have been publicly identified. Based on this apparent lack of government momentum, the ECO recommended in our 2007/2008 Annual Report, that “all prescribed ministries develop detailed action plans that specify the measures to conserve biodiversity that they will undertake.” The ECO obtained updates from eight ministries, which describe their perceived responsibilities and their actions to conserve Ontario’s biodiversity.
Ministry of the Environment (MOE)
MOE states that its focus is to reduce the impact of pollution on biodiversity. The ministry asserts that Ontario’s Clean Air Action Plan, its role in nutrient management on farms, the Clean Water Act, 2006, the Lake Simcoe Protection Act, 2008, and the Canada-Ontario Agreement on Great Lakes Water Quality contribute to biodiversity conservation. MOE also has several monitoring programs that help in the assessment of potential impacts on biodiversity, including water quality monitoring of inland lakes and the nearshore of the Great Lakes.
Ministry of Energy and Infrastructure (MEI)
MEI states that it is targeting three of the five main threats to biodiversity: climate change, habitat loss, and pollution. The ministry maintains that actions to be taken in Ontario’s electricity sector, including the coal replacement plan, will play an important role in achieving the government’s greenhouse gas emissions reduction targets. MEI asserts that the electricity sector is expected to contribute 44 per cent of the emissions reductions needed to reach the 2014 target of a 6 per cent reduction below 1990 levels. MEI states that it also is working to reduce air pollution through the promotion of cleaner sources of energy. MEI believes that the Growth Plan for the Greater Golden Horseshoe will contribute to biodiversity conservation. The ministry maintains that this plan “helps Ontario avoid the negative impacts of unchecked growth, including urban sprawl that leads to the elimination of natural areas.” Higher intensification targets for urban growth will also help in reducing the environmental footprint of development. MEI also states that it protects ecologically significant properties by transferring title or entering into agreements with other agencies or levels of government for lands.
Ministry of Transportation (MTO)
MTO states that its transportation planning, design, construction, operations, and maintenance are carried out in support of conserving biodiversity. The ministry asserts that its transportation planning and highway design processes protect the habitat of species at risk, as well as maintaining the diversity of habitat for other wildlife. MTO states that its Environmental Standards and Practices explicitly support biodiversity conservation. It is also developing an environmental management system to address compliance issues with the “ultimate goal to implement continuous improvement to environmental performance including protecting biodiversity.”
In June 2008, MTO began the development of a corporate sustainability strategy. The ministry states that the strategy will commit MTO “to being more accountable for its social, economic and environmental impacts.” Over the next 24 months, the ministry will also be reviewing its Statement of Environmental Values (SEV) to consider ways to strengthen it, including “a more formal incorporation of a biodiversity objective.”
Ministry of Culture (MCL)
MCL states that it “does not have any legislative mandate or jurisdiction, nor any non-legislative program responsibility, directly related to the conservation of Ontario’s biological diversity.” The ministry notes that the Ontario Heritage Act was amended in 2005, which included changes to the powers of the Ontario Heritage Trust. These changes included the conservation and protection of property of “natural” interest, which could assist in the conservation of biodiversity.
Ministry of Municipal Affairs and Housing (MMAH)
MMAH states that it integrates biodiversity conservation into land use planning through the Provincial Policy Statement, 2005 (PPS), the Planning Act, and provincial plans. For example, the ministry asserts that the Greenbelt Plan “provides full protection for about three-quarters of the Greenbelt’s lakes, wetlands and forests.” The ministry maintains that the PPS provides for the long-term ecological function and biological diversity of natural heritage systems. MMAH also states that the Planning Act identifies the protection of ecological systems as a provincial interest; this legislation provides municipalities with tools that can be used to protect biodiversity. For example, municipalities can enact zoning by-laws to restrict the use of land in areas that are significant wildlife habitat, wetlands, woodlands, ravines, valleys, or areas of natural and scientific interest or that are significant natural corridors, features or areas.
Ministry of Northern Development and Mines (MNDM)
MNDM states that the ministry’s approach to biodiversity conservation is directed by the Mining Act, the purpose of which is “to encourage prospecting, staking and exploration for the development of mineral resources and to minimize the impact of these activities on public health and safety and the environment through rehabilitation of mining lands in Ontario.” The ministry also relies on its SEV, its Abandoned Mines Rehabilitation Program, government reforms to regulating brownfield redevelopment, and the mine closure requirements to assist in conserving Ontario’s biodiversity.
Ministry of Food, Agriculture and Rural Affairs (OMAFRA)
OMAFRA states that its policies and programs relate in varying degrees to 11 of the 37 recommended actions in Ontario’s Biodiversity Strategy. The ministry is responsible for actions related to Environmental Farm Plans (EFPs) and the adoption of best management practices (BMPs) on Ontario farms, which have a significant bearing on biodiversity conservation.
The ministry states that, between 2005 and 2008, 11,778 farm businesses or 23.8 per cent of Ontario farms completed the latest version of the EFP. In that same period, 5,683 farms implemented 13,727 best management practices with an approximate investment of $100 million dollars in government funding. Of this total, the Canada-Ontario Farm Stewardship Program and the Environmental Farm Planning Program provided $643,000 to implement 210 projects designed to prevent wildlife damage.
OMAFRA is responsible for the Nutrient Management Act, 2002 (NMA), which has indirect benefits for biodiversity such as improved water quality and aquatic habitat. As of 2008, approximately 2,200 farm units covering 250,000 hectares were subject to the NMA. Almost 4,500 nutrient management BMPs have been implemented as part of EFPs.
OMAFRA notes that it “worked with MNR to ensure the new Endangered Species Act, 2007 provided the right provisions to accommodate activities that have no impact on species at risk and to promote stewardship activities.” Working with municipalities, the ministry also administers the compensation program for livestock or poultry that are injured or killed by wildlife. OMAFRA also works with MNR and the Canadian Food Inspection Agency (CFIA) on invasive species issues.
Ministry of Natural Resources (MNR)
MNR states that, “Conserving biodiversity is essential to Ontario’s prosperity and the health and well-being of Ontarians. Ontario is at a crossroads and is taking action to conserve and protect biodiversity after centuries of loss and to ensure a natural legacy for our children.” The ministry is working to address 19 of the 37 recommended actions in Ontario’s Biodiversity Strategy.
The Far North Planning Initiative will conserve more than 50 per cent of northern Ontario, totalling about 225,000 square kilometres. According to MNR, conserving this area will be one of “Ontario’s greatest tools for fighting climate change.” As part of this initiative, the MNR is also undertaking extensive scientific mapping of the region’s biodiversity, carbon sequestration potential, Aboriginal cultural heritage, and natural resources.
MNR asserts that the updated Endangered Species Act, 2007 is a key component in conserving Ontario’s biodiversity. In April 2009, the ministry also released a draft Woodland Caribou Conservation Plan. Additionally, MNR is reviewing a range of its wildlife policies, including those for deer, moose, bears, and wild turkeys.
The ministry conserves biodiversity through its implementation of the new Provincial Parks and Conservation Reserves Act, 2006. MNR is now developing a new Protected Areas Planning Manual and supporting guidelines, as well as releasing a State of Ontario’s Protected Areas Report sometime in 2009. The ministry also prepares management direction for protected areas, giving “consideration to abating threats to biodiversity” and protecting species at risk.
The ministry has introduced a new Ecological Framework for Fisheries Management. It also has worked toward the development of bi-national Biodiversity Conservation Strategies for Lake Huron and Lake Ontario which will advance efforts to rehabilitate, maintain and protect the biodiversity of these two lakes and their watersheds.
MNR is updating its forest management guides, including those for the Great Lakes-St. Lawrence Landscapes, Boreal Landscapes, and Conserving Biodiversity at the Stand and Site Scales. MNR has also proposed changes to its Forest Management Planning Manual and Forest Information Manual. In 2010 and 2011, the ministry anticipates reviewing its Forest Resource Assessment Policy, Old Growth Policy for Ontario’s Crown Forests, Forest Operations and Silviculture Manual, and several silvicultural guides. The ministry is also preparing its 5-year Forest Management Class Environmental Assessment Review report which addresses MNR compliance with requirements for forest management planning under the Environmental Assessment Act.
MNR is working with partners to address the impact of invasive species on Ontario’s biodiversity by raising awareness, engaging the public, and monitoring. MNR states that several provincial ministries are preparing an Ontario Invasive Species Action Plan which identifies gaps in programs, policies and legislation, and will help to direct further efforts.
ECO Comment
The ECO commends the Ontario government for recognizing that the conservation of the province’s biodiversity is its responsibility. The loss of biodiversity is a defining issue of our time, and future generations will judge us by the actions that we take today. Many different ministries of the Ontario government have important individual roles to play in our collective effort to meet this challenge. Progress has been made in some key areas since the release of Ontario’s Biodiversity Strategy in 2005.
Ontario’s Biodiversity Strategy outlined initiatives to be undertaken between 2005 and 2010. As the year 2010 nears, the ECO believes that the Ontario government, led by MNR, should revise its strategy in order to outline future actions to address this environmental crisis. The 2010 international review represents an ideal opportunity to assess lessons learned and to build on actions of other governments.
In April 2009, leaders of the G8 countries and 11 additional nations signed the Syracuse Charter, reaffirming the commitment of these countries, including Canada, to conserve biodiversity within their boundaries and around the globe. The Charter sets the stage for what governments must do beyond year 2010 – the United Nations’ International Year of Biodiversity. The Syracuse Charter states:
- The multiple challenges that the world faces today are an unmistakable indication that we need to strengthen our efforts to conserve and sustainably manage biodiversity and natural resources…. As significant economic loss arises due to the unsustainable use of biodiversity, timely and proper programmes and actions, aimed at strengthening the resilience of ecosystems, must be taken.
The year 2010 will mark the opportunity to chart a new path forward. The Ontario government has the ability to be a champion of biodiversity and a world leader in combating this environmental crisis. The public expects no less. Whether biodiversity is interpreted as a key resource or inherently valued for its own sake, the Ontario government cannot afford to address this environmental crisis with anything less than the highest priority. The ECO will continue to report on the actions that ministries prescribed under the EBR take to conserve Ontario’s biodiversity.
| This is an article from the 2008/09 Annual Report to the Legislature from the Environmental Commissioner of Ontario. |
Citing This Article:
Environmental Commissioner of Ontario. 2009. "Protecting Biodiversity: Ministries Stake Out Roles." Building Resilience, ECO Annual Report, 2008-09. Toronto, ON : Environmental Commissioner of Ontario. 39-44.
