The New Temagami Forest: Deciding on a Sustainable Future
9/24/96
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RELAYED TEXT STARTS HERE:
/** forest.canada: 454.0 **/
** Topic: Community Forest for Temagami **
** Written 9:50 AM Sep 24, 1996 by web:brennain in cdp:forest.canada **
THE NEW TEMAGAMI FOREST:
DECIDING ON A SUSTAINABLE FUTURE
A Discussion of Future Governance in the Temagami Area
Prepared by Northwatch and the Wildlands League
August 30, 1996
PREFACE
On June 28, the Minister of Natural Resources, the Honourable Chris Hodgson,
announced his response to the Comprehensive Planning Council recommendations,
and at the same time indicated that he was intending to examine various options
for a new governance structure for Temagami. The Minister said he would be
looking at a variety of models, such as the Algonquin Forest Authority or others
presented by the public or local councils.
This paper outlines a number of ideas and options for a future governance body.
The ideas are intended to generate discussion, outline some initial thinking,
and provide a basis for conversation and dialogue. It is not an endpoint, but
neither it is an actual beginning, as many of the ideas are brought forward
from previous conclusions, such as those of the Wendaban Stewardship Authority,
and several of them had at least a preliminary airing during the last rounds of
consultations convened by the Comprehensive Planning Council. The premises are
that:
o Temagami is a special place, in history, landscape and
community, and has the potential to be a model for how a
local community can derive and maintain benefits from the
sustainable management of natural resources.
o The Ontario government is in the process of removing itself
from the day-to-day management of natural resources,
including those in the Temagami region.
o The Ontario government has also said that a new model of
looking after and managing resource activities will be
established in Temagami.
o This new structure will not make changes to the land-use
plan that has been recently established; it will implement
and manage activities under that plan.
o A new governance body can be created that offers a positive
alternative to management by solely by the forest industry
or by a vastly downsized government agency, and could
provide a means to accommodate the range of interests and
priorities present in Temagami.
o The proposed Temagami Forest Authority (TFA) would plan for
and manage all resource-management activities, including
recreation, logging and mining.
o The TFA would seek to employ innovative methods to generate
revenues for the operation of the new body and to reinvest
in the marketing and sustainable management of the Temagami
region.
Over these next several weeks, we will be seeking comment and correction, and
from that seek to build a proposal that will serve us all. It is in a spirit of
community and cooperation that we propose the Temagami Forest Authority; a new
entity that we hope will help to guide Temagami toward a sustainable, prosperous
future. It is in these next few weeks and months that we seek to build common
ground and common thinking, and from that make a contribution that will last.
Brennain Lloyd Northwatch
Tim Gray C.P.A.W.S., Wildlands League
INTRODUCTION - WHY IS TEMAGAMI SPECIAL?
Without any question, in Ontario, Temagami has become synonymous with the debate
over resource extraction methods, native land rights, and wilderness protection.
A brief look at the area's history is helpful in understanding the conflict and
controversy and what makes Temagami so special.
For thousands of years the rocky escarpments, forested valleys, and fish-rich
lakes of Temagami have evolved according to the forces of wind, water and sun.
Plants, animals, and humans all lived within a stable ecological framework that
changed slowly and provided life for all. Since the late 19th century human uses
have begun to test the resilience and capacity of Temagami's lands and waters as
well as the entire ecological region. European settlement, followed by extensive
and intensive trapping, logging, fire control, dam building and mining have
altered the face of the region more than any other event or influence since
glaciation.
The changes to the ecology of the land have caused increasing conflict for its
human inhabitants. None more so than for those who where here first and who
were most dependent on the land in its original untrammelled form. In a land
they call N'Daki Menan, the Teme-Augama Anishnabai had lived a semi-nomadic
existence of hunting and gathering for thousands of years and developed one of
the largest, interconnected canoe route systems in North America. By the 1930's
the political demands created by logging, mining, and tourism had forced them
onto a one square mile island and deprived them of their way of life.
Later Europeans began to see and experience the results of the activities
brought by settlers to Temagami. The often conflicting land uses of recreation,
tourism, logging and mining became more and more difficult to reconcile and the
resources on which they were based eroded while demand continued to grow.
By the 1970's aboriginal concerns for the land and discontent over the Crown's
reluctance or refusal to acknowledge aboriginal land rights had reached new
intensities A land caution was filed in 1973 by the Bear Island Foundation; by
the 1987-1989 period, conflict over native land rights, industrial forest use,
and wilderness protection culminated with a massive public outcry and displays
of civil disobedience.
Perhaps because of the level of conflict and public debate over land use and
land rights in the Temagami area, Temagami now has a number of assets - in
addition to its natural assets - which make leave it with some advantages.
Widespread public awareness of the special nature of Temagami that has resulted
in increased visitorship. The level of attention has also resulted in an
extensive resource database, one that is perhaps the best in the province, that
catalogues and describes the natural values of the region. Significant technical
capacity has also been developed for Temagami, including the Geographic
information Systems, and this information can be used to make informed, sensible
management decisions. Further, there is a high level of understanding and
fluency in resource management issues held by members of the public and
interested industry and public advocacy groups.
Today, we must focus on what we have learned in Temagami and how we can move
forward to a better future. We are fortunate that Temagami still contains some
of the wildest lands in the province. These lands are home to old growth pine
forests, pristine lakes, and animals living in balance with nature. By
maintaining their character, these lands will continue to act as reservoirs of
biodiversity, as models for the recovery of other more degraded lands, and as a
place where humans can live rich productive lives. We are also fortunate that
Temagami continues as a community which has both vigour and determination,
looking for a dynamic future within a dramatic landscape.
THE NEW TEMAGAMI FOREST
BACKGROUND
In April 1996, the Temagami Comprehensive Planning Council submitted its final
report to the Minister of Natural Resources, with two broad categories of
recommendations: land use recommendations in relation to the Temagami area's
Crown land recreation, cultural heritage, fisheries, fire, landscape ecology,
minerals, provincial parks, tourism, timber, and wildlife values; and other
recommendations addressing issues such as governance, the interests of and need
to involve the area's aboriginal peoples, future resource management and
education.
On June 28, the Minister of Natural Resources, the Honourable Chris Hodgson,
released the government's response to CPC's report. The province described their
response strategy as adopting 22 of the CPC recommendations and adopting the
remaining 17 with some changes. The Province also acknowledged the need to
resolve outstanding issues with local aboriginal communities. In terms of
future resource management planning and management, the Minister announced that
he would spend until September 30 working with local interests to examine
options for a new governance structure for Temagami.
The discussion of future governance for Temagami began while the Comprehensive
Planning Council was still in place, indeed, the CPC consultation sessions
provided one of the several venues for discussion of the different options and
opportunities available. A number of proposals have already been developed - by
the Town of Temagami, the Temagami Lakes Association, environmental
organizations, and others - each addressing some aspects of the development or
implementation of a future governance body or management board for the Temagami
area. This discussion paper seeks to contribute to and continue that discussion.
Centralized government, centralized education, and dominant interest control of
our forests have, over time, largely removed responsibility for the forest from
the local communities which depend upon them. However, many people believe that
there are significant environmental, social, and economic advantages to
increasing the level of control that local people have over their natural
environment and natural resources. Local decision-making could help to solve
many of the land- use and resource management difficulties that have developed
over time, and, potentially, more resource related revenue could be retained
within the region if control was more localized. Any increase in local decision-
making authority must, of course, be accompanied by an equivalent shouldering of
responsibility if it is to reflect a commitment to maintaining a high standard
of care for the environment.
In the Temagami region several experiences of the last decade have shown that
alternative forms of decision-making or advisory body structures are possible
and can be productive. The Wendaban Stewardship Authority, the Elk Lake
Community Forest, and the Comprehensive Planning Council have each had a mandate
to develop decisions locally, whether advisory or conclusive. Each of these
bodies has had positive and negative aspects to their experience, each has
struggled to resolve conflicts and accommodate the array of values, and each has
seen both success and failure in most observers' eyes. By learning from these
experiences, and from others in Ontario and beyond, perhaps we can develop a new
vision of how to move forward.
THE TEMAGAMI FOREST AUTHORITY: A PROPOSAL FOR LOCAL GOVERNANCE
The proposal outlined in this discussion paper is intended as a contribution to
the community discussion and to the Minister's consideration of various options
and models for future governance in the Temagami area. The model proposed is
intended to help to achieve increased local responsibility and result in greater
environmental, economic and social advantages for the Temagami region. It is
premised on a need for local governance, for economic activity, and for
ecological security. The Temagami Forest Authority is not being proposed as a
replacement or continuation of the Comprehensive Planning Council. Rather it is
proposed as the natural next step to a local management body which will serve to
implement the land-use plan decided upon by the provincial government. Therefore
the new Authority will focus its attention on issues of resource management, not
land-use determination.
Structure
The Temagami Forest Authority (TFA) would function as a local planning body, in
some respects similar to the Algonquin Forest Authority or the local
Conservation Authorities, with resource extraction rights assigned to the
Authority. Such an arrangement exists in Algonquin Park where all licenses to
log have been transferred from individual companies to the AFA. The Authority
then has the ability to provide timber allocations to timber operators, in
accordance with the management and community goals established.
While attaining a Sustainable Forest Licence under the Crown Forest
Sustainability Act would give the Authority considerable jurisdiction in the
area of timber management and related activities, the Act at present does not
provide any mandate to license holders over recreational planning or management,
or other types of activity on the Crown lands. The Temagami Forest Authority
could be given its broader legal basis (ie. to correspond with a mandate which
includes planning for recreational, ecological, scientific, educational, tourism
and resource extraction activities) through the passage of a special act of
provincial parliament, similar to the Algonquin Forestry Authority, and the TFA
would then operate as a crown corporation or scheduled agency.
Resource Management staff would be employees of the TFA and all resource
management plans such as recreation, parks, fisheries and forests would be
developed by the Board and the staff. Operating standards for provincial parks,
forest management planning and other land-use activities would have to meet
minimum provincial standards.
It is important to have in place other mechanisms to ensure that the local and
provincial public are assured that operation of the Temagami Forest occurs in a
responsible manner. In addition to ongoing community involvement in the annual
and five year planning process, a land use zoning review should be required
every ten years, which would require a thorough and mandatory review of the
Authority's Master Plan. Ultimate responsibility for operation of the TFA will
remain with the Minister of Natural Resources.
Mandate
The Temagami Forest Authority would plan for and control all resource-management
activities, including recreation, logging and mining. The Authority's mandate
will be to establish high standards of environmental care, encourage appropriate
economic development - including tourism, recreation, and a high-value forest
products industry - and to retain revenues and employment within the Temagami
area. Research, education and the development of eco-forestry techniques would
also be within the Authority's mandate. Additional small scale and alternative
economic development could also be supported.
With a mandate which includes the variety of activities and land uses in the
Temagami area, the Authority could implement plans which are based on a
consideration of the effects of one activity on another. Recreational values and
resource extraction requirements could be managed in a way that addressed their
competing nature, and land uses could be planned in the most complementary
fashion.
Revenues
While the Minister of Natural Resources, the Hon. Chris Hodgson, has given an
initial indication that the Province does not intend that a local governance
body would be allowed to retain revenues currently going to the Provincial
Treasurer, the Temagami Forest Authority would have a number of opportunities to
retain revenues - or gain revenues - from activities on Crown land. While
revenues such as the camping fees at Finlayson Point and fishing and hunting
licenses may not be made available, other fees could be. For example, at
present, there is no fee system in place for Crown-land or back country camping
fees. There is the potential to develop other revenue generating services.
Additionally, as holder of a Sustainable Forest License, the Authority could
charge management fees as part of the timber allocation process (as is
intended in other management units where a SFL has been granted). Funds would
also be available through the Forest Regeneration Trust Fund for silvicultural
and regeneration work, and through the Forest Futures Trust Fund for some
special circumstances. In addition if the sale of some or all of the timber
proceeded on a "tendered sale" basis, whereby wood was sold to the company that
bids the highest price, some further revenues could be realized. These sales
could be operated as either highest bidder log auctions or as tendered crown
land timber sales. In either case, the object would be to retain the greatest
revenue and the highest productivity from the forest products in the Temagami
area.
New revenues beyond operational needs could be reinvested into local development
projects, including the pursuit of certification of wood products, increased
tending of high value forest areas, increased marketing of tourism potential
(including the development of a coordinated strategy to serve and encourage
repeat visitation to the town of Temagami), interpretive services in protected
areas, and other activities. Retained revenues could be used to support
community economic development, favouring industries and economic development
which were mutually supportive, and which retained and promoted employment and
earning opportunities for area residents.
Board Composition
The Temagami Forest Authority should be governed by a Board of Directors,
representing the range of experience and expectations of people in the Temagami
area. Supported by professional staff with expertise in resource management,
economic development, community planning and environmental sciences, the Board
would play a directive role with Authority staff, a consultative role
with the public, and a coordinating role with municipal, provincial and federal
government departments.
The Board of Directors would be a combination of directly electedand of
appointed members, with the Board's composition beingmodelled along lines
similar to that of the Forest StewardshipCouncil, an international body working
with social, environmentaland industrial interests to develop standards for
forestcertification. The model relies on the definition of four "houses":
governmental, recreational, economic, andenvironmental. Membership in the
"houses" for the Forest Authoritycould be arranged as follows: governmental -
the Township ofTemagami, other towns to the north and south, and the Teme
AugamaAnishnabai and Temagami First Nation; recreation - Temagami Lakes
Association and Permanent Residents Association and theAssociation of Youth
Camps; economic - mining, forestry, tourism,and small business; environmental -
local, regional and provincialenvironmental groups and research scientists.
Boundaries
One of the difficulties faced by the Wendaban Stewardship Authority was that
they were required to meet all land-use demandsin a very small geographic area.
From this experience, and from practical consideration, it can be concluded that
the boundaries of the Temagami Forest must be defined on ecological grounds and
be large enough to provide for the diversity of uses that now occur in the
Temagami region. Modified boundaries based on the existing Temagami planning
area would be most appropriate. Boundary adjustments would include re-
acquisition of the townships removed from the Comprehensive Planning area in
January of 1995, the headwaters of the Lady-Evelyn River, as well as other areas
selected to result in a planning area which has coherence for recreational,
ecological and resource management purposes.
Management
Given the Authority's mandate to establish high standards of environmental care
while encouraging appropriate economic development - including tourism,
recreation, and a high-value forest products industry - the Authority would
develop management standards and guidelines as the first step in resource
management planning. Similar to the Wendaban Stewardship Authority, whose
mandate of "Sustained Life, Sustainable Development, Public Participation, and
promotion of Co-existence among Native and non-Native people in the area" set
the framework within which the WSA Forest Stewardship Plan was prepared, the
Temagami Forest Authority would begin its work by establishing the management
premises for its future work. Much of this work has already been done, and the
task of the Authority would be to synthesize those already created basis - such
as the Wendaban Stewardship Authority's principles of adaptive ecosystem
management and watershed planning and the CPC's zoning approach - into a
directive management framework for the Authority's reliance.
Conclusion
Within the next few months, if not over the next several weeks, the face and
future of the governance body in Temagami will be decided. At best, a proposal
will be emerge whose broad acceptance by the people committed to a future in
Temagami will make a compelling argument in its favour. At least, a decision
will be made, and the future will begin to unfold. By working together
now, we can make it the best future possible.
Please contact us with your comments and suggestions.
Brennain Lloyd Northwatch P.O. Box 282 North Bay P1B 8H2 tel 705
497 0373 fax 705 476 7060
Tim Gray
Wildlands League 401
Richmond Street W.
Suite 380 Toronto
M5V 3A8 tel 416 971
9453 fax 416 979
3155