Case Final

Introduction

Algonquin Park, Ontario’s oldest Provincial Park, is located in central Ontario. Established in

1893, Algonquin Provincial Park is a popular site for an abundance of outdoor activities and

2 biodiversity (Wilson, 2014). The total area of the park is 7,635 km . The park is a source of

ecological and economic wealth. Since 1830, more than a half century before the Park was established, the Park has been commercially logged (Wilson, 2014). As of today, about 45% of the park is open to logging (AFA, 2012). Many of the stakeholders have opposing opinions on this

activity and community members find this concerning because they believe that, “if the Park is treated the same as areas outside its boundaries, then the boundaries are meaningless” (Algonquin Eco Watch, 2010). This case study will gather information to provide evidence as to why the controversial activity is taking place in the park is considered a wicked problem. Figure 2 shows our approach to this problem.

Framing the Problem

Why is it a hard problem to solve?

A wicked problem is defined as a problem in which “scientific uncertainty coexists with value, uncertainty, and conflict” (Balint et al., 2012). According to this definition, the problem surrounding the activity within Algonquin Provincial Park is considered a wicked problem. The three main problems include: the multiple stakeholders involved and their opposing values, the difficulty in finding a balance between protecting the forest and benefiting from the economic benefits it provides, and finally that there is scientific evidence that logging in diverse forests can be as beneficial to the environment as they are detrimental (Creasey, 2013).

The stakeholders involved are the government agencies (e.g., Ontario Ministry of Natural Resources and Forestry, Ottawa Parks Board), officials (e.g., environmental commissioner), logging companies and their employees, the Algonquin Park itself, Non-Profit Organizations (e.g., The Friends of Algonquin Park), and the community. All of the stakeholders have contradicting values. For instance, the logging companies may only see economic value from the park, while

First Nation’s community members may see a larger cultural value. A difference in values plays a large role in finding a balance between protecting the forests and utilizing it for economic benefits. How much of the park can be utilized economically without overstepping the line of cultural and environmental protection? The uncertainty pertaining to the effects of logging, along with the issues mentioned above, cause difficulties when dealing with sustainable forest regulations. Experts have stated that forestry practices, when not used properly, can cause damage. On the

contrary, experts have also stated that forestry practices, when used properly, can be beneficial to the environment (Creasey, 2013). An example of the benefits of forestry on the biodiversity of the Park can be seen in the case of the Yellow Bellied Sapsuckers. Mancuso states that even though their environments have been disturbed, the birds have adapted to their new environment and are flourishing (2014).

What are the key issues/dimensions?

The key issue at this time is not confined to the outcome of deforestation because the park is, for the most part, conforming to practices of sustainable forestry. The two main issues are the repercussions of the by-products associated with forestry practices in the Park, and the exclusion of the voices of the First Nations communities. Due to logging in the Park, roads must be built,

which destroy soil properties and act as physical barriers to species within the Algonquin ecosystem (OPB & AFA, 2009). Over the long-term, this can cause loss of species due to unusable land. The land is also important for the First Nation communities, who have been present long before the establishment of the Park, utilizing it for cultural practices and to sustain their livelihood (Euler, 2009). The Algonquin First Nation territory once covered 90% of what is now known as Algonquin Provincial Park (Euler, 2009). Since European contact with the land, the Algonquin First Nations have seen their cultural practices such as hunting and fishing and economic control over the area, constrained by endless treaties and policies.

Governance Framework

The forest laws in Canada have given governments of provinces and territories the right to develop and enforce laws, regulations, and policies related to local forests (Natural Resources Canada, 2015). In this case, the key decision makers of Algonquin Provincial Park are the government, and agencies and organizations within the province of Ontario. The Algonquin Forestry Authority (AFA) is the key local decision-maker for forest planning in the Park. However, it is the Ontario Crown Agency that is responsible for sustainable forest management in Algonquin Provincial Park (Algonquin Provincial Park, 2015). The AFA set up the Sustainable Forest Management (SFM) policy and Forest Management Planning for Algonquin Provincial Park, and explain the harvesting operations to the public.

Because Algonquin Park is a provincial park, no international agreements exist in accordance to commercial logging in the Park area. However, the AFA highlighted on their website that the SFM

policy for Algonquin Provincial Park has followed the ISO 14001 standard, the international standard for environmental management systems. The standard helps enhance environmental performance, fulfill compliance obligations, and achieve environmental objectives (International Organization for Standardization, 2015).

Similar to ISO 14001, Canada also has a national standard for sustainable forest management – CSA-Z809. This standard is recognized by Standards Council of Canada (SCC), and is designed to address the need of forest environment, policy structure and stakeholder communities specific to Canada (CSA Group, 2015).

With reference to both ISO 14001 and CSA-Z809 standards, the AFA formulates its SFM policy, which is available from their website. The policy aims at maintaining park values for future generations, maintaining the long-term health of the forest, as well as producing a sustainable supply of timber products (Algonquin Forestry Authority, 2014). The policy seeks sustainable development in biodiversity, ecosystem condition and productivity, soil, water, contribution to global ecological cycles, benefits to local society, and fulfilling the social responsibility of sustainable development. The SFM policy of Algonquin Provincial Park values the health and

security of its employees, the public, and the contractors. The policy pays special attention to the Algonquin First Nations by highlighting Aboriginal rights and participation, and also states the need to organize training programs and prepare emergency response plans, and provide practices for continual improvements (Algonquin Forestry Authority, 2014).

Since Algonquin Provincial Park is a regional park monitored by government agencies, there are not many non-statutory institutions (for instance, Non-Government Organizations) involved in the decision making processes of the Forest Management Plan. However, the AFA communicated with the Local Citizens Committee (LCC) during a public consultation section to hear voices outside the major decision-makers. Therefore, opinions from outside the government are also used in developing policies regarding logging in Algonquin Provincial Park (Algonquin Forestry Authority, 2014).

Moreover, logging activities took place within what is now Algonquin Provincial Park long before the area was established as a park (Wilson, 2014). In other words, the tradition of logging has existed before any policies regarding logging in the provincial park were made. The AFA’s decision to continue sustainable logging in the Park, with increased vigilance towards the ecosystem and the needs of the Algonquin First Nations, shows a basic level of respect towards the biodiversity and cultural traditions practiced in the area by the Algonquin.

The Forest Management Planning (FMP) documents provided by AFA explained in detail about decision-making process with both textual and graphic data. However, the SFM policy only provides a brief framework for regulations of forest management in the park without providing

actual methods and practices. Although the AFA consulted LCC for opinions from local communities, there was only one member of LCC that participated in the process. Secondly, in the management plan, the AFA uses abbreviation for forest units in its FMP reports, making it hard for the public who does not have professional knowledge in this field to understand the planning documents. These problems decrease the participation of involved groups during forest management planning. Moreover, the implementation of FMP is reflected in the certification

annual reports, but the reports are generated approximately one year later (the 2013/2014 report was published on Sept 11, 2015). In other words, AFA fails to provide the public with up-to-date information about forest management implementation in the park. Furthermore, it is not clear if the process is accountable. The management plan for this particular case is fully executed by 2020 (FMP, 2010) and we have to be patient to find out whether the decision makers are trustworthy.

References

Peer Reviewed Articles

Balint, P. J., Stewart, R. E., Desal, A. & Walters, L. C. (2012). Wicked Environmental Problems: Managing uncertainty and Conflict. Retrieved from:

https://books.google.ca/books?id=H_6XyO9rQqgC&printsec=frontcover&dq=wicked+environm ental+problems&hl=en&sa=X&ved=0CB8Q6AEwAGoVChMI0tKt0qWRyAIV1SmICh2PFwF V#v=onepage&q&f=false

Cheever, B. M., & Simon, K. S. (2009). Seasonal influence of brook trout and mottled sculpin on lower trophic levels in an Appalachian stream. Freshwater Biology, 54, 524-535.

Creasey, M. L. (2013). Black-throated blue warbler (setophaga caerulescens ) nesting success and nest site selection in the single-tree selection harvested forests of algonquin provincial park, canada (Order No. MR93875). Available from ProQuest Dissertations & Theses Global. (1399560762). Retrieved from: http://search.proquest.com.ezproxy.library.ubc.ca/docview/1399560762?accountid=14656

Frank, D., Finckh, M., & With, C. (2009). Impacts of land use in habitat functions of old-growth forests and their biodiversity. In Wirth, C., Gerd, G, & Martin, H (Eds.), Old-Growth Forests: Function, Fate and Value (429 – 450). DEU: Springer. Retrieved from http://www.ebrary.com

Jones, J. A., Achterman, G. L., Augustine, L. A., Creed, I. F., Ffolliott, P. F. MacDonald, L. & Wemple B. C. (2009). Hydrologic effects of a changing forested landscape: challenges for the hydrological sciences. Wiley InterScience, 23, 2699-2704.

Mancuso, K., Nol, E., Burke, D. & Elliot, K. (2014). Effects of selection logging on Yellow- bellied Sapsucker sap-feeding habits in Algonquin Provincial Park, Ontario . Canadian Journal of Forest Research, 44:10, pp.1236-1243. Retrieved

from:http://www.nrcresearchpress.com/doi/full/10.1139/cjfr-2013-0498#.VgTaE2TBzGd Government Documents

Algonquin Forestry Authority. (2014). Sustainable Forest Management (SFM) Policy. Retrieved from http://algonquinforestry.on.ca/wp-content/uploads/AFA-SFM-Policy-March-2014.pdf

This government document is created by Algonquin Forestry Authority, explains the vision and mission of sustainable forest management in Algonquin Park. The policy describes AFA’s commitments and strategies on compliance, public participation, aboriginal rights, health & safety, and improvement. It is useful to our research because it covers all the aspects that SFM policy regulates. It is published in 2014 by AFA, the local government responsible for the forestry in Algonquin Park, therefore it is a reliable source for our research.

Algonquin Forestry Authority. (2015). Forest Management Planning (FMP). Retrieved from http://algonquinforestry.on.ca/policy-planning-sustainable-forest-management-policy/policy- planning-forest-management-planning/

Algonquin Forestry Authority. (2015). Summary of the 2010-2020 Forest Management Plan

(FMP) for the Algonquin Park Forest. Retrieved from http://algonquinforestry.on.ca/wp- content/uploads/6.1.20-FMP-Summary-w-Map1.pdf

Environmental Commissioner of Ontario. (2006). Regulating Logging in Algonquin Park, Neglecting our Obligations, ECO Annual Report, 2005-06. Toronto, ON : Environmental Commissioner of Ontario. Eco Issues. Retrieved from http://www.ecoissues.ca/Regulating_Logging_in_Algonquin_Park

Government of Ontario. (2015). Class EA for Forest Management on Crown Lands in Ontario (MNR-71). Retrieved from http://www.ontario.ca/page/class-ea-forest-management-crown-lands- ontario-mnr-71

Government of Ontario. (2012). Proposed Algonquin Provincial Park Management Plan. Retrieved from http://www.algonquinpark.on.ca/pdf/lighteningthefootprint_2012_amendment.pdf

Mazinaw-Lanark Forest Inc. (2014). Ontario’s Crown Forest Sustainability Act. Retrieved from http://www.mlfi.org/index.php/planning/ontario-crown-forest-sustainability-act

Natural Resources Canada. (2015). Canada Forest Laws. Retrieved from http://www.nrcan.gc.ca/forests/canada/laws/17497

The Ontario Parks (OP) Board of Directors and the Algonquin Forestry Authority (AFA) Board of Directors (2009). Joint Proposal for Lightening the Ecological Footprint of Logging in Algonquin Park. Retrieved from

http://www.ontarioparks.com/english/planning_pdf/algo/algo_joint_proposal.pdf

Popular Media

Ferguson, B. (2014). Algonquin Park logging, bee-killing pesticides targeted by environment watchdog. The Star. Retrieved from

http://www.thestar.com/news/queenspark/2014/10/07/time_to_end_logging_in_algonquin_park_ environment_watchdog_says.html

Koven, A., John, C., & Huff, D. (n.d.) Timber Management Class EA. Environmental Beginnings. Retrieved from http://environmentalbeginnings.ca/mnrs-timber-management-class- ea/

Wilson, H. (2014, December 3). Environmental Commissioner Decries Logging in Algonquin. Canadian Geographic. Retrieved from http://www.canadiangeographic.ca/blog/posting.asp?ID=1388

Zanussi, R. (2014, November 10). Environmental Commissioner Recommends Banning Algonquin Park Logging. North Bay Nipssing News. Retrieved from

http://www.northbaynipissing.com/news-story/4989697-environmental-commissioner- recommends-banning-algonquin-park-logging/

Grey Literature

Algonquin Eco Watch. (2010) What Makes Algonquin Park Special?. Retrieved from http://www.algonquin-eco-watch.com/forest- management/Annex%201%20What%20Makes%20Algonquin%20Park%20Special.pdf

International Organization for Standardization (2015). ISO 14001:2015. Retrieved from http://www.iso.org/iso/catalogue_detail?csnumber=60857

Ruby, E. (2006). How Urbanization Affects the Water Cycle. California WALUB Partners. Retrieved from http://www.coastal.ca.gov/nps/watercyclefacts.pdf

Multimedia

Easto, H. (2014). Areas Where Logging Is Permitted and Prohibited in Algonquin park. Eco Issues. N.p. Retrieved from http://ecoissues.ca/File:Algonquin_Figure.jpg