Documentation:Open Case Studies/FRST522/2021/Local Community and Indigenous Participation in the Development of the Forest Management Plan in Algonquin Park, Ontario.

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Abstract

The Algonquin Provincial Park is an Ontario park established in 1893, and was designated as a national historic site in 1992 due to its contributions and role in park management. It is held under Crown land and managed by the Ministry of Northern Development, Mines, Natural Resources and Forest and its forestry operations are managed by the Algonquin Forest Authority (AFA)[1]. Although there are no community forests within the park, its management is unique in that the AFA strives  to involve the public through public participation processes for the formation of their Forest Management Plan (FMP)[2]. Local and indigenous communities within the park hold a strong cultural, educational, and economic relationship to the forests and its resources. However it is not clear as to what extent these local and indigenous groups influence the formation of the FMP. This case study will explore the role of each of these stakeholders in the area, their relative power within this park and what pathways  they can take to make public participation in the Forest management plan easier and more effective.



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Algonquin Provincial Park

History

Algonquin Park in Ontario has a long history in Canadian culture, it is approximately 7,000 km2 in size and contains lakes, rivers, old growth forest and an abundance of wildlife. It has attracted many tourists, wilderness enthusiast, cottage owners and other stakeholders as well as other citizens in nearby communities to come to the park to camp, canoe, hike and engage on other activities that the landscape has to offer [3].  The Algonquin Provincial Park was first proposed in 1878. Provincial land surveys were elaborated and reports submitted to the government explaining the benefits of the use of the forest resources within the park, and in 1893, the Algonquin national park act was passed [4].

Algonquin Park Lookout Trail

Commercial logging in the area began before the park was established, in 1830. By 1846, 141600 cubic meters of red and white pine were harvested [4]. Logging practices developed throughout the years to meet high demands of wood and other timber products nationwide. Thousands of hectares of old growth forest can be found in the park , some tree species that dominate these old growth forests are hemlock, yellow birch and sugar maple. The existence of the old growth forests is known but their location is largely unknown to the public. Concerns over the increased logging of these old growth areas have been growing as scientists fear that it may affect the species composition, and lead to the decline of hemlock which provides essential habitat for wildlife[5]. The original objectives of the park include , to preserve headwaters , preserve native forests, protect wildlife for fur and hunting, provide forestry experimentation and to serve as a tourism area for the pleasure of people in the province[4].

Administration of Algonquin Forest Management Unit

The Algonquin Park Forest Management Unit is located within the Algonquin Park, and is under the administration of the Ontario Ministry of Natural Resources and Forestry (MNRF) (now known as Ministry of Northern Development, Mines, Natural Resources and Forestry since early 2021). The MNRF oversees forest management activities that are planned and implemented under the Crown Forest Sustainability Act and the Algonquin Forest Authority is a Crown agency responsible for the Sustainable Forest Management  in the Park[6]. The 2021-2031 FMP is the first management plan that has been developed with Ontario Parks under the Ministry of the Environment, conservation and Parks since its transition from the Ministry of Natural Resources and Forestry. This transition has led to some administrative changes and oversight in the development of the management plan. Ongoing and strong communication between the MNRF, AFA and Ontario Park, which oversees the rest of the activities implemented in the Park, is essential for the development of the forest management plan as all three parties have significant roles in the overall operations, management and protection of the park itself[4].

Algonquin Forest Authority

Algonquin Park 1914 Map

The AFA was established in 1974 and is responsible for heading and implementing the Forest Management Plan in the park, specifically harvesting and distributing wood products to mills, conserving the parks biological diversity and maintain the forests natural resources for the benefit of the communities within and around the park[6]. Their objectives in the governing legislation is to work under the Crown Sustainability Act, they are party to the Algonquin Park Forestry Agreement with the MNRF, which means that the Minister has agreed to a five to ten year license to the AFA for a twenty year period starting April 1st 2015. This Forestry Agreement maps out the roles and financial structure for forest management activities  and specifies to what companies the AFA can sell timber to[4]. The AFA is also responsible for establishing and maintaining good relationships with the communities within the Park, such as the Local Citizens committee and the Indigenous communities which represent the publics interests and voices in regards to the forest management plan in the park. The AFA hold meetings with these groups as well as others in order to provide information and transparency on the forest policies and forestry activities happening in the park.[2]

Forest Management Plan (FMP)

The Forest Management Plan (FMP) presents the silvicultural practices that will be implemented in the forest management unit, including harvesting and renewal activities. These practices are designed to protect the wildlife, biodiversity, tourism and outdoor recreation. The current FMP is currently in effect from July 1, 2021 to March 31, 2031,  and  took approximately four years to complete.  Sections in the FMP  include the History of the park, Management unit description, Forest Description, Harvest Operations, Public participation methods and First Nations Background Reports.[4] The goal for the FMP and Ontario forests is "to ensure the long-term health of our forest ecosystems for the benefit of the local and global environments, while enabling present and future generations to meet their material and social needs”[4].

The FMP manual outlines the participation stages which gives the AFA an opportunity to engage with the public as well as with the LCC and the indigenous communities. It gives the communities and the citizens a look into what the forest operations will look like, learn about sustainable forest management and voice their opinions to the forester and planning teams[7] The LCC and the AFA work together throughout this process to effectively engage with the public. The FMP is separated into Phase I, which involved the forest operations for the first five years while Phase II presents a more detailed plan of operations for the five years after that.

The basic consultation stages for Phase I of the FMP to the pubic are as follows

Stage 1: Invitation to Participate

Lake in Algonquin Park

Stage 2: Review of Proposed Long Term Management Direction

Stage 3: Information Centre- Review of Proposed Operations

Stage 4: Review of Draft Forest Management Plan

Stage 5: Inspection of the MNR approved

Significant outreach is made to promptly notify the public of the upcoming stages and meeting, emails, newspaper ads and postings on the AFA website are some of the ways that they can reach they public.[2]

Algonquins of Ontario

Algonquin park is within Algonquin indigenous territory. The Algonquins of Ontario represent the rights-holders and the affected community within Algonquin Park. The Algonquins of Ontario represent ten Algonquin communities which include the Algonquins of Pikwakanagan, Antoine, Bonnechere, Greater Golden Lake, Kijicho Manito Madaouskarini, Mattawa/North Bay, Ottawa, Shabot Obaadjiwan, Snimikobi and Whitney and Area, and these communities are represented by sixteen Algonquin Negotiation Representatives[8]. Algonquian is the name of the linguistic and cultural group that encompasses many different indigenous tribes in Ontario, of which the Algonquins are one. Their territory expanded across a significant part of North America before British and French colonization[9]. In the early 1600s the French , became the first to explore this area in search for travel routes and fur trade potential .  As settlement and lumber interests in the area grew the Algonquin experienced a great loss of land and by 1873 ten reserves were established for indigenous land use[9]. The current Algonquin of Ontario settlement area boundary is 9 million acres within the watershed of the Kichisippi river and the Mattawa river.[10]

The Algonquins have been petitioning for recognition and justice from the Crown since 1772, and in 2016 an Agreement in Principle was signed, which have made continuing negotiations towards a final land claim agreement possible[10]. The Algonquins First Nations Final agreement on land claim is still currently under negotiations with both the provincial and federal governments [11]. This land claim will change some aspects on how the Indigenous interact with the landscape and its resources such as harvesting activities, fishing, hunting employment and access to protected areas[10]. In regards to forestry operations, the Agreement in Principle states that there will not be any drastic changes. Currently Ontario has appointed one person nominated by the Algonquins of Ontario to the Board of Directors of the Algonquin Forest Authority. Many Algonquin members participate and are engaged throughout the stages of the participation process, and also participate in consultation meetings with the AFA for more collaborative management. In this FMP 2021-2031, the Algonquin members were able to provide inputs and raise areas of concerns and identify mutually beneficial solutions. As well as ensuring that Algonquin values, and interests were addressed within the FMP in order to avoid any negative impacts from the forest operations. In their community newsletter they state “Many of the Algonquin communities have been actively engaged in the development of these Forest Management Plans and the protection of Algonquin cultural heritage resources and other interests over the last two decades.” [10]

Local Community Groups

Local Citizens Committee

Algonquin Park Entrance Sign

The Local citizens committee is a committee created by the government of Ontario in order for residents to exercise their rights as citizens to assist in forest operations within the park and to communicate local interests to the AFA planning team and the MNRF. They are an advisory group that actively engages with the AFA in order to learn more about sustainable forest management, and be able to provide a bridge between the general public and the AFA and the MNRF.[4] The LCC committees usually consists of people who hold an interest and have a stake on what happens in the park, such as loggers, naturalists, biologists, Indigenous members, and other people from different backgrounds [12]. Throughout the year, the LCC members attend workshops and other educational programs in order to learn more about forest management, the biological diversity in the park and other technical aspects of forestry operations. In addition the AFA takes them through a tour in the forest management unit to see the logging operations first hand. The participation  and engagement of the LCC with the AFA forestry activities is essential for them to understand what is happening on the ground in the forest management units in order to relay this information to the general public throughout the planning process stages.[13] The LCC’s position within the development of the FMP is to  advise the Algonquin Forest Authority on various aspects of the plan, however in the end the final decision about what goes into the Final management plan is for the AFA and the MNRF to make.[13][4]

Friends of Algonquin Park

The Friends of Algonquin park is a non profit registered charity for people who have an interest and passion for the resources, activities and other benefits that the Algonquins ark have to offer. The Charity is governed by a board of volunteer directors who oversee the educational program and other projects that it organizes [14]. This organization also provides educational programs, organize fundraising projects and represent an important source of knowledge about the park and its resources for the public and the communities [15]. The friends of Algonquin park are not mentioned in the participation process in the FMP, it is not known for certain that members of the Friends of Algonquin park are also members of the LCC or the Algonquin Forest authority or have any other affiliation or involved in the development of the forest management plan. However, with their educational programs, and research they can provide a pathway for the general public to take a interest in the activities taking place in the park, and create motivation for regular citizens to further engage in the participation process for the FMP.[15][4]

Discussion of Relative Power Within Groups

The Local Citizens Committees engagement with the forestry operations in the park and their influence within the participation process largely depends on their relationship with the MNRF. The LCC Chair stated that maintaining a good relationship with the ministry is very important for them, as the ministry is the one that provides the LCC with workshops, meetings with experts and other educational programs in order for them to understand the ecosystems within the forests and the technical aspects of forestry operations and  therefore actively engage in advising the AFA.[13][6]

A study on the effectiveness of LCCs in Ontario also states that the support of the DO (district officer from the government) is a key part in maintaining a good position in forming and maintaining good and working relationships between the Ministry and the LCC. The LCC members felt heard and were able to make their opinions heard as well as including the general public in the discussions on the forest management plans[13]. Through transparency and good communication between the AFA, the ministry and the LCC they can provide the public in the surrounding communities with an effective participation process where each citizen learns about the activities that are happening in the park, are able to engage with the foresters and other planning officials and also inspire them to become more confident in voicing their opinions and therefore creating an impact in the decision making process.[12][16]

Algonquin Cache Lake Lookout

The Algonquins of Ontario seemed to have formed close working relations with the Algonquin forest Authority. In recent years their communities have gained more representation throughout the process of the development of the plan. The FMP outlines detailed consultation and participation stages for the indigenous members to be able to voice their opinions and exert some influence over forestry operations in the park[10]. However the ongoing land claim  leaves room for some uncertainty regarding this relationship . The current situation and relations between the AFA, the government and the Algonquins of Ontario remains unknown in the context of this case study and it is  still not known of whether this relationship might change for the better of for the worse when the Final Agreement is reached[11]

Although only two of the community groups discussed in this case study do have a direct affiliation and hold a close relationship with the AFA and hold an advisory position regarding the development of the FMP, the other community groups can have the potential to also create an impact and have a bigger influence and say on the direction of the FMP in the park, however they would not hold the same amount of influence compared to the LCC or the indigenous communities[7]. Attending the different stages of the participation process of the Forest Management Plan can be a start for citizens who hold a great interest in the activities that occur in the park. In addition, attending educational workshops, joining community groups such as the Wilderness Committee[17] and the Friends of Algonquin Park can also help the public to learn more about the technical aspects of the forestry management in the park, and potentially also applying to become an LCC member further down the path. This process may take time but it is one pathway that a citizen who has an interest of the activities that are occurring in the forest can take in order for their voices to be heard in the decision making table.[12]

Although there are options for local communities and citizens, the Park still remains under Crown land, and even though the LCC and the Indigenous communities may have a bigger voice and can advise the foresters on how to develop the FMP, the final decision always lands on the Ontario government.

Going Forward

Ontario has a very unique forest management system, Algonquin park is the only Provincial park in Ontario where there is active logging activities occurring. Although no community forests exist within the park, its forest management development process is unique in that they do try to be inclusive by having developed an elaborate participation process in which individual citizens who have a strong interest in the park can voice their opinions on the logging activities or other forestry activities[6][18].  The Algonquin Forests Authorities’ relations with the LCC and the Algonquins of Ontario seem strong, however there is potential for next steps in these relationships. In an article by Robson , he explores approaches  in which the LCC can become a bigger and stronger influence in the decision making system within the forest management development through a joint management approach [12]. This approach focuses more on personal interests, conflict resolution and more long term collaboration between the LCC and the Government Ministries and agencies. This can help combine the interests and capacities of local stakeholders with government support, providing the LCC members with a more influential voice over the decision making system for the FMP. However this would require the government to devolve more control of the forests to the local communities and would take fundamental changes[12]. In addition, within other forest management units in Ontario strong relationships between the Indigenous people  and the government have been able to form and create successful forest management plans that benefits the natural resources of the par as well as the local and indigenous communities. The Pikangikum First Nation and the whitefeather forest initiative is a case study in which the government of Ontario and the First Nations were able to create a management plan for the caribou habitat through a cross scale planning approach. This approach required a collaboration between indigenous and scientific knowledge systems in order to create a culturally appropriate and sustainable forest management plan. This approach has the potential to become the next step for the AFA, in regard to the development of the FMP in order to created a more integrated and inclusive forest management land that encompasses indigenous culture, and traditional values in a more holistic way[19][20]. However the future of these next steps will greatly depend on the Final agreement on the Land claim between the Algonquins of Ontario and the Ontario government.

References

  1. ↑ “Algonquin Provincial Park National Historic Site of Canada” (2021). Parks Canada. Retrieved December 4, 2021 from https://www.pc.gc.ca/apps/dfhd/page_nhs_eng.aspx?id=335
  2. ↑ 2.0 2.1 2.2 “Forest Management Planning” (2021). Algonquin Forest Authority. Retrieved December 11, 2021 from https://algonquinforestry.on.ca/policy-planning-sustainable-forest-management-policy/policy-planning-forest-management-planning/
  3. ↑ "Algonquin" (2021). Ontario Parks. Retrieved December 12, 2021 from https://www.ontarioparks.com/park/algonquin
  4. ↑ 4.0 4.1 4.2 4.3 4.4 4.5 4.6 4.7 4.8 4.9 Algonquin Forest Authority. (2021). Forest Management Plan For The Algonquin Park Forest Management Unit. Retrieved from the Natural Resource Information Portal Website: https://nrip.mnr.gov.on.ca/s/published-submission?language=en_US&recordId=a0z3g000000ofQ2AAI
  5. ↑ Henry, M., & Quinby, P. (2006). A Preliminary Survey of Old-Growth Forest Landscapes on the West Side of Algonquin Provincial Park , Ontario. Ancient Forest Exploration & Research, (32), 1–28. Retrieved from http://www.ancientforest.org/wp-content/uploads/rr32.pdf
  6. ↑ 6.0 6.1 6.2 6.3 “General Information”. (2021). Algonquin Forest Authority. Retrieved December 11, 2021 from https://algonquinforestry.on.ca/general-information-the-algonquin-forestry-authority/
  7. ↑ 7.0 7.1 “Feedback from Local Citizens Committee” (2012). Ontario. Retrieved December 12, 2021 from https://www.ontario.ca/page/feedback-local-citizens-committees
  8. ↑ “Who are the Algonquins of Ontario?” (2013). Algonquin Treaty Negotiation Funding Trust. Retrieved on December 11, 2021 from https://www.tanakiwin.com/algonquins-of-ontario/who-are-the-algonquins-of-ontario/
  9. ↑ 9.0 9.1 “Our Proud History” (2013). Algonquin Treaty Negotiation Funding Trust. Retrieved on December 11, 2021 from https://www.tanakiwin.com/algonquins-of-ontario/our-proud-history/
  10. ↑ 10.0 10.1 10.2 10.3 10.4 Algonquins of Ontario. (2016, January). Message from your Algonquin Representatives. Renewed Hope- A Journey of Survival, Rebuilding and Self Sufficiency. Issue 3. Retrieved from https://www.tanakiwin.com/wp-system/uploads/2016/01/AOO-Newsletter-Issue-3-Jan-2016.pdf
  11. ↑ 11.0 11.1 “The Algonquin Land Claim”. (2021). Ontario. Retrieved December 10 from https://www.ontario.ca/page/algonquin-land-claim
  12. ↑ 12.0 12.1 12.2 12.3 12.4 Robson, M., & Kant, S. (2007). The development of government agency and stakeholder cooperation: A comparative study of two Local Citizens Committees’ (LCCs) participation in forest management in Ontario, Canada. Forest Policy and Economics, 9(8), 1113–1133. https://doi.org/10.1016/j.forpol.2006.12.002
  13. ↑ 13.0 13.1 13.2 13.3 LCC Chair. (November 30,2021). Personal Communication (Personal Interview)
  14. ↑ "Purpose of The Friends of Algonquin Park" (2021). The Friends of Algonquin Park. Retrieved December 13,2021 from https://www.algonquinpark.on.ca/foap/purpose/
  15. ↑ 15.0 15.1 “The Friends of Algonquin Park” (2021). The Friends of Algonquin Park. Retrieved December 19,2021 from https://www.algonquinpark.on.ca/foap/
  16. ↑ Robson, M. (2014). Relative influence of contextual factors on deliberation and development of cooperation in community-based forest management in Ontario, Canada. Canadian Journal of Forest Research, 44(1), 64–70. https://doi.org/10.1139/cjfr-2013-0294
  17. ↑ "Our Work".(2021). Wilderness Committee. Retrieved December 13, 2021 from https://www.wildernesscommittee.org/our-work
  18. ↑ Dawson, N. M., B. Coolsaet, E. J. Sterling, R. Loveridge, N. D. Gross-Camp, S. Wongbusarakum, K. K. Sangha, L. M. Scherl, H. Phuong Phan, N. Zafra-Calvo, W. G. Lavey, P. Byakagaba, C. J. Idrobo, A. Chenet, N. J. Bennett, S. Mansourian, and F. J. Rosado (2021) The role of Indigenous peoples and local communities in effective and equitable conservation. Ecology and Society 26 (3):19. https://doi.org/10.5751/ES-12625-260319
  19. ↑ O’Flaherty, R. M., Davidson-Hunt, I. J., & Manseau, M. (2008). Indigenous knowledge and values in planning for sustainable forestry: Pikangikum first nation and the whitefeather forest initiative. Ecology and Society, 13(1). https://doi.org/10.5751/ES-02284-130106
  20. ↑ Grimwood, B. S. R., Muldoon, M. L., & Stevens, Z. M. (2019). Settler colonialism, Indigenous cultures, and the promotional landscape of tourism in Ontario, Canada’s ‘near North.’ Journal of Heritage Tourism, 14(3), 233–248. https://doi.org/10.1080/1743873X.2018.1527845
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