Parks Canada Agency: Appearance before the Standing Committee – December 14, 2023

Bill S-14, An Act to amend the Canada National Parks Act, the Canada National Marine Conservation Areas Act, the Rouge National Urban Park Act and the National Parks of Canada Fishing Regulations

Q1. What is the purpose of this legislation?

Bill S-14: An Act to amend the Canada National Parks Act, the Canada National Marine Conservation Areas Act, the Rouge National Urban Park Act and the National Parks of Canada Fishing Regulations (Short title: Protecting Canada’s Natural Wonders Act) was introduced in the Senate on October 19, 2023.

The bill proposes amendments that would see more than 12 million hectares formally protected under the Canada National Parks Act and the Canada National Marine Conservation Areas Act. It would:

• Finalize the establishment of Akami-Uapishkᵁ-KakKasuak-Mealy Mountains National Park Reserve while permitting and regulating traditional land use activities in this national park reserve.
• Finalize the establishment of Tallurutiup Imanga National Marine Conservation Area, once its interim management plan is complete.
• Formally update the boundaries of seven existing national parks and one national park reserve.
• Bring the Acts in line with the modern legislative environment, and strengthen the tools used to operate and manage national parks and national marine conservation areas.

Q2. What amendments were proposed by the Standing Senate Committee on Energy, the Environment and Natural Resources?

The Standing Senate Committee on Energy, the Environment and Natural Resources completed the clause-by-clause study of Bill S-14 on December 7, 2023. The Committee will report the bill back to the Senate with amendments.

The amendments are:

• Clause 4 – 32 (4): Discharge and deposit of substances in Canada National Parks Act: Powers of superintendent and Minister: Replace may by shall (3) If the superintendent of the park is of the opinion that a person is not taking the measures required by subsection (2)(b), the superintendent shall order the person to take those measures. If the person fails to take the measures that they are ordered to take, the Minister shall take the measures on behalf of His Majesty in right of Canada.
• Clause 6 - 41.6 (4), 46 (6) and 47 (10):
  • Cabins and tilts: add the word existing in front of cabins and tilts:
  • Traditional Land Users: remove the reference to NunatuKavut Community Council from the definition of Traditional Land Users.
• Clause 19 - 17 (3): Discharge and deposit of substances in Rouge National Urban Park Act: Powers of superintendent and Minister: Replace may by must (3) If the superintendent is of the opinion that a person is not taking the required measures, the superintendent must order the person to take those measures. If the person fails to take the measures that they are ordered to take, the Minister must take the measures on behalf of His Majesty in right of Canada.

Q3. Will NunatuKavut members be able to carry on their traditional activities with the amendments adopted in the Senate?

The removal of members of NunatuKavut Community Council from the definition of Traditional Land Users as it relates to Akami-Uapishkᵁ-Kakkasuak-Mealy Mountains National Park Reserve will prevent some NunatuKavut Community Council members to exercise traditional activities in the Park Reserve and will allow others (that would fall under other provisions of the Bill) to exercise traditional activities in the Park Reserve.

This puts Parks Canada in a position of not being able to fulfill its obligations under the Shared Understanding Agreement, an agreement stemming from a 2007 Newfoundland and Labrador Court of Appeal decision. This agreement was put in place as an accommodation measure to the NunatuKavut Community Council in their claim to the Government of Canada.

Historic places legislation

Q1. How does Bill C-23 protect federal historic places?

• As drafted, Bill C-23, the Historic Places of Canada Act, provides for the sustainable protection of federally owned historic places that are administered by Parks Canada, other federal departments, and the National Capital Commission.
• Bill C-23’s protection measures include:
  • A public register that would provide information about the condition of, and any planned intervention at, a federal historic place.
  • Mandatory consultation with Parks Canada before federal departments and the National Capital Commission dispose of, demolish, sell, or transfer a federal historic place.
  • Requirement for federal departments and the National Capital Commission to inform Parks Canada when they dispose of, demolish, sell, or transfer a federal historic place, ensuring that up-to-date information is reflected on the register.
  • Mandatory consultation with Parks Canada before federal departments and the National Capital Commission intervene at a federal historic place.
  • Codification of the Standards and Guidelines for the Conservation of Historic Places in Canada and a requirement that federal departments and the National Capital Commission take them into account before intervening at a federal historic place. This would establish a common benchmark in law for the stewardship of federal historic places.

Q2. How will Bill C-23 advance Reconciliation?

• As drafted, Bill C-23, the Historic Places of Canada Act, would directly benefit Indigenous peoples, including First Nations, Inuit, and Métis, through the addition of distinctions-based representation on the Historic Sites and Monuments Board of Canada (HSMBC), in keeping with Call to Action 79(i).
• The bill would also support reconciliation through measures that include:
  • The HSMBC would be required to take into account the best available information, including Indigenous knowledge, when applying the criteria for the designation of places, persons and events of national historic significance or national interest. This would ensure that Indigenous knowledge would be on an equal footing with other sources of information, and that Indigenous histories, values and memory practices would be integrated into the heritage value of historic places.
  • Designations made by Indigenous governing bodies would be able to be included on the public register.
  • Sensitive information about historic places may be protected from public listing on the register to ensure the protection and conservation of the heritage value of historic places or to respect agreements entered into by the Government of Canada.
  • Providing the conditions for the Minister to modify the name of the designation or the reasons for designation, or to revoke a designation following a recommendation from the HSMBC. Reviewing designations may take place when there is a controversial or problematic designation, including for designations that are rooted in colonial views of history.
• Barriers to Indigenous participation as members of the HSMBC are being addressed by additional means. Actions taken include revisions to the required qualifications and generating better awareness of vacancies amongst potential Indigenous applicants. Two recent appointees to the Board, representing the Yukon and Northwest Territories, identify as Indigenous persons.
• Bill C-23 is informed by engagement with Indigenous groups. Parks Canada had the privilege of engaging with 40 Indigenous and modern treaty organizations between Winter 2021 and Winter 2022.

National marine conservation areas establishment and expansion

Q1. What is the current status of protection of Canada’s marine areas?

• Currently, 14.66% of Canada’s marine waters are protected. Parks Canada-managed national marine conservation areas and national parks with marine components contribute 2.12% making the Agency the second-largest contributor of any province, territory or federal organization.
• Parks Canada’s largest contribution to the marine conservation targets is the 108,000 square kilometre Tallurutiup Imanga National Marine Conservation Area, which contributes approximately 1.9% to the target.

Q2. How will Canada contribute to the achievement of the Government of Canada’s marine conservation target commitment to protect 25 per cent of Canada’s marine areas by 2025 and 30 per cent by 2030?

• Budget 2021 allocated to Parks Canada $192.7 Million over 5 years to create 10 new national parks and 4 new freshwater national marine conservation areas that are co-managed with Indigenous governments and communities, and to acquire the land needed to expand and complete existing national parks. This funding will result in the protection of 303,000 km² or 3% to the government’s target of protecting 25% of Canada’s terrestrial lands and freshwater by 2025.
• Under Budget 2021, the Government of Canada made an historic investment in protecting the health of Canada’s oceans, including $976.8 Million over 5 years to reach ambitious marine conservation targets. Of this, Parks Canada was allocated $53.6 Million to undertake feasibility assessments and negotiations leading to the establishment of 10 new national marine conservation areas that would contribute 230,000 km² or at least 4% to the 25% by 2025 target.
• In February 2023, at the Fifth International Marine Protected Areas Congress (IMPAC5), Parks Canada launched a new Policy to guide the establishment and management of National Marine Conservation Areas (NMCAs) and reiterated the government’s commitment to create 10 new NMCAs to help protect 25% of Canada’s waters by 2025 while ensuring this work is grounded in science, Indigenous knowledge and local perspectives.
• Parks Canada has 7 active feasibility assessments for new National Marine Conservation Areas across Canada, and is working to bring 3 additional sites into the feasibility assessment phase.
• In November 2023, Parks Canada and the Government of Quebec announced their shared intention to evaluate the possibility of establishing a new Anticosti-Mingan Marine Park.
• In March 2023, Parks Canada and the Government of Quebec announced their shared intention to expand the boundaries of Saguenay–St. Lawrence Marine Park. The potential expansion will enhance the protection of the St. Lawrence Estuary ecosystems, including the critical habitat for the beluga whale.
• In February 2022, Parks Canada and the Nunatsiavut Government announced a commitment to complete a feasibility assessment for the Torngats Area of Interest, a marine area adjacent to the Torngat Mountains National Park in northern Labrador.
• In April 2022, Parks Canada and the Government of Newfoundland and Labrador announced that they would negotiate a memorandum of understanding to launch a feasibility assessment for a national marine conservation area offshore to protect the South Coast Fjords offshore southwestern Newfoundland, along with a proposal for an adjacent national park.
• In August 2021, Parks Canada, several First Nations and the Province of British Columbia announced the launch of a feasibility assessment for a new national marine conservation area reserve for the Central Coast.
• In August 2021, a feasibility study was launched with Indigenous communities for a national marine conservation area in Western James Bay and Southwestern Hudson Bay.

Q3. How does Canada support the participation of Indigenous peoples in marine conservation?

• Parks Canada places a priority on working with Indigenous peoples to establish new national marine conservation areas as seen in the recently launched feasibility assessments on Central Coast, Western James Bay and Southwestern Hudson Bay, and the Torngats Area-of-Interest: all of these projects are being undertaken in partnership and collaboration with Indigenous peoples.
• Parks Canada provides funding to support Indigenous leadership in national marine conservation establishment projects through contribution agreements.
• Parks Canada’s commitment to enabling Indigenous peoples to fulfill their roles as traditional stewards of waters has resulted in many Indigenous governments and communities expressing a desire to see additional sites established as national marine conservation areas.
• In a recent example, the marine area of western James Bay and Southwestern Hudson Bay was brought forward for protection to Parks Canada through the leadership of the Mushkegowuk Council. The Council unanimously agreed that the area requires protection and sought partnership with Parks Canada to collaborate and work towards the establishment of the area as a national marine conservation area.
• Parks Canada and the Nunatsiavut Government are jointly assessing the feasibility of establishing an Indigenous protected area under the Canada National Marine Conservation Areas Act offshore northern Labrador; this is the first time Parks Canada has committed to explore the feasibility of establishing an Indigenous protected area from the start of the process.

Q4. How are national marine conservation areas protected?

• Administered by Parks Canada under the Canada National Marine Conservation Areas Act, national marine conservation areas (NMCA) are protected areas managed for ecological sustainability. They include the seabed, the water above it and may also take in wetlands, estuaries, islands and other coastal lands.
• National marine conservation areas focus on ecological sustainability, which means harmonizing conservation practices with human activities such as fishing, shipping and recreation. In line with the 2019 federal protection standards for marine protected areas, oil and gas exploration and exploitation, mining, dumping and bottom trawling are prohibited throughout these special areas. The Minister of Fisheries, Oceans and the Canadian Coast Guard, and the Minister of Transport retain their responsibilities for the management of fisheries and marine navigation and safety within national marine conservation areas.
• With the announcement at IMPAC5 in February 2023 of Canada’s new Federal Marine Protected Area Standard and Parks Canada’s new NMCA Policy Framework and Management Directive, Parks Canada now has clear national direction on the establishment and management of current and future national marine conservation areas. The new policy emphasizes the importance of collaboration and co-management with Indigenous peoples. The Policy will strengthen Canada’s contribution to the qualitative elements of international marine conservation targets by setting out how national marine conservation areas can be effectively and equitably managed.
• The management of national marine conservation areas involves working closely with others who use the lands, waters, and living resources to reach common goals, and most importantly, a healthy, sustainable ecosystem.

National park establishment and expansion

Q1. What is the current status of protection of terrestrial areas in Canada?

• The Government of Canada has achieved 13.5% protection of terrestrial areas and inland waters to date.
  • Parks Canada’s 47 national parks and 2 freshwater national marine conservation areas (NMCAs) contribute 3.53% towards the 13.5% total, accounting for over 25% of the total.
  • This represents 75% of the federal contribution and is the largest contribution of any province, territory or federal organization to the terrestrial conservation target.

Q2. How will Parks Canada contribute to the achievement of the GC target to conserve 25% of Canada’s land and inland waters by 2025 and 30% by 2030?

• The investments from Budget 2021 include $192.7 Million over five years to create 10 new national parks and 4 new freshwater marine conservation areas, while working to acquire the land needed and to expand and complete existing national parks. This will contribute 303,000 km² or 3 per cent to the 25-per cent target.
• A roadmap to achieve the target has been established.
• Negotiations for formal establishment agreements are already underway for two new national park reserves.
  • Parks Canada is working with B.C. and the Syilx / Okanagan Nation to establish a national park reserve in the South Okanagan–Similkameen.
  • Parks Canada is working with the Epekwitk Assembly of Councils to establish a new national park reserve in Pituamkek (Bee-doo um Gek)/Hog-Island Sandhills chain in northwestern PEI.
• The intent to assess the feasibility of a national park reserve in northern Manitoba was announced in December 2022.
• Seven additional sites have been identified and discussions are underway with provincial/territorial governments and Indigenous governments and communities.
• Four potential freshwater NMCA sites have been identified.

Q3. Can we realistically achieve our National Parks target by 2025?

• Budget 2021 provides funds for feasibility work and negotiations, and Parks Canada is actively piloting the development of a more efficient feasibility process to accelerate our work. A roadmap to achieving the target has been established.
• Indigenous partners are bringing vision, data, support, and specific projects for consideration, which facilitates greater efficiency and collaboration.
• To ensure that a new protected area is counted toward the target, Parks Canada seeks to reach the ‘Memorandum of Understanding’ stage of the process at which point the parties declare the proposal is feasible under certain terms and conditions; confirm a boundary and ensure interim protection of site.

Q4. How does Canada support Indigenous stewardship of the lands within protected areas?

• The Government of Canada is committed to enabling Indigenous peoples to fulfill their roles as traditional stewards of lands and waters within protected areas, and Parks Canada places a priority on working collaboratively with Indigenous governments and communities in establishment and co-management of new protected areas.
• Many Indigenous governments and communities have expressed a desire to see additional sites established as national parks and national marine conservation areas. For example, the Mi’kmaq of PEI are working with Parks Canada to protect a traditional area and sacred place as a national park reserve.

National urban park program

Q1. What work has been done so far to achieve the commitment of creating 15 new national urban parks by 2030?

• On August 4, 2021, the Government of Canada launched a new program to support the creation of a network of national urban parks. This program is supported by Budget 2021’s historic investment of $2.3 billion in Canada’s Nature Legacy to address the biodiversity crisis, protect and conserve nature, and create jobs in nature conservation, with up to $130.9 million provided specifically toward the creation of up to 6 national urban parks by 2025.
• Parks Canada is working on the development of a national urban parks policy, which will be informed by experience with partners at the initial candidate sites as well as input from municipal, provincial, and Indigenous governments and organizations, as well as other partners and stakeholders.
• The policy will guide the designation and management of national urban parks, which will include areas managed under a range of flexible governance models, including federally administered places, third party administered places, and partnership models.
• To date, exploratory work to assess the potential for national urban park sites has begun in:
  • Victoria region, BC
  • Edmonton region, AB
  • Saskatoon region, SK
  • Winnipeg, MB
  • Windsor, ON
  • Halifax, NS
• Parks Canada has also begun initial discussions with Montreal.
• Three interconnected objectives are at the core of Parks Canada’s work to establish national urban parks:
  • Protecting and conserving nature, including nature-based solutions for climate change;
  • Connecting people with nature; and
  • Advancing reconciliation with Indigenous peoples.
• Canada currently has one national urban park: The Rouge National Urban Park, in the Greater Toronto Area. This park, which is within a one-hour drive for 20% of Canada’s population, helps to protect biodiversity in densely populated southern Canada and is home to almost 1,700 species, including 27 species at risk.

Q2. What are the benefits of urban parks?

• The National Urban Parks Program will contribute to Canada’s global commitments, including:
  • Canada’s commitment to protecting biodiversity and conserve 25 per cent of land and inland waters and 25 per cent of marine and coastal areas by 2025, and 30 per cent by 2030; and
  • Canada’s commitment under the Kunming-Montreal Global Biodiversity Framework to increase the area, quality, and access to urban green and blue spaces.
• Urban parks offer significant benefits to cities and local economies. They are important economic generators, while also helping to conserve biodiversity, protect ecosystems, and adapt to climate change. Urban parks also deliver health, well-being, social cohesion and other benefits to Canadians through enhanced access to nature. The creation of national urban parks is also an important opportunity to advance reconciliation with Indigenous peoples.
• In a survey of over 3,000 residents from 30 Canadian cities conducted by Canada’s non-profit organization Park People, 91% said parks have had a positive impact on their connection to nature since the beginning of the pandemic. Additionally, a survey of over 50 municipalities had over half reporting an increase in park use since the pandemic began.

Nature Legacy and Enhanced Nature Legacy

Q1. What conservations gains have occurred under Nature Legacy?

Nature Legacy funding received in 2018 enabled Parks Canada to undertake ambitious actions to recover species at risk and manage Parks Canada administered places.

This led to the following concrete conservation gains and progress:

• Parks Canada developed 23 site-based multi-species action plans for species at risk, and implementation reports have been published on 19 of these plans to date focusing on conservation gains achieved.
• As of March 2023, 75% of the conservation actions identified in these plans have been implemented.
• Working with partners, 43 new ecological connectivity initiatives are underway that include mapping and monitoring and developing strategies to address connectivity challenges.
• Since 2022, Parks Canada recognized a total of seven Other Effective Area Based Conservation Measures (OECM), including five in fall 2023, adding over 20,400 ha to Canada’s conservation targets. The five OECM added in 2023 are Navy Island National Historic Site (Ontario, 129 ha); Fort George National Historic Site (Ontario, 32 ha); Grosse-Ile & Irish Memorial National Historic Site (Quebec, 250 ha); Fort Lennox National Historic Site (Quebec, 56 ha); and Rideau Canal National Historic Site (Ontario, 19,972 ha).
• Thaidene Nene National Park Reserve, encompassing 14,070 km², was established using Nature Legacy funds, as part of a larger Indigenous Protected and Conserved Area.
• Tallurutiup Imanga National Marine Conservation Area, Canada’s largest protected area at 108,000 km², was established using Nature Legacy funds to complete negotiations of an Inuit Impact and Benefit Agreement (IIBA). This IIBA delivers infrastructure projects in a whole-of-Government approach, investing in conservation economy to benefit Inuit communities.
• Bruce Peninsula National Park was expanded by purchasing 1320 hectares of pristine old-growth forest, species-at-risk habitat, making it the most significant property within the park.

Q2. Building on Nature Legacy, how is Parks Canada utilizing the Enhanced Nature Legacy investment?

• Parks Canada received $557.5 Million (over five years) as part of the Enhanced Nature Legacy Investment.
• This investment is supporting the ongoing work to modernize conservation programs by better integrating science, Indigenous leadership, climate change, and landscape-scale conservation in the effective management of Parks Canada administered places.
• Importantly, this funding is supporting the creation of 10 new national parks and 4 new national freshwater marine conservation areas, while working to acquire the land needed to expand and complete existing national parks. It is also funding the designation of up to 6 new national urban parks by 2025.
• Parks Canada was able to launch a new national program that supports the conservation of ecological corridors in key areas across Canada. Ecological corridors support biodiversity and help species adapt to climate change.
• Working with Indigenous partners, Parks Canada is working to design a new and enhanced Indigenous Guardians programs within Parks Canada administered places. This program is an important element in enabling increasing Indigenous stewardship, in the spirit of the government’s reconciliation agenda.
• Building on the 2018 Nature Legacy investment, Enhanced Nature Legacy also provides funding for a conservation breeding program for Southern Mountain caribou in Jasper National Park.

Q3. What progress to support Canada’s commitment to protect 25% of Canada’s lands and waters by 2025 while working towards 30% by 2030 has Parks Canada made under Enhanced Nature Legacy to date?

• Parks Canada has identified sites that would contribute 250,000 km² or at least 2.5% to the 25% by 2025 terrestrial and freshwater target.
• Two new national park reserves, one in Prince Edward Island and one in British Columbia, are currently in negotiation. The intent to assess the feasibility of a national park reserve in northern Manitoba was announced in December 2022. In the rest of the country, discussions are at different stages with several provincial and territorial governments and Indigenous organizations for the identification and feasibility assessments of 7 new national parks and 4 inland freshwater conservation areas.
• To date, Parks Canada is actively working on national urban park sites in the Victoria region, British Columbia; Edmonton region, Alberta; Saskatoon region, Saskatchewan; Winnipeg, Manitoba; Windsor, Ontario; and Halifax, Nova Scotia. Discussions have also begun in Montreal, Quebec.
• Parks Canada has also received ‘Marine Conservation Targets’ funding that supports efforts to meet the Minister’s mandate commitment to create 10 new National Marine Conservation Areas by 2025. Currently Parks Canada has identified potential marine sites that would contribute 230,000 km² or at least 4% to the 25% by 2025 target. Currently, there are 7 active National Marine Conservation Area feasibility assessments underway. Informal discussions are also underway to identify 3 additional National Marine Conservation Area proposals.

Parks Canada visitation in 2022-23 (and 2023 YTD)

Q1. How many people visited in 2022-23?

• Parks Canada welcomed 22.5 million visitors in 2022-23 (April 1, 2022 to March 31, 2023).
• Visitation was up 4% overall over 2021-22. It has not yet rebounded to pre-pandemic levels (when it was 24.9 million).
• There were 15.2 million visitors to national parks, which is 4% higher than last year. There are 7.3 million visitors to national historic sites, which is also 4% higher than last year.
• International visitors from every U.S. state and approximately 90 foreign countries were present. Volume of international visitors is not yet back to pre-pandemic levels.
• Visitors had positive experiences. Overall, 94% of visitors enjoyed their visit and 94% would recommend visiting the place to friends and family. Visiting was also important for mental wellbeing (81%) and physical wellbeing (80%)

Q2. What does visitation in 2023-24 look like so far?

• Visitation to national parks and historic sites continues to rebound in 2023-24.
• For the period April 1 to September 30, 2023 (first half of the season), visitation was 19 million.
• Visitation is up 3% over the same period last year (in 2022) and is down 7% from the same period pre-pandemic (2019).
• The current projection is approximately 23.3 million visitors by the end of the fiscal year (March 31, 2024).