Southwestern Saskatchewan multi-species action plan 2017: part 1

Document information

Cover illustration: Landscape photo: South of the Divide, Jones Peak © Native Plant Society, C. Neufeld; Prairie Loggerhead Shrike © G. Romanchuck; Mormon Metalmark © R.L. Emmitt; Swift Fox © Environment Canada, G. Holroyd; Yellow-bellied Racer © Environment Canada, A.Didiuk

Recommended citation

Environment and Climate Change Canada  2017. Action Plan for Multiple Species at Risk in Southwestern Saskatchewan: South of the Divide. Species at Risk Act Action Plan Series. Environment and Climate Change Canada, Ottawa. xi + 127 pp.

For copies of the action plan, or for additional information on species at risk, including the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) Status Reports, residence descriptions, recovery strategies, and other related recovery documents, please visit the Species at Risk (SAR) Public Registry.

Également disponible en français sous le titre
« Plan d’action pour plusieurs espèces en péril dans le sud-ouest de la Saskatchewan – South of the Divide »

© Her Majesty the Queen in Right of Canada, represented by the Minister of Environment and Climate Change, 2017. All rights reserved.

ISBN 978-0-660-23865-4
Catalogue no. CW69-21/49-2017E-PDF

Content (excluding the illustrations) may be used without permission, with appropriate credit to the source.

Preface

The federal, provincial, and territorial government signatories under the Accord for the Protection of Species at Risk (1996) agreed to establish complementary legislation and programs that provide for effective protection of species at risk throughout Canada. Under the Species at Risk Act (S.C. 2002, c.29) (SARA), the federal competent ministers are responsible for the preparation of action plans for species listed as Extirpated, Endangered, and Threatened for which recovery has been deemed feasible. They are also required to report on progress within five years after the publication of the final document on the SAR Public Registry.

Under SARA, one or more action plans provide the detailed recovery planning that supports the strategic direction set out in the recovery strategy for the species. The plan outlines what needs to be done to achieve the population and distribution objectives (previously referred to as recovery goals and objectives) identified in the recovery strategy, including the measures to be taken to address the threats and monitor the recovery of the species, as well as the proposed measures to protect critical habitat that has been identified for these species. The action plan also includes an evaluation of the socio-economic costs of the action plan and the benefits to be derived from its implementation. The action plan is considered one in a series of documents that are linked and should be taken into consideration together. Those being the COSEWIC status report, the recovery strategy, and one or more action plans.

The Minister of Environment and Climate Change is the competent minister under SARA for the recovery of the species on lands covered by this action plan and has prepared it to partially implement the associated recovery strategies, as per section 49 of SARA. To the extent possible, it has been prepared in cooperation with the Government of Saskatchewan (Ministry of the Environment, Ministry of Agriculture, Water Security Agency, Ministry of the Economy) and with Agriculture and Agri-Food Canada and Parks Canada Agency, as per section 48(1) of SARA.

Success in the recovery of these species depends on the commitment and cooperation of many different constituencies that will be involved in implementing the directions and actions set out in this action plan and will not be achieved by Environment and Climate Change Canada, or any other jurisdiction alone. All Canadians are invited to join in supporting and implementing this action plan for the benefit of the 13 SARA Schedule 1 species and Canadian society as a whole.

Implementation of this action plan is subject to appropriations, priorities, and budgetary constraints of the participating jurisdictions and organizations.

The recovery strategy sets the strategic direction to arrest or reverse the decline of the species, including identification of critical habitat to the extent possible. It provides all Canadians with information to help take action on species conservation. When critical habitat is identified, either in a recovery strategy or an action plan, SARA requires that critical habitat then be protected.

In the case of critical habitat identified for terrestrial species including migratory birds SARA requires that critical habitat identified in a federally protected area^{Footnote 1}  be described in the Canada Gazette within 90 days after the recovery strategy or action plan that identified the critical habitat is included in the public registry.  A prohibition against destruction of critical habitat under ss. 58(1) will apply 90 days after the description of the critical habitat is published in the Canada Gazette.

For critical habitat located on other federal lands, the competent minister must either make a statement on existing legal protection or make an order so that the prohibition against destruction of critical habitat applies.

If the critical habitat for a migratory bird is not within a federal protected area and is not on federal land, within the exclusive economic zone or on the continental shelf of Canada, the prohibition against destruction can only apply to those portions of the critical habitat that are habitat to which the Migratory Birds Convention Act, 1994 applies as per SARA ss. 58(5.1) and ss. 58(5.2).

For any part of critical habitat located on non-federal lands, if the competent minister forms the opinion that any portion of critical habitat is not protected by provisions in or measures under SARA or other Acts of Parliament, or the laws of the province or territory, SARA requires that the Minister recommend that the Governor in Council make an order to prohibit destruction of critical habitat. The discretion to protect critical habitat on non-federal lands that is not otherwise protected rests with the Governor in Council.

Acknowledgements

Environment and Climate Change Canada (ECCC) acknowledges the dedicated people who served on the steering committee and various task groups over the course of this project. The voluntary contributions of time and expertise from numerous individuals representing stakeholder organizations in southwestern Saskatchewan are especially appreciated.

Acronyms:

AAFC –Agriculture and Agri-Food Canada
ECCC – Environment and Climate Change Canada
MOA – Saskatchewan Ministry of Agriculture
MOE – Saskatchewan Ministry of Environment
MOEC – Saskatchewan Ministry of Economy
PCA – Parks Canada Agency
WSA – Water Security Agency
U of A – University of Alberta
U of S – University of Saskatchewan

Steering committee: Co-leads Mark Wayland^{Footnote 2} (ECCC), Yeen Ten Hwang^{Footnote 2} (MOE), Pat Fargey^{Footnote 2} (PCA) and Adrian Sturch (PCA) provided technical and operational oversight and direction for the project, and leadership during stakeholder consultations and preparation of the action plan document. They were preceded by Dave Duncan (ECCC), Doug Campbell (MOE) and Randy Seguin (MOE). Membership included, at various times, Rick Ashton^{Footnote 2} (AAFC), Mary Brick^{Footnote 2} (MOA), Randy Graham (MOA), David Hanly (MOEC), Bill Houston^{Footnote 2} (AAFC), Glen McMaster (WSA), Royce Reavley^{Footnote 2} (MOEC) and Lorne Tangjerd (MOA).

Project coordinator: Wendy Eskowich^{Footnote 2} (ECCC) served throughout most of the project planning period. Margaret Put (MOE) and Rick Proven (PCA) served prior to 2011.

Background & Action Plan assembly Task Group (TG) - Jeff Thorpe (Saskatchewan Research Council) edited contributions and wrote the action plan, with partial content from an earlier draft by David Kirk (Aquila Consulting).Medea Curteanu (ECCC), Pat Fargey (PCA) and Mark Wayland (ECCC) provided editorial leadership, review and guidance in the preparation of this action plan with contributions from Stephen Davis (ECCC), Beatriz Prieto Diaz^{Footnote 2}  (MOE), Adrian Sturch (PCA), and Wendy Eskowich (ECCC). The original multi species Action Plan concept was developed by Dave Duncan (ECCC), Doug Campbell (MOE) and Bill Bristol (AAFC). Background information was compiled by Ed Beveridge (MOE), Jeanette Pepper (MOE), Shelly Pruss^{Footnote 2} (PCA), and Don McKinnon (MOE); contributing report by Jennie L. Pearce (Pearce & Associates Ecological Research).

Critical Habitat TG – Co-leads Stephen Davis^{Footnote 2} (ECCC) and Pat Fargey (PCA) with contributing members Andrew Didiuk^{Footnote 2} (ECCC), Geoff Holroyd (ECCC), Jeff Keith^{Footnote 2} (MOE), Paul Knaga (ECCC), Joy Stevens^{Footnote 2} (ECCC), Helen Trefry^{Footnote 2} (ECCC), Joanne Tuckwell (PCA), Troy Wellicome^{Footnote 2} (ECCC), Corie White^{Footnote 2} (WSA) and Greg Wilson^{Footnote 2} (ECCC) collected and analyzed information that contributed to the scientific knowledge base of this report. This included the development of abundance and habitat models to assist in the identification, GIS analysis and mapping of critical and important habitat for 13 species in the SoD area. Members also helped identify threats, and formulate and prioritize recovery measures for this multi-species action plan. Editorial review of the final draft was also provided by the above members, Ryan Fisher (ECCC) and Lea Craig-Moore (ECCC).

Data & GIS Support TG – Ben Sawa (MOE) provided data management, storage and GIS support to all task groups. Mark Gilchrist (ECCC) produced critical habitat maps in conjunction with Stephen Davis (ECCC), and assistant Laura Gardiner (ECCC). Contributing members included: Dave Ackerman (AAFC), Mike Anderson (MOE), Gregg Babish (ECCC) Michael Fitzsimmons (PCA), Jeff Keith (MOE), Zhong Li (ECCC), Danny McLeod (MOE), Erl Svendsen (AAFC), Gillian Turney (ECCC), Gary Weiss (ECCC), Eric Woodsworth (ECCC) and Karl Zimmer (ECCC).

Critical Habitat Protection TG – Robin Bloom^{Footnote 2} (ECCC) with contributions by members Rick Ashton (AAFC), Mary Brick (MOA), Beatriz Prieto Diaz (MOE), Ken Dillabaugh^{Footnote 2} (MOE), Royce Reavley (MOEC) and Corie White (WSA) tested methodology and analyzed the process of assessing effective protection of critical habitat for the south of the divide project.

Socio-economic TG – Data collection for  the socio-economic impact of the project was provided by Magfur Rahman (MOE) with assistance from Yves Bourassa (ECCC), Darrell Corkal (AAFC), Frank Grigel (PCA), Dave Hanly (MOEC), Tom Harrison^{Footnote 2} (WSA) and Ela Kinowska (ECCC). Socio-economic analysis of the costs and benefits of implementation of the action plan were provided, in part, by Alicia Entem^{Footnote 2} (U of A) with oversight by Vic Adamowicz (U of A), Peter Boxall (U of A) and Stephanie Simpson (U of A), with additional review and comments provided by Mike Balfour and Royce Reavley (MOEC).

Communication, engagement & implementation TG phase 1: Suzanne Vuch (ECCC) and Krista Scott (PCA) led on the development of foundational communication and engagement strategies for the SoD project with assistance from: Allison Henderson (U of S), Karin Smith Fargey (PCA), Kerry La Forge^{Footnote 2} (AAFC) and Krista Connick Todd (WSA). Kelly Williamson^{Footnote 2} (SWA/ECCC) led on the initial identification and engagement of stakeholders. Tom Harrison (WSA) led on preliminary investigations into implementation models with assistance from Lawrence Baschak (MOE), Ken Dillabaugh (MOE), Trevor Dyck^{Footnote 2} (AAFC) and Shelly Larson (PCA).

Communication, engagement & implementation TG phase 2: Stakeholder engagement was headed by Mark Wayland (ECCC) with co-leads Wendy Eskowich, (ECCC), Tom Harrison (WSA), Jeff Keith (MOE), and Kelly Williamson (ECCC/WSA) who also assisted with engagement of the First Nations and Métis peoples. Contributing members included Krista Connick Todd, Ron Dolter (MOEC), Kerry La Forge, Bob Springer (MOA) and Lorne Veitch^{Footnote 2} (MOA). Suzanne Vuch directed the production of communication products. Peter Joyce (MOE) facilitated investigations into implementation models.

Stakeholders – We would like to thank the following individuals and organizations for their active participation in numerous stakeholder meetings and workshops^{Footnote 2}. Their input into the preparation and review of this document has been invaluable. Harvey Anderson (Invasive Alien Plants), Orin Balas^{Footnote 2}/Sue Michalsky (Rancher’s Stewardship Alliance), Ross Beierbach/Howard Eiserman (Sask. Landowner/Lessee Rights Group), Don Connick^{Footnote 2} (Agriculture Producers Association of Sask.), Larry Grant (Sask. Cattlemans Association), Lynn Grant/Fawn Jackson^{Footnote 2} (Canadian Cattlemans Association), Steve Grant /Julie Mackenzie (Frenchman Wood River Weed Management Area), Pat Hayes/Steve Gunter (Val Marie Irrigation Groups), Paul Heglund/Scott Sanderson (Consul/Nashlyn/Vidora Irrigation), Chet Neufeld^{Footnote 2} (Native Plant Society of Sask.), Journey Paulus^{Footnote 2} (Cenovus), Melissa Ranalli/Rebecca Magnus (Nature Sask.), Bob Santo^{Footnote 2}/Dale Gross, Carmen Leibel (Nature Conservancy Canada), Sherry Sian/Rob Staniland^{Footnote 2} (Canadian Association of Petroleum Producers), Ron Tittle (Sask. Irrigation Projects Association), Rick West^{Footnote 2}/Bruce Howard/Cali Scheidt (Sask. Power), Brooks Whitney^{Footnote 2} (Sask. Stockgrowers Association) and Natasha Wilkie/Michelle Clark/Tara Davidson (Prairie Conservation Action Plan).

Additional individuals who contributed to the action plan in various ways: Ashley Anne Wick (University of Alberta), Trevor Dyck^{Footnote 2} (AAFC), and Bret Ward^{Footnote 2} (AAFC).

Executive summary

The South of the Divide (SoD) Action Plan focuses on a group of nine federally-listed species that inhabit the Milk River drainage basin of southwestern Saskatchewan. This multi-species Action Plan forms an integral component of implementing the Recovery Strategies for these nine species at risk. The goal of the plan is to conserve these and other species at risk, and their supporting habitats, through cost-effective measures and collaboration with land owners and other land users. Areas managed by Parks Canada Agency within the SOD area are not included in this action plan because Parks Canada Agency has developed its own multi-species action plan for species at risk within Grasslands National Park. The development of the SoD Action Plan benefited from participation and advice from the Government of Saskatchewan and key stakeholder groups, including several groups from the South of the Divide region.

The Action Plan encompasses the Saskatchewan portion of the Milk River drainage basin, a 1,415,732 ha (14,157 km²) area (excluding Grasslands National Park) in the southwest corner of Saskatchewan. In this semi-arid area, more than half of the landscape remains in natural mixed-grass prairie. The Plan covers the following nine extirpated, endangered or threatened species: Black-footed Ferret, Burrowing Owl, Eastern Yellow-bellied Racer, Greater Sage-Grouse, Prairie Loggerhead Shrike^{Footnote 3} , Mormon Metalmark, Mountain Plover, Sprague’s Pipit and Swift Fox. The Plan addresses population and distribution objectives that were identified in the Recovery Strategy for each of the nine species, but only to the extent to which those objectives can be realized within the SoD area. The Action Plan also includes management considerations for four species of special concern for which Management Plans have been prepared: Black-tailed Prairie Dog, Long-billed Curlew, McCown's Longspur, and Northern Leopard Frog (boreal/prairie populations). Threats to species have been identified and compiled from the individual Recovery Strategies and Management Plans.

Recovery measures outlined in the SoD Action Plan fall under seven broad strategies that are similar to those in the accompanying recovery strategies: 1) Research; 2) Population Management and Species Protection; 3) Habitat Assessment, Management and Conservation; 4) Regulation and Policy; 5) Communication, Collaboration and Engagement; 6) Conservation Planning; and 7) Monitoring and Assessment. Within each broad strategy, recovery measures are grouped into approaches with expected outcomes. The specific recovery measures, and their priorities and implementation schedule, have been developed in collaboration with a large number of stakeholders. Recovery measures may be added, adapted or revised as new information is gathered.

Critical habitat located within the SoD area is identified in this Action Plan to the extent possible using the best available information, and falls into one of three situations:

1. For Burrowing Owl and Eastern Yellow-bellied Racer, critical habitat was previously identified within the SoD area in the Recovery Strategy for each of these species, and new critical habitat within the SoD area, is identified in this Action Plan.
2. For Prairie Loggerhead Shrike and Sprague’s Pipit, critical habitat was previously identified outside of the SoD area in the Recovery Strategy for each of these species, and new critical habitat within the SoD area is identified in this Action Plan.
3. For Mormon Metalmark, Mountain Plover and Swift Fox, critical habitat was not previously identified in the Recovery Strategy for each of these species, but new critical habitat within the SoD area is identified in this Action Plan.

For Greater Sage-Grouse and the Black-footed Ferret, critical habitat within the SoD area was fully identified in the Recovery Strategies for these two species, and no new critical habitat is identified in this Action Plan. A description of the previously identified critical habitat for these two species is included in Appendix D of this Action Plan for the benefit of the reader.

Critical habitat within the SoD area (excluding Grasslands National Park) is identified for each species independently, however there is substantial overlap (See Section 1.3.9). In this multi-species Action Plan, the total amount of overlapping (non-additive) critical habitat for all species in the SoD area, is found within 595,573 ha (5,955  km²) of land. For several species, further critical habitat must be identified in the SoD area and across the species’ ranges in order to meet the national population and distribution objectives. Critical habitat has been identified on private land, provincial Crown land, and federal Crown land that is not in federal protected areas. The federal government and the Government of Saskatchewan are working together to ensure that all critical habitat in the SoD area is effectively protected.

A socio-economic evaluation of the SoD Action Plan was completed. This evaluation determined that implementation of this plan will have direct costs related to research, population management, habitat management, regulation, communication, planning, and monitoring. It may also lead to opportunity costs, such as foregone profits, taxes, and royalties from petroleum development and possibly from other resource mineral extractions. It will provide benefits related to conservation of species at risk, as well as other ecological goods and services provided by native grasslands, such as livestock forage, general biodiversity, pollination, carbon sequestration, recreation, and water storage and filtration. The distributional impacts on various groups (the Canadian public; the agriculture, petroleum, and tourism industries; federal, provincial, and municipal governments; First Nations and Métis groups; and conservation groups) are assessed.