The Federal Policy on Wetland Conservation

Document information

Government of Canada 1991

Published by Authority of the Minister of Environment 

© Minister of Supply and Services Canada, 1991

For more information on The Federal Policy on Wetland Conservation and wetlands in general, please contact:

Director General
Canadian Wildlife Service
Environment Canada
Ottawa ON K1A 0H3

Background

In 1986 and early 1987 Environment Canada developed a national statement and fact sheet on wetland issues in Canada summarizing management problems and identifying the major obstacles to wetland conservation. The Department subsequently sponsored a non-government organizations Workshop on Wetland Conservation Policy in February 1987. This workshop developed a series of recommendations directed to all governments in Canada concerning the need for wetland policy. These recommendations were sent to all Environment and Natural Resource Ministers across the country.

The Federal-Provincial Committee on Land Use (FPCLU) in 1987 identified "wetlands management" as a significant land use issue. A Wetlands Subcommittee of the FPCLU was convened in June 1987, and produced a report entitled "A Framework for Wetlands Policy in Canada". This report was endorsed by the full committee and members agreed to encourage use of this framework, as appropriate, in their own jurisdictions. Also in early 1987, the Federal Interdepartmental Committee on Land identified the need to develop a wetlands policy statement to supplement the "wise land use" provisions of the Federal Policy on Land Use. The Federal Water Policy adopted in 1987 also identified wetlands conservation as a significant water resource issue.

For over 10 years Canada has been a signator nation to the Ramsar Convention, an international treaty focusing on conservation of wetlands of international importance. A major obligation under the Convention is implementation of principles, proposed in 1987 by Canada, for the wise use of wetlands. The Convention notes the "wise use" of wetlands is defined as their "sustainable utilization for the benefit of humankind in a way compatible with the maintenance of the natural properties of the ecosystem". Further, it calls for the establishment of wetland conservation policies in each nation to improve institutional and organizational arrangements, to address legislative needs, to increase knowledge and awareness of wetland values, to monitor the status of wetlands, to identify program priorities and to develop action plans for specific sites. Canada is a major supporter of this Convention, having hosted the Third Conference of the Contracting Parties at Regina in 1987 and, more recently, providing the Vice-Chairperson to the Convention's Standing Committee. Thirty wetlands of international importance have been designated to date in Canada out of about 450 such sites worldwide.

A commitment to wetlands conservation and the need for wetland policy have not only been recognized at the international level by Canada but also nationally. In April 1990, the Federal Government and numerous non-government and industry groups (including Ducks Unlimited Canada, Wildlife Habitat Canada, and the National Round Table on the Environment and the Economy) co-hosted a national policy conference entitled the "Sustaining Wetlands Forum". This national meeting focused on opportunities for partnerships in wetland conservation and development of responses by all economic sectors to the implementation of the North American Waterfowl Management Plan. A series of national recommendations were developed including a call for all jurisdictions in Canada to develop mutually supporting wetland conservation policies by 1991. At the Sustaining Wetlands Forum the Prime Minister of Canada was a keynote speaker. His address included statements confirming the Federal Government's intention to act on wetland policy as part of the national Green Plan.

During the summer of 1990, the Federal Government undertook national consultations on Green Plan proposals. The summary report of these consultations indicated that there is widespread public support for the conservation of Canadian wetlands, for actions to reclaim degraded sites, and for protection of important wetlands through a cooperative, national approach. Subsequently, in December 1990 the Green Plan included a specific commitment that the Federal Government would adopt The Federal Policy on Wetland Conservation in 1991.

Hence, for over three years a consultative process has been underway to develop clear policy by the Federal Government that promotes wetland conservation. This has arisen as a result of interdepartmental and intergovernmental interest in this area, the support and consultative advice of non-government groups, Canada's international treaty commitments, support by a national policy conference on wetlands with strong business and private sector involvement, a public commitment by the Prime Minister of Canada, and most recently, widespread public support and a clear commitment for action in this area via the Green Plan. These actions all clearly demonstrate that concerns for conservation of wetlands have been elevated to the national environmental agenda. The Federal Policy on Wetland Conservation has undergone extensive review by stakeholders, consultation with affected federal agencies and discussion with provincial and territorial agencies and non-government groups. The Policy represents a prudent and thoughtful federal response to wetland decline in Canada.

The wetland resource

The importance of wetlands

Canada is the custodian of a major portion of the world's wetland resource base. With more than 127 million ha of wetlands, the country is estimated to incorporate up to one-quarter of the world's wetland area.

These wetlands are more than a peculiar landscape form. Indeed, the World Conservation Strategy has identified wetlands as one of the key life support systems on this planet, in concert with agricultural lands and forests. Their importance goes beyond their status as the habitat of many endangered plant and animal species. They are a vital element of national and global ecosystems and economies.

Ecological functions

Wetlands serve many important ecological functions, including:

Socio-economic functions

With their unique properties, wetlands also serve many important socio-economic functions, including:

Estimated value of wetland functions

In financial terms alone, Canada's wetlands are valued in the billions of dollars. This includes the financial value of annual production directly related to wetlands, including both consumptive activities such as hunting, fishing and trapping, and non-consumptive activities such as tourism and recreation. It also includes the value derived from natural functions such as flood control and water purification. Estimates in the internationally recognized book Wetlands of Canada, published in 1988, indicate that the economic returns derived from wetlands exceed $10 billion annually in Canada. The economic values of wetlands alone are a strong argument for their conservation.

Loss and degradation of wetlands in Canada

Despite the importance of wetlands to Canada's ecological and economic health and vitality, the last two centuries have witnessed their continued loss and degradation. Since 1800, an estimated 20 million ha – one seventh of Canada's total wetland base – have been drained or lost to other functions. Millions more hectares have been seriously degraded or are at imminent risk.

The loss of wetlands has been felt in every region of the country:

Threats to wetlands

The greatest single threat to wetlands historically has been drainage for agricultural purposes, accounting for 85% of total known conversions. Urban growth and industrial expansion account for an additional 9%. Other factors also contribute to wetland degradation including recreational development, hydro development, lake-level management, and drainage for forestry and peat harvesting. These figures refer to outright losses or conversions of wetlands. They do not tell the whole story, since pollution, competing and incompatible uses, and other intrusions also affect the quality and character of wetlands – their ecological vitality, geographic contiguity and the surviving individual plant or animal species whose habitats or nesting grounds are in wetlands. The impacts of such major long-term forces as global climatic change, groundwater pollution and acid rain are unknown, but of great concern.

Since the settlement era in each region of the nation, wetland use and conversion have contributed significantly to socio-economic development and to the ecological vitality of Canada. However, continuing wetland degradation and loss have now reached critical levels in many areas. In order to ensure that remaining wetlands are conserved and utilized in a sustainable manner, these trends cannot be allowed to continue.

The federal response

Although wetland conservation is a shared federal, provincial, and territorial responsibility, the Federal Government has a particular role to play. Wetlands are critical to federal responsibilities for maintaining the quality of the environment, migratory bird populations, inland and ocean fisheries, and international or transboundary resources such as water and wildlife. The Federal Government is also responsible for managing the impacts of over 900 of its policies and programs in Canada. Many of these directly or indirectly affect wetlands. For example, the Federal Government is a major landowner in its own right, and has direct management responsibility for major tracts of wetlands across the country. Over 29% of all of Canada's wetlands are estimated to be located on federal lands or waters, largely in our northern territories. These include national parks, community pastures, ports and harbour lands, wildlife areas, and a wide range of other crown land holdings. An estimated 8% of our National Parks are covered by wetlands, and 60% of the combined area of National Wildlife Areas and Migratory Bird Sanctuaries are wetlands. The Federal Government also develops and administers a range of broader social, economic and environmental policies and programs – both domestic and international – that can have an important impact on wetland conservation and use. It has a series of international treaty obligations for wetlands as well.

The Federal Government views its role in wetland conservation as a partner with other governments and the private sector, reflecting the national interest. It intends to be a leader by example and is committed to assisting national efforts in wetland conservation through the provision of models, tools and expertise and improving knowledge on the wetland resource of Canada. It will act as a catalyst, stimulating and enabling Canadians to participate in a collective effort.

The recommendations of the (Brundtland) World Commission on Environment and Development, the Canadian Council of Resource and Environment Ministers' (CCREM) National Task Force on Environment and Economy, the Federal-Provincial Agriculture Committee on Environmental Sustainability, the Sustaining Wetlands Forum, and public consultations on the Green Plan all have emphasized the need for wetland policy and the incorporation of environmental objectives into the mainstream of economic decision-making. The Federal Policy on Wetland Conservation accordingly builds wetland conservation into the daily business of the Federal Government. Working primarily through existing programs and regulatory and decision mechanisms, the Policy is designed to advance wetland conservation within the context of efficient delivery of federal services.

To carry out its responsibilities with respect to the nation's wetlands, the Federal Government has outlined a broad objective, supported by a number of specific goals. Guiding principles are presented to govern how this federal policy will be applied. Seven strategies specify the ways and means by which the Federal Government will proceed.

The Federal Policy on Wetland Conservation complements the goals and objectives of the North American Waterfowl Management Plan, the Federal Water Policy, the Fisheries and Oceans Canada Policy for the Management of Fish Habitat, the Great Lakes Water Quality Agreement, the International Ramsar Convention, the Wildlife Habitat Canada "Common Ground" Initiative, and the Wildlife Policy for Canada adopted by the Wildlife Ministers Council of Canada.

The federal policy on wetland conservation

Objective

The objective of the Federal Government with respect to wetland conservation is to: promote the conservation of Canada's wetlands to sustain their ecological and socio-economic functions, now and in the future.

Goals

In support of the above objective, the Federal Government, in cooperation with the provinces and territories and the Canadian public, will strive to achieve the following goals:

Guiding principles

In pursuing the above objectives, the Federal Government will respect the following principles. All are critical to this Policy and are not presented in any particular order of importance:

Strategies

The Federal Policy on Wetland Conservation outlines seven strategies to provide for the use and management of wetlands so that they can continue to provide a broad range of functions on a sustainable basis. These strategies are aimed at working in concert with other ongoing initiatives for wetland conservation. They are aimed at providing practical direction, support, and tools to program managers. They set out direction to put the federal house in order, to manage federal wetlands, and to ensure effective wetland science and public awareness actions both nationally and internationally. All seven strategies are deemed to be critical to the success of the Policy.

1. Developing public awareness

The Federal Government will promote public awareness and understanding of the wetland resource in Canada and actively encourage participation of the Canadian public, including landowners, non-government organizations, aboriginal governments and institutions, and the private sector, in wetland conservation.

2. Managing wetlands on federal lands and waters and in other federal programs

The Federal Government will develop exemplary practices in support of wetland conservation and sustainable wetland use to be incorporated in the design and implementation of federal programs and in the management of federal lands and waters.

3. Promoting wetland conservation in federal protected areas

The Federal Government will continue to manage the use of National Parks, National Wildlife Areas, Migratory Bird Sanctuaries, National Capital Commission lands and other federal areas established for ecosystem conservation purposes so as to sustain their wetland functions and natural processes.

4. Enhancing cooperation

The Federal Government will continue to be a partner in cooperative activities and agreements with the provinces and territories and non-government agencies to advance wetland conservation.

5. Conserving wetlands of significance to Canadians

The Federal Government will participate in and promote the establishment of a systematic and coordinated national network of secured wetlands to be achieved in cooperation with provincial and territorial governments and other stakeholders. Such an approach will lead to a comprehensive network of secured sites or complexes of exemplary and strategically important wetlands of significance to Canadians, together representing the full range of wetland functions and types.

6. Ensuring a sound scientific basis for policy

The Federal Government will support and promote the development of expertise for a sound technical and scientific basis for wetland conservation, ensuring that the information necessary for making decisions regarding wetlands is accessible to planners, managers, regulators, and other decision-makers at all levels.

7. Promoting international actions

The Federal Government will promote conservation and sustainable use of wetlands internationally, and encourage the involvement of other nations and international organizations in wetland conservation efforts.

Glossary of terms in the policy

The following terms are used in the Policy. A general definition of each is presented here as a guide to readers of this document.

"Wetland"

A wetland is land that is saturated with water long enough to promote wetland or aquatic processes as indicated by poorly drained soils, hydrophytic vegetation and various kinds of biological activity which are adapted to a wet environment. Wetlands include bogs, fens, marshes, swamps and shallow waters (usually 2 m deep or less) as defined in The Canadian Wetland Classification System published by the National Wetlands Working Group of the Canada Committee on Ecological Land Classification (1987).

"Wetland functions"

Wetland functions include the natural processes and derivation of benefits and values associated with wetland ecosystems, including economic production (for example peat, agricultural crops, wild rice, peatland forest products), fish and wildlife habitat, organic carbon storage, water supply and purification (groundwater recharge, flood control, maintenance of flow regimes, shoreline erosion buffering), and soil and water conservation, as well as tourism, heritage, recreational, educational, scientific, and aesthetic opportunities.

"Wetland regions of Canada"

As spatially defined by the National Wetlands Working Group of the Canada Committee on Ecological Land Classification, wetland regions are areas within which characteristic wetlands develop in locations that have similar topography, hydrology and nutrient regimes. Twenty wetland regions in Canada have been identified in the book Wetlands of Canada (1988).

"Canadian wetland classification system"

A national framework presenting standardized criteria and definitions, The Canadian Wetland Classification System contains three hierarchical levels: (1) class, (2) form, and (3) type. Five wetland classes are recognized on the basis of the overall genesis of the wetland ecosystem (that is bog, fen, marsh, swamp, and shallow water). Seventy wetland forms are differentiated on the basis of surface morphology and pattern, landscape setting, water type, and morphology of underlying mineral (for example string bog, shore marsh, stream swamp). Wetland types are classified according to vegetation physiognomy (for example treed, moss covered, floating).

"Wetlands of significance to Canadians"

Wetlands of significance to Canadians are:

  1. "exemplary" or "characteristic" of the wetlands dominant or rare within each of Canada's 20 wetland regions and the full range of wetland forms and types
  2. "strategic" or "essential" to meeting a goal or objective specific to a wetland function (for example a marsh essential to the maintenance of a migratory bird population)

Wetlands are considered strategically significant for a variety of factors including:

"Sustainable use of wetlands"

The sustainable use of wetlands requires management planned within the carrying capacity of the wetland ecosystem, or that of the regional or national resource, so as to ensure that the ecological and socio-economic functions of the wetlands are maintained for the long term in a sustainable manner.

"Secured wetlands"

Secured wetlands are sites or complexes which are committed to conservation objectives by application of the full range of tenure and protection mechanisms (such as acquisition, legal protection, lease arrangement, or management agreement) that ensure that the wetland and/or its associated functions are sustained.

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