2023–2024 Annual Report on the Status and Implementation of the Canada-Ontario Agreement for the Conservation of Caribou, Boreal Population in Ontario
Learn about the progress made in 2023–2024 under the 5-year conservation agreement with the Government of Canada for the conservation of Boreal Caribou in Ontario.
Introduction
The 2023–2024 Annual Report on the Agreement for the Conservation of Caribou, Boreal Population in Ontario is a joint report by the Government of Canada and the Government of Ontario. It outlines what has been achieved from April 2023 to April 2024 with respect to implementing the Canada-Ontario Agreement for the Conservation of Caribou, Boreal Population in Ontario (the “conservation agreement”).
The 5-year conservation agreement with the Government of Canada provides an overall framework for establishing collaborative commitments to protect and recover Boreal Caribou.
The goals, purpose and guiding principles of the conservation agreement can be found in detail in the agreement.
In summary, the goal and purpose of the conservation agreement are to:
- sustain or improve the environmental conditions necessary for recovery of Boreal Caribou at the range-scale, informed by the best available science, with support from Canada and working collaboratively with Indigenous and non-Indigenous partners
- support implementation of conservation measures, building on the base of existing management under Boreal Caribou conservation frameworks, that create the environmental conditions necessary to maintain and recover self-sustaining local populations of Boreal Caribou in Ontario
To support the goal and purpose of the conservation agreement, Ontario and Canada continue to implement the Boreal Caribou conservation frameworks, which are detailed in the Agreement.
Ontario and Canada continue to work together to incorporate a collaborative approach that continues to consider the knowledge, expertise and capacity of governments, industry, academia and other stakeholders and from Indigenous communities and organizations. Both parties recognize that achieving Boreal Caribou protection and recovery must consider biological and economic factors.
Key highlights from 2023–2024
Key accomplishments include:
- Continued implementation of the Boreal Caribou Monitoring Program, which generated new information on the population of Boreal Caribou in the Berens and Sydney Ranges, adding to surveys completed in the Brightsand, Churchill, Kesagami and Kinloch Ranges in 2023.
- Supporting 16 new caribou conservation projects by Indigenous communities and by conservation groups, academia and other stakeholders through the Caribou Conservation Stewardship Program, totaling an additional investment in stewardship of just over $6 million. A total of 19 multi-year projects have been funded since the Agreement was signed, totaling nearly $8 million investment.
- Establishing a group of experts to review the provincial and federal Boreal Caribou Conservation Frameworks and provide advice on how to refine evidence-based approaches to caribou conservation. The advice was provided in February 2024, and Ontario took action based on this advice, including through the implementation of the Boreal Caribou Monitoring Program and drafting of the Boreal Caribou Knowledge Plan.
This report summarizes our collective progress and achievements, including actions taken and next steps, made from April 2023 to April 2024 on all relevant conservation measures in the conservation agreement.
Summary of 2023–2024 progress
Engagement and collaboration
Insight from stakeholders, Indigenous communities and Indigenous organizations is essential to successfully implementing the conservation agreement. A commitment to information sharing, consultation, engagement and collaboration with these parties is integral to the conservation agreement.
In 2023–2024, Ontario engaged Indigenous communities and organizations, and stakeholders in the following ways:
- A stakeholder working group was established in April 2023 to assist Ontario in understanding the biological, social, cultural, and economic factors involved in the implementation of the conservation agreement. The working group met regularly throughout 2023–2024 and consists of representatives from conservation groups, the mining and forestry sectors, and municipalities.
- In June 2023, virtual engagement sessions were held to seek input on options for the development of the Boreal Caribou Monitoring Program with participation from 18 individuals from Indigenous communities and organizations, and 68 individuals from stakeholder organizations.
- In August 2023, the Lake Superior Roundtable was established to provide a forum for collaboration and input on the development of a management plan for the Lake Superior Coast Range and Discontinuous Distribution. It includes participation from Indigenous communities, industry, municipalities and non-governmental organizations (NGOs). The Roundtable met twice in 2023–2024 and discussed a draft management approach in March 2024.
- In fall 2023, a series of virtual and in-person workshops were held to support the development of the Boreal Caribou Knowledge Plan. These workshops included follow-up surveys and the distribution of a detailed facilitator’s report following the workshops to all invitees which included Indigenous communities and organizations with rights and interests across the continuous and discontinuous caribou ranges. Participants in this process included approximately 50 individuals representing stakeholders, 40 individuals from First Nation communities and organizations, and 7 individuals from Métis communities and organizations.
- In February 2024, 35 Indigenous communities located within or near the Berens, Nipigon and Sydney Ranges were contacted as part of the initiative to undertake surveys of Boreal Caribou in those three ranges. In advance of the surveys, each community was presented with the opportunity to learn more about the surveys, provide feedback to inform the surveys and participate in the aerial surveys.
- In 2023–2024, communication and engagement about the projects underway to assess the effectiveness of the Forest Management Guide for Boreal Landscapes (Boreal Landscape Guide or BLG) direction in supporting self-sustaining Caribou populations took place with Indigenous communities and organizations, stakeholders, and forest practitioners, as part of ongoing forest management planning and forest policy development. In early 2024, virtual information sessions and in-person and virtual workshops were held to seek input on the review of the BLG.
- Ontario is continuing to engage with Indigenous communities and organizations on Boreal Caribou conservation. Funding is available to Indigenous communities and organizations to support engagement in the implementation of the conservation agreement, including capacity to provide feedback and otherwise contribute to implementation. Discussions were initiated with several Indigenous communities in 2023–2024 to facilitate access to capacity funding.
Ontario welcomes opportunities to engage with Indigenous communities and organizations, and stakeholders to help implement the conservation agreement. Requests to meet for discussion, other inquiries and comments can be sent to: borealcaribouconservation@ontario.ca.
Governance
Ontario and Canada have successfully established and maintained governance forums for implementation of the conservation agreement, consisting of:
- maintaining the Caribou Conservation Section in the Species at Risk Branch of the Ministry of the Environment, Conservation and Parks (MECP), solely dedicated to coordinating conservation agreement implementation work across Ontario ministries, including MECP, Ministry of Natural Resources (MNR), Ministry of Mines (MINES), and Ministry of Indigenous Affairs and First Nations Economic Reconciliation (IAFNER)
- regular Ontario-Canada Assistant Deputy Minister meetings
- monthly Ontario-Canada Director meetings
Monitoring and science
1.1 Boreal Caribou Monitoring Program
- The Boreal Caribou Monitoring Program was designed following consultations with stakeholders and Indigenous communities. It will be updated over time to address caribou conservation needs.
- Aerial surveys for distance sampling and demographic classifications to produce population size estimates were completed for the Berens and Sydney Ranges in February and March 2024. Aerial surveys were planned for Nipigon Range; however, the snow and temperature conditions were not suitable and the surveys were not completed.
- A report on the results for the surveys completed in 2023 in the Brightsand, Churchill, Kinloch and Kesagami Ranges was published providing updated information on population distribution, recruitment, demographic structure, and group size for caribou observed in these ranges.
- Under the Caribou Conservation Stewardship Program, a fecal DNA mark-recapture study in the Churchill Range was supported.
- Surveys will continue to be conducted for the upcoming years of the Agreement and the findings will continue to be publicly shared.
1.2 Boreal Caribou range boundary review and updating
- Foundational information to support range boundary review was compiled and discussed, including range delineation practices of Ontario and other jurisdictions and their applicability in Ontario, data sources that could be used in the range delineation process, and considerations in range delineation including climate change.
- Data gaps were assessed.
- Development of the methodology for range boundary review was advanced and consultation on the methodology is planned.
1.3 Habitat restoration assessment initiative
- Continued progress was made on the design of the assessment protocol, which will primarily focus on evaluating results of past forest management practices in forest stands where the regeneration objective was to establish desirable conditions for Boreal Caribou. It is possible some of these results may be applicable beyond the forest sector.
- A procurement of consultant services was completed to help inform technical aspects of the design, and the consultant’s final report was received in March 2024. The consultant’s final report will be one source of information for the final design.
- Initial engagement with Indigenous communities and organizations and stakeholders on the design of the assessment protocol is planned for May 2024.
- Input from Indigenous and stakeholder engagement will be considered alongside results from the evaluation of potential information sources and recommendations in the consultant’s final report to develop the final assessment protocol anticipated to be completed in 2024–2025.
1.4 Boreal Caribou Knowledge Plan
- Based on feedback, the title of the plan was changed from Boreal Caribou Science Plan to Boreal Caribou Knowledge Plan.
- A comprehensive knowledge review on the state of Boreal Caribou knowledge in Ontario was completed. The review included scientific literature and Indigenous perspectives.
- A series of virtual and in-person workshops with follow up surveys occurred with Indigenous communities and organizations (First Nations and Métis), stakeholders (industry and non-governmental organizations), and the Provincial and Federal governments to identify knowledge gaps and establish priorities for knowledge-gathering activities. The workshops were facilitated by an independent contractor, who also produced detailed facilitator’s reports that were distributed to all invitees.
- The Boreal Caribou Knowledge Plan was drafted using information and perspectives gathered during these events. Implementation is underway, including:
- monitoring to improve understanding of population status, population trend and habitat state by range, including through aerial surveys, collaring, and fecal DNA analysis
- evaluating the relationship between vital rates and disturbance including evaluation of total, anthropogenic and natural disturbance and linear features
- range boundary review: Telemetry-based analysis of spatial population structure
- The Boreal Caribou Knowledge Plan will be finalized and widely shared in 2025.
1.5 Data sharing
- Ontario and Canada continued to share data about Boreal Caribou.
- Ontario and Canada continued discussions of the intent and parameters of a data sharing agreement to further enable the sharing of existing and new data on Boreal Caribou, including that generated by the conservation agreement.
- Work to review existing data sharing agreements and identify needs continued.
- A data-sharing agreement between Ontario and Canada is to be finalized in 2024.
Habitat protection and restoration
2.1 Habitat restoration initiative
- Continued progress was made on developing a prioritized list of public land locations in Ontario for Boreal Caribou habitat restoration. The focus was on compiling foundational information, including:
- potential strategies for habitat restoration
- jurisdictional scan of approaches and techniques used elsewhere
- literature review of relevant existing and new science
- Criteria for prioritizing locations were discussed, as was the methodology for identifying priority areas. Consultation on the methodology and finalization of the prioritized list of public land locations in Ontario is planned for 2024.
2.2 Protected areas initiative
- Continued to explore opportunities to enhance and increase protection of Caribou habitat.
- A background information document for the Wabakimi Provincial Park planning process was posted on the Environmental Registry of Ontario.
- Additional opportunities for consultation with Indigenous communities, stakeholders and the general public are planned for the next stages of management planning for Wabakimi Provincial Park.
- The vegetation management plan for Woodland Caribou Provincial Park is currently under review to enhance consideration of Boreal Caribou within the park.
- Opportunities to expand protected areas under the Provincial Parks and Conservation Reserves Act in Boreal Caribou distribution, including the potential regulation of sites identified during Ontario’s Our Living Legacy Land Use Strategy, are being considered.
- Ministry partners involved in developing options for expanding Woodland Caribou Provincial Park and Missinaibi Provincial Park continue to be engaged.
Planning and management
3.1 Forest management planning
- The direction in the Forest Management Guide for Boreal Landscapes (Boreal Landscape Guide or BLG) was fully integrated into forest management plans (FMPs) that intersect with the continuous distribution of Boreal Caribou in Ontario.
- The 2024-2034 Lac Seul FMP and the 2024-2034 Whiskey Jack FMP integrated the BLG and were approved in December 2023 and March 2024, respectively. All management units that intersect the continuous caribou distribution now have approved FMPs that fully incorporate BLG direction.
- Project plans to assess the effectiveness of the Boreal Landscape Guide direction, in supporting self-sustaining Caribou populations, were developed and are now being implemented.
- Further engagement activities are planned in 2024.
3.2 Mineral exploration and development initiative
- A plan to assess the effectiveness of current Best Management Practices (BMPs) in supporting the maintenance or recovery of Self-sustaining Local Populations is being implemented.
- Site visits were completed to several locations within the Ring of Fire area where different early exploration activities occurred in order to gain an understanding of the habitat that Boreal Caribou are using, and how BMPs have been applied. This provided an opportunity to observe multiple years of early exploration activity as well as see how some areas have been regenerating.
- A comparison of the Mining Act and other guiding direction available to the mineral exploration and development sector conducting activities in Ontario was drafted to identify gaps and priorities as best management practices are updated.
- A jurisdictional review of best management practices, guiding principles and related matters available to the mineral exploration and development sector across Canada was drafted to identify updated practices.
3.3 Lake Superior Coast Range management plan
- The Lake Superior Roundtable was established to provide a forum for collaboration and input with participation from Indigenous communities, industry, municipalities and NGOs. The Roundtable met twice in 2023–2024 and discussed a draft management approach in March 2024.
- Implementation of components of the draft plan was initiated including funding of stewardship projects that include caribou monitoring, assessment of habitat quality and identifying areas for habitat restoration, monitoring predators and ice conditions on the offshore islands, filling knowledge gaps related to Boreal Caribou translocation, and increasing the capacity of First Nation communities.
Updates to Boreal Caribou conservation frameworks
4.1 Evidence-based approaches
- An expert group was established to provide advice on whether each of the federal and provincial Boreal Caribou conservation frameworks are scientifically sound and supported by evidence, whether there are any information gaps, and the likelihood that the framework would achieve self-sustaining local populations of Boreal Caribou. The expert group consisted of 16 members from academia, industry, environmental non-governmental organizations, and the federal and provincial governments.
- The expert group reviewed information from Canada and Ontario on their Boreal Caribou conservation frameworks and submitted a report in February 2024 containing observations and recommendations.
- Ontario and Canada are taking action based on the observations and recommendations of the expert group including through the implementation of the Canada-Ontario Boreal Caribou Conservation Agreement, including:
- Through the Boreal Caribou Monitoring Program launched in 2022, up to date monitoring results are being generated including assessment of habitat conditions, genetic information, habitat occupancy, population size, and survival and recruitment. This program also includes the applied statistical methods to estimate uncertainty associated with population growth rate and projected population viability and is working to ensure consistent habitat classification across Ontario.
- Through the Boreal Caribou Knowledge Plan, Ontario is encouraging data and knowledge sharing among governments, academics, proponents, and other stakeholders and rights holders to ensure that up-to-date information is available for research and decision-making. This plan also includes research into how caribou populations differentially respond to the direct (for example, lack of food) and indirect (for example, predators) impacts.
- Ontario is also taking action to report on methodologies used to categorize caribou habitat and consider alternative methods to improve predictions in the face of potential environmental changes.
4.2 Updating federal and provincial policy frameworks
- Ontario and Canada continue to monitor results across conservation measures for consideration of applicability of adoption or incorporation into Boreal Caribou conservation frameworks.
Stewardship collaborations and funding
5.1 Stewardship collaborations and funding
- An open call for applications was made under the Caribou Conservation Stewardship Program for projects that contribute to the maintenance, recovery or adaptive management of populations of Boreal Caribou, including on-the-ground habitat restoration and protection or other conservation activities such as monitoring and research. Proactive outreach with potential applicants was also conducted.
- Sixteen Transfer Payment Agreements were signed in 2023–2024. Highlights of the work underway through projects granted funding in 2023–2024 include:
- restoring habitat in the Lake Superior Coast Range
- advancing understanding of methods to restore caribou habitat including restoration of roads
- improving understanding of nutritional needs, habitat changes and habitat use
- increasing understanding of population size and genetic diversity in ranges through fecal DNA studies
- enhancing the availability of genetic information and the rigour of its collection
- building the capacity of Indigenous communities to participate in caribou conservation activities
Work continues to implement and monitor multi-year projects that are already underway. Work is continuing on the development and maintenance of a catalogue of Boreal Caribou stewardship projects to support better collaboration and avoid duplication of effort.
Unforeseen circumstances or stochastic events impacting conservation measures
Prior to the implementation of aerial surveys planned to occur in February and March 2024, 35 Indigenous communities associated with the Berens, Nipigon and Sydney ranges were contacted. Opportunities were presented to each community to meet to learn more about the surveys, provide input into how the surveys were undertaken, and to participate in the aerial surveys. Thirteen communities expressed interest in meeting. However, based on timelines to complete the surveys only three communities were able to schedule meeting times. Six communities expressed interest in having a community member participate in survey flights, however due to timelines or cancelled surveys, it did not work for any individuals to participate.
Due to inadequate snow depth and snow cover combined with forecasted warm temperatures for the Nipigon Range in March 2024, the aerial surveys planned for that range were not able to be completed. The aerial surveys require adequate snow depths and coverage to detect caribou and their tracks and cold temperatures are required to maintain snow conditions through the survey period (up to two weeks).
Moving forward, action will be taken to improve opportunity for and capacity of Indigenous communities to participate in Boreal Caribou monitoring; this is a key factor for consideration in the design of the long-term monitoring program under the conservation agreement.
Appendix A: Detailed updates on conservation agreement implementation
Note: A comprehensive table describing all conservation measures in full can be found in Appendix B of the Canada-Ontario Agreement for the Conservation of Caribou, Boreal Population in Ontario.
Conservation measure | Goal | Timelines in conservation agreement | Summary of results achieved in 2023–2024 | Status | Next steps 2024–2027 |
---|---|---|---|---|---|
1.1 Boreal Caribou Monitoring Program | Improved understanding of the current and projected future status of Boreal Caribou at a Range-scale. | Ontario will: 2023–2024
|
| On track |
|
1.2 Boreal Caribou Range Boundary Review and Updating | Ranges are defined in a manner that supports Boreal Caribou conservation. | Ontario will: 2022–2024
|
| Partially completed. Anticipated to be on track in 2024–2025. |
|
1.3 Habitat Restoration Assessment Initiative | Improved habitat through implementation of effective and efficient Habitat Restoration approaches at a Range-scale. | Ontario will: 2022–2024
|
| Partially completed. Anticipated to be on track in 2024–2025. |
|
1.4 Boreal Caribou Science Plan | Further enhance the evidence-based foundation of Boreal Caribou conservation decision-making at a provincial and Range-scale. | Ontario and Canada will: 2022–2024
|
| On track |
|
1.5 Data Sharing | Available data and information is shared between Ontario and Canada at no charge to support Boreal Caribou conservation decision-making. | Ontario and Canada will: 2022–2023
|
| Partially completed. Anticipated to be on track in 2024–2025. |
|
Conservation measure | Goal | Timelines in conservation agreement | Summary of results achieved in 2023–2024 | Status | Next steps 2024–2027 |
---|---|---|---|---|---|
2.1 Habitat Restoration Initiative | Improve Boreal Caribou habitat by decreasing fragmentation and cumulative disturbance. | Ontario will: 2022–2024
2023–2026
|
| Partially completed. Anticipated to be on track in 2024–2025. |
|
2.2 Protected Areas Initiative | Enhance protection of Boreal Caribou habitat through protected areas using a Range- scale approach. | Ontario will: 2022–2024
|
| Partially completed. Anticipated to be on track in 2024–2025. | 2024–2025
2024–2027
|
Conservation measure | Goal | Timelines in conservation agreement | Summary of results achieved in 2023–2024 | Status | Next steps 2024–2027 |
---|---|---|---|---|---|
3.1 Forest Management Planning | Forest operations conducted in Crown Forests are undertaken in accordance with an approved forest management plan under the CFSA in a manner that supports the maintenance or recovery of Self- sustaining Local Populations. | Ontario will: 2023–2027
|
| On track |
|
3.2 Mineral Exploration and Development Initiative | Mineral exploration and mining development activities are undertaken in a manner that supports the maintenance or recovery of Self- sustaining Local Populations. | Ontario will: 2023–2024
|
| Partially completed. Literature review anticipated to be finalized in 2024–2025. Work to assess effectiveness of current BMPs is ongoing. |
|
3.3 Lake Superior Coast Range Management Plan | Clarity on the management approach for Boreal Caribou in the Lake Superior Coast Range. | Ontario will: 2022–2024
|
| Partially completed. On track for 2024–2025. |
|
Conservation measure | Goal | Timelines in conservation agreement | Summary of results achieved in 2023–2024 | Status | Next steps 2024–2027 |
---|---|---|---|---|---|
4.1 Evidence-based Approaches | Refined evidence- based approaches to managing for Self-sustaining Local Populations. | Ontario and Canada will: 2022–2024
|
| On track |
|
4.2 Updating Federal and Provincial Policy Frameworks | Up-to-date and aligned policy frameworks in Ontario and Canada. | Ontario and Canada will: 2022–2027
|
| On track |
|
Conservation measure | Goal | Timelines in conservation agreement | Summary of results achieved in 2023–2024 | Status | Next steps 2024–2027 |
---|---|---|---|---|---|
5.1 Stewardship Collaborations and Funding | Support implementation of projects that contribute to maintenance or recovery of Self- sustaining Local Populations. | Ontario and Canada will: 2022–2023
2023–2027
|
| Partially completed. Stewardship Catalogue on track to be completed in 2024–2025. |
|