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How to cite this document:

Ontario Ministry of Natural Resources. 2014. Adjusting Protected Area Management Direction Guideline. Peterborough. Queens Printer for Ontario. 13 pp.

The purpose of this guideline is to provide direction to Ministry of Natural Resources staff making adjustments to management direction for provincial parks and conservation reserves. This guideline provides direction on how to determine the type of adjustment proposed and the step-by-step processes for completing these adjustments.

The guideline is one of a number of guidelines, templates and supplementary tools which have been prepared to provide technical support for implementing the Ontario Protected Areas Planning Manual.

1.0 Introduction

This guideline provides direction on how to make adjustments to approved management direction for provincial parks and conservation reserves (collectively referred to as protected areas). The Provincial Parks and Conservation Reserves Act, 2006 (PPCRA) states the requirements for amending management direction. The Ontario Protected Areas Planning Manual (Planning Manual) expands on this and provides direction on two types of adjustments: 1) administrative updates, and 2) amendments.

This guideline describes how to meet the minimum requirements for an adjustment, and also highlights the opportunities to tailor the process based on the range of planning circumstances that exist across Ontario and the level of complexity of the adjustment.

The next sections cover the following information:

  • Section 2.0: Determining the type of adjustment required and whether/how to proceed
  • Section 3.0: Process for completing an administrative update and associated approvals
  • Section 4.0: Process for completing an amendment, including an overview of involvement requirements and associated approvals

1.1 Definitions

In this guideline:

Adjustment:
A term that describes changing management direction to keep it relevant, effective and current. There are two types of adjustments, 1) administrative update or 2) amendment.
Administrative update:
A type of adjustment to management direction. An administrative update involves changes that clarify, correct and update management direction to make it relevant, effective and current. An administrative update does not involve changes to the policy intent or changes to the management of the protected area. Administrative updates do not require the provision of external involvement opportunities.
Amendment:
A type of adjustment to management direction. An amendment involves a change in policy and/or alters the intent of management of a protected area to make the management direction relevant, effective and current. Amendments require the provision of external involvement opportunities.
Change:
A specific modification made to management direction as part of either an administrative update or an amendment. (e.g. a specific change to policy, objectives, zoning).
Examination:
A thorough assessment of management direction to determine whether the management direction document is still relevant, effective and current, or if changes are required to enable the document to guide the management of the protected area for another 20 years.
Secondary plan:
A plan prepared, generally for complex topics (e.g. management of fire, wildlife, fisheries, ecosystems, etc.), where approved management direction does not provide sufficient policy direction to address those complex topic(s). Secondary plans are treated as amendments to management direction.

1.2 Purpose of an adjustment

The purpose of an adjustment is to make changes to management direction to ensure that it is relevant, effective and current. Adjustments are part of the planning cycle (Figure 1).

Figure 1: Protected areas planning cycle highlighting the examining and adjusting management direction stage

  • Pre-planning
    • Stage 1: Scoping
      • Stage 2: Information analysis
        • Stage 3: Developing management options
          • Stage 4: Developing prefered management direction
            • Stage 5: Finalizing management direction
              • Stage 6: Implementation
                • Stage 7: Monitoring and assessment
                  • Stage 8: Examining and adjusting management direction
                • Return to stage 1

1.3 Notes on using this guideline

The following provides a description on how to use this guideline:

  • Sections 3.0 and 4.0 are written in a step-by-step approach and describe how to complete an adjustment.
  • General tips are provided throughout the guideline in shaded text boxes.
  • At the end of each section, a process check-in box provides an opportunity to ensure that all steps have been undertaken.

1.4 When to apply this guideline

This guideline applies if an administrative update or amendment is being considered for any of the following approved protected area management direction documents:

  • management plan
  • management statement
  • grouped plan or statement
  • interim management statement
  • statement of conservation interest
  • resource management plan
  • park master plan
  • secondary plan (excluding the Algonquin Provincial Park Forest Management Plan, which is prepared and reviewed under a separate process)

1.5 Information management

This guideline refers to use of the Protected Areas Planning Information Repository (PAPIR) for recording various components of a planning process. PAPIR is a file storage system used to manage and share information during a planning process. PAPIR is also intended to archive planning information for future reference. Refer to the Protected Areas Planning and Information Repository User Guide for more information.

Wherever possible, planning teams are encouraged to replace paper-based information with updated digital information. For example, hand drawn maps can be replaced with new Geographic Information Systems (GIS) map products. At a minimum, information should be scanned. Digital information should be stored in PAPIR.

Tip: Any new background information on life and earth science, or cultural heritage values and/or pressures used to support an adjustment should be stored in PAPIR. Information may have already been updated if an examination has taken place.

1.6 Tools and templates

There are several tools and templates available in PAPIR to support this guideline, including the:

  • Administrative Update Form Template
  • Amendment Form Template
  • Amendment Approval Statement Template
  • Administrative Update Checklist
  • Amendment Checklist

Use of the templates is required where they are noted in this guideline. The checklists can be used to help track progress while working through an administrative update or amendment process. Use of the checklists is discretionary.

1.7 Adjustment complexity

Adjustments can vary in their level of complexity depending on the planning project. Administrative updates are the least complex type of adjustment. Amendments may range from non-complex to moderately complex to very complex, depending on the changes proposed. In general, the complexity of an amendment depends on:

  • the amount and type of changes that are proposed
  • contentiousness of proposal
  • potential impacts to values from proposed infrastructure
  • level of Aboriginal community, public and stakeholder interest

As adjustments become more complex the level of resources, number of involvement opportunities and the amount of information to support the adjustment typically increases.

Tip: Administrative updates will require less staff resources than complex amendments.

1.8 Responsibility for conducting adjustments

Adjustments are conducted by the Ontario Park zone or MNR district responsible for the management of the protected area. Adjustments are typically led by the zone planner or protected area manager. Input from staff with specific expertise may be needed for an administrative update and will likely be required throughout the amendment process. Individuals with additional expertise may include an ecologist or biologist, geographic information system staff, experts in a particular subject matter (e.g. species at risk, cultural resources, fire management), or other government agencies knowledgeable about the protected area. For more complex amendments, consider forming a planning team and/or seeking advice from external sources on specific subjects (e.g. Nature Conservancy of Canada, Aboriginal people and communities, Friends groups), as appropriate and feasible.

2.0 Determining adjustment type and how to proceed

A management statement or plan is developed with a 20-year time horizon in mind; however, adjustments to the management direction may be required at any time to keep it relevant, effective and current. An adjustment may be triggered by an examination outcome or due to an internal or external proposal (e.g. proposed development).

The type of change proposed (e.g. clarify policy intent, correct errors) influences the type of adjustment required to facilitate those changes.

If a change is triggered due to an internal or external proposal, proceed to Section 2.1.

If an examination outcome resulted in the need for an administrative update, proceed to Section 3.0.

If an examination outcome resulted in the need for an amendment, proceed to Sections 2.2, 2.3 and 4.0. For additional information on examinations, refer to the Examining Protected Areas Management Direction Guideline (Examination Guideline).

2.1 Determine the type of adjustment required when considering proposals

Proposals must be reviewed to determine if they are consistent with legislation, regulations and policies. Proposals that are not consistent should not proceed further through an adjustment process. Where proposals are external, the decision to not proceed must be appropriately communicated to the proponent.

Tip: Reformatting a management direction document to be consistent with an updated template is not required as part of an adjustment. However, at the discretion of the approving manager, if reformatting is part of an administrative update, be mindful of:

  • inadvertently making policy changes, such as creating new interpretations of existing policy, and
  • the risk of external parties perceiving the formatting changes as new policy that should be consulted on prior to approval.

Table 1 provides a series of questions to consider when determining what type of adjustment is required. This is not an exhaustive list and the other row in the table allows for additional considerations.

  • If all of the answers are consistent with the administrative updates column then the proposal will likely require an administrative update.
  • If any of the answers are consistent with the amendment column then the proposal will likely require an amendment.

In general, Table 1 is a tool that will assist in making a decision about what type of adjustment is required; however discretion should be applied when making a final decision. Take into account the local planning situation, available information, best judgment and knowledge of the protected area.

Consider the complexity of the proposed adjustment and whether enhancement to the amendment process may be warranted. Think about whether the proposed changes are substantial enough to warrant a replacement of the management direction (see Examination Guideline).

2.1.1 Examples of administrative updates

The following examples describe changes that are considered administrative.

  • Updating references, terminology or concepts to be consistent with the PPCRA or other relevant and current legislation or regulations.
  • Correcting errors or omissions where consultation, analysis and decision on the preferred direction can be clearly demonstrated. For example, where the management plan addresses the existence of a trail, but that trail is not reflected on protected area maps.
  • Revising maps and text to address changes to the size of the protected area to reflect a boundary regulation.
  • Referencing (in text or maps) capital infrastructure projects that have been completed.
Table 1: Changes to consider in determining type of adjustment.
Will the proposal…Type of adjustment: Administrative updateType of adjustment : Amendment
Result in a policy change?NoYes footnote 1
Change the intent of a certain component or policy in the management direction?NoYes
Clarify or correct the intent of a policy statement?Yes (minor)Yes (major)
Deal with matters that are environmentally significant? footnote 2No3 footnote 3Yes
Correct errors or omissions?Yes (minor)Yes (major)
Result in Aboriginal community, public or stakeholder interest?No footnote 4 or low potentialYes or moderate/ high potential
Require language in the management direction to enable a project evaluated under the Class Environmental Assessment Provincial Parks and Conservation Reserves (Class EA-PPCR)NoYes
Address substantial/complex topics?NoYes footnote 5
Result in revising or developing a new purpose or goal statement (or similar text)?NoYes
Result in revising or developing a new vision statement (or similar text)?NoYes
Result in reclassification of a provincial park?NoYes
Result in revising (to clarify or update) the objectives?YesYes
Result in the development of new objectives?NoYes
Result in including/changing zoning?NoYes
Other  

2.1.2 Examples of amendments

The following examples describe changes that are considered amendments.

  • Enabling certain projects and activities. For example, the enhancement, rehabilitation, restoration or management of habitat; or the construction of a new campground.
  • Changing protected area zoning, as the current zoning does not adequately address values.
  • Preparing a secondary plan. The preparation of a secondary plan is considered an amendment to the parent management direction and should follow the same process as an amendment.
Tip: For additional information on secondary plans refer to the Ontario Protected Areas Planning Manual

2.2 Determine whether to proceed with an adjustment

Determining when to proceed with an adjustment is at the discretion of the zone or district responsible for undertaking the adjustment process. If an administrative update or amendment is an outcome of an examination, refer to the Examination Guideline for suggested timelines on processing adjustments.

Consider the following when determining whether to proceed with or defer an adjustment, triggered by a proposal:

  • Availability of resources (e.g. finances, staffing, information and workload priorities).
  • Urgency of the change – Is there a need to manage a resource in the protected area now (e.g. to address ecological integrity)?
  • External drivers - Are there any external proposals being considered?
  • The extent to which similar issues may have been considered and deferred, either in the initial development of the management direction or through a recent request.
  • If a replacement is planned for the near future, any administrative updates or amendments may be deferred and included in the replacement, depending on the urgency of the adjustment.n
  • If an examination is scheduled in the near-term, it may be appropriate to delay an administrative update or amendment to incorporate additional changes if they are identified through the examination process.

2.3 Consider aligning adjustment with other planning processes

When updating or amending management direction, consider whether the requirements of the administrative update or amendment process and other applicable planning processes (e.g. Class EA-PPCR, Crown Land Use Policy Atlas (CLUPA), boundary regulations) can be met through their respective processes at the same time. Through alignment, involvement opportunities occur at the same time, but each process is undertaken separately and documentation is completed as required by each process.

The alignment of processes can have many benefits including streamlining Aboriginal community and public and stakeholder involvement, lowering project costs and expediting the planning process.

Tip: The involvement opportunities associated with the development of a secondary plan do not satisfy the consultation requirements for Class EA-PPCR projects. When developing or amending a secondary plan, consider aligning involvement opportunities for projects outlined in the secondary plan that are subject to the Class EA-PPCR.

An administrative update that corrects or clarifies policy in a management direction document may trigger an administrative amendment to area-specific Crown land use policy. Where applicable, review the protected area policy report in CLUPA to determine if changes are necessary.

An amendment that changes the policy content of a management direction document may trigger an amendment to Crown land use policy6. 6. For further information on land use amendments, refer to the Guide for Crown Land Use Planning and the Procedures for the Amendment of Area-specific Land Use Policy. For more information on the regulation process, contact the appropriate staff in the Parks and Protected Areas Policy Section.

The planning team will have to contemplate the potential advantages of aligning processes against potential disadvantages (e.g. increases project complexity, difficulty in maintaining alignment of processes).

Process check-in:

At this point, the following should have been determined:

  • the type of adjustment required (administrative update or amendment),
  • whether to proceed with or defer the adjustment, and
  • where there are opportunities to align the adjustment with other planning processes.

3.0 Administrative update process

For an administrative update, complete the following steps:

  • prepare proposed administrative update
  • approve administrative update

The Administrative Update Checklist can be used to track the progress of an administrative update.

Tip: A terms of reference is not required when processing an administrative update.

3.1 Prepare proposed administrative update

3.1.1 Obtain source management direction document

Obtain the Microsoft Word version of the management direction document to be updated from PAPIR. PAPIR contains a Microsoft Word version of each management direction for every protected area in the province. Contact Parks and Protected Areas Policy Section (PPAPS) if a current word version of the management direction is not in PAPIR.

Prepare the document for incorporating administrative updates by ensuring it meets all formatting and Ontario Public Service accessibility standards.

3.1.2 Develop a tracked changes version of the updated management direction

Using a Microsoft Word version of the document, track the proposed administrative update changes using the track changes function in Microsoft Word. At this time, update any administrative changes to mapping.

3.1.3 Complete the Administrative Update Form

Complete the Administrative Update Form Template to document the summary of proposed changes. This form serves several purposes:

  • documents the purpose for the administrative update and a rationale of why it is considered administrative
  • provides a summary description of the content of the update
  • becomes an internal record of changes to the management direction
  • documents the approval of the administrative update
Tip: If administrative updates are identified as the result of an examination, consider reviewing the examination report and examination confirmation statement to help develop the rationale and description of proposed changes.

3.2 Approve administrative update

Seek approval on the administrative update by obtaining appropriate signatures on the administrative update form. The form travels with the tracked changes version of the updated management direction. Contact appropriate staff in the Parks and Protected Areas Policy Section (PPAPS) for up to date procedures on approvals.

3.2.1 Store administrative update

Following approval, accept the tracked changes to create an approved (i.e. clean) version of the updated management direction. Update the history table to indicate the type of adjustment made to the management direction and the date the changes were approved.

Where a management direction does not include a history table, add the Examination and Adjustment History table to the document, consistent with the placement of the table in the Management Direction Template. See the Management Direction Template for a copy of the Examination and Adjustment History table. The history table serves as an archive of adjustments to and examinations of the management direction.

Tip: A best practice when processing administrative and amendment changes at the same time is to approve the administrative update prior to tracking the amendment and add/update the history table accordingly.

Store the approved administrative update form, tracked changes version and approved version of the updated management direction appropriately in PAPIR. Notify PPAPS that the document has been updated and needs to be posted on the internet and intranet. Notify others of updates as required (e.g. partners).

Process check-in:

At this point, the following should have been completed:

  • developed a tracked changes version of the updated management direction,
  • completed the Administrative Update Form Template,
  • sought approval of the administrative update,
  • created an approved version of the updated management direction, and
  • stored updated management direction and administrative update form appropriately in PAPIR.

4.0 Amendment process

For an amendment, complete the following steps:

  • scope amendment
    • assemble and assess information
    • evaluate proposed changes
    • undertake early involvement (if applicable)
  • develop involvement strategy
  • prepare proposed amendment
    • provide involvement opportunity
  • finalize and approve amendment

Figure 2 illustrates the process for completing an amendment. The Amendment Form Checklist can be used to track progress of the amendment.

Tip: Consideration of MNR’s Statement of Environmental Values (SEV) must be documented for all amendments. Development of the SEV should start at the beginning of the amendment process. The final SEV should accompany the final amendment package for approval.

A minimum of one opportunity for involvement must be provided at the proposed amendment step. Depending on the complexity of the amendment, the process may be enhanced and additional opportunities for involvement may be provided. The steps within this section will provide guidance on completing the process for an amendment.

Figure 2: Amendment process

  • Early and ongoing Aboriginal involvement
    • Scope Amendment
    • Develope involvement strategy
    • Prepare proposed amendment
      • Provide involvment opportunity
        • 45 Days Minimum involvement opportunity (including Environmental Registry posting)
    • Finalize and approve amendment

4.1 Scoping

Scoping the amendment involves determining what topics are part of the amendment, defining what the amendment will and will not deliver (i.e. what is in scope or out of scope), determining complexity, assembling and assessing information to support the amendment and evaluating the proposed changes. If the amendment is the result of an examination, scoping, information gathering and evaluation of changes would have been completed as part of the examination process. In this case use the information in the examination report to complete Section 1 in the Amendment Form Template and proceed to step 4.1.4. For all other proposals proceed to step 4.1.1.

Tip: Consider developing a project plan to document information that supports the amendment and the involvement strategy. In some circumstances (i.e. very complex amendment) a terms of reference may be warranted. This information is then stored in PAPIR.

4.1.1 Define the amendment

To determine the scope of the proposed changes, consider the number of proposed changes and the topic of those changes. Consider changes in the context of the management of the entire protected area and the maintenance and/or restoration of ecological integrity.

If an amendment is related to a proposal, then the amendment would be scoped to the specific proposal and ancillary changes; however, if the amendment involves comprehensive policy changes (i.e. not related to a specific proposal), then the scope of the amendment will likely be broader. If most of the management direction document requires changes, then consider the need for a replacement.

Defining the scope also helps to determine the complexity of the amendment. Typically, the broader the scope the more complex the amendment becomes. Document the scope and complexity of the amendment in the Amendment Form Template.

4.1.2 Assemble and assess information

This step involves assembling the best information available and assessing the quality and relevance of that information. The depth and rigour of information needed will be closely linked to the complexity of the amendment. It is important to recognize that information should be scoped to that which will support the proposed amendment. As amendments become more complex the information used to support decisions will need to be more detailed and comprehensive. Refer to Steps 2.1.1 and 2.1.2 of the Guideline to Management Planning for Protected Areas in the Context of Ecological Integrity (Planning Guideline) for more direction on gathering and assessing information.

4.1.3 Evaluate proposed changes

After gathering background information related to the proposed amendment the next step is to evaluate the proposed changes to determine their feasibility and effectiveness. Consider the following:

  • Applicability:
    • Are the changes consistent with legislation, policy and the overall vision, purpose and objectives of the protected area?
    • To what extent have similar changes been considered, either in the initial development of the management direction or through a recent request?
  • Feasibility:
    • Are the changes feasible given available resources?
  • Environmental considerations:
    • Do the changes have any potential net negative environmental effects?
  • Social and economic considerations:
    • Who will the changes affect?
    • What is the anticipated degree of Aboriginal, public or stakeholder interest or support?

Refer to the Planning Guideline for more information on evaluating changes. If proposals are not considered applicable, feasible, or environmentally, socially and economically sound, then it is likely not appropriate to move forward with the amendment. In this case, document the rationale for not continuing to process the amendment in the Amendment Form Template and store this information in PAPIR.

4.1.4 Consider the need for early involvement

Where a proposed amendment may affect the interests of an Aboriginal community, involvement, prior to formal involvement, is required. For amendments that may affect the public or stakeholders, involvement early in the amendment process may be appropriate.

Providing early involvement opportunities as part of the amendment process can help to gather information to support an amendment and improve issue identification and resolution. Refer to the Guideline to Involvement during Protected Area Management Planning (Involvement Guideline) for further information.

4.2 Develop an involvement strategy

An involvement strategy documents the formal approach to include Aboriginal communities and the public and stakeholders in the amendment process. The involvement strategy outlines:

  • intended audiences and timelines (schedule of involvement)
  • the approaches and tools to reach Aboriginal communities and the public and stakeholders
  • documentation and communication requirements

A minimum of one opportunity for involvement must be provided for an amendment; however, additional involvement opportunities may be warranted for moderately complex or very complex amendment processes (i.e. if there are management options for the public to consider). Therefore, a standard involvement strategy is likely sufficient for a non-complex amendment; whereas a more enhanced involvement strategy may be required for moderately complex or complex amendments. See the Involvement Guideline and involvement strategy templates for direction on developing and documenting the strategy.

4.3 Prepare proposed amendment

4.3.1 Obtain source management direction document

Obtain the Microsoft Word version of the management direction document to be amended from PAPIR. PAPIR contains a Microsoft Word version of each management direction for every protected area in the province. Contact PPAPS if a current word version of the management direction is not in PAPIR.

Where it has not already been completed for the purposes of an administrative update, prepare the document for amending by ensuring the document meets all formatting and Ontario Public Service accessibility standards.

4.3.2 Develop a tracked changes version of the amended management direction

Using a Microsoft Word version of the document, track the proposed amendment changes using the track changes function in Microsoft Word. The proposed amendment presents MNR’s preferred direction.

4.3.3 Mapping

Where appropriate, develop maps as part of the proposed amendment. Recommended map templates and design standards are available on the PPAPS intranet site.

4.3.4 Complete the Amendment Form Template

Complete the Amendment Form Template to document a summary of the proposed changes. This form serves several purposes:

  • documents the rationale for why an amendment is required
  • provides a summary description of the content of the amendment
  • becomes an internal record of the amendment
  • documents the approval of the amendment
Tip: If an amendment is the outcome of an examination, consider reviewing the Examination Report and Examination Confirmation Statement to help develop the rationale and the description of proposed changes.

4.3.5 Seek approval to proceed

Seek approval for the proposed amendment and approval to proceed with involvement by obtaining appropriate signatures on the amendment form. The amendment form travels with the tracked changes version of the amended management direction for approvals. Contact PPAPS for up to date procedures on approvals.

4.3.6 Provide involvement opportunity

Provide the tracked changes version of the management direction, showing proposed amendments and in a pdf format, for comment. Do not provide the completed amendment form for comment. The Environmental Registry (ER) notice and direct notification (if used) should provide a summary of proposed changes included in the amendment (as described in the amendment form) and should describe what is within scope for the public to comment on. The proposed amendment presents MNR’s preferred direction.

Tip: Save the tracked changes document as a pdf format directly from Microsoft Word to ensure accessibility formatting is transferred.

4.4 Finalize and approve amendment

Consolidate comments received as a result of involvement and consider them to determine if MNR should modify the proposed amendment. Make any necessary modifications to finalize the amended management direction. Modify the amendment form to reflect any changes to the proposed amendment as a result of input received during involvement and summarize input received in the form. If comments did not result in changes, document this in the amendment form.

4.4.1 Seek approval of final amendment

Seek approval of the final amendment by obtaining appropriate signatures on the completed amendment form and the Amendment Approval Statement. The amendment form travels with the tracked changes version of the amended management direction for final approvals. Contact PPAPS for up to date procedures on approvals and which materials should be included in the approval package.

4.4.2 Store amendment

Following approval, accept the tracked changes to create an approved (i.e. clean) version of the amended management direction. Update the history table to indicate the type of change made to the management direction and the date the changes were approved. Where a management direction does not include a history table, add the Examination and Adjustment History table to the management direction document consistent with the placement of the table in the Management Direction Template. See the Management Direction Template for a copy of the Examination and Adjustment History table. The history table serves as an archive of adjustments and examinations of the management direction. Include the Amendment Approval Statement in the approved version of the amended management direction, after the original approval statement page.

Store the approved amendment form, tracked changes version and the approved version of the amended management direction in the appropriate folder in PAPIR. Notify PPAPS that the document has been updated and needs to be posted on the internet and intranet. Notify others of amendment as required (e.g. partners).

Process check-in:

At this point, the following should have been completed:

  • scoped amendment,
  • assembled and assessed information to support the amendment,
  • evaluated the proposed changes,
  • developed an involvement strategy, where appropriate,
  • prepared the proposed amendment,
  • provided an involvement opportunity,
  • reviewed comments and finalized amendments, and
  • sought approval of the amendment and stored approved amendment appropriately in PAPIR.