Examining Protected Area Management Direction Guideline

Cette publication hautement spécialisée, Ontario Protected Areas Planning Manual 2014 Edition n’est disponible qu’en anglais en vertu du Règlement 671/92 qui en exempte l’application de la Loi sur les services en français. Pour obtenir de l’aide en français, veuillez communiquer avec le ministère des Richesses naturelles au Tel: 1-800-667-1940.

The purpose of this guideline is to provide direction to Ministry of Natural Resources staff conducting examinations of existing management direction for provincial parks and conservation reserves. This guideline addresses when and how to undertake an examination, and also provides direction on implementing the outcome of an examination.

This 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 for conducting an examination of existing management direction for provincial parks and conservation reserves (collectively referred to as protected areas), as described in the Ontario Protected Areas Planning Manual (Planning Manual) and as required by the Provincial Parks and Conservation Reserves Act, 2006 (PPCRA). The PPCRA directs that the Ministry of Natural Resources (MNR) shall examine all management directions that have been in place for 20 years or more.

The next sections cover the following information:

• Section 2.0: Overview of timing of examinations (examination cycle) and what to do in the case of obvious replacements.
• Section 3.0: Describes how to prepare for an examination, step-by-step process to conduct an examination and guidance in choosing and documenting an appropriate outcome.
• Section 4.0: Provides recommended timelines associated with implementing the outcome and annual reporting.

1.1 Definitions

In this guideline:

Action:

Any management activity identified in the management direction. These include activities (other actions) related to operations and development, resource use, stewardship and monitoring (e.g. the management direction identifies the need to develop a new campground, create a new access point, and stabilize the shoreline). An action can be developed internally within MNR or can be proposed by an external party.

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.

Change:

The 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.

Examination confirmation statement:

The document, based on the Examination Confirmation Statement Template, used to summarize the results of the examination and provide the rationale for the examination outcome.

Examination report:

Refers to a series of tables, based on the Examination Report Template, in which protected area values, pressures, actions, permitted uses and required changes are recorded and assessed. This report serves as a baseline for future examinations.

Response:

Recognition of where a change is required to ensure the management direction is relevant, effective and current.

Additional terms related to MNR’s approach to addressing ecological integrity are described in Appendix I. For other terminology in this guideline, refer to the glossary found in the Planning Manual.

1.2 Purpose of an examination

The purpose of an examination is to determine whether a management direction that is 20 years or older is adequate, subject to any necessary changes, for the management of a protected area until the next examination is completed. Examinations are part of the planning cycle (Figure 1).

The examination should help to address the following questions:

• Is the existing management direction document relevant, effective and current and does it reflect the reality on the ground (e.g. changes in infrastructure, significant events that affect ecological and/or cultural heritage values)?
• What changes are required to the document to enable the management of the protected area until the next scheduled examination (e.g. amendment required to enable a new recurring project to stabilize the shoreline of a stream bank)?

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

1.2.1 Objectives of an examination

In order to meet the purpose of an examination, the objective to ensure the management direction is relevant, effective and current, should be considered.

1. Relevant: The management direction is consistent with the overall intent of the protected area, legislation, regulations and all related policies.
   • is the overall intent of the existing protected area (i.e. purpose, vision and objectives, where applicable) consistent with policy and legislation?
   • are the policies outlined in the management direction consistent with the overall intent of the protected area (i.e. purpose, vision and objectives), and the maintenance and restoration of ecological integrity?
   • does the management direction clearly articulate the maintenance of ecological integrity as the first priority in planning and management?
2. Effective: The management direction is effective in protecting values and guiding protected area management until the next scheduled examination.n Is additional direction needed to address pressures on values (i.e. a change in site specific policy)?
   • are new actions required to address new pressures and how should these actions be prioritized?
   • are there actions identified in the management direction that were not implemented? And if so, should they be carried forward or be removed from the management direction?
   • for actions that were implemented, were they effective in addressing management concerns? If not, should they be modified or replaced with new actions?
3. Current: The management direction reflects the current status of the protected area. Consider changes in:
   • development and infrastructure (i.e. the management direction should reflect current and proposed infrastructure in the protected area)
   • natural heritage education opportunities (if applicable)
   • opportunities for restoration of ecological integrity
   • new inventory information (e.g. on life science values)
   • research and monitoring
   • outdoor recreational opportunities (for provincial parks)
   • land uses
   • traditional outdoor heritage activities (for conservation reserves)
   • updated mapping
   • social and economic information (e.g. adjacent land uses)

To address the objectives, the Examination Guideline provides step-by-step instructions for completing a series of forms to identify values, pressures, actions and uses (section 3.2). Working through these forms will help determine if the management direction is relevant, effective and current, or whether a response is required and what changes may be needed to allow the management direction to continue to provide management direction for the protected area. The examination process helps to identify information gaps and highlight values under pressure, which will help inform management planning priorities. This information is necessary for determining the outcome of the examination. The rationale for the examination outcome is documented in the examination confirmation statement.

1.3 Outcomes of an examination

There are four possible outcomes from an examination:

• status quo
• administrative update
• amendment
• replacement ^{footnote 1[1]}

1.4 Notes on using this guideline

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

• Section 3.0 is written in a step-by-step approach and describes how to complete an examination.
• General tips are provided throughout the guideline in tip boxes.
• Throughout section 3.0, process check-in boxes provide an opportunity to ensure that all steps have been undertaken.

1.5 When to apply this guideline

This guideline applies when undertaking an examination of any of the following approved 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)

Include all previously approved adjustments (i.e. administrative updates, amendments and secondary plans) when examining management direction.

1.6 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.

1.7 Tools and templates

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

• Examination Report Template
• Examination Confirmation Statement Template

Use of these templates is required where it is noted in this guideline.

1.8 Responsibility for conducting examinations

An examination is conducted by the zone or district responsible for management of the protected area. A planning team must be identified for all examinations. This team is responsible and accountable for the entire examination process.

Using an integrated approach, the planning team is typically comprised of MNR staff such as a:

• planner
• biologist or ecologist
• conservation reserve manager
• park superintendent

One of these members should be identified as the team lead, as determined by the zone or district manager. While all team members may not be involved in all steps of the examination process, the above composition is recommended as a minimum to ensure that various perspectives, skills and expertise are adequately represented. Each member of the planning team is responsible for reviewing the examination and recommending the examination outcome prior to approval by the appropriate manager.

Staff in the Parks and Protected Areas Policy Section (PPAPS) are available to provide advice regarding the examination process, as needed. must review examinations and provide comments prior to approval by the appropriate manager when the examination outcome is status quo.

2.0 Timing of an examination

2.1 Examination cycle

Management direction is developed with a 20-year time horizon in mind. The following outlines the timing of the examination cycle:

• The first examination must be started by the 20^th anniversary after approval of the management direction document and should be completed within one year of commencement.
  • For example, if a management direction document was approved in 1995 and an examination of that management direction starts in July 2015, the examination should then be completed by July 2016.
• If the outcome of an examination is an adjustment (administrative update or amendment) or status quo, the next examination must be started by the 10^th anniversary after approval of the examination confirmation statement and should be completed within one year of commencement.
  • For example, if a management direction is approved in 2000. The next scheduled examination would be in 2020. However, if in 2020 the examination outcome is an administrative update, amendment or status quo than the next examination would be due in 2030.
• If the outcome of an examination is a replacement, the next examination must be started by the 20^th anniversary after approval of the replacement management direction document and should be completed within one year of commencement.
• When examining a management direction document, include all previously approved adjustments in the examination.
  • For example, a management direction document was approved in 2002 and a vegetation management plan (which would constitute a secondary plan) was approved in 2007. An examination of the management direction and the vegetation management plan is required in 2022. If the examination outcome is status quo the management direction document and vegetation management plan can be extended to 2032.

If it becomes apparent, prior to the next scheduled examination, that a management direction does not provide sufficient direction to protect the values or to address existing or emerging issues/pressures, an unscheduled examination would be warranted.

Tip: The examination cycle for management direction and the approval and review periods for recurring projects subject to the Class Environmental Assessment for Provincial Parks and Conservation Reserves (Class EA-PPCR) are independent of one another.

2.2 Obvious replacements

In some circumstances, it may be obvious to the planning team from the outset that the management direction should be replaced. In these circumstances, the examination process as outlined in sections 3.1 to 3.3 of this guideline is not required. Proceed to section 3.4 (Preparing the examination confirmation statement).

Any combination of factors may point to the need for an obvious replacement of the management direction. All rationale should be documented in the examination confirmation statement. Some possible factors include: n overall policy direction is not consistent with, or conflicts with the PPCRA, Ontario Provincial Parks: Planning and Management Policies 1992 Update, conservation reserves policy, or any other government policy direction that applies to protected areas;

• effort and resources required to update the management direction are equal to the effort and resources required to undertake a replacement;
• emergence of complex issues not adequately addressed in existing management direction;
• the surrounding landscape of the protected area has changed significantly (e.g. urbanization, access). This suggests a potential for increased pressures on the ecological integrity of the protected area that may require substantial changes to actions (e.g. wildlife management, invasive species management, other mitigation efforts).

3.0 Examination process

The examination process includes the following steps:

• gathering and reviewing all relevant information (section 3.1)
• completing an examination report (section 3.2)
• determining the appropriate outcome (section 3.3)
• summarizing results in the examination confirmation statement (section 3.4)

3.1 Gather and review information

Gather and review all relevant information required for completing an examination report including:

• purpose of the protected area
• known values (including values of conservation interest (VCI))
• pressures
• actions (including those opportunities to restore ecological integrity)
• uses

An examination should be based on the best information available, including any new information since the last examination and the approval of the management direction. Contact the local site manager (e.g. park superintendent or conservation reserve manager) to discuss the examination process and to ensure all potential information sources have been identified.

3.1.1 Identify and assemble information sources

Consider the following perspectives when assembling information sources:

• access
• commercial activities – outfitting, outpost camps, local businesses
• adjacent land use activities
• land management
• water management
• fish and wildlife management
• vegetation management
• harvesting (hunting, fishing, trapping, bait harvesting)
• species at risk
• alien and invasive species
• recreation activities
• pollutants
• development and infrastructure
• maintenance and restoration of ecological integrity
• climate change
• demographics

3.1.2 Minimum information requirements for examinations

As a minimum requirement, the following information (where applicable and available) must be assembled to support the examination:

The following information sources could also be assembled, as required:

1. Current management direction
   • overall content, including both text and maps
   • all administrative updates and amendments (including any secondary plans)
2. Legislation, regulations and policy
3. >
   • identify changes in legislation, regulations and policy since the existing management direction was approved and the implications for current management of the protected area
   • in addition to the PPCRA, consider the following:
     • conservation reserves policy;
     • Ontario Provincial Parks Planning and Management Policies 1992 Update;
     • Ontario’s Living Legacy Land Use Strategy;
     • Permitted Use Policy Amendment, 2010;
     • Endangered Species Act, 2007 (ESA); and
     • any other relevant legislation, regulations or policies.
4. Existing background information:
   • inventories (e.g. earth and life science, recreation, visitor use, cultural)
   • monitoring results (both condition and effectiveness monitoring)
   • land use policy documents
   • any other relevant local information, including Aboriginal Traditional Knowledge
   • input on the protected area, specifically related to contentious issues or concerns raised
5. Best informed people (internal or external)
   • For example, in the absence of current and/or reliable data contact a local trapper, recreation camp owner or licensee, or MNR staff familiar with the area who would have first-hand knowledge of the site, the condition of values and whether they are under pressure.
6. Provincial or system-wide information
   • Refer to the Values and Pressures Analysis User Guide for direction on accessing provincial information sources. The values and pressures tool can be useful for organizing and visualising information about the protected area.

     After identifying all possible information sources, assemble a list of applicable and relevant sources. It is recommended to place all assembled information sources in PAPIR. At a minimum, list all information sources used to support the examination in Form D of the examination report.

3.1.3 Determine if additional information and/or site visits are warranted

In most circumstances, gathering additional information beyond what is currently available, is not required. However, through the examination process the planning team may discover there are significant information gaps. In these situations, determine whether new information is warranted by looking at:

• the known extent and severity of pressures on values
• ability to access the site
• the age of the data
• the accuracy and rigour of the data
• when the site was last visited
• availability of resources

Where the planning team determines there are significant information gaps that preclude an examination from being completed, consider means of gathering additional information (e.g. site visit) prior to completing the examination. For guidance on preparing for a pre- examination site visit, see Appendix II. Significant information gaps should be documented in the examination confirmation statement.

For additional guidance on information sources, see the Guideline to Management Planning for Protected Areas in the Context of Ecological Integrity (Planning Guideline).

3.2 Complete an examination report

This section provides step-by-step guidance on completing the examination report, which consists of a series of four forms in which the values, pressures, actions, uses and proposed changes are recorded and assessed.

In most circumstances, conducting an examination includes the completion of an examination report using Forms A-D, provided in the Examination Report Template. There are two exceptions to this general rule:

1. For obvious replacements of management direction, do not complete an examination report; instead, proceed directly to completion of the examination confirmation statement (section 3.4).
2. For complex planning projects, consider using an enhanced approach to identifying and evaluating values and pressures (Appendix ) and use Form A1 of the Examination Report Template instead of Form A to record information.

3.2.1 Complete Form A – Values and pressures (steps 1–4):

The purpose of Form A is to use the information sources assembled in section 3.1 to identify values and associated pressures. Completing Form A may reveal values and/or pressures that have not previously been either identified or addressed. This in turn will help set priorities for responding to those pressures. Form A has implications for Form C. The terms value, VCI and pressure are described in Appendix I.

Tip: Knowledge and terminology change over time. Ensure previously identified values have been considered in Form A, referencing both the older terms from the existing management direction and the newer terms currently in use and demonstrate the linkages. For example, significant habitat types were identified in the past. More recently, assessments have since been completed using Ecological Land Classification. It is important to consider both assessments in the examination, linking them where possible.

Step 1: Identify values and

1. Values – identify the values associated with the protected area (appendix i). these include ecological (life and earth science), social, cultural, recreational and traditional outdoor heritage values. Values should be identified here regardless of whether or not they are under pressure. consider values individually, in relation to one another and in the context of the protected area as a whole. Be sure to consider the values associated with all protected areas within a grouped management direction. list one value per line.
2. VCI – indicate which of the values are considered VCI (appendix i). all VCI, whether under pressure or not, should be included in the list of values for the protected area.

Step 2: Identify pressures

List all pressures associated with each value. if a value has more than one pressure, use one line per pressure. if a pressure affects more than one value, record the pressure separately for each value that it affects. if there is no pressure on a value record not applicable.

Note that values can compete with one another, and some values can also be pressures on other values. For example, a beach can be a recreational value, and beach use can also be a pressure on other values (e.g. nesting piping plovers).

Step 3: Indicate whether a response is required

Consider whether the pressure is likely to significantly degrade the value before the next scheduled examination. if so, check the box to indicate that a response (i.e. action or policy change) is required to address the value, pressure and/or the impact of the pressure on the value in order to maintain ecological integrity.

A response may be necessary to address new pressures and/or existing pressures for which no actions were previously identified. consider the need for monitoring and/or research associated with values and pressures. consider the need to retire, replace or introduce new infrastructure or services. the specific changes proposed for the management direction will be described in step 10 (Form c).

Tip: Remember information added to Forms A to D will serve as the basis for the next examination and/or replacement; therefore, include as much detail as possible.

Step 4: Provide comments and rationale

Record a description of the relationship between the value and pressure(s). include any relevant information about the value, its condition or the pressure and the level of impact anticipated on the value. consider:

• how these values and pressures have changed over time
• the type of value, its sensitivity to disturbance and the associated pressures
• the extent and severity of the pressure and the magnitude of its impacts

These considerations can be supported by quantitative or qualitative information.

3.2.2 Complete Form B – Assessment of actions identified in the existing management direction (steps 5–9):

The purpose of Form B is to assess any actions that have been identified in the management direction. the information recorded in Form B has implications for Form c.

Step 5: List actions

list all actions identified in the existing management direction, whether or not they were implemented. consider all actions, including those related to resource management, operations, development, education, recreation, and research and monitoring. consider actions that are stated explicitly (e.g. listed in the implementation list) and any that may be implied in the text of the management direction (e.g. the trails section of a management direction indicates that new trails may be developed if there is sufficient user demand).

Step 6: Indicate where actions where implemented and effective

1. Implemented – indicate if the action was implemented (did we do what we said we would do?).
2. Effective – indicate if the action was effective (did the action have the desired effect?). Provide supporting information in step 9 (rationale/ comments).

Each action should be evaluated independently rather than together with similar actions. For example, rather than grouping acquisitions, boundary changes and road allowances under a single action called land tenure, treat each as an independent action.

Step 7: Indicate if an action should continue

Indicate if the action should continue. Also, determine if actions that have yet to be implemented should be implemented. Actions that were implemented and were not effective should not be continued unless it is felt that more time is required to realize an effect.

Step 8: Indicate where a response is required

Determine if a response is required to make the existing actions effective. For actions that have not been effective, new actions or a change in site specific policy (e.g. zoning change) may be necessary. Specific attention should be given to existing actions associated with values that are under pressure, particularly those for which pressures are considered to be high or for which there is insufficient information to assess the condition of the value or the status of the pressure. Consider the need for monitoring and/or research associated with determining the effectiveness of actions. The specific changes proposed for the management direction will be described in step 10 (Form C).

Step 9: Provide comments and rationale

Describe the action, monitoring outcomes, and its effectiveness. Describe where actions were not effective and why.

3.2.3 Complete Form C - Identification of responses required (steps 10–16):

The purpose of Form C is to bring forward those values and actions that require a response according to step 3 (Form A) or step 8 (Form B) and describe changes needed to address values under pressure and to change or replace previously ineffective actions. Proposed changes, new actions, policies or uses, not as a result of analysis in Form A and B, should also be addressed in Form C.

Step 10: Bring forward responses required

Bring the values from Form A and the actions from Form B, where it was indicated that a response is required, forward to Form C.

Step 11: Identify proposed changes

Describe the specific changes to the management direction to address:

1. impact of a pressure on a value, or
2. an ineffective action.

For example:

• For Form A, use of a trail may be exerting pressure on a sensitive cultural heritage value - the impact is degradation of the value - a response could be relocation of the trail away from the value.
• For Form B, an action could have been to relocate a trail away from a sensitive cultural heritage feature – however, the feature continues to be accessed and impacts are still occurring – a response is required and the specific change could be re-zoning to provide further protection to the site.

Step 12: Identify new uses

Additionally, identify proposed new actions, policies or uses that should be considered in a potential amendment or replacement. New uses may be in response to emerging social trends or external proposals (e.g. to allow virtual geocaching). Also, note any projects under consideration with planning implications.

Step 13: Evaluate proposed changes

All proposed changes should be evaluated to determine if they support sound management practices. 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:
  • What are the impacts on ecological integrity (both positive and negative) of the changes?
• Social and economic:
  • Who will the responses affect?
  • What is the anticipated degree of Aboriginal, public or stakeholder interest or support?

Consider whether the proposed changes may have an adverse impact on protected area values and if these impacts can be mitigated adequately.

For additional information on evaluating changes proposed as part of an examination see the Planning Guideline.

Step 14: Provide comments and rationale

Provide a rationale for the response that is proposed. This could include replacing an existing action or policy that was ineffective or to address a new issue that has arisen (e.g. a pressure on a value).

Step 15: Identify if enabling language is required

When proposing new uses or changing existing management actions, determine if the action is subject to the Class EA-PPCR. Check the box to indicate if the change requires enabling language in the management direction.

3.2.4 Complete Form D – Other assessments of the management direction (steps 16–18):

This form requires an evaluation of the relevance of the purpose, goal, vision, park classification, site objectives, zoning and the accuracy of the boundary described in the management direction.

Where staff identify additional changes during the examination process (e.g. out-dated wording or policy changes), list these changes as part of Form D under the other heading.

Step 16: Determine relevancy

Review information in Forms A-C, as well as current legislation, regulations, policy, other relevant direction to help inform the assessment.

Purpose and visions statements:

Do discrete purpose and vision statements appear in the management direction document? If not, it may be necessary to evaluate text in the document that most closely reflects the definition of a purpose and/or vision statement. Some documents may have a goal statement. This statement should be considered in the context of the intent of a purpose and/or vision statement.

Designation and park classification:

As a result of strategic and Crown land use planning, matters such as protected area designation or provincial park classification are often pre-determined. In some cases, designation and classification may be re-evaluated based on new information, through protected area management planning. For example, consider a protected area that is initially regulated as a natural environment class park. If new information on significant cultural heritage values within the protected area becomes available, then a reclassification may be warranted to ensure protection of the cultural heritage values.

Protected area objectives:

When looking at protected area objectives consider the following questions:

• Are objectives consistent with or reflective of the overarching objectives in the PPCRA?
• Does a protection objective exist?
  • At a minimum, all protected areas should have a protection objective.
• Do the objectives reflect the currently known values, VCI, pressures and management actions identified to address those pressures?

Zoning:

When determining the relevancy of zoning consider the following questions:

• Have there been any changes in public interests or visitor use patterns?
• Is there new information now available on values and pressures?
• Is there Aboriginal Traditional Knowledge that can be shared?
• Are values zoned appropriately for their protection, and does the existing zoning support the maintenance and/or restoration of ecological integrity?
• Is the existing zoning consistent with management priorities associated with legislation, policy or other directions (e.g. Endangered Species Act, 2007, PPCRA objectives, source water protection)?
• Is the existing zoning appropriate for managing current and potential pressures?
• Should zone boundaries be modified to improve their ability to be identified on the ground? For example, as a result of improved mapping/GPS technologies.

Boundary:

When looking at the accuracy of the boundary consider the following:

• Have there been any additions or deletions to the protected area since the approval of the current management direction?
• Is the description of the boundary in the management direction accurate and does it reflect the situation on the ground?

Step 17: Indicate where a response is required

Indicate which aspects of the existing management direction reviewed in step 16 require change to remain relevant, effective and current.

Step 18: Identify proposed changes

Identify proposed changes to bring the existing management direction in line with current legislation, regulations and policy.

Again, all proposed changes should be evaluated to determine if they support sound management direction. See step 13 of this guideline.

3.2.5 List information sources

List all information sources (internal and external) collected as part of section 3.1 that were used to support the examination, including specific contacts.

3.2.6 Final steps

Discuss preliminary results to confirm that the values and pressures are correctly identified in the forms. It is suggested that the planning team and the senior planner (for provincial parks) or conservation reserve manager (for conservation reserves) review the results. Revise the examination report to reflect staff input, where appropriate. Once complete, the examination report will form the basis of the examination confirmation statement.

Having completed the examination report, consider the following information in determining the outcome of the examination. The outcome will be recorded in the examination confirmation statement using the Examination Confirmation Statement Template.

An examination can result in one of four possible outcomes:

1. status quo
   • the existing management direction document is still relevant, effective and current and no changes are required to continue management of the protected area.
2. 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.

3.2.6 Final steps

Discuss preliminary results to confirm that the values and pressures are correctly identified in the forms. It is suggested that the planning team and the senior planner (for provincial parks) or conservation reserve manager (for conservation reserves) review the results. Revise the examination report to reflect staff input, where appropriate. Once complete, the examination report will form the basis of the examination confirmation statement.

3.3 Determining the examination outcome

Having completed the examination report, consider the following information in determining the outcome of the examination. The outcome will be recorded in the examination confirmation statement using the Examination Confirmation Statement Template.

An examination can result in one of four possible outcomes:

1. status quo
   • the existing management direction document is still relevant, effective and current and no changes are required to continue management of the protected area.
2. 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.
3. Amendment
   • A type of adjustment to management direction.
   • An amendment involves a change in policy and/or alters the intent of management of the protected area to make the management direction relevant, effective and current.
   • Amendments require the provision of external involvement opportunities.
   • An examination may highlight the need for a secondary plan to address specific resource management topics. For example, a vegetation management plan may be required if the existing management direction does not provide enough direction to allow for extensive vegetation management. Secondary plans are considered amendments to existing management direction. In this case, the outcome of the examination would be an amendment.
4. Replacement
   • Management direction is no longer relevant, effective or current and substantial changes are required to proceed with management of a protected area. This requires the preparation of a new management direction.

Table 1 and 2 outline each examination outcome associated with possible responses identified through Form C and D, of the examination report. Both tables provide a series of questions to consider when determining what type of outcome is appropriate. The tables do not include an exhaustive list of questions and there may be additional changes to consider. Use Table 1 to review each response in Form C and use Table 2 to review each response in Form D. The process of reviewing all responses (from Forms C and D) will aid in determining the appropriate outcome.

In general, the tables will assist in rationalizing the outcome of an examination by looking at trends in answers; 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 whether significant changes to the management direction are required to resolve inter-related or complex issues to effectively manage the protected area and whether the proposed amendment will change the overall lintent of the management direction (i.e. purpose, vision, objectives). A replacement is warranted if numerous changes are required because overall the existing management direction is no longer relevant, effective or current.

3.3.1 Examining protected area maps

Maps must be reviewed as part of the examination process. If mapping is out of date, it must be updated as part of the subsequent adjustment or replacement. Examples of out-of-date mapping include:

• the map was developed before the implementation of geographic information systems (GIS)
• the map does not reflect current status in terms of development and/or infrastructure
• the map does not represent current zoning
• the map does not represent current boundary

7. A replacement is warranted if overall the management direction is no longer relevant, effective or current.
8. Consider requirements for changes to Crown land use policy

3.4 Preparing the examination confirmation statement

An examination confirmation statement is prepared to summarize the results of the examination and provide the rationale for the examination outcome. This statement includes the protected area context, basic information on the existing management direction, a summary of the results of the examination report and the examination outcome. An examination confirmation statement is required for each examination.

The examination confirmation statement is submitted to the district and/or zone manager for approval and then filed in PAPIR. The examination report and examination confirmation statement will help inform the administrative update, amendment or replacement of the management direction.

Where a management direction does not include a history table, add the Examination and Adjustment History table to the beginning of the management direction consistent with the placement of the table in the Management Direction Template. See the Management Direction Template for a copy of this table. This will serve as a record of examinations and adjustments.

3.4.1 Grouping examinations

When examining a grouped management direction document, a single examination process is conducted resulting in a single examination report and a single examination confirmation statement.

When the outcome of an examination of several existing management direction documents is a replacement and a decision has been made to group those protected areas in a single management direction document, an examination confirmation statement must be completed for each of the existing management direction documents.

4.0 Implementing the outcome of an examination

If the examination outcome is status quo, then no planning process is required. Further guidance on the process associated with adjustments can be found in the Adjusting Protected Areas Management Direction Guideline (Adjustment Guideline). Amendments and replacements require Aboriginal community and public and stakeholder involvement (refer to Guideline to Involvement during Protected Areas Management Planning (Involvement Guideline)). Adjustments and replacements should be carried forward and built into work planning priorities.

4.1 Prioritizing planning processes resulting from examinations

The following timelines are recommended when implementing examination outcomes, subject to available staff and financial resources:

• Administrative updates should be approved within one year of the approval of the examination confirmation statement. Consider preparing an administrative update simultaneously with preparing the examination confirmation statement.
  • Where an administrative update and amendment are required, process and approve the administrative update prior to undertaking the amendment.
• A non-complex amendment should be approved within two years of the approval of the examination confirmation statement. A moderately or very complex amendment should be approved within three years of the approval of the examination confirmation statement.
• A replacement should be approved within three years of the approval of the examination confirmation statement for a non-complex planning project, within four years of the approval of the examination confirmation statement for a moderately complex planning project and within five years of the approval of the examination confirmation statement for a very complex planning project.

In addition to the recommended timelines, several criteria should be considered when prioritizing workload requirements associated with examination outcomes, including:

• risk to protected area values (i.e. maintenance of ecological integrity)
• age of the management direction
• prior commitments (e.g. to stakeholders or partners)
• alignment with other ongoing planning processes
• partnership support
• availability of staff and financial resources

The likelihood of risk to protected area values can be identified, to a certain extent, based on the following criteria:

• levels of use for the protected area (or nearby population base when use information is not available)
  • protected areas experiencing high demand generally have higher associated risks to protected area values
• ease of access to the protected area
  • protected areas that are easily accessed generally have higher risk to protected area values
• intensity of adjacent resource use or development pressures
  • protected areas with greater adjacent development pressures generally have higher risk to protected area values

Further to prioritizing workload there may be opportunities to streamline and build efficiencies with respect to examination outcomes. The following are some examples:

• Grouping protected areas can streamline the management planning process and provide clear direction where protected areas have similar features, users, activities and management intent and prescriptions. For example, where a number of management directions are examined and the outcomes are replacements, consider whether grouping to produce either a single or multiple management direction documents is appropriate and efficient.
• Alignment of the protected area management planning process with another applicable planning process (environmental assessment mechanisms, boundary regulation amendments, etc.) can facilitate efficient use of resources and streamline processes. For example, where an amendment is the outcome of an examination and there are requirements under A Class Environmental Assessment for Provincial Parks and Conservation Reserves, consider aligning both planning processes.
• Amending a management direction document in the short term rather than waiting to complete a replacement can help to address specific concerns related to values most at risk.

4.2 Reporting on examinations

To meet the requirements for reporting on examinations under the PPCRA, PPAPS will annually collect the results for all completed examinations, including the following information:

• reporting period
• protected area name and designation (provincial park or conservation reserve)
• type of existing management direction (interim management statement, statement of conservation interest, management statement, or management plan)
• date of approval for the existing management direction
• examination outcome (status quo, administrative update, amendment or replacement)
• date examination was completed

Results of completed examinations will be reported on an annual basis, with the intent to make them available within 180 days of the end of MNR’s fiscal year.

Appendix I: Terms related to MNR’S approach to addressing ecological integrity

Ecological Integrity

Protected areas characterize the best examples of the diversity of Ontario, both in terms of what they represent and their condition. The maintenance of ecological integrity is the first priority in the planning and management protected areas in Ontario. Ecological integrity is a complex human concept that addresses three fundamental attributes of ecosystems – composition, structure and function. Simply stated, this concept is based on the idea that the composition and structure should be characteristic for the natural region and that ecosystem functions should proceed normally.

Since ecological integrity is a concept and not a thing, it is difficult to measure. There are literally hundreds of aspects of ecosystems that could be measured at a variety of scales. Since there is not a single approach to assessing ecological integrity, the approach adopted by MNR to address the integrity of protected areas is to look at the purpose of the protected area (why it was created and/or what role it plays in the protected area system), what features it contains, processes that occur and the pressures upon the protected area as a whole and the values it contains. The identification of values and pressures, to determine management priorities and appropriate actions to address those priorities is considered the basis for maintaini ng and enhancing ecological integrity through protected area management planning.

Values

A specific attribute or feature (Aboriginal, cultural, ecological or recreational), or ecological function within a protected area that may require additional/special consideration during the management planning process and subsequent management.

Values considered most significant are called values of conservation interest (VCI). VCI are defined as values that should not be compromised by development or use of any kind. This includes values that are protected by legislation and policies.

VCI are often associated with the reason why the protected area was established and/or how the protected area contributes to the protected areas system and the maintenance of ecological integrity. Because of the nature of VCI, they are afforded specific consideration in the risk analysis. For more information on values and VCI refer to section 2.2.1 in the Planning Guideline.

Pressures

A pressure is defined as any natural disturbance or anthropogenic (human) activity or facility (including associated activities) that has an impact on a value, including an ecological process, associated with a protected area.

Appendix II: Preparing for pre-examination site visits

Completion of an examination requires that the examination team make use of the best information that is currently available. In limited circumstances, specific gaps in existing information may warrant a site visit and associated field work. For those contemplating field work, the purpose of the site visit is to assist in the completion of the examination report, with emphasis on Forms A and B (Examination Report Template).

For Form A, the purpose of the site visit is to confirm the condition of values and the status of pressures. For Form B, the purpose of the site visit is to evaluate the effectiveness of actions identified in the management direction.

In preparation for the site visit, consider the following steps:

1. Review definitions of terms
   Review the following terms to assist in determining what to investigate and what to evaluate at the site: value, VCI and pressure.
2. Review relevant documents prior to site visit
   There may be a number of inventories and reports completed for the protected area. At the very least, there will be an existing management direction document. These documents provide information on values, pressures, uses and actions, including any monitoring requirements. In addition, the best available aerial photography or imagery should be obtained. A review of these documents prior to completing a site visit will help to identify what should be investigated and why.
3. Complete preliminary steps of the examination prior to site visit
   Having reviewed the existing documents, it is now possible to complete portions of Form A and B by recording values, pressures, uses and actions.
   Form A (values and pressures): complete steps 1 and 2 (section 3.2.1) and leave steps 3 and 4 to be completed later based on the information gathered during the site visit.
   Form B (actions): complete step 5 (section 3.2.2.) and leave steps 6-9 to be completed later based on information gathered during the site visit.
4. Setting priorities for the site visit
   It may not be possible to investigate all values and pressures or assess all actions and uses during a site visit. In such cases, set priorities considering:
   • main pressures on the protected area, both internal and external
   • values of conservation interest
   • other values, especially those under pressure
   • popular activities and locations associated with the site
     The priority areas should be mapped prior to the site visit.
5. Considerations in the field
   In addition to priorities, consider the following aspects:
   • confirm that the representative values associated with the protected area (e.g. critical landform/ vegetation associations) are accurate
   • assess the condition of the values and their sensitivity to real or potential pressures
   • evaluate pressures both inside and adjacent to the protected area
   • potential encroachment issues
   • consider functional aspects at the scale of the entire protected area (e.g. fragmentation) and associated impacts
   • presence/location of private and commercial developments
   • access concerns
   • specific observations of species (flora and fauna), earth science, cultural and Aboriginal values (both known and new)
   • specific recreational activities (e.g. hunting, fishing, camping)

Record as much information as possible (notes, maps and photos) and any recommendations that come to mind while in the field. Where possible, record the location of values using a geospatial positioning system.

Appendix III: Examination report – enhanced approach (form a1)

For complex planning projects, consider using Form A1 as an enhanced approach to identifying values and evaluating pressures. Form A1 would replace Form A of the examination report (see Examination Report Template).

Consider the following factors to help determine the need for the enhanced approach:

• substantial resource management considerations,
• substantial and complex issues or proposals,
• substantial new infrastructure or development (in or outside of the protected area),
• ease of access and level of demand (see below).

Step 1: Identify values, values of conservation interest and condition of values

1. Values – Identify the values associated with the protected area. These include ecological (life and earth science), social, cultural, recreational and traditional outdoor heritage values. Values should be identified here regardless of whether or not they are under pressure. Consider values individually, in relation to one another and in the context of the protected area as a whole. Be sure to consider the values associated with all protected areas within a grouped management direction.
2. VCI – Check boxes to indicate which of the values are considered VCI. All VCI, whether under pressure or not, should be included in the list of values for the protected area.
3. Condition of values – Indicate the current condition of each value. While this is a somewhat subjective ranking of condition (good, fair, poor, unknown), it can be supported by more qualitative information and the team is encouraged to discuss the assessment of each value and document the rationale for their decisions. Consider the type of value, its sensitivity to disturbance and the pressures on it.
4. Change in condition of the value – Indicate if the condition of the value has changed from when the management direction document was approved or when it was last examined. This could be based on specific studies or a subjective assessment based on anecdotal information. Information on the current condition and the change in condition (e.g. when it was last assessed) should be recorded in the comments column (step 4).

Step 2: Identify pressures and status of the pressure

1. Pressures – List all pressures associated with each value. If a value has more than one pressure, use one line per pressure. If a pressure affects more than one value, record the pressure separately for each value that it affects. Note that some values can also be pressures on other values.
2. Current status of pressures – Indicate the extent ^{footnote 9[9]} and severity ^{footnote 10[10]} of each pressure individually. Once the extent and severity have been recorded, the magnitude ^{footnote 11[11]} of the pressure can be determined. This assessment could be based on specific studies or a somewhat subjective review based on anecdotal information.
3. Change in pressure status – Indicate if the status of the pressure (extent and severity) has changed from when the management direction document was approved or when it was last examined. This could be based on existing monitoring, specific studies or a more subjective assessment. Information on the current status and the change in status (e.g. when it was last assessed) should be recorded in the comments column (step 4).

Step 3: Indicate whether a response is required

Consider whether the pressure is likely to significantly degrade the value over the next ten years. If so, check the box to indicate that a response is required to address the value, pressure and/or the impact of the pressure on the value. These responses, and whether they require a change to the management direction, will be specifically identified in Form C.

Step 4: Provide comments and rationale

Record any relevant information about the value and its condition or the pressure and its status. Refer to steps 1 and 2.