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Collection

Conservation in Canada: Identifying and Overcoming Barriers

The aim of this special collection is to examine political barriers to conservation as well as possible pathways forward. The contributions uncover and strategize ways around the political barriers to effective conservation governance in Canada. They provide insights that enhance understanding of key barriers, important actors, and strategies for working within and shaping policy at multiple levels of government across Canada. The collection engages academics (including students), environmental conservation organizations, and Indigenous communities in dialogues and explorations of the politics of wildlife conservation. Together, they demonstrate and highlight the need for increased social-political awareness about biodiversity and conservation in Canada, enhanced wildlife conservation collaborative networks (in Canada and more broadly), and increased scholarly and other evidence-based attention to the principle, polices and practices of the wild.

The papers in the Collection address broad themes:

  • Federal and provincial legislation dealing with biodiversity, conservation, wildlife, and species at risk in Canada, domestically and in relation to international agreements and commitments;
  • Political, legal, social and institutional gaps and barriers to effective conservation;
  • Indigenous governance, knowledge systems, rights, responsibilities and Natural law in relation to upholding Treaties, reconciliation and conservation (e.g., Indigenous Protected and Conserved Areas; Guardian Programs; biocultural keystone species and stewardship); and,
  • Bridging ethics, science and policy to create, incentivize and mobilize better conservation practices in Canada.

The contributions encompass an interdisciplinary variety of issues, such as frustrations with bureaucracy, failure to create, implement and enforce laws, the over-emphasis on ecosystem services for human provisioning, exclusion of Indigenous voices, the branding of species at risk, wildlife crime, and invasive species management. Together, they represent a rich diversity of shared knowledge, stories, and experiences with the barriers to conservation and opportunities to overcome them.

  • OPEN ACCESS
    Transforming conservation in Canada: shifting policies and paradigms
    FACETS • Vol. 6 • pp. 1714 - 1727
  • OPEN ACCESS
    Incentivizing stewardship in a biodiversity hot spot: land managers in the grasslands
    FACETS • Vol. 6 • pp. 1307 - 1322
    Federal and provincial governments of Canada recently signed onto a Pan-Canadian Approach to Transforming Species at Risk Conservation. The approach is based on collaboration among jurisdictions and stakeholders to enhance multiple species and ecosystem-based conservation in selected biodiversity hot spots. In this review paper, we focus on one of the biodiversity hot spots—the South of the Divide area in the province of Saskatchewan—to propose appropriate mechanisms to incentivize stewardship on agricultural Crown lands. Through a focused review and synthesis of empirical studies, we propose a range of policy instruments and incentives that can help deliver multi-species at risk conservation on Crown agricultural lands in Saskatchewan. We outline a range of policy instruments and incentives that are relevant to conservation on Crown agricultural lands and argue that a portfolio of options will have the greatest social acceptability. More germane is the need to foster collaboration between the government of Saskatchewan, other provincial/territorial governments, and the federal government, nongovernmental organizations, and land managers. Such collaboration is critical for enhanced decision-making and institutional change that reflects the urgent call for creating awareness of species at risk policies, building trust, and leveraging the local knowledge of land managers for conservation.
  • OPEN ACCESS
    Indigenizing the North American Model of Wildlife Conservation
    FACETS • Vol. 6 • pp. 1285 - 1306
    Although a diversity of approaches to wildlife management persists in Canada and the United States of America, the North American Model of Wildlife Conservation (NAM) is a prevailing model for state, provincial, and federal agencies. The success of the NAM is both celebrated and refuted amongst scholars, with most arguing that a more holistic approach is needed. Colonial rhetoric permeates each of the NAM’s constituent tenets—yet, beyond these cultural and historical problems are the NAM’s underlying conservation values. In many ways, these values share common ground with various Indigenous worldviews. For example, the idea of safeguarding wildlife for future generations, utilizing best available knowledge to solve problems, prioritizing collaboration between nations, and democratizing the process of conserving wildlife all overlap in the many ways that the NAM and common models of Indigenous-led conservation are operationalized. Working to identify shared visions and address necessary amendments of the NAM will advance reconciliation, both in the interest of nature and society. Here, we identify the gaps and linkages between the NAM and Indigenous-led conservation efforts across Canada. We impart a revised NAM—the Indigenizing North American Model of Wildlife Conservation (I-NAM)—that interweaves various Indigenous worldviews and conservation practice from across Canada. We emphasize that the I-NAM should be a continuous learning process that seeks to update and coexist with the NAM, but not replace Indigenous-led conservation.
  • OPEN ACCESS
    The role of science advice in recovery potential assessments in freshwater fish listing decisions under the Canadian Species at Risk Act
    FACETS • Vol. 6 • pp. 1247 - 1259
    Fishes assessed as Threatened or Endangered by the Committee on the Status of Endangered Wildlife in Canada are disproportionately less likely to be listed under the federal Species at Risk Act (SARA) compared to other taxa. We examined the extent to which the amount and type of science advice in a Recovery Potential Assessment (RPA) contributes to SARA-listing decisions for 34 wildlife species of freshwater fishes in Canada. We used a generalized linear mixed model to describe SARA listing status as a function of RPA completeness. Principal coordinates analyses were conducted to assess similarity in answers to RPA questions among listed and nonlisted species. The amount and type of science advice within an RPA were weakly related to SARA status. RPA completeness accounted for only 7.4% of model variation when family was included as a random effect, likely because nine species not listed under SARA (64%) belong to the sturgeon family. Our results suggest that, while potentially useful for informing recovery strategies, RPAs do not appear to be driving listing status for freshwater fishes in Canada. Factors beyond scientific advice likely contribute to nonlisted species and delays in listing decisions.
  • OPEN ACCESS
    The politicization of protected areas establishment in Canada
    FACETS • Vol. 6 • pp. 1146 - 1167
    Environmental issues and related policy instruments are becoming increasingly politicized in the Canadian context, but it is unclear whether biodiversity conservation and protected areas are similarly politicized. Here, we suggest that the political characteristics of protected areas do not lend themselves easily to politicization, but data from the Canadian Protected and Conserved Areas Database indicate that at the federal level, and provincially in Alberta, the rate of protected areas establishment is becoming increasingly tied to electoral politics, suggesting some politicization. We situate these trends within federal electoral politics between 2006 and the present, outlining the differing approaches of the Harper Conservatives and the Trudeau Liberals and showing how both administrations instrumentalized the environment and protected areas for their own electoral benefits. We find similar trends in Alberta with the Progressive Conservative, New Democratic Party, and United Conservative Party governments. However, while there is increasing polarization in practice, there has been less polarization of the electoral rhetoric surrounding protected areas. This politicization represents a barrier to conservation in Canada as it can lead to greenwashing, poor accountability, or the creation of an anti-conservation constituency. At the same time, politicization can raise the profile of conservation in public discourse, leading to greater public interest and engagement.
  • OPEN ACCESS
    Recent amendments to the Endangered Species Act and an uncertain future for species at risk: a case study of Ontario’s Niagara Region
    FACETS • Vol. 6 • pp. 1168 - 1183
    The biodiversity crisis is a pressing global issue. In Ontario, Canada, species at risk are protected under the Endangered Species Act (2007). The current government amended that legislation through the More Homes, More Choice Act (2019), leaving species at risk with an uncertain future. This paper uses the Niagara Region as a case study and relies on interviews and data collection about listed species to illuminate the possible implications for the new amendments. The results indicate a total of 71 species at risk that exist in the Region, with as many as 37 species that could be delisted and stripped of protection under the recent changes. There is also concern around the prioritization of the economics over science in the amendments. While uncertainty surrounding the implementation of the amendments to the Ontario Endangered Species Act exists, there is agreement that species at risk should be protected.
  • OPEN ACCESS
    Ten bridges on the road to recovering Canada’s endangered species
    FACETS • Vol. 6 • pp. 1088 - 1127
    Wildlife is declining around the world. Many developed nations have enacted legislation on endangered species protection and provide funding for wildlife recovery. Protecting endangered species is also supported by the public and judiciary. Yet, despite what appear as enabling conditions, wild species continue to decline. Our paper explores pathways to endangered species recovery by analyzing the barriers that have been identified in Canada, the United States, and Australia. We summarize these findings based on Canada’s Species at Risk Conservation Cycle (assessment, protection, recovery planning, implementation, and monitoring and evaluation) and then identify 10 “bridges” that could help overcome these barriers and bend our current trajectory of wildlife loss to recovery. These bridges include ecosystem approaches to recovery, building capacity for community co-governance, linking wildlife recovery to ecosystem services, and improving our storytelling about the loss and recovery of wildlife. The focus of our conclusions is the Canadian setting, but our findings can be applied in other national and subnational settings to reverse the decline of wildlife and halt extinction.
  • OPEN ACCESS
    The biodiversity crisis in Canada: failures and challenges of federal and sub-national strategic and legal frameworks
    FACETS • Vol. 6 • pp. 1044 - 1068
    Negative biodiversity trends are evident in Canada, in spite of its ecological and economic wealth and high governance capacity. We examined the current implementation of Canada’s national biodiversity strategy—the planning instrument to the United Nations Convention on Biological Diversity—through its existing legal framework. We did this by evaluating biodiversity-related strategies and plans and 201 federal, provincial, and territorial laws. We found that while most jurisdictions claim dedicated attention to biodiversity, there is little evidence of an integrated approach within provinces and territories and across the federation. Biodiversity conservation led by governments underscores the need for considerations of species and ecosystem services to be mainstreamed into economic and development decision-making. Key challenges to this include Canada’s unusual degree of decentralized constitutionally ascribed authority over natural assets and its historical and continued economic emphasis on extraction of natural resources—a conflict of interest for jurisdictions. Transitioning to scale-appropriate planning and integrated decision-making that can address the pressures and causes of biodiversity conservation in Canada will require transformative change. Law reform, while necessary, will not succeed unless accompanied by a whole-of-government approach, a shift to a bio-centric mindset, innovative governance (particularly Indigenous-led conservation), and federal leadership with strong levels of financial investment.
  • OPEN ACCESS
    “Awakening the sleeping giant”: re-Indigenization principles for transforming biodiversity conservation in Canada and beyond
    FACETS • Vol. 6 • pp. 839 - 869
    Precipitous declines in biodiversity threaten planetary boundaries, requiring transformative changes to conservation. Colonial systems have decimated species and ecosystems and dispossessed Indigenous Peoples of their rights, territories, and livelihoods. Despite these challenges, Indigenous-governed lands retain a large proportion of biodiversity-rich landscapes. Indigenous Peoples have stewarded the land in ways that support people and nature in respectful relationship. Biodiversity conservation and resurgence of Indigenous autonomies are mutually compatible aims. To work towards these aims requires significant transformation in conservation and re-Indigenization. Key to both are systems that value people and nature in all their diversity and relationships. This paper introduces Indigenous principles for re-Indigenizing conservation: (i) embracing Indigenous worldviews of ecologies and M’sɨt No’kmaq, (ii) learning from Indigenous languages of the land, (iii) Natural laws and Netukulimk, (iv) correct relationships, (v) total reflection and truth, (vi) Etuaptmumk—“two-eyed seeing,” and “strong like two people”, and (vii) “story-telling/story-listening”. Although the principles derive primarily from a Mi’kmaw worldview, many are common to diverse Indigenous ways of knowing. Achieving the massive effort required for biodiversity conservation in Canada will entail transformations in worldviews and ways of thinking and bold, proactive actions, not solely as means but as ongoing imperatives.
  • OPEN ACCESS
    Community-based Indigenous knowledge
    FACETS • Vol. 6 • pp. 837 - 838
  • OPEN ACCESS
    “Reconciliation” in undergraduate education in Canada: the application of Indigenous knowledge in conservation
    FACETS • Vol. 6 • pp. 665 - 685
    Both the Truth and Reconciliation Commission (TRC) and the National Inquiry into Missing and Murdered Indigenous Women and Girls (MMIWG) explicitly emphasized the role of educators in “reconciliation.” Alongside this, conservation practitioners are increasingly interacting with Indigenous Peoples in various ways, such as in the creation and support of Indigenous protected areas and (or) guardian programs. This paper considers how faculty teaching aspiring conservation practitioners can respond appropriately to the TRC and MMIWG Inquiry while preparing students to engage with Indigenous Peoples in a way that affirms, rather than questions Indigenous knowledge and aspirations. Our argument is threefold: first, teaching Indigenous content requires an approach grounded in transformational change, not one focused on an “add Indigenous and stir” pedagogy. Second, we assert that students need to know how to ethically engage with Indigenous Peoples more than they need knowledge of discreet facts. Finally, efforts to “Indigenize” the academy requires an emphasis on anti-racism, humility, reciprocity, and a willingness to confront ongoing colonialism and white supremacy. This paper thus focuses on the broad change that must occur within universities to adequately prepare students to build and maintain reconciliatory relationships with Indigenous Peoples.
  • OPEN ACCESS
    Free Fallin’? The decline in evidence-based decision-making by Canada’s protected areas managers
    FACETS • Vol. 6 • pp. 640 - 664
    The conservation of biodiversity requires various forms of evidence to ensure effective outcomes. In this study, we provide an updated assessment of the state of evidence-based decision-making in Canada’s protected areas organizations by examining practitioner perceptions of: (i) the value and use of various forms of evidence, (ii) the availability of evidence to support decisions, and (iii) the extent to which various institutional and behavioural barriers influence the use of evidence. Our results compare national surveys conducted in 2019 and 2013, revealing a significant and concerning decline in the use of all forms of evidence. We found significant declines in the use of peer-reviewed literature, local knowledge, and Indigenous knowledge. Our results correspondingly demonstrate a host of systemic barriers to the effective use of evidence, including a lack of trust, how to deal with uncertainty, and limited training. These challenges persist at a time when the quantity of information is greater than ever, and recognition of the value of Indigenous knowledge is relatively high (and increasing). Leadership is required to cultivate more relevant evidence, to embed scientists and Indigenous Knowledge-Holders in conservation organizations, to (re)establishing knowledge sharing forums, and to establish accountability and reporting measures to support efforts aimed at effectively achieving Canada’s biodiversity conservation goals.
  • OPEN ACCESS
    Combining high-resolution remotely sensed data with local and Indigenous Knowledge to model the landscape suitability of culturally modified trees: biocultural stewardship in Kitasoo/Xai’xais Territory
    FACETS • Vol. 6 • pp. 465 - 489
    Environmental management and monitoring must reconcile social and cultural objectives with biodiversity stewardship to overcome political barriers to conservation. Suitability modelling offers a powerful tool for such “biocultural” approaches, but examples remain rare. Led by the Stewardship Authority of the Kitasoo/Xai’xais First Nation in coastal British Columbia, Canada, we developed a locally informed suitability model for a key biocultural indicator, culturally modified trees (CMTs). CMTs are trees bearing evidence of past cultural use that are valued as tangible markers of Indigenous heritage and protected under provincial law. Using a spatial multi-criteria evaluation framework to predict CMT suitability, we developed two cultural predictor variables informed by Kitasoo/Xai’xais cultural expertise and ethnographic data in addition to six biophysical variables derived from LiDAR and photo interpretation data. Both cultural predictor variables were highly influential in our model, revealing that proximity to known habitation sites and accessibility to harvesters (by canoe and foot) more strongly influenced suitability for CMTs compared with site-level conditions. Applying our model to commercial forestry governance, we found that high CMT suitability areas are 51% greater inside the timber harvesting land base than outside. This work highlights how locally led suitability modelling can improve the social and evidentiary dimensions of environmental management.
  • OPEN ACCESS
    Perspectives from landscape ecology can improve environmental impact assessment
    FACETS • Vol. 6 • pp. 358 - 378
    The outcomes of environmental impact assessment (EIA) influence millions of hectares of land and can be a contentious process. A vital aspect of an EIA process is consideration of the accumulation of impacts from multiple activities and stressors through a cumulative effects assessment (CEA). An opportunity exists to improve the rigor and utility of CEA and EIA by incorporating core scientific principles of landscape ecology into EIA. With examples from a Canadian context, we explore realistic hypothetical situations demonstrating how integration of core scientific principles could impact EIA outcomes. First, we demonstrate how changing the spatial extent of EIA boundaries can misrepresent cumulative impacts via the exclusion or inclusion of surrounding natural resource development projects. Second, we use network analysis to show how even a seemingly small, localized development project can disrupt regional habitat connectivity. Lastly, we explore the benefits of using long-term historical remote sensing products. Because these approaches are straightforward to implement using publicly available data, they provide sensible opportunities to improve EIA and enhance the monitoring of natural resource development activities in Canada and elsewhere.
  • OPEN ACCESS
    Grizzly and polar bears as nonconsumptive cultural keystone species
    FACETS • Vol. 6 • pp. 379 - 393
    Grizzly bears and polar bears often serve as ecological “flagship species” in conservation efforts, but although consumptively used in some areas and cultures they can also be important cultural keystone species even where not hunted. We extend the application of established criteria for defining cultural keystone species to also encompass species with which cultures have a primarily nonconsumptive relationship but that are nonetheless disproportionately important to well-being and identity. Grizzly bears in coastal British Columbia are closely linked to many Indigenous Peoples (including the Haíɫzaqv (Heiltsuk), Kitasoo/Xai’xais, and Nuxalk First Nations), where they are central to the identity, culture, and livelihoods of individuals, families, Chiefs, and Nations. Polar bears in Churchill, Manitoba, provide another example as a cultural keystone species for a mixed Indigenous and non-Indigenous community in which many of the livelihood benefits from the species are mediated by economic transactions in a globalized tourism market. We discuss context specificity and questions of equity in sharing of benefits from cultural keystone species. Our expanded definition of cultural keystone species gives broader recognition of the beyond-ecological importance of these species to Indigenous Peoples, which highlights the societal and ecological importance of Indigenous sovereignty and could facilitate the increased cross-cultural understanding critical to reconciliation.
  • OPEN ACCESS
    Understanding and avoiding misplaced efforts in conservation
    FACETS • Vol. 6 • pp. 252 - 271
    Conservation relies on cooperation among different interest groups and appropriate use of evidence to make decisions that benefit people and biodiversity. However, misplaced conservation occurs when cooperation and evidence are impeded by polarization and misinformation. This impedance influences actions that directly harm biodiversity, alienate partners and disrupt partnerships, waste resources, misinform the public, and (or) delegitimize evidence. As a result of these actions, misplaced conservation outcomes emerge, making it more difficult to have positive outcomes for biodiversity. Here we describe cases where a failed appreciation for cooperation, evidence, or both have eroded efforts to conserve biodiversity. Generally, these case studies illustrate that averting misplaced conservation requires greater adherence to processes that elevate the role of evidence in decision-making and that place collective, long-term benefits for biodiversity over the short-term gains of individuals or groups. Efforts to integrate human dimensions, cooperation, and evidence into conservation will increase the efficacy and success of efforts to conserve global biodiversity while benefiting humanity.
  • OPEN ACCESS
    Mobilizing values: using perceptions of barachois ponds in Nova Scotia to advance informed management
    FACETS • Vol. 6 • pp. 215 - 239
    Meaningful engagement is increasingly used as a management tool for understanding the multitude of complex values and potential conflicts around marine conservation and the production of conservation strategies deemed acceptable by local communities. Barachois ponds, akin to coastal lagoons, are recognized coastal wetlands in Nova Scotia, Canada, given their distinct ecosystem services, including provisioning, regulating, and cultural services. This study examines the current discourses around the management of barachois ponds and how an increased understanding of these perceptions held by stakeholders and managers might be used to better inform integrated management of these wetland ecosystems. A mixed-methods research design using Q methodology was employed to acquire data on social perceptions surrounding the management of barachois ponds fringing the Bras d’Or Lake in Cape Breton, Nova Scotia, Canada. Four dominant perspectives were identified: the leave-them-be conservationists, the sustainable developers, the management reformists, and the science-based conservationists. Six key issue themes emerged based on an in-depth examination of these different perspectives and Q sort data. This study found that an increased awareness of the ecological, social, and cultural values attributed to barachois ponds by key stakeholders could play a critical role in better informing wetland management decision-making in Nova Scotia and elsewhere.
  • OPEN ACCESS
    The tragedy of conservation
    FACETS • Vol. 6 • pp. 195 - 214
    A central contention of this paper is that conservation strategies are failing because they have become increasingly integrated into, and share the assumptions of, the structures of capitalism. As a result, conservation is becoming a strategic specialty within capitalism, rather than an ethical challenge to its basic assumptions. The paper examines this integration by analysing the way Hardin’s argument in the “tragedy of the commons” metaphor was taken up by policy makers in Canada’s East Coast fishery and a case is made that, as seen in the case of the fishery, this strategic integration limited the analytical capability of conservation to highlight the causes of environmental degradation. The critical literature on Hardin’s model points to the failure to recognize the importance of social relations and local institutional arrangements in combatting environmental failure. This paper contributes to the importance of “the social” in conservation debates by emphasizing Polanyi’s contrasting definitions of formal and substantive economics and the way they relate to contrasting conceptions of tragedy, as set out by Hardin (formal tragedy from above) and Goldmann’s conception of a historically specific tragedy that can be described as substantive tragedy from below. The analytical failure associated with Hardin’s metaphor can serve as a cautionary tale for current strategic and specific conservation strategies that tend to downplay the importance of ethical and social issues.
  • OPEN ACCESS
    “Borders don’t protect areas, people do”: insights from the development of an Indigenous Protected and Conserved Area in Kitasoo/Xai’xais Nation Territory
    FACETS • Vol. 5 • No. 1 • pp. 922 - 941
    Indigenous Protected and Conserved Areas (IPCAs) have gained global attention because of renewed interest in protecting biodiversity during a time of Indigenous resurgence. However, few examples in academic literature illustrate Indigenous Peoples’ rationale and processes for developing IPCAs. This paper fills that gap, describing a participatory action research collaboration with the Kitasoo/Xai’xais Nation. We used document analysis, interviews, and community engagement to summarize the Nation’s perspectives while assisting Kitasoo/Xai’xais efforts to develop a land-and-sea IPCA. IPCAs are a tool for the Nation to address ongoing limitations of state protected area governance and management, to better reflect the Nation’s Indigenous rights and responsibilities, and to preserve cultural heritage and biological diversity while fostering sustainable economic opportunities. The Kitasoo/Xai’xais process benefits from research on other IPCAs, includes intergenerational community engagement, and is rooted in long-term territory planning and stewardship capacity building. The Kitasoo/Xai’xais IPCA faces challenges similar to other protected areas but is influenced by ongoing impacts of settler-colonialism. The Kitasoo/Xai’xais Nation applies Indigenous and western approaches along with responsibility-based partnerships to address many anticipated challenges. Our case study demonstrates that more efforts are needed by state and other actors to reduce burdening Indigenous Nations’ protected area governance and management and to create meaningful external support for Indigenous-led conservation.

Curators

Andrea Olive
Guest Editor
University of Toronto
Karen Beazley
Guest Editor
Dalhousie University