Source: http://canadagazette.gc.ca/rp-pr/p2/2017/2017-02-22/html/sor-dors10-eng.html
Timestamp: 2018-01-16 15:17:30
Document Index: 315150387

Matched Legal Cases: ['art 2', 'art 3', 'art 3', 'art 3', 'art 3', 'art 3', 'art 4', 'art 4', 'art 4', 'art 4', 'art 4', 'art 4', 'art 4']

Registration SOR/2017-10 February 3, 2017
P.C. 2017-80 February 3, 2017
1 Part 2 of Schedule 1 to the Species at Risk Act (see footnote 1) is amended by striking out the following under the heading “Birds”:
﻿7 Part 3 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Birds”:
8Part 3 of Schedule 1 to the Act is amended by striking out the following under the heading “Arthropods”:
9Part 3 of Schedule 1 to the Act is amended by striking out the following under the heading “Plants”:
10Part 3 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Plants”:
11Part 3 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Lichens”:
12Part 4 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Mammals”:
13Part 4 of Schedule 1 to the Act is amended by striking out the following under the heading “Birds”:
14Part 4 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Birds”:
15Part 4 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Molluscs”:
16Part 4 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Arthropods”:
17Part 4 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Plants”:
18Part 4 of Schedule 1 to the Act is amended by adding the following in alphabetical order under the heading “Lichens”:
19This Order comes into force on the day on which it is registered.
Biodiversity is rapidly declining worldwide as species become extinct. (see footnote 2) Today’s extinction rate is estimated to be between 1 000 and 10 000 times higher than the natural rate. (see footnote 3) Biodiversity is positively related to ecosystem productivity, health and resiliency (see footnote 4) (i.e. the ability of an ecosystem to respond to changes or disturbances), and, given the interdependency of species, a loss of biodiversity can lead to decreases in ecosystem function and services (e.g. natural processes such as pest control, pollination, coastal wave attenuation, temperature regulation and carbon fixing). These services are important to the health of Canadians, and also have important ties to Canada’s economy. Small changes within an ecosystem can lead to a loss of individuals and species resulting in adverse, irreversible and broad-ranging effects.
The Committee on the Status of Endangered Wildlife in Canada (COSEWIC), a non-government, independent body of scientific experts, has assessed the following 18 species:
Pursuant to section 27 of the Species at Risk Act (SARA or the Act), the Governor in Council (GIC) (see footnote 5) is making the Order Amending Schedule 1 of the Species at Risk Act to add or reclassify these species to Schedule 1 of SARA.
Canada’s natural heritage is an integral part of its national identity and history. Wildlife is valued by Canadians for aesthetic, cultural, spiritual, recreational, educational, historical, subsistence, medical, ecological, economic and scientific reasons. Canadian wildlife species and ecosystems are also part of the world’s heritage. (see footnote 6) Part of the Department of the Environment’s mandate is to preserve and enhance the quality of the natural environment, including flora and fauna. Although the responsibility for the conservation of wildlife in Canada is shared among governments, the Department of the Environment plays a leadership role as federal regulator in order to prevent terrestrial species (see footnote 7) from becoming extinct (see footnote 8) or extirpated (see footnote 9) from Canada. The Parks Canada Agency contributes to the protection and conservation of these species within its network of protected heritage places, (see footnote 10) including national parks and national marine conservation areas.
The primary federal legislative mechanism for delivering on this strategy is SARA. The purposes of SARA are to prevent wildlife species from becoming extirpated from Canada or extinct, to provide for recovery of wildlife species that are listed as extirpated, endangered or threatened and to manage species of special concern to prevent them from becoming endangered or threatened. At the time of proclamation in 2003, the official list of wildlife species at risk (Schedule 1 of SARA) included 233 species. Since then, the list was amended on a number of occasions to add, remove or reclassify species. There are currently 521 species listed on Schedule 1, which classifies those species as being extirpated, endangered, threatened, or of special concern.
With the proclamation of SARA in 2003, the Act established COSEWIC (see footnote 11) as the body responsible for providing the Minister of the Environment with assessments of the status of Canadian wildlife species that are potentially at risk of disappearing from Canada. The assessments are carried out in accordance with section 15 of SARA which, among other provisions, requires COSEWIC to determine the status of species it considers and identify existing and potential threats. COSEWIC meets twice annually to review information collected on wildlife species and assigns each wildlife species to one of the seven following categories: extinct, extirpated, endangered, threatened, special concern, data deficient, or not at risk. (see footnote 12)
Special concern SARA’s general prohibitions do not apply. SARA’s residence protection does not apply. SARA’s general prohibitions are not applicable (SARA’s general prohibitions and critical habitat protection do not apply for species of special concern).
Threatened, endangered (see footnote 13) and extirpated Protection for individuals of the species against being killed, harmed, harassed, captured or taken. Prohibition against the possession, collection, buying and selling or trading of an individual of the species or any part or derivative of this individual. It is an offence to damage or destroy the residence of one or more individuals of the species. Protections for migratory birds apply everywhere in Canada. Protections for aquatic species apply everywhere in Canada. In the provinces, general prohibitions and residence protection apply only on federal lands. In the territories, general prohibitions and residence protection apply only on federal lands under the authority of the Minister of the Environment or the Parks Canada Agency.
On non-federal lands, listed species that are not an aquatic species or a migratory bird protected by the Migratory Birds Convention Act, 1994 can only be protected under SARA by an order made by the Governor in Council, on the recommendation of the Minister of the Environment. (see footnote 14) The Minister of the Environment must recommend that such an order be made if the Minister is of the opinion that the laws of the province or territory do not effectively protect the species or the residences of its individuals.
A person wishing to engage in an activity that could contravene one or more of the general prohibitions may apply to the competent minister (see footnote 15) for a permit under section 73 of the Act. A permit may be issued if the Minister is of the opinion that the activity meets one of these three purposes:
Additionally, the permit may only be issued if the competent minister is of the opinion that the following three preconditions are met:
Listing a species under an endangered, threatened or extirpated status triggers mandatory recovery planning, by the competent minister, in order to address threats to the survival or recovery of these listed species. For special concern species, a management plan must be developed within three years of listing.
SARA states that a proposed recovery strategy must be posted on the SAR Registry
the identification of critical habitat (i.e. the habitat necessary for a listed wildlife species’ recovery or survival) and activities likely to result in its destruction or a schedule of studies required for the identification of critical habitat;
It may not always be possible to identify critical habitat in a recovery strategy or action plan. In these cases, a schedule of studies outlining the activities required to obtain the information necessary to complete the identification of critical habitat will be included in the recovery strategy or action plan.
The critical habitat of a species listed as endangered, threatened or extirpated must be protected once it is identified in the final recovery strategy or action plan. Requirements under SARA for the protection of critical habitat depend on whether the species are aquatic, migratory birds protected under the Migratory Birds Convention Act, 1994 (MBCA) or other species, as well as whether these species are found on federal lands, in the exclusive economic zone, on the continental shelf of Canada or elsewhere in Canada.
When critical habitat or portions of critical habitat have been identified on federal lands, in the exclusive economic zone of Canada or on the continental shelf of Canada, SARA requires that it be legally protected within 180 days. Protection can be achieved through other Acts of Parliament or provisions under SARA, including conservation agreements under section 11 of the Act.
If critical habitat or any portion of that habitat is not in a national park described in Schedule 1 of the Canada National Parks Act (CNPA), in the Rouge Urban Park established by the Rouge National Urban Park Act, in a marine protected area under the Oceans Act, in a migratory bird sanctuary under the MBCA or in a national wildlife area under the Canada Wildlife Act, under subsection 58(5) of SARA, the competent minister must, within 180 days following the identification of this habitat in a final posted recovery strategy or action plan either make a ministerial order to apply subsection 58(1) of SARA, prohibiting the destruction of this critical habitat, or publish on the SAR Public Registry a statement explaining how the critical habitat (or portions of it) is protected under another Act of Parliament.
If critical habitat is located in a migratory bird sanctuary (MBS) under the MBCA, in a national park described in Schedule 1 of the Canada National Parks Act (CNPA), in the Rouge National Urban Park established by the Rouge National Urban Park Act, in a marine protected area under the Oceans Act, or in a national wildlife area under the Canada Wildlife Act, the competent minister must publish a description of that critical habitat in the Canada Gazette within 90 days of the date that the critical habitat was identified in a final recovery strategy or action plan. Ninety days after this description of critical habitat is published in the Canada Gazette, the critical habitat protections under subsection 58(1) of SARA (i.e. prohibiting the destruction of critical habitat) come into effect automatically, and critical habitat located in the federally protected area is legally protected under SARA.
For portions of critical habitat on non-federal lands, SARA allows for the protection of the critical habitat by the responsible management authority (e.g. provinces, territories or other stakeholders). In cases where the Minister of the Environment determines that critical habitat on non-federal lands is not effectively protected by the laws of a province or territory, by another measure under this Act (such as section 11 agreements) or through any other federal legislation, the Governor in Council, on the recommendation of the Minister, may issue an order to prohibit the destruction of that critical habitat. Before making this recommendation, the Minister must consult with the appropriate provincial or territorial minister. In all cases, the Governor in Council makes the final decision whether to proceed with the order to protect the critical habitat in question. (see footnote 16)
The addition of a species as special concern to Schedule 1 of SARA serves as an early indication that the species requires attention. Triggering the development of a management plan at this stage enables the species to be managed proactively, maximizes the probability of success, and is expected to avoid higher-cost measures in the future.
The management plan includes conservation measures deemed appropriate to preserve the wildlife species and avoid a decline of its population. It is developed in cooperation with the relevant provincial and territorial governments, other federal government departments, wildlife management boards, Indigenous peoples and organizations and any appropriate stakeholders, and must be posted within three years of listing.
The objective of the Order Amending Schedule 1 to the Species at Risk Act (the Order) is to help maintain Canada’s biodiversity and the well-being of Canadian ecosystems by preventing wildlife species from becoming extirpated from Canada or extinct, and by contributing to their recovery.
The Order adds 11 terrestrial species to Schedule 1 of SARA and reclassifies 7 currently listed species, as shown in Tables 2 and 3 below. These species were grouped together because they are found primarily in the same geographical area, namely in British Columbia, Alberta, Saskatchewan, Manitoba, the Yukon and the Northwest Territories. Two species are also found in Ontario and Nunavut, and one is found in Quebec.
The Order also introduces taxonomic changes to five wildlife species, to reflect modifications made by COSEWIC. These changes can be found in Table 4 below.
A description of each species, their ranges and threats is found in Annex 1. Additional information on these species can also be found in the COSEWIC status reports. (see footnote 17)
Table 2: Addition of 11 wildlife species to Schedule 1 of SARA
Clubtail, Olive Stylurus olivaceus None Endangered BC
Efferia, Okanagan Efferia okanagana None Endangered BC
Tachinid Fly, Dune Germaria angustata None Special concern YK
Grebe, Horned (Western population) Podiceps auritus None Special concern YK, NT, NU, BC, AB, SK, MB, ON
Sandpiper, Buff-breasted Tryngites subruficollis None Special concern YK, NT, NU, BC, AB, SK, MB, ON, QC
Sparrow, Baird’s Ammodramus bairdii None Special concern AB, SK, MB
Lichen, Batwing Vinyl Leptogium platynum None Endangered BC
Lichen, Crumpled Tarpaper Collema coniophilum None Threatened BC
Lichen, Peacock Vinyl Leptogium polycarpum None Special concern BC
Pika, Collared Ochotona collaris None Special concern YK, NT, BC
Mantleslug, Magnum Magnipelta mycophaga None Special concern BC
Table 3: Reclassification of 7 wildlife species to Schedule 1 of SARA
Hairstreak, Behr’s Satyrium behrii Threatened Endangered BC
Screech-owl macfarlanei subspecies, Western Megascops kennicottii macfarlanei Endangered Threatened BC
Screech-owl kennicottii subspecies, Western Megascops kennicottii kennicottii Special concern Threatened BC
Cryptantha, Tiny Cryptantha minima Endangered Threatened AB, SK
Buffalograss Bouteloua dactyloides Threatened Special concern SK, MB
Lily, Lyall’s Mariposa Calochortus lyallii Threatened Special concern BC
Prairie-clover, Hairy Dalea villosa Threatened Special concern SK, MB
The quantitative and qualitative incremental impacts (costs and benefits) of the Order were analyzed. Incremental impacts are defined as the differences between the baseline scenario and the policy scenario. The baseline scenario refers to the current situation (i.e. the current ongoing activities on federal lands where a species is found) and incorporates any projected changes over the next 10 years (2016–2025) that will occur without the Order in place. The policy scenario refers to the situation in which the Order is implemented over the same period. An analytical period of 10 years (2016–2025) was selected, as the status of the species must be reassessed by COSEWIC every 10 years. (see footnote 18) Costs provided in present value terms are discounted at 3% over the period of 2016–2025.
The analysis presents how listing triggers beneficial recovery planning and additional protection, which will support the recovery and survival of the species. It is also important to note that preventing the extirpation of a given species contributes to overall biodiversity in Canada. More diverse ecosystems are generally more stable and less subject to be disrupted; thus, the benefits (goods and services) they provide are also more stable over time. (see footnote 19)
• As indicated above, if critical habitat is identified on federal land, protection must be afforded either by ensuring that the critical habitat is protected under existing federal laws including conservation agreements under section 11 or, if it is not already protected under federal laws, by issuing a ministerial order to prohibit the destruction of critical habitat. Since critical habitat is only identified in a recovery strategy or action plan following the listing stage, the extent of critical habitat identification is unknown. Thus, the need for, and the form of, future measures on federal lands are not known at the time of the listing. Hence, the analysis of potential changes to critical habitat protections resulting from this Order is illustrative, based upon best available information.
• It is important to note a characteristic of critical habitat on non-federal lands. As noted above, if any future critical habitat identified on non-federal lands is determined by the Minister to be insufficiently protected, a decision to issue an order to protect that critical habitat will be made by the Governor in Council. Therefore, the potential for critical habitat protection on non-federal lands is not considered an incremental impact of the Order.
Environment Canada conducted a preliminary assessment of impacts of listing or reclassifying the 18 species. This preliminary assessment indicated that the cost impacts of the Order will be low, given that each species falls within one of four categories associated with minimal impacts on stakeholders, as described below.
• General prohibitions will not apply and critical habitat is not required to be identified or protected, minimizing impacts on Indigenous peoples or stakeholders.
• Species falling into this category are the following: Baird’s Sparrow, Buff-breasted Sandpiper, Buffalograss, Collared Pika, Dune Tachinid Fly, Hairy Prairie-Clover, Horned Grebe (Western Population), Lyall’s Mariposa Lily, Magnum Mantleslug and Peacock Vinyl Lichen.
• General prohibitions and the requirements to identify critical habitat will not change, so no new obligations will accrue to stakeholders or Indigenous peoples.
• Species falling into this category are the following: Behr’s Hairstreak, Tiny Cryptantha and Western Screech-owl (macfarlanei subspecies).
(3)	Listing of species that are not found on federal lands (3 species):
• General prohibitions will not be triggered automatically and critical habitat is unlikely to be identified on federal lands. The recovery planning process will be initiated, but no incremental impacts on Indigenous peoples or stakeholders are expected in the absence of subsequent Governor in Council decisions.
• Species falling into this category are the following: Batwing Vinyl Lichen, Crumpled Tarpaper Lichen and Olive Clubtail.
• Additional obligations to Indigenous peoples and/or stakeholders due to general prohibitions and critical habitat protection is expected to be minimal given the limited extent of current activities in the areas of species occurrence as well as protection measures already in place.
• Species falling into this category are the following: Okanagan Efferia and Western Screech-owl kennicottii subspecies.
2	Incremental impacts of the Order
The incremental impacts of the Order are described below by category.
Costs arising from the enforcement activities associated with the listing recommendations under the Order are anticipated to be low. This is due to a combination of factors, including that the general prohibitions will not be triggered for many of the species (i.e. special concern species or species that are not found on federal lands), many species have limited distributions on federal lands, and some species already benefit from different levels of protection under different statutes such as the Wildlife Area Regulations (WAR), made under the Canada Wildlife Act (CWA). As a result, costs for compliance promotion and enforcement are estimated to be approximately $47,500 (present value) over 10 years, which have been included in the total cost estimate above. These costs will cover routine patrols and are based on the protection of individuals and their residences and will increase significantly if critical habitat is identified on federal lands.
Generally speaking, there could also be some implications for projects (see footnote 20) required to undergo an environmental assessment by or under an Act of Parliament (hereafter referred to as “federal EA”). Once a species is listed in Schedule 1 of SARA, under any designation, additional requirements under section 79 of SARA are triggered for project proponents and government officials undertaking a federal EA. These requirements are as follows: to notify the competent minister if a listed wildlife species or its critical habitat is likely to be affected by the project; to identify all the adverse effects that the project could have on the species and its critical habitat; and, if the project is carried out, to ensure that measures are taken to avoid or lessen those effects and to monitor them. Thus, there could be costs to proponents arising from the need to consider any of the 11 newly listed species as part of a federal EA if found in the relevant area (e.g. development of a mine, pipeline, waste management facility, electrical transmission line, industrial facility). However, any such costs are expected to be minimal relative to the total costs of performing a federal EA. Given this, quantifying these potential costs was not possible.
(a)	Baird’s Sparrow (new listing);
(b)	Buff-breasted Sandpiper (new listing);
(c)	Collared Pika (new listing);
(d)	Dune Tachinid Fly (new listing);
(e)	Horned Grebe (Western population) [new listing];
(f)	Magnum Mantleslug (new listing);
(g)	Peacock Vinyl Lichen (new listing);
(h)	Buffalograss (down-listing from threatened to special concern);
(i)	Hairy Prairie-clover (down-listing from threatened to special concern); and
(j)	Lyall’s Mariposa Lily (down-listing from threatened to special concern).
2.1.1	Description of incremental change due to the Order
A special concern listing in Schedule 1 of SARA will require the preparation and publication of a management plan within three years of the listing. The plan will include conservation measures deemed appropriate to preserve the wildlife species. It will be developed in collaboration with the relevant provincial/territorial governments, other federal governments, wildlife management boards, Indigenous peoples and any appropriate stakeholders.
A special concern designation will not trigger SARA’s general prohibitions, critical habitat identification or the development of recovery strategies or action plans.
The only cost to Government will be for the development of management plans, expected to be approximately $10,000 per species, for a total of $100,000 for all species in this group.
The addition of a species as special concern to Schedule 1 of SARA will serve as an early indication that the species requires attention. Triggering the development of a management plan at this stage will enable the species to be managed proactively, maximize the probability of recovery success, and could be expected to avoid higher-cost measures in the future.
The addition of the Horned Grebe and Buff-breasted Sandpiper as special concern species under SARA will complement the protections they already receive from the Migratory Birds Convention Act, 1994 (MBCA) [i.e. protection of the individuals, populations and their nests] by requiring the development of a management plan.
Buffalograss, Lyall’s Mariposa Lily and Hairy Prairie-clover will be down-listed from threatened to special concern. An incremental benefit of the down-listing will be that management efforts for the species will reflect the best available scientific information, as provided by COSEWIC, in order to ensure that the species are protected according to the purposes of SARA while minimizing impacts on stakeholders and resources. Since SARA’s general prohibitions will no longer apply, there could be avoided costs to stakeholders of mitigating their practices to respect the prohibitions. In previous years, only three SARA permits have been issued to researchers from non-governmental organizations for scientific research affecting Hairy Prairie-clover. Should this species be down-listed, researchers will no longer need to apply for a SARA permit, and this administrative burden will be removed. This avoided cost to businesses has not been quantified.
(a)	Behr’s Hairstreak (threatened to endangered);
(b)	Tiny Cryptantha (endangered to threatened); and
(c)	Western Screech-owl (macfarlanei subspecies) [endangered to threatened].
2.2.1	Description of incremental change due to the Order
The designations of threatened and endangered in Schedule 1 of SARA offer identical protections (i.e. general prohibitions applicable on federal lands) and have identical requirements (i.e. critical habitat identification, development of recovery strategies and action plans, and consideration in federal environmental assessments), although the timelines differ depending on the status. Therefore, any species listing that involves a reclassification within these two designations will not result in major changes to the level of government activity or impacts on Indigenous peoples or stakeholders.
Recovery strategies and action plans for these species will need to be updated and posted on the SAR Registry. However, the cost of updating these recovery strategies will be less than the development of new recovery strategies. SARA enables a multi-species approach to the development of recovery strategies and management plans. Therefore, it is likely that Western Screech-owl kennicottii subspecies will be combined with Western Screech-owl macfarlanei subspecies when developing recovery documents, resulting in one comprehensive document. This cost is therefore only being counted once (see estimates for Western Screech-owl kennicottii subspecies in section 2.4.2). The government cost of updating recovery strategies and action plans for the two remaining species in this group is estimated to be $40,000.
The primary benefit of the reclassification is that the designation will be consistent with the latest available scientific information, as provided by COSEWIC, thus allowing for better decision-making regarding the species in terms of its conservation prioritization. For Behr’s Hairstreak, which is recommended for up-listing from threatened to endangered, this will also provide national recognition that this species is facing imminent extirpation or extinction.
As shown in Table 2, the following species were assessed by COSEWIC as threatened or endangered and were previously not listed in Schedule 1 of SARA. At this time, there are no known occurrences of these species on federal lands.
(a)	Batwing Vinyl Lichen (new listing as endangered);
(b)	Crumpled Tarpaper Lichen (new listing as threatened); and
(c)	Olive Clubtail (new listing as endangered).
2.3.1	Description of incremental change due to the Order
In the case of the three species in this category, given that no populations have been identified on federal lands, the general prohibitions are not automatically triggered. Thus, no incremental impacts on Indigenous peoples or stakeholders are initially expected. This also implies that no critical habitat will likely be identified on federal lands in the future, limiting the possibility for a ministerial critical habitat protection order.
The key benefit of the listing of these species is that recovery strategy and action plan development will be triggered. These documents will enable coordinated action by responsible land management authorities wherever the species are found in Canada. Improved coordination among authorities will increase the likelihood of species survival. This process will also provide an opportunity to consider the impact of measures to recover the species and to consult with Indigenous peoples and stakeholders.
2.4 Category 4: Species that are known to be found on one or few federal lands
(a)	Okanagan Efferia (new listing as endangered); and
(b)	Western Screech-owl (kennicottii subspecies) [up-listing from special concern to threatened].
2.4.1 Description of incremental change due to the Order
The only known occurrence of Okanagan Efferia on federal land is within Vaseux Bighorn National Wildlife Area. Although the SARA general prohibitions will apply in the National Wildlife Area (NWA) upon listing, the Canada Wildlife Act and its associated Wildlife Area Regulations (WAR) already afford certain protections in NWAs by prohibiting hunting, possession, damage, destruction or molestation of species, eggs and nests. (see footnote 21) Therefore, in most cases, the SARA general prohibitions will not result in incremental changes within the NWA.
In terms of any incremental change due to potential critical habitat protection, the only plant correlated with this fly’s occurrence grows on gravelly or sandy loam soils and this habitat within the NWA is expected to be protected by the WAR prohibition against “disturbing or removing any soil, sand, gravel or other material.” A person wishing to perform this activity already requires a permit under the WAR, and a separate permit under SARA will not be required. If critical habitat for this species is identified in the NWA following its listing, the incremental change due to the Order will likely be small. Any small incremental changes related to both types of permits described above will mainly affect researchers, who are typically well versed in the Department of the Environment’s permitting requirements.
On federal lands, the only known occurrence of Western Screech-owl kennicottii subspecies is on Parks Canada land within the Pacific Rim National Park Reserve. The National Parks Wildlife Regulations (NPWR), under the Canada National Parks Act (CNPA), prohibit the hunting, disturbing, holding in captivity or destroying of any wildlife within, or removing any wildlife from, a park except in accordance with a permit. In addition, nests are protected where they exist on Parks Canada lands. These protections are similar to those afforded by SARA general prohibitions. Furthermore, section 74 of SARA allows for permits issued under other Acts of Parliament to have the same effect as a permit issued under subsection 73(1) of SARA under certain conditions. Therefore, on Parks Canada lands, there will be no significant incremental changes in terms of immediate protections afforded to the Western Screech-owl kennicottii subspecies by the SARA general prohibitions upon listing of the species.
Although critical habitat identification and activities likely to destroy critical habitat are not known at the time of listing, the CNPA and the National Parks General Regulations (NPGR) prohibitions are also likely to provide some level of protection to Western Screech-owl kennicottii subspecies critical habitat. Subsection 8(2) of the CNPA states that maintenance or restoration of ecological integrity, (see footnote 22) through the protection of natural resources and natural processes, shall be the priority when considering all aspects of the management of parks, and a permit is required for the disturbance or destruction of flora or natural objects. The NPGR prohibit the removing, defacing, damaging or destruction of any flora and natural objects. The incremental impacts of critical habitat protection, if it were to be identified on the National Park Reserve, will therefore be minimal. There are no anticipated incremental impacts or costs to businesses since there are no businesses performing activities on this Parks Canada property that are likely to affect the species.
2.4.2 Incremental costs
Both Okanagan Efferia and Western Screech-owl kennicottii subspecies are already protected to some degree wherever they are known to exist on federal lands. Activities that are likely to affect individuals, and in the case of Okanagan Efferia, its habitat, already require a permit under other pieces of federal legislation. There could be small incremental costs to stakeholders applying for permits related to additional information they will have to provide to comply with SARA permitting requirements.
Recovery plan and action plan development is estimated to cost the Government $40,000 to $50,000 for the Okanagan Efferia. As noted in section 2.2.2, document updates for the Western Screech-owl kennicottii will likely be combined with those for the Western Screech-owl macfarlanei, for a total cost of $20,000. Western Screech-owl kennicottii subspecies has a published provincial recovery strategy, which will likely reduce the cost of developing a federal recovery strategy.
2.4.3 Incremental benefits
As noted in section 2.3.3, the key benefit of the listing of these species will be that recovery strategy and action plan development will be triggered, enabling coordinated action by the responsible land management authorities wherever the species are found in Canada and, ultimately, increasing the likelihood of species survival.
3	Summary of benefits and costs
This Order is expected to have moderate benefits to the environment and to society and culture. Threatened and endangered species will be protected on federal land through the general prohibitions of SARA, including prohibitions on killing, harming, harassing and capturing. In addition, these species will benefit from the development of recovery strategies and action plans that identify the main threats to species survival, as well as identify, when possible, the critical habitat that is necessary for their survival and recovery in Canada. Special concern species will benefit from the development of a management plan, which will include measures for the conservation of the species. These activities may be augmented by local government actions to protect species and habitats. Protecting these species is also an integral part of maintaining biodiversity in Canada and conserving Canada’s natural heritage.
The overall costs to the Government of Canada of listing these species are anticipated to be low. Costs will arise from the development of recovery strategies, action plans or management plans that are required when a species is listed under SARA. Based on the list of species included in the Order, an overall cost to Government was estimated at $350,000 to $389,000 in present value over 10 years, and no costs will be expected for stakeholders. The extent of future critical habitat protection is undetermined at this stage, but the analysis of species occurrences relative to land tenure and current protections suggests that any associated costs are not expected to be large.
The “One-for-One” Rule does not apply because the additions to Schedule 1 of SARA will not impose new administrative costs on businesses.
The small business lens does not apply to this Order, as there is no anticipated impact on small businesses.
The Government of Canada recognizes that the conservation of wildlife is a joint responsibility and that the best way to secure the survival of species at risk and their habitats is through the active participation of all those concerned. SARA’s preamble stipulates that all Canadians have a role to play in preventing the disappearance of wildlife species from our lands. One of the ways Canadians can get involved is by sharing comments concerning the addition or reclassification of terrestrial species to Schedule 1 of SARA. Comments are considered in relation to the potential consequences of whether or not a species is included on Schedule 1, and comments received from those who will be most affected by the proposed changes are given particular attention. All comments received feed into the proposed listing recommendations from the Minister to the Governor in Council.
The Department of the Environment begins initial public consultations with the posting of the Minister’s response statements on the Species at Risk Public Registry within 90 days of receiving a copy of an assessment of the status of a wildlife species from COSEWIC. Indigenous peoples and organizations, stakeholders, and the general public are also consulted by means of a publicly posted document titled “Consultation on Amending the List of Species under the Species at Risk Act, Terrestrial Species.”
With regard to the species included in this proposed Order, the pre-consultation documents were published for comment in December 2009 for one species (Horned Grebe), in December 2011 for 6 species (see footnote 23) and in December 2012 for 11 species. (see footnote 24)
These consultation documents provided information on the species, including the reason for their designation, a biological description and location information. The documents also provided an overview of the SARA listing process. These documents were distributed directly to 2 400 recipients for the Horned Grebe consultation in 2009, and to over 3 600 recipients for the 2011 and 2012 consultations, including Indigenous peoples and organizations, wildlife management boards, (see footnote 25) provincial and territorial governments, various industrial sectors, resource users, landowners and environmental non-governmental organizations.
Pre-consultations results summary
One business opposed the listing of Western Screech-owl kennicottii subspecies because it disagrees with the COSEWIC assessment. The matter was brought to COSEWIC, which reconsidered the available information, determined that there was no new information that warranted a reassessment for the species, and confirmed the assessed status of threatened. A statement to that effect was published on the SAR Public Registry. (see footnote 26)
A municipal association expressed concerns about the implications for agricultural producers of adding more species to SARA, because many species reside on crop or pasture lands. The association indicated that maintaining native prairie habitat may create hardship for some agricultural producers, as normal agriculture activities may unintentionally threaten species at risk and their habitat. The association recommends a permanent exemption in SARA for these activities and compensation when agricultural producers remove land from agriculture production to maintain prairie habitat. The Department of the Environment notes that these hardships are not expected to materialize, because general prohibitions and residence protection under SARA will not apply to the prairie species for listing as special concern.
Another business expressed concerns about the efficiency of the SARA process after a species is listed. It asks the federal government to provide additional clarity and transparency on the development of recovery strategies, management plans and identification of critical habitat. This stakeholder was also concerned about the uncertainty this causes for business, if clarity is not provided in a timely manner. To address this concern, the Department of the Environment has recently provided additional transparency by posting the Recovery Document Posting Plan on the SARA Registry. (see footnote 27) This provides additional clarity to Canadians and Canadian businesses regarding the process and plan to prepare and share recovery documents.
A number of stakeholders raised general concerns about consultations and collaboration during recovery planning activities. The Department of the Environment is committed to a collaborative process throughout the assessment, listing and recovery planning processes. The results of the public consultations are of great significance to the process of listing species at risk. The Department of the Environment carefully reviews the comments it receives to gain a better understanding of the benefits and costs of changing the list.
Canada Gazette, Part I, consultations
The proposed Order and accompanying Regulatory Impact Analysis Statement were published in the Canada Gazette, Part I (CGI), on June 18, 2016, for a 30-day comment period. A notice of the consultation period was posted on the Public Consultations section of the SAR Public Registry and on social media via Facebook and Twitter.
A total of 22 written comments were received from six different sources during the 30-day consultation following the publication of the proposed Order in the Canada Gazette, Part I. All comments were supportive or were not opposed to adding or reclassifying the species in Schedule 1 of SARA, including those comments received from provincial, territorial, and municipal governments. Comments were also received from one First Nation, which did not oppose the listing of the species.
Detailed Canada Gazette, Part I, consultation results for all 18 species are provided in Annex 1.
Biodiversity is crucial to ecosystem productivity, health and resiliency, yet is rapidly declining worldwide as species become extinct. (see footnote 28) The Order will support the survival and recovery of 18 species at risk in Canada by affording legal protections and mandating recovery planning, thus contributing to the maintenance of biodiversity in Canada. In the case of threatened or endangered species, they will be protected on federal land through the general prohibitions of SARA, including prohibitions on killing, harming, harassing and capturing. In addition, these species will benefit from the development of recovery strategies and action plans that identify the main threats to species survival, as well as identify, when possible, the critical habitat that is necessary for their survival and recovery in Canada. Species listed as special concern will benefit from the development of a management plan, which includes measures for the conservation of the species.
The Order will help Canada meet its commitments under the Convention on Biological Diversity. A strategic environmental assessment (SEA) concluded that the Order Amending Schedule 1 to the Species at Risk Act (the Order) will result in important positive environmental effects. This Order has direct links with the Federal Sustainable Development Strategy (FSDS) [2013–2016]. Specifically, by affording protection to listed species at risk, the amendments to Schedule 1 of SARA will support Theme III, “Protecting Nature and Canadians,” of the FSDS. Under Theme III, these amendments will help meet one of the “Targets to Conserve and Restore Ecosystems, Wildlife and Habitat,” namely Target 4.1 “Species at Risk.” By 2020, populations of species at risk listed under federal law exhibit trends that are consistent with recovery strategies and management plans of Goal 4, “Conserving and Restoring Ecosystems, Wildlife and Habitat and Protecting Canadians,” and the development of a number of implementation strategies. (see footnote 29)
The overall costs to Government of listing these species are limited to government actions related to recovery and management plan development and are anticipated to be low and to be covered by existing program funding. The overall costs to businesses are also expected to be minimal.
Following the listing, the Department of the Environment and the Parks Canada Agency will implement a compliance promotion plan. Compliance promotion initiatives are proactive measures that encourage voluntary compliance with the law through education and outreach activities and raise awareness and understanding of the prohibitions. Potentially affected stakeholders will be reached to
These objectives will be accomplished through the creation and dissemination of information products explaining the new prohibitions applicable on federal lands where it relates to those 18 species, the recovery planning process that follows listing and how stakeholders can get involved, as well as general information on each of the species. These resources will be posted on the Species at Risk Public Registry, but mail-outs and presentations to targeted audiences may also be considered as appropriate.
The Permits Authorizing an Activity Affecting Listed Wildlife Species Regulations, which came into effect on June 19, 2013, impose a 90-day timeline on the Government to either issue or refuse permits under section 73 of SARA to authorize activities that may affect listed wildlife species. The 90-day timeline may not apply in certain circumstances. These Regulations contribute to consistency, predictability and transparency in the SARA permitting process by providing applicants with clear and measurable service standards. The Department of the Environment measures its service performance annually, and performance information is posted on the Department of the Environment website (see footnote 30) no later than June 1 for the preceding fiscal year.
Species at Risk Management and Regulatory Affairs Division
Five comments were received following the publication of the COSEWIC assessment and the response statement of Baird’s Sparrow. Two comments came from environmental non-governmental organizations that supported the listing as a species of special concern. An additional non-governmental organization did not indicate if they support or oppose the listing but expressed reservations and provided advice on the process of consultations for listing or recovery. A municipal association did not indicate if it supported or opposed listing, but expressed concerns that adding prairie species to the list would lead to hardship for agricultural producers who should be compensated for protecting land that they cannot use for agricultural production or obtain a permanent exception to SARA for their activities. In response, the Department of the Environment noted that listing this species would not create a burden on the agricultural community since it is being listed as a species of special concern; therefore, the general prohibitions of SARA do not apply. A forestry business did not specifically oppose listing but raised concerns about the listing process and the increase in the number of species on Schedule 1 of SARA. They are concerned that listing is not accompanied with the advancement of management or recovery strategies and that it leads to increased business uncertainty.
One comment was received following the publication of the proposed Order in CGI. The comment came from a municipal association and supported the conservation of species at risk, though the importance of sustainable economic growth and development was underlined.
Baird’s Sparrow is a migratory bird under the Migratory Birds Convention Act, 1994 (MBCA); therefore, it is already protected wherever it is found in Canada. A listing as a species of special concern under SARA does not create additional prohibitions; however, listing will complement the protection it already receives under the MBCA (i.e. protection of the individuals, its nest and its eggs) by requiring the development of a management plan that includes measures to prevent the species from becoming further at risk.
No comments were received for the Batwing Vinyl Lichen following the publication of the proposed Order in CGI.
All three Canadian locations currently known to support this species are situated in permanently designated provincial protected areas, and more than 80% of individuals occur in one location. Listing the species as endangered will complement the existing protection that the species already receives by requiring the development of a recovery strategy.
No comments specific to the Behr’s Hairstreak were received following the publication of the proposed Order in CGI.
Behr’s Hairstreak is currently listed as threatened under SARA, which provides immediate protection for individuals and their residences on federal lands, and includes provisions for the protection of critical habitat once identified in a federal recovery strategy or action plan. Reclassifying the species as endangered reflects the continuing decline of the species, but will not entail additional SARA prohibitions. The preparation of a recovery strategy will still be required.
One comment was received from a municipal association, following the publication of the proposed Order in CGI. The association supported the conservation of species at risk, though the importance of sustainable economic growth and development was underlined.
A recovery strategy has already been posted for this species when it was listed as threatened. Listing Buffalograss as a species of special concern will continue to complement the recovery efforts already provided by requiring the development of a management plan to prevent the species from becoming further at risk.
The Buff-breasted Sandpiper is a medium-size shorebird that breeds in the Arctic. As its name implies, it has a buff-coloured face and underparts, and brown to black speckling on its wings and back. It is the only North American shorebird with a lek mating system, where males congregate to display to females during courtship.
Habitat loss, fragmentation and degradation are likely the primary threats to Buff-breasted Sandpiper populations. Breeding habitat overlaps areas of mineral, coal, oil and gas development. In the rest of its migration and winter ranges, native grasslands have disappeared, and this species has switched to using human-altered habitat. The regular use of croplands by the species may thus expose it to agrochemicals, and changes to agricultural practices may decrease food availability and limit suitable habitat. Climate change may impact the Buff-breasted Sandpiper in several ways; for example, rising sea levels and increased rainfall in the winter could flood breeding coastal habitats.
Five comments supporting or not opposing the listing of the Buff-breasted Sandpiper as a species of special concern were received following the publication of the proposed Order in CGI. One Indigenous organization, one municipal association, and one territory supported the listing of this species. One Indigenous organization did not specifically support or oppose the listing, noting no interaction with the species. One territory did not specifically support or oppose listing, and agreed the listing status was consistent with their data.
Buff-breasted Sandpiper individuals and their nests are protected in Canada under the Migratory Birds Convention Act, 1994 (MBCA). A listing as a species of special concern under SARA does not create additional prohibitions; however, it will complement the development of a management plan to prevent the species from becoming further at risk.
Four comments were received following the publication of the proposed Order in CGI. All comments were in support or did not oppose listing the Collared Pika. These comments were received from a territorial government, an Indigenous organization and a First Nation. The comment which did not specifically support or oppose listing came from a territorial government citing that the information provided was consistent with their data.
The Canadian distribution of this species comprises over half its global range. The best available information indicates that the potential of negative impacts of climate change to the long-term persistence of this species is substantial. A listing as a species of special concern under SARA will provide conservation tools by requiring the development of a federal management plan that will include measures to prevent the Collared Pika from becoming further at risk. This listing will not create prohibitions on provincial or federal lands.
Land use practices leading to the loss of old growth forests will jeopardize this wildlife species by making it more vulnerable to disturbances such as wildfire, disease and insect outbreak. The species may end up confined to a small number of artificially enhanced roadside occurrences, where nutrient enriched nodes composed of calcareous road dust are created by logging activities (hauling logs to mill).
No species-specific comments were received for this species following the publication of the proposed Order in CGI.
Listing the species as threatened under SARA will contribute to the conservation efforts of the species by requiring that a recovery strategy and an action plan be developed.
Three comments were received following the publication of the proposed Order in CGI regarding the Dune Tachinid Fly, all of which supported or did not oppose listing this species. These comments were received from a territorial government and a First Nation. The comment which did not specifically support or oppose listing came from a territorial government citing that the information provided was consistent with their data.
This fly is biologically significant because it represents a group of invertebrates that are restricted to active dunes in the southern Yukon, a rare and threatened ecosystem. In North America, this species is known to be found only in Canada. A listing as a species of special concern under SARA will contribute to the conservation of the Dune Tachinid Fly in Canada by requiring the development of a federal management plan that will include measures to prevent the species from becoming further at risk, and will likely promote further research and monitoring activities. This listing does not create prohibitions under SARA.
One comment specific to the Hairy Prairie-clover was received following the publication of the proposed Order to CGI from a municipal association and supported listing the species. The association did, however, underline the importance of sustainable economic growth and development.
This plant was listed as threatened under SARA in 2003, and a recovery strategy is currently being drafted identifying critical habitat and is scheduled for posting by the Department of the Environment. With respect to federal lands, recommendations regarding Hairy Prairie-clover are listed in the Activity Set-back Distance Guidelines for Prairie Plant Species at Risk, (see footnote 31) a document providing advice to help land managers make proactive mitigation decisions about new industrial disturbances and agricultural or recreational activities on natural landscapes dominated by native vegetation where plant species at risk occur on federal lands. A larger population size is now known due to greatly increased survey effort and, as a result, the level of risk no longer qualifies the species as threatened under SARA, but as special concern. A recovery strategy is already being prepared by the Department of the Environment for this species, and these efforts will not be halted by a down-listing from a threatened to a special concern status. Listing the species as special concern will require the development of a management plan to prevent the species from becoming further at risk.
The Horned Grebe (Western population) underwent extended consultations from December 17, 2009, to March 1, 2011. Twelve comments were received for this species, all in favour of listing it as a species of special concern. Four of the 12 comments supported listing all species in the consultation but did not specifically mention the Horned Grebe. These comments were provided by two environmental non-governmental organizations, two municipalities and one individual from the general public. All other supporting comments clearly identified Horned Grebe (Western population) and were submitted by three wildlife management boards, one renewable resources council under a wildlife management board, two provincial/territorial government ministries, one environmental non-governmental organization and one municipality.
Six comments were received following the publication of the proposed Order to CGI which were specific to the Horned Grebe, all of which were in support or did not oppose listing this species. These comments were received from a territorial government, a municipal association, two Indigenous organizations, and a First Nation. One Indigenous organization did not specifically support or oppose listing, stating the species was not found in their area. One territorial government did not specifically support or oppose listing as the data provided was consistent with their own.
The Horned Grebe is a migratory bird under the Migratory Birds Convention Act, 1994 (MBCA) and is already protected wherever it is found in Canada. A listing as a species of special concern under SARA does not create additional prohibitions; however, listing will complement the protection it already receives from the MBCA (i.e. protection of the individuals, its nest and its eggs) by requiring the development of a management plan to prevent it from becoming further at risk.
Listing the species as special concern under SARA does not create prohibitions. There are currently no management plans or guidelines available for this species. A special concern status will benefit the species by requiring that a management plan be prepared to prevent the species from becoming further at risk.
The Okanagan Efferia is significant because it is one of the more obvious large invertebrates representative of the Antelope-brush ecosystem in Canada, and much of this habitat is threatened. This Canadian endemic species is known from only five locations within a very small area of southcentral British Columbia. The only known occurrence of Okanagan Efferia on federal land is within Vaseux Bighorn National Wildlife Area. A SARA listing as endangered creates protection for individuals and their residences on federal lands and will require the development of a recovery strategy and action plans.
Two comments supporting the listing of Olive Clubtail as endangered were received from a non-governmental organization and from a provincial government ministry. The non-governmental organization also suggested that enhanced watershed management and creating new protected areas will be beneficial for the Olive Clubtail.
Listing the species as endangered will require the development of a federal recovery strategy and action plans, which will help guide conservation and recovery efforts, to ensure that the species does not become extirpated from Canada.
This wildlife species may be an indicator of climate change because it is sensitive to summer drought and it relies on wind to disperse its spores for reproduction. Because of its specific reproductive traits, this species makes a unique contribution to the nitrogen balance in the ecosystem nutrient cycle and may benefit other organisms in the immediate vicinity. The Peacock Vinyl Lichen has over 30% of its global distribution in Canada and almost 1 000 individuals of this lichen are known, but confined to only 67 trees. Six of the 13 Canadian locations are in protected areas, including one national park.
Listing as a species of special concern will not create prohibitions, but will benefit the species by requiring the preparation of a management plan to prevent the species from becoming further at risk.
This plant is native to North America. Twenty-five extant populations of Tiny Cryptantha exist in Canada. There are 22 in Alberta, 2 in Saskatchewan and one straddling the Alberta-Saskatchewan border.
Identified threats include habitat loss and habitat degradation as a result of residential development and oil and gas exploration, cultivation and sand/gravel extraction. Additionally, modifications to natural processes through altered hydrogeological regimes, lack of grazing and/or fire and invasion by alien species have been identified as threats. Climate change may be beneficial to the species if its suitable habitat experiences warmer temperatures and moister winters. However, if temperatures cool down and winter precipitations are reduced within the range of the species, the impacts of climate change will be detrimental to the species.
Four comments supporting or not opposing the reclassification of Tiny Cryptantha from endangered to threatened were received. One environmental non-governmental organization and one non-profit conservation group supported this reclassification. A forestry business did not specifically oppose down-listing this species, but raised concerns about the listing process related to the increase in the number of species on Schedule 1 of SARA, especially if they are not accompanied with advancement of management or recovery strategies, as this may lead to increased business uncertainty. One individual from the public opposed down-listing this species. This individual believes that this species should remain on SARA as endangered. COSEWIC’s reason for designation of the species as threatened, rather than the previously assessed status of endangered, is because a larger range and population size has been identified, even though it still faces important threats from development and other pressures. A revision in status to threatened will preserve the existing general prohibitions under SARA that are in place for the species.
One comment was received following the publication of the proposed Order in CGI which was specific to the Tiny Cryptantha. This comment was received from a municipal association and was in support of the protection of species at risk, however, the importance of sustainable economic growth and development was also underlined.
This small herbaceous annual plant is limited in Canada to a small area of grassland habitat in southeastern Alberta and adjacent southwestern Saskatchewan. A larger range and population size are now known due to increased search efforts, warranting a status change from endangered to threatened. Consistent with COSEWIC’s assessment that the Tiny Cryptantha is still under threat, this status change will not affect the existing general prohibitions of SARA already in place for this species. A large part of the Canadian population occurs in a federal protected area. An amended recovery strategy identifying critical habitat is currently available on the public registry.
An up-listing from special concern to threatened will benefit the species by requiring the development of a recovery strategy and action plans, and will trigger general prohibitions for individuals and their residences under SARA when they are found on federal lands.
A down-listing from endangered to threatened recognizes both the newly available data and that the species is still under threat. This status change will not affect the existing SARA general prohibitions already in place for this species, and the preparation of a federal recovery strategy will still be required.
The term “terrestrial species” refers to any wildlife species other than “aquatic species.” In SARA, aquatic species is defined as “a wildlife species that is a fish, as defined in section 2 of the Fisheries Act, or a marine plant, as defined in section 47 of that Act.”
More information on COSEWIC can be found on its website at http://www.cosewic.gc.ca.
As per SARA, subsection 34(1).
www.sararegistry.gc.ca/search/advSearchResults_e.cfm?stype=doc&docID=18
Under section 79 of SARA, a “project” means a designated project as defined in subsection 2(1) or section 66 of the Canadian Environmental Assessment Act, 2012, a project as defined in subsection 2(1) of the Yukon Environmental and Socio-economic Assessment Act or a development as defined in subsection 111(1) of the Mackenzie Valley Resource Management Act.
http://www.sararegistry.gc.ca/default.asp?lang=En&n=95116D91-1
http://www.sararegistry.gc.ca/default.asp?lang=En&n=1C098D5B-1