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Key issues (continued)

Note

This information was current as of November 2015.

Conservation and biodiversity

What is the issue?

Biological diversity—or biodiversity—is the variety of life on Earth. This includes variation within and among species and natural ecosystems. Although Canada is one of the few countries to still have relatively large, intact ecosystems, urban and industrial development, combined with a changing climate, are putting growing pressure on the natural environment and reducing the many economic, ecological, and social benefits that biodiversity provides. At a global level, biodiversity is being lost at an unprecedented rate as a result of factors such as the combined impacts of habitat destruction and fragmentation, invasive alien species, climate change, and pollution.

Why is it important?

Conserving biodiversity is critical to the long-term health, prosperity, and security of Canadians. More than 13% of Canada’s GDPFootnote 1 depends on healthy ecosystems (e.g., forestry, agriculture, fisheries, tourism). Healthy, biologically diverse natural areas also provide ecosystem services, such as mitigating flood and drought, filtering air and water, producing food and fiber, sequestering carbon, controlling diseases and pests, pollinating food crops, and recreational, aesthetic, and spiritual benefits. The (non-market) economic value of the ecological services from Canada’s boreal region has been estimated at over $570 billionFootnote 2 per year. Healthy and resilient ecosystems are one of the best defenses against a changing climate. The wise management of genetic resources is increasingly seen as essential to innovation in key economic sectors, such as the agricultural, forestry, and pharmaceutical industries.

Canada is steward to globally significant biodiversity: 8% of the world’s forests, approximately 25% of the world’s wetlands, 37% of the world’s total lake area, the longest coastline in the world, and 673 species of birds. Some of the largest remaining herds of free-ranging caribou and other large mammals, such as polar bears, are found in Canada.

Canada has made significant progress in some areas. For instance, the percentage of terrestrial protected areas has doubled since 1992 and is now at about 10% of Canada’s land mass. However, despite these successes and positive trends in some areas, Canada’s biodiversity continues to show signs of decline, particularly as a result of ongoing habitat loss and fragmentation. There have been significant declines in migratory bird populations, commercially important fish stocks, amphibians, reptiles, and freshwater mussels. There have also been significant declines in key ecosystems such as prairie grasslands and wetlands. The dramatic loss of sea ice in the Arctic as a result of climate change is having direct impact on northern species, including seals, polar bears, and Arctic cod. Invasive alien species are also having a major impact on many ecosystems. As of 2012, there were more than 180 alien species established in the Great Lakes, many of which are causing significant ecological and economic impacts.

Environment Canada’s role

While biodiversity conservation is a shared jurisdiction with provinces and territories, and federal responsibilities are divided among many departments, Environment Canada (EC) has a national leadership role, as well as direct responsibilities in this area. EC’s work in conservation is focused primarily on migratory birds, species at risk, and nationally significant wildlife habitat. The Department also has a role in the conservation of iconic species, such as the polar bear, caribou, and wood bison. EC also leads national policy work on biodiversity and genetic resources.

Legislation

Legislation administered by the Department includes the Species at Risk Act (SARA), the Migratory Birds Convention Act,1994,the Canada Wildlife Act, and the Wild Animal and Plant Protection and Regulation of International and Interprovincial Trade Act.

SARAcame fully into force in 2004 and is designed to complement provincial and territorial legislation. The objective of the Act is to prevent at-risk wildlife species from becoming extinct and to secure the necessary actions for their recovery. SARA provides for the legal protection of these wildlife species and their residences and habitat, and plays an important role in Canada’s conservation of biodiversity. The Minister of the Environment has a number of legislated responsibilities under SARA, including the lead responsibility for administration of the Act, in cooperation with the Minister of Fisheries and Oceans. The Minister also holds implementation responsibilities for Parks Canada under SARA.

Most bird species found in Canada are managed federally under the Migratory Birds Convention Act, 1994, which is designed to protect and conserve migratory birds, their eggs, and their nests. EC is responsible for regulating and monitoring hunting and other activities and their impacts on migratory birds and issuing permits in accordance with regulations under this Act. The Department also conducts research and works in partnership with the United States (U.S.) and Mexico, provinces, non-governmental organizations (NGOs), and industry, under the North American Bird Conservation Initiative and the North American Waterfowl Management Plan to conserve migratory birds and their habitat.

Protected areas

EC establishes federal protected areas in “Key Biodiversity Areas”─ places where migratory birds congregate or species at risk are found in appreciable assemblages. Since the promulgation of the Canada Wildlife Act in 1973, 54 national wildlife areas (NWA) have been established. Canada’s first refuge for ‘wild fowl’ was established at Last Mountain Lake in 1887. Since that time, 92 migratory bird sanctuaries (MBS) have been established. EC’s protected areas cover 12.4 million hectares (an area twice the size of Nova Scotia). By conserving habitats in federal protected areas, EC contributes to the protection of species at risk and helps to ensure that wildlife species do not become at risk, thereby preserving biodiversity at regional, national, and international scales.

Stewardship programs

EC administers several stewardship programs that are designed to foster and encourage actions by NGOs and Canadians to conserve and protect habitat for species at risk and other wildlife. In particular, these programs support conservation and stewardship of habitat on private and other lands, which can often lead to longer-term and more permanent conservation and protection of habitat. Many of these programs received new or continued funding in 2014 under the National Conservation Plan (NCP).

These programs include:

International dimensions

Canada is a signatory to the United Nations Convention on Biological Diversity, the key policy framework for the conservation and sustainable use of biodiversity, and hosts the Secretariat to the Convention in Montreal. At the 10th Conference of the Parties to the Convention on Biological Diversity in 2010, Parties acknowledged that they had not been successful in achieving the goal set for 2010 of halting the loss of biodiversity, and agreed to a new Strategic Plan for 2011-2020, including aspirational global targets (often referred to as the Aichi biodiversity targets). The 2020 Biodiversity Goals and Targets for Canada, which were developed collaboratively by federal, provincial and territorial governments, were announced in February 2015. Canada’s biodiversity goals and targets are aspirational and inspired by the global Aichi targets, but adapted to Canada’s domestic context.

One objective of the Convention on Biological Diversity is the fair and equitable sharing of benefits arising from the utilization of genetic resources, commonly referred to as “access and benefit sharing” (ABS). The Nagoya Protocol, adopted under the Convention, implements and expands on these obligations. The Protocol came into force in October 2014. Canada decided not to sign the Protocol in 2012, but is free to accede to it at any time. Over the past few years, EC has engaged extensively with provinces, territories, Aboriginal communities, industry and researchers on ABS policy and on whether Canada should accede to the Nagoya Protocol. EC continues to engage on these issues.

EC serves as the national focal point for the Intergovernmental Platform on Biodiversity and Ecosystem Services (IPBES). Canada is among the 124 member states committed to building IPBES to be the leading intergovernmental body for assessing the state of the planet's biodiversity, its ecosystems and the essential services they provide to society. The IPBES aims to catalyze world-wide understanding and governmental action on biodiversity and ecosystem services and advance the work of several biodiversity-related international conventions.

Canada is one of 181 Parties to the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES), which is a legally binding, international agreement that regulates trade in species of national and international commercial interest and helps protect global biodiversity. Within CITES, Canada works to ensure that its sustainable harvest and management of wildlife species is recognized and rewarded with market access, while also ensuring that Canadian and international species are protected from unsustainable trade. Canada has established a reputation as a leader in sound wildlife management and sustainable use, and as a positive contributor to CITES decision-making.

Canada is also a signatory to several conventions and Memoranda of Understanding, including:

Federal-provincial-territorial dimensions

As noted above, the 2020 Biodiversity Goals and Targets for Canada (see Annex) were developed collaboratively by federal, provincial, and territorial governments. Announced in February 2015, the goals and targets will help to measure and report on progress in some areas of Canada’s National Conservation Plan.

The federal, provincial and territorial Ministers responsible for conservation, wildlife and biodiversity met in February 2015, for the first time since 2007. Ministers renewed their commitment to working together on the conservation of species at risk and invasive alien species. Ministers also approved a joint work plan and agreed to meet again in twelve to eighteen months to review progress. Federal, provincial and territorial governments are currently collaborating on the implementation of the Ministers’ work plan.

Many provincial and territorial governments, including Saskatchewan, Ontario, Quebec, New Brunswick, the Northwest Territories, Nova Scotia, and Alberta, have developed or are updating their own biodiversity strategies and action plans, based on the Canadian Biodiversity Strategy (1996) and A Biodiversity Outcomes Framework for Canada (2006).

Ongoing departmental work

Migratory birds

While the Migratory Birds Regulations prohibit the damage or destruction of migratory birds, nests, and eggs, many are inadvertently destroyed by activities such as forestry, mining, agriculture, electrical generation and transmission, fishing, management of infrastructure, and urban development. This unintentional destruction of birds, nests, and/or eggs, known as “incidental take,” is prohibited under the Migratory Birds Convention Act, 1994. The department’s current approach to managing this issue is to provide information on how to avoid the incidental take of birds, focused particularly on time of the year where birds are most susceptible, such as during nesting.

The department is developing recommendations to potentially update aspects of the Migratory Bird Regulations related to hunting as well as the language respecting Aboriginal peoples. Regulatory changes for the hunting component are focused on addressing issues that have arisen over the years and to improve the management of hunting by providing clarity and enforceability to the regulations on issues raised by hunters. Changes to the Aboriginal component consist of updating parts of the regulations that refer to Aboriginal peoples and their harvesting rights. These changes would bring these sections of the Regulations in line with the current legal environment, the Constitution Act of 1982, the revisions to the Migratory Birds Convention of 1995 (Parksville Protocol), and current case law.

Species at risk

The SARA is a key tool in conservation, focusing on the critical care of species at extraordinary risk of extinction or extirpation. The Department continues to make progress in completing recovery planning for listed species. The three-year posting plan for proposed recovery documents was posted to the SAR Public Registry in December 2014. The plan targeted posting of 61 proposed recovery documents in 2014-2015, all of which were posted. Implementation is continuing through 2015-2016 with the posting of 71 recovery documents targeted. The department is also continuing to explore innovative ways to apply the tools and mechanisms that exist within SARA to encourage stewardship and an ecosystem approach to species recovery, such as working with landowners on beneficial management practices.

The Department is prioritizing efforts to comply with SARA, including: addressing the backlog of overdue recovery documents (through implementation of the three-year posting plan); assessing protection of species, residences, and critical habitat; completing identification of critical habitat; fulfilling reporting requirements related to recovery documents; and, undertaking program planning initiatives.

Caribou

The Boreal population of Woodland Caribou (i.e., boreal caribou), is listed as a threatened species under the SARA. Local populations have decreased throughout most of their distribution in Canada (Labrador to northeastern Yukon) due to unnaturally high predation rates resulting from habitat alteration caused by both human land-use activities and natural occurrences. The final recovery strategy for boreal caribou was posted on the Species at Risk Public Registry on October 5, 2012. The recovery strategy identifies critical habitat for all boreal caribou ranges, except for northern Saskatchewan’s Boreal Shield range. The recovery strategy includes a schedule of studies to identify critical habitat in this area by the end of 2016.

The majority of boreal caribou critical habitat is located on non-federal land. Consequently, for each of the 51 ranges, the recovery strategy calls for the responsible jurisdiction to develop a range plan to describe how critical habitat in that range will be protected by October 5, 2017. EC is developing guidance to assist jurisdictions in their preparation of range plans.

Polar Bear

Polar bear have significant value, economically and culturally, to Canadians – especially to Northern Aboriginal peoples. Two thirds of the global polar bear population resides in 13 subpopulations across the Canadian Arctic. Thus, Canada has a unique conservation responsibility for the species. Polar bear continue to be well-managed under a robust and responsive management system that has been in place for over thirty years. There is, however, continued attention on Canada’s exports of polar bear and pressure for the prohibition of commercial trade in polar bear. In 2011, the polar bear was listed under SARA as a species of special concern. In accordance with the listing, a management plan for polar bears needs to be developed. The plan is expected to comprise jurisdictional plans that have been developed by the responsible provinces and territories. Canada also continues to honour commitments under the 1973 Agreement for the Conservation of Polar Bears and is working with the other states (Greenland, Norway, Russia and the U.S.) on the development of a Circumpolar Action Plan for the species.

Sage Grouse

The Greater Sage-Grouse is an endangered bird species listed under SARA. The population of the species has declined 98% from 1988 to 2012, and it has been estimated that just 95-140 of these birds remain in Canada. The status of this species has received considerable media attention. There is ongoing legal action against the Minister of Environment related to emergency protection of the Greater Sage-Grouse. The department is developing several initiatives to provide for the protection of Greater Sage-Grouse, including a proposal to contribute federal funding towards a captive breeding program by the Calgary Zoo.

Western Chorus Frog

The Western Chorus Frog (Great Lakes/St. Lawrence-Canadian Shield population), which is found in Quebec and Ontario, is listed as Threatened under SARA. The current population is small and is exposed to ongoing losses of habitat and breeding sites due to suburban expansion and alteration in farming practices.

In 2013, the Minister of the Environment received three requests to recommend an emergency order to the Governor in Council under SARA to protect the Western Chorus Frog. The requests specified that a significant portion of the frog’s habitat would be destroyed because of residential development in the municipality of La Prairie. In March 2014, EC concluded that the Western Chorus Frog was not facing an imminent threat to its survival or recovery. In April 2014, two environmental NGOs applied for judicial review of the department’s decision. On June 22, 2015, the Federal Court ruled that the Minister of Environment had six months to reconsider whether this species faces an imminent threat to its survival or recovery. EC is currently reviewing the judgment.

National Conservation Plan

The NCP, announced in May 2014, includes new initiatives and investments totaling $252 million over five years (2014-2019).

Under the Plan, there are expanded opportunities for partners, including municipalities, environmental groups, landowners and community groups to take practical actions to safeguard the land and water around them in the following three priority areas:

The NCP enhances existing initiatives and implements several new and complementary ones. These include:

Annex 1 – 2020 Biodiversity Goals & Targets for Canada

Preamble

In order to achieve their long-term biodiversity outcomes, federal, provincial and territorial governments developed the following set of new medium-term goals and targets. These aspirational goals and targets describe results to be achieved through the collective efforts of a diversity of players both public and private whose actions and decisions have an impact on biodiversity. Governments need to do their part but cannot act alone.

Implementation of the goals and targets will rely on meaningful, full and effective participation of Aboriginal peoples, including First Nations, Inuit and Métis peoples. In this respect, while Aboriginal traditional knowledge and customary use of biological resources are specifically highlighted under targets 12 and 15, the traditional knowledge, innovations and practices of Aboriginal communities are relevant for implementing all of Canada’s biodiversity goals and targets, as is protecting and encouraging customary use of biological resources compatible with their conservation and sustainable use.

Local communities, urban and regional governments, business and industry, conservation and stewardship groups, educational and scientific institutions and citizens are also all able to contribute. Canadians are invited to commit to doing their part and to share the results of their efforts.

Goal A. By 2020, Canada’s lands and waters are planned and managed using an ecosystem approach to support biodiversity conservation outcomes at local, regional and national scales.

Target 1.
By 2020, at least 17 percent of terrestrial areas and inland water, and 10 percent of coastal and marine areas, are conserved through networks of protected areas and other effective area-based conservation measures.
Target 2.
By 2020, species that are secure remain secure, and populations of species at risk listed under federal law exhibit trends that are consistent with recovery strategies and management plans.
Target 3.
By 2020, Canada’s wetlands are conserved or enhanced to sustain their ecosystem services through retention, restoration and management activities.
Target 4.
By 2020, biodiversity considerations are integrated into municipal planning and activities of major municipalities across Canada.
Target 5.
By 2020, the ability of Canadian ecological systems to adapt to climate change is better understood, and priority adaptation measures are underway.

Goal B. By 2020, direct and indirect pressures as well as cumulative effects on biodiversity are reduced, and production and consumption of Canada’s biological resources are more sustainable.

Target 6.
By 2020, continued progress is made on the sustainable management of Canada’s forests.
Target 7.
By 2020, agricultural working landscapes provide a stable or improved level of biodiversity and habitat capacity.
Target 8.
By 2020, all aquaculture in Canada is managed under a science-based regime that promotes the sustainable use of aquatic resources (including marine, freshwater and land based) in ways that conserve biodiversity.
Target 9.
By 2020, all fish and invertebrate stocks and aquatic plants are managed and harvested sustainably, legally and applying ecosystem-based approaches.
Target 10.
By 2020, pollution levels in Canadian waters, including pollution from excess nutrients, are reduced or maintained at levels that support healthy aquatic ecosystems.
Target 11.
By 2020, pathways of invasive alien species introductions are identified, and risk-based intervention or management plans are in place for priority pathways and species.
Target 12.
By 2020, customary use by Aboriginal peoples of biological resources is maintained, compatible with their conservation and sustainable use.
Target 13.
By 2020, innovative mechanisms for fostering the conservation and sustainable use of biodiversity are developed and applied.

Goal C. By 2020, Canadians have adequate and relevant information about biodiversity and ecosystem services to support conservation planning and decision-making.

Target 14.
By 2020, the science base for biodiversity is enhanced and knowledge of biodiversity is better integrated and more accessible.
Target 15.
By 2020, Aboriginal traditional knowledge is respected, promoted and, where made available by Aboriginal peoples, regularly, meaningfully and effectively informing biodiversity conservation and management decision-making.
Target 16.
Target 16. By 2020, Canada has a comprehensive inventory of protected spaces that includes private conservation areas.
Target 17.
By 2020, measures of natural capital related to biodiversity and ecosystem services are developed on a national scale, and progress is made in integrating them into Canada’s national statistical system.

Goal D. By 2020, Canadians are informed about the value of nature and more actively engaged in its stewardship.

Target 18.
By 2020, biodiversity is integrated into the elementary and secondary school curricula.
Target 19.
By 2020, more Canadians get out into nature and participate in biodiversity conservation activities.

Air Quality

What is the issue?

Air pollution harms the environment and the health of Canadians. There is strong scientific evidence of the significant health impacts for Canadians from outdoor air pollution, leading to economic costs from lost productivity, increased need of medical care, decreased quality of life, and premature death.

The primary air pollutants are sulphur dioxide (SO2), nitrogen oxides (NOX), particulate matter (PM), ozone (O3 ), volatile organic compounds (VOCs) and gaseous ammonia (NH3). Ozone and particulate matter are the air pollutants of most concern; they can cause negative health effects at any level of concentration. Particulate matter can be emitted directly or formed by the reactions of precursor gases such as SO2, NOX, NH3 and VOCs. Ozone is not emitted, but is formed in the air by reactions of NOX and VOCs and other precursors (e.g., methane) in the presence of sunlight.

Emissions from numerous domestic sources such as industry and transportation affect air quality. In 2013, industrial activities were the source of a significant portion of the emissions of SO2 (92%), NOX (40%), VOCs (42%), and directly emitted particulate matter (PM10 – 38%; PM2.5 – 23%) released in Canada. Mobile sources (cars, trucks, off-road vehicles, etc.) contributed 56% of total NOX emissions and 23% of VOC emissions.

Air quality in Canada is also affected by the transboundary movement of air pollutants from the United States (U.S.). Emission sources from Asia also contribute to elevated levels of particulate matter and ozone in British Columbia and the North during the spring and summer seasons. As a result, international cooperation between Canada and other nations is essential to improve air quality in Canada.

Why is it important?

Poor air quality is linked to breathing difficulties, increased illness, development of chronic lung disease, heart attacks, shortened lives, crop yield loss, and damage to buildings. Over three million Canadians suffer from asthma, bronchitis, and chronic obstructive pulmonary disease; all illnesses that are exacerbated by air pollution. The World Health Organization (WHO) has identified air pollution as one of the most significant global health risks. In 2013, the WHO classified outdoor air pollution and particulate matter as carcinogenic.

Negative health effects can occur at all concentrations, even on those days, or in given areas of Canada, that are characterized as having “good” air quality.

While significant progress has been made in reducing Canadian emissions, air pollution remains an ongoing issue in Canada. Air quality has not been improving in all parts of the country; higher ozone levels persist in the Great Lakes and the eastern parts of Canada. Furthermore, total particulate matter emissions are increasing overall due to the contribution of sources such as construction and road traffic (road dust).

More than 30% of Canadians live in communities where outdoor levels of ozone exceed newly established ambient standards. Many more Canadians are currently exposed to concentrations of air pollutants far above the existing safe levels identified by the WHO. Further reductions in emissions of SO2, NOX, and VOC would reduce the atmospheric formation of ozone and particulate matter, and combined with reductions in directly emitted particulate matter, would reduce adverse health and environmental effects.

Environment Canada’s role

Domestic air pollution is an area of shared jurisdiction. Federal, provincial and territorial governments have been working together for more than three decades to manage air pollutants and improve air quality. In 2012, the Government of Canada and Ministers representing all provinces and territories (with the exception of Quebec) agreed to implement an Air Quality Management System (AQMS) under the auspices of the Canadian Council of Ministers of the Environment. The AQMS consists of several interrelated elements as shown in the diagram below, including:

  1. Canadian Ambient Air Quality Standards (CAAQS) – more ambitious outdoor air quality standards that drive air quality improvements;
  2. Base-level Industrial Emissions Requirements (BLIERs) – emission requirements that are intended to apply to major industries and ensure that facilities achieve a good base level of performance;
  3. Regional Airsheds – a new approach to report on air quality and to coordinate actions to address air pollution that crosses inter-provincial, inter-territorial, and international borders;
  4. Air Zones – a new approach to manage local air quality within the provinces and territories;
  5. Mobile Sources – enhanced collaboration amongst govsernments to reduce emissions from transportation vehicles (e.g., cars, trucks, construction equipment).
Graphic shows the main elements of the Air Quality Management System or AQMS
Long description

The graphic shows the main elements of the Air Quality Management System or AQMS.

The foundation of the AQMS is shown as collaboration and accountability.

The driver for the AQMS is shown as the Canadian Ambient Air Quality Standards or CAAQS.

The mechanisms of the AQMS are shown as four interrelated elements: airshed coordination, industrial emission requirements, air zone management and mobile sources.

Canada has the authority and responsibility to address air pollution due to the transboundary nature of pollutant flows and the addition of several of the key air pollutants (e.g., O3, PM10, NOX, SO2, NH3, and VOCs) to Schedule 1 of the Canadian Environmental Protection Act, 1999 (CEPA, 1999). Using authorities under CEPA 1999, the federal government has developed regulations and other measures to limit air pollutant emissions from a wide range of on-road and off-road vehicles and engines, transportation fuels, consumer and commercial products, and industry.

In recognition of the integrated nature of the North American transportation sector, Canada has a policy of alignment with the U.S. on transportation regulations in order to maximize environmental and economic benefits and minimize costs. In July 2015, the federal government published final amendments to existing regulations that will introduce more stringent air pollutant emission standards for new passenger cars, light-duty trucks, and certain heavy-duty vehicles (such as delivery vans) starting with the 2017 model year, as well as more stringent limits on the allowable average sulphur content of gasoline beginning in 2017. These amendments are projected to improve air quality and deliver significant benefits to human health.

The federal government also regulates VOC emissions from consumer and commercial products, in alignment with the U.S. where possible.

With respect to industrial emissions, as part of the federal government’s role under AQMS, work is underway to develop emissions requirements and implementing them through regulations and alternative instruments under CEPA, 1999. In June 2014, the Government published draft Multi-Sector Air Pollutants Regulationsto reduce air pollution from industrial boilers and heaters, cement manufacturing, and stationary engines. Also in June 2014, Canada published draft Codes of Practice for the iron, steel and ilmenite, and aluminum sectors. Additional action could be implemented to address emissions for other industrial sectors.

Air Quality Objectives

Canada also has authority under CEPA 1999 to set national ambient air quality objectives to protect the environment and the health of Canadians. As part of the federal government’s role under the AQMS, the Canadian Ambient Air Quality Standards for ozone and fine particulate matter have been updated in the Canada Gazette, Part 1, on May 25, 2013. Under a CCME-led process, proposals are being developed for more stringent air quality standards for SO2 and NO2, in collaboration with provinces, territories, and stakeholders.

Conducting Scientific Research and Monitoring Ambient Air Quality

Environment Canada’s air quality science (including research, modelling and monitoring) helps advance our understanding of air pollution and its effects, and provides the foundation for effective policies and regulations, compliance promotion, and enforcement actions. It also serves to inform essential air quality services (e.g., Air Quality Health Index).

The National Air Pollution Surveillance program, an Environment Canada-led federal-provincial-territorial air quality monitoring network, in addition to the Environment Canada-led Canadian Air and Precipitation Monitoring Network, will continue to ensure that information is available to understand trends of atmospheric pollutants and to identify emerging issues. This monitoring data is used to inform actions by multiple jurisdictions in Canada to improve air quality. It is also required for the implementation of the AQMS and the Canada-U.S. Air Quality Agreement.

Federal-provincial-territorial dimensions

The AQMS provides a comprehensive approach for governments to work collaboratively to improve air quality. The AQMS is strongly supported by provinces and stakeholders who see it as a model of effective federal/provincial cooperation where each level of government has the flexibility to take appropriate action. Quebec also supports the general objectives of the AQMS but considers the federal industrial emission requirements as duplicative of Quebec’s Clean Air Regulation. The province is actively collaborating with jurisdictions to implement many of the key elements of the AQMS.

CEPA, 1999 allows for the establishment of equivalency agreements between the federal government and provinces and territories. Environment Canada is evaluating the potential for developing equivalency agreements with interested jurisdictions as a means of reducing regulatory duplication provided there is an enforceable provincial regime that delivers an equal or better environmental outcome.

International dimensions

Air quality in Canada is affected by the transboundary movement of air pollutants from the U.S. and other continents.

The 1991 Canada-U.S. Air Quality Agreement has been the main vehicle to address transboundary emissions. The Agreement currently addresses the transboundary movement of air pollutants that cause acid rain and ozone. Officials have engaged in exploratory discussions to update the agreement and potentially broaden its scope to cover particulate matter. In addition, both countries continue to work together on a joint work plan that supports the development and coordinated implementation of aligned vehicle and engine regulations. Building upon this successful initiative, officials from the U.S. and Canada are in discussion about working together to address emissions from oil and gas and other stationary sources.

Environment Canada also works with U.S. partners and other jurisdictions under the Gothenburg Protocol to the United Nations Economic Commission for Europe’s Convention on Long-Range Transboundary Air Pollution to undertake regional and international efforts to manage transboundary air pollutants. Environment Canada is also involved in international efforts to mitigate short-lived climate pollutants such as ozone and black carbon, a component of particulate matter, under the Climate and Clean Air Coalition and the Arctic Council.

Water

What is the issue?

There are a number of important issues associated with water quality and water availability that the department is working to address through a variety of activities, programs, regulations, and partnerships.

Why is it important?

Access to clean water, in sufficient quantities, is essential to the health of Canadians and their environment. Water also supports economic development, and is necessary for the success of a number of sectors such as energy, agriculture, and manufacturing. Water quantity and quality issues vary by region, but are expected to intensify in the future due to climate change. It is recognized that preventative action to address water concerns is significantly less costly to human health, the environment, and the economy.

The protection and preservation of water quality and quantity and aquatic ecosystems is an integral part of the department’s mandate.

Water quality

Water quality in Canada is generally fair to good in upstream communities, but poor to fair in downstream communities. For the 2010-2012 period, in Canadian rivers where human activities are most concentrated, freshwater quality was rated excellent or good at 45% of monitoring stations, fair at 37% of stations, marginal at 16% of stations, and poor at 2% of stations. Between 2003 and 2012, there was, on average, a decline in the percentage of stations rated poor or marginal, and an overall increase in the percentage of stations rated good or excellent.

However, there are significant water quality issues in some regions, particularly in the Great Lakes, and the Lake Winnipeg Basin. Challenges include excess nutrients (phosphorous and nitrogen) from agricultural and wastewater sources, persistent toxic substances, and emerging chemicals of concern from urban and industrial sources. In addition, many First Nations communities continue to face drinking water quality challenges, due in part to capacity issues associated with water treatment plant maintenance, as well as with capital and operating funding.

Water quantity

Canada has the third largest supply of freshwater in the world—about 7% of global renewable supply—which is similar to the renewable freshwater supplies in Brazil, the United States (U.S.), and Russia.

However, much of Canada’s freshwater supply is not easily accessible because it is in the northern part of the country. There are also seasonal water shortages in several regions (e.g., Prairies, interior of British Columbia, southern Ontario), which are anticipated to become more frequent in the future. In addition, water availability pressures are forecasted to increasingly impact water-dependent sectors, such as agriculture.

Cross-cutting pressures

A number of key cross-cutting pressures are also impacting Canada’s water resources. Urban development, natural resource extraction, and agricultural activities all impact freshwater because of pollution (e.g., agricultural runoff with high nutrient concentration) and habitat loss (e.g., housing developments). Climate change is also expected to change the distribution of water across the country, and increase the intensity and frequency of severe weather events, impacting water quality and quantity.

Environment Canada’s role

Constitutional and jurisdictional responsibilities

Authority for water management per se is not specifically defined in the Constitution. The federal and provincial governments derive jurisdiction indirectly from associated areas of constitutional responsibility, legislation, court decisions, and bilateral and multilateral agreements.

The federal government is generally understood to be responsible for water issues associated with Aboriginal peoples, federal lands, fisheries, shipping and navigation, international relations, boundary and transboundary waters, as well as the territory of Nunavut. The Government of Canada also plays a role in ensuring effective management of issues that cross provincial and territorial boundaries, including agriculture, health, and the environment.

Environment Canada (EC) has an on-going role in water quality and quantity monitoring, and is involved in interjurisdictional water management through legislation and agreements. EC’s role is also based on enabling legislation (e.g., ability to establish partnerships with provinces and territories), which has changed over time to reflect different government priorities, and shifting provincial efforts related to water.

Key water legislation for Environment Canada

Environment Canada action

In general, EC’s major water-related activities include:

Several of these activities are delivered through cost-sharing partnerships with other government partners, academia, and/or non-governmental organizations (e.g., the Water Survey of Canada, administered by the National Hydrometric Program, which monitors levels and flows in partnership with provinces and territories; Water Quality Monitoring and Surveillance, which monitors water quality and aquatic ecosystems).

EC’s water-related activities are also often embedded in other departmental activities, given the horizontal nature of water issues (e.g., oil sands monitoring, environmental assessments, Chemicals Management Plan).

Some of EC’s targeted water initiatives are described further in the sections below.

Great Lakes

The Great Lakes are a vast shared resource (84% of North America’s freshwater), and are fundamental to the well-being of one third of the population of Canada and one tenth of the population of the U.S., which live within the Great Lakes drainage basin. The Great Lakes are the direct source of drinking water for more than 8.5 million Canadians, and provide the foundation for billions of dollars in trade, shipping, manufacturing, fishing, forestry, agriculture, mining, energy, and tourism.

A number of challenges threaten the sustainability of the Great Lakes. These include:

The Canada–U.S. Great Lakes Water Quality Agreement (GLWQA) has been a vital framework for ensuring binational consultation and cooperative action to restore, protect, and enhance the water quality and ecological health of the Great Lakes since it was first signed in 1972. The Agreement was instrumental in combatting algae in the late 1970s and 1980s, reducing persistent toxic substances, and in ensuring the return of sentinel species, like the bald eagle, to the Great Lakes.

The GLWQA covers the five Great Lakes, and the river systems which connect them, including the St. Lawrence River downstream to the point at which it ceases to be the international boundary between Canada and the U.S. In 2012, the GLWQA was amended for the first time since 1987. The amended Agreement updates existing provisions related to excessive algae growth, chemicals, ship pollution, and scientific research. It also incorporates other significant challenges to Great Lakes water quality—the threat from aquatic invasive species and climate change, as well as the loss of habitat and species.

EC leads the implementation of the GLWQA on behalf of the Government of Canada, coordinating the engagement of other federal departments (Department of Fisheries and Oceans, Transport Canada, Agriculture Canada, Health Canada, Natural Resources Canada, Infrastructure Canada, and Parks Canada). EC delivers on science, restoration, protection, and conservation activities supporting the achievement of GLWQA objectives, through a variety of national programs, and through Great Lakes specific initiatives.

Both Canada and the U.S. deliver on commitments in the GLWQA through binational and domestic activities. The Canada-Ontario Agreement on Great Lakes Water Quality and Ecosystem Health (COA) is Canada’s mechanism for developing and coordinating domestic activities.

The COA is a long-standing agreement between the governments of Canada and Ontario to restore, protect, and conserve Great Lakes water quality and ecosystem health. The COA was first signed in 1971, and there have been eight agreements in total, all of which built on existing achievements, and were designed to address new challenges. In December 2014, the governments of Canada and Ontario renewed the COA.

Key commitments include:

The Great Lakes Action Plan, established in 1989, helps address degraded areas in the Great Lakes. The Action Plan was renewed in 1994, 2000, 2005, then made permanent, at $8 million per year, in 2010. Through the Action Plan, the federal government helps implement remedial actions in, and complete the clean-up and restoration of Great Lakes Areas of Concern. In 2012, an additional $46.3 million was committed by the federal government towards the clean-up of contaminated sediment in Hamilton Harbour.

The $16 million Great Lakes Nutrient Initiative (GLNI) was established, in 2012, to support the delivery of key commitments under the GLWQA, and the COA. Two key time-bound commitments under the GLWQA are the development of binational phosphorus reduction targets for Lake Erie by 2016, and the development of a domestic action plan to achieve these targets by 2018. Activities under the Great Lakes Nutrients Initiative contribute to Canada’s efforts towards achieving these commitments.

Led by EC, the GLNI seeks to advance scientific understanding of the complex problems of recurrent toxic and nuisance algae in the Great Lakes with a focus on Lake Erie. The initiative targets five priority areas: establishing current nutrient loadings from selected Canadian tributaries; enhancing knowledge of the factors that impact tributary and nearshore water quality, ecosystem health, and algae growth; establishing binational lake ecosystem objectives, phosphorus objectives, and phosphorous load reduction targets; developing policy options and strategies to meet phosphorous reduction targets; and developing a binational nearshore assessment and management framework. This initiative will sunset in 2016.

St. Lawrence Action Plan

In the 1980s, EC adopted one of the first action plans for the St. Lawrence River designed to protect its ecosystems. Several more plans followed, geared towards targeted environmental priorities. In 1988, the first Canada-Quebec St. Lawrence Action Plan (SLAP) brought together all the components of an ecosystem approach, promoting partnerships among stakeholders with an interest in river governance.

In 2011, the SLAP was renewed under a 15-year term, with a joint investment of $70 million over five years. The renewal allows for continued scientific collaboration among ten federal agencies and departments, and eight provincial ministries, to address new or growing pressures affecting the St. Lawrence ecosystem. The SLAP’s priorities are: conservation of biodiversity, sustainable use, and improved water quality.

Lake Simcoe/South-eastern Georgian Bay

The $30 million Lake Simcoe Clean-Up Fund was established in 2007. The Fund provides financial and technical support to implement priority projects aimed at reducing phosphorous inputs, restoring fish and wildlife populations, and enhancing research and monitoring capacity essential to the restoration of the Lake Simcoe Basin watershed. In 2012, the Fund was renewed for five years (2012-2017), at $29 million, and its geographic scope expanded to include South-eastern Georgian Bay.

The extension of the Fund has allowed for continued progress on addressing Lake Simcoe water quality issues, while also beginning to address nearshore toxic and nuisance algae growth in South-eastern Georgian Bay, where conditions are indicating trends toward more severe problems. The Fund also supports efforts to restore and protect water quality, habitat, and species in the region.

Lake Winnipeg Basin Initiative

The Lake Winnipeg Basin Initiative (LWBI) was established, in 2007, to improve water quality in Lake Winnipeg. An investment of $18 million over five years was made in 2007, towards Phase I of the LWBI, and another investment of $18 million over five years was made in 2012, towards Phase II. EC is currently leading Phase II, which builds on the accomplishments of Phase I.

The goal of the LWBI is to restore the ecological health of Lake Winnipeg by better understanding the nutrient problem, as well as developing the science, governance, and stakeholder involvement required to address the issues of the lake over the longer term.

Atlantic Ecosystem Initiatives

An ecosystem approach to environmental management is applied through the Atlantic Ecosystems Initiatives (AEI) program. AEI supports partnerships with non-government organizations, other federal and provincial departments, academic institutions, as well as internal coordination to identify and address common environmental issues, such as water quality, habitat and biodiversity loss, and the impacts of climate change.

EC administers the AEI as a competitive grant and contribution funding program, and provides $1.2 million annually for projects that undertake actions that have broad impacts, and reach across Atlantic Canada to conserve, restore, and enhance ecosystem health. The program focusses on addressing key regional issues related to habitat and biodiversity loss, water quality, and impacts of climate change. These investments are consistent with, and advance the goals of the National Conservation Plan, and build on the efforts already underway to promote sustainable use of the environment and natural resources.

Wastewater

Currently, over 150 billion litres of untreated wastewater (sewage) is released from cities, towns, and communities, into Canadian waterways every year. The Wastewater Systems Effluent Regulations (WSER), published in 2012, set national baseline effluent quality standards achievable through secondary wastewater treatment, and help manage overflows from combined sewers. The WSER also deliver on commitments made by the federal government under the Canadian Council of Ministers of the Environment (CCME) Canada-wide Strategy for the Management of Municipal Wastewater Effluent. The Strategy was endorsed by all jurisdictions, except Quebec, Nunavut, and Newfoundland and Labrador, in 2009.

The WSER apply to 2,560 wastewater systems across Canada, most of which are owned/operated by municipalities. The WSER effluent quality standards are phased in over time. The wastewater systems with high-risk effluent pose the highest risk to the environment, particularly those with no treatment. These have until the end of 2020 to meet the WSER standards. Those with medium- and low-risk effluent would have until 2030 and 2040, respectively, to meet the standards. The wastewater systems that need upgrading have time to plan, and to budget funds to improve their wastewater infrastructure. Smaller wastewater systems have until the end of 2030 or 2040. Efforts have been undertaken to pursue bilateral agreements with provinces and territories, to streamline regulatory administration and reduce duplication.

In addition, the federal government has made investments in core municipal infrastructure, including water, wastewater, and stormwater infrastructure, through the permanent Gas Tax Fund, and the application-based New Building Canada Fund—both of which are administered by Infrastructure Canada.

Federal-provincial-territorial dimensions

Provinces are generally considered to be the primary managers of water in Canada, and are responsible for the majority of water management activities within their boundaries, including water allocation and use. Province-like responsibilities have been devolved from the federal government to the Yukon and the Northwest Territories. Municipal powers and sources of revenue are determined by the provinces and territories. Typically, municipal governments are responsible for providing drinking water and wastewater systems, local by-laws, and zoning (e.g., local land-use planning). Much of EC’s progress on water issues has been achieved through working with other governments, involving activities in the "national interest”.

Presently there are a number of partnership agreements on water, including:

International dimensions

International Joint Commission

EC engages with domestic and U.S. stakeholders on transboundary water issues (e.g., resource extraction projects), and conducts transboundary water monitoring (e.g., Abbotsford-Sumas aquifer).

The IJC prevents and resolves disputes between the U.S. and Canada, and pursues the common good of both countries as an independent and objective adviser to the two governments. The IJC assists Canada and the U.S. in the protection of the transboundary environment, including the implementation of the GLWQA. The Department of the Environment Act states that the powers, duties, and functions of the Minister of the Environment extend to and include the enforcement of any rules or regulations made by the IJC, in so far as they relate to the preservation and enhancement of the quality of the natural environment.

In addition, there is an MOU between EC and the IJC which establishes a central mechanism to coordinate and account for EC’s department-wide contribution to the IJC. Departmental experts participate on IJC control boards, advisory boards, task teams, and contribute to studies, as well as share water monitoring data produced by EC’s national hydrometric network.

Improving the health of the Great Lakes ecosystem

The GLWQA is a key tool for collaboration with the U.S. on Geat Lakes issues. The Agreement was amended in 2012 to address new and re-emerging challenges, and to guide continued binational collaboration. The GLWQA focuses on a number of areas, including nutrient pollution, chemicals of concern, climate change impacts, aquatic invasive species, and groundwater. The governments of Canada and the U.S. are implementing the Agreement in consultation and cooperation with other levels of government, First Nations and Métis organizations, businesses, non-governmental entities, and the public.

Preventing bulk water exports

The Transboundary Waters Protection Act, passed in 2013, strengthened existing protections to prohibit bulk water removal and export to other countries, from waters within federal jurisdiction.

Short-term Decisions

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