Ontario s Approach to Wilderness: A Policy May 1997 (Version 1.0) 1.0. Introduction Wilderness is important to Ontarians, important to the sustained, healthy functioning of Ontario s ecosystems. The Ministry of Natural Resources (MNR) is committed to ecological sustainability, an important component of which is a network of parks and other protected areas (Fig. 1). Quetico Provincial Park, Ontario s first Wilderness Park, was established in 1913. Since then, seven Wilderness Parks and 12 Wilderness Zones have been created as part of Ontario s system of protected areas. This policy: Responds to Term and Condition 106 of the Class Environmental Assessment for Timber Management on Crown Land in Ontario, which states that within three years of this approval, MNR shall develop a provincial policy on roadless wilderness areas. Confirms Ontario s commitment to wilderness protection through existing Wilderness Park and Wilderness Zone targets, and provides direction that will result in the completion of Ontario s system of Wilderness Parks. Addresses the contribution of other parks and protected areas to the protection of wilderness values. Addresses the consideration of wilderness values through ongoing management activities on the intervening landscapes and waterscapes outside parks and protected areas. Protecting wilderness areas (e.g., Wilderness Parks and other protected areas) and managing for wilderness characteristics on the intervening landscapes and waterscapes is an important component of meeting MNR s goal and objectives. 2.0. Wilderness Values Fig. 1. The Goals and Objectives of the Ministry of Natural Resources To ensure the long-term health of ecosystems by protecting and conserving our valuable soil, aquatic resources, forest and wildlife resources as well as their biological foundations. To contribute to the environmental, social and economic well-being of Ontario through the sustainable development of natural resources. To ensure the continuing availability of natural resources for the long-term benefit of the people of Ontario; that is, to leave for future generations a legacy of the natural wealth that we still enjoy. MNR Goal MNR Objectives To protect natural heritage and biololgical features of provincial significance. Wilderness has ecological, cultural, social, and economic value: Ecological Health: Wilderness contributes to the healthy functioning of Ontario s ecosystems -- to the life-support services of those ecosystems. From a human perspective, wilderness contributes to survival and quality-of-life. Services and products include, but are not limited to, the maintenance of quality water, air, soil, fish and wildlife To protect human life, the resource base and physical property from the threats of forest fires, floods and erosion. populations (e.g., maintenance of gene pools), and their habitats. Cultural and Social Identity and Awareness: Wilderness is a central theme in Canadian culture -- an important characteristic of our national identity. For example, wilderness provides inspiration for art, literature, and music. Wilderness is an important element of Aboriginal culture and society. Individual Growth and Well-Being: Wilderness contributes to the physical and psychological health and well-being of
people. It provides for a range of exceptional recreational experiences and opportunities (e.g., canoe-tripping, camping, hiking, hunting, and fishing), solitude, and immersion into our natural and cultural heritage. Wilderness provides opportunities for personal challenge, self discovery, and spiritual renewal. Educational Values: Wilderness is used as a natural classroom and laboratory for a range of disciplines (e.g., geology, biology, geography, philosophy) and educational levels (i.e., primary, secondary, and postsecondary institutions). Scientific Values: Science is the pursuit of knowledge, and involves the gathering and use of information. Wilderness provides opportunity to study ecosystem composition, structure, and function, including fish and wildlife population genetics and species evolution. Wilderness provides control sites ( benchmarks ) against which to measure natural or human-induced change and the effectiveness of natural resource management practices in non-wilderness areas. Economic Values: Wilderness provides significant economic value through recreation (e.g., canoe-tripping, camping, hiking, hunting, and fishing) and scientific discovery. Table 1. Ontario Parks classification system. Type of Protected Area Natural Environment Park Waterway Park Wilderness Park Recreation Park Nature Reserve Park Historical Park Protected Area Description Existence or Vicarious Values: Even though many people never spend time in wilderness, they take pleasure and comfort in knowing that it exists. Option or Future Values: A value based on a commitment to future generations by ensuring that wilderness is protected for their enjoyment and health as well as ours. The Ministry of Natural Resources manages for these values in provincial parks, other protected areas, and on the landscapes and waterscapes outside of parks and protected areas. 3.0. Definition of Wilderness Many definitions of wilderness have been developed and used in countries around the world. Most definitions focus on the idea that wilderness is a place where the forces of nature function freely in the absence of impacts from human activities. Historically, jurisdictions have identified and protected large tracts of land and water. Ontario is no exception. For example, the minimum size requirement for Wilderness Parks in Ontario is 50,000 hectares, and Wilderness Zones can range in size from 2,000-50,000 hectares (see Appendix 1 for a definition and description of Wilderness Parks and Wilderness Zones). For the purpose of this Policy, wilderness is Incorporate outstanding recreational landscapes with representative natural features and historical resources to provide high quality recreational and educational experiences. Incorporate outstanding recreational water routes with representative natural features and historical resources to provide high quality recreational and educational experiences. Substantial areas where the forces of nature are permitted to function freely and where visitors travel by non-mechanized means and experience expansive solitude, challenge, and personal integration with nature. Areas which support a wide variety of outdoor recreation opportunities for large numbers of people in attractive surroundings. Areas selected to represent the distinctive natural habitats and landforms of the province, and are protected for educational purposes and as gene pools for research to benefit present and future generations. Areas selected to represent the distinctive historical resources of the Province in open space settings, and are protected for interpretive, educational and research programs. Wilderness Zone Yes Yes Yes No ++ No ++ A Wilderness Zone designation is not required given the purpose and restrictive management prescriptions for Nature Reserve Parks.
defined as landscapes and waterscapes that are, or have the potential to be, self-sustaining, and where human interference is minimal. The wilderness condition of Ontario s landscapes and waterscapes contributes to ecosystem health, science, education, and cultural and social values (e.g., recreation and personal well-being). Wilderness is notable for the relative absence of human impacts (e.g., the absence of roads) and the lack of long-lasting damage from human activities. 4.0. Managing for Wilderness Values in Ontario Ontario s rich and diverse natural heritage is protected through a variety of legislative, policy, and management techniques administered by the Government of Ontario, Municipalities, and the Government of Canada. The degree of protection varies, depending on the management objectives. MNR provides for wilderness values through: Inclusion of large, wild tracts of land and water in the parks system (e.g., Wilderness Parks and Wilderness Zones in Natural Environment Parks and Waterway Parks). Other types of protected areas. Natural resource management programs that sustain healthy functioning ecosystems on the intervening landscapes and waterscapes outside the system of parks and protected areas programs that, among other benefits, provide a range of recreational opportunities (e.g., canoe-tripping, hiking, camping, hunting, and fishing). 4.1. Wilderness Parks and Wilderness Zones MNR uses Wilderness Parks and Wilderness Zones in Natural Environment Parks and Waterway Parks to protect large areas of wilderness. Wilderness Zones are strictly controlled to protect the wild character of landscapes and waterscapes (Table 1) (see Appendix 1). 4.2. Wilderness Characteristics in Other Classes of Parks, Protected Areas, and on the Intervening Landscapes and Waterscapes MNR s approach to natural resource management is ecologically-based and focused on: Securing healthy ecosystems. Regardless of size, wilderness cannot exist as isolated parcels of land wilderness parks, for example, impact, and are impacted by, surrounding landscapes and waterscapes. Protecting natural heritage features and landscapes within a network of parks and protected areas (e.g., Conservation Reserves). Providing a variety of resource-based recreational opportunities (e.g., canoetripping, camping, hiking, hunting, and fishing). Sustaining the natural resource base. Securing sustainable economic development associated with natural resources In this regard, many wilderness values (e.g., ecological health, science, education, and economics) are reflected in legislation, policies, and strategies. For example: The Crown Forest Sustainability Act directs human activity in Ontario s forested ecosystems. The Act subscribes to the following principles: Large, healthy, diverse, and productive Crown forests and their associated ecological processes and biological diversity should be conserved. The long-term health and vigor of Crown forests should be provided for by using forest practices that, within the limits of silvicultural requirements, emulate natural disturbances and landscape patterns while minimizing adverse effects on plant life, animal life, water, soil, air, and social and economic values, including recreational values. Under authority of the Crown Forest Sustainability Act, MNR has developed the Policy Framework for Sustainable Forests and strategies such as the Conservation Strategy for Old-Growth Ecosystems on Crown Lands in Ontario.
Nature s Best - Ontario s Parks and Protected Areas A Framework and Action Plan provides direction for the completion of a system of parks and protected areas. Under authority of the Planning Act, the Government of Ontario has implemented the Natural Heritage Policy, providing for the protection of a variety of natural heritage values, including wetlands. The Resource-Based Tourism Policy promotes and encourages the development of the Ontario resourcebased tourism industry in both an ecologically and economically sustainable manner. In support of legislation, policies, and strategies, MNR uses planning and operational guidelines to manage for wilderness characteristics (e.g., Forest Management Planning Manual for Ontario s Crown Forests ). 5.0. Wilderness in Ontario: Status 5.1. The Status of Ontario s Wilderness Parks Ontario is comprised of 14 large ecologically distinct areas called Site s. Each Site is characterized by relatively uniform climate it is an area where soil, climate, plants and animals, and other organisms interact in a characteristic way (Fig. 2). To ensure that a quality example of each Site is retained as wilderness, a target of one Wilderness Park and one Wilderness Zone (in either a Waterway or Natural Environment Park) or a National Park equivalent has been established for each Site. 5.1.1. Wilderness Parks Wilderness Parks have been established in 10 of 14 Site s (Fig. 3). Polar Bear Provincial Park, a huge area covering 2,408,700 hectares, meets the Wilderness Park commitment for Site s 0E and 1E in the far north. Wilderness Parks have not yet been established in Site s 3S and 5S in northwestern Ontario. Site 3E is represented by Pukaskwa National Park. 5S Of the nine established Wilderness Parks, six (including Pukaskwa National Park) meet the optimum size requirements, two meet minimum size requirements, and one, Killarney Provincial Park, does not meet the minimum size requirement (Table 2). Wilderness Parks cannot be established in the two southernmost Site s (6E and 7E), a function of development, 3S 4S 4W Fig. 2. Ontario's 14 Site s 2W N 3W 1E 100 0 10 0 200 300 Kilom eters 2E 3E 0E 4E 6E 7E 5E the distribution of private land, pressures from competing land uses, and historical land use patterns. Given the complex nature of land use and ownership in southern Ontario, wilderness protection in Site s 6E and 7E will require a different approach. 5.1.2. Wilderness Zones in Natural Environment and Waterway Parks Table 2. Wilderness Parks in Ontario. Park Site Size Polar Bear 0E, 1E 2,408,700 Quetico 4W 475,819 Opasquia 2W 473,000 Woodland Caribou 4S 450,000 Wakaba 3W 155,000 Pukaskwa National Park 3E 187,780 Lady Evelyn-Smoothwater 4E 75,400 Kesagami 2E 55,977 Killarney 5E 48,500
To date, 12 Wilderness Zones have been established in five Site s (Table 3; Fig. 4). Of note is the Algonquin Northern Wilderness Zone in Site 5E, which meets the minimum size criterion for a Wilderness Park. Therefore, Site 5E contains the equivalent of two Wilderness Parks and three Wilderness Zones. Similarly, Site s 3E, 4E, 3W, and 4W meet or exceed Wilderness Zone targets. Table 3. Wilderness Zones in Ontario. 5.1.3. Gaps in Ontario s Wilderness Parks System Current Wilderness Park targets can be met Fig. 3. Site Summary of Wilderness Parks in Ontario 5S 3S 4S 4W 2W 3W Park Established 1E Park Not Established N 100 0 100 200 300 Kilometers 2E 3E 0E 4E 6E 7E 5E through the allocation of 114,000-550,000 hectares to the parks system. One Wilderness Park must be established in each of Site 3S and 5S. Wilderness Zones have yet to be established in a number of Site s (Table 4; Fig. 5). 5.2 Wilderness Characteristics in Other Parks, Protected Areas, and on the Intervening Landscapes and Waterscapes Wilderness Zone Type of Park in which the Wilderness Zone is Located Site Size Coldwell Peninsula Natural Environment 3W 2,960 Lizard lake (W-1) Natural Environment 4W 2,740 Ferns Lake (W-2) Natural Environment 4W 2,200 Sleeping Giant (W-3) Natural Environment 4W 3,178 Little Missinaibi Lake + Waterway 3E 12,750 Thunder House Falls + Waterway 3E 8,625 Lake Superior Coastal Natural Environment 4E 12,952 Lake Superior Interior Natural Environment 4E 10,150 Spider/Clear Lake Natural Environment 5E 3,178 Lavieille-Dickson Natural Environment 5E 25,000 Algonquin Northern Natural Environment 5E 50,870 Algonquin Southern Natural Environment 5E 16,539 + Subject to Park Management Plan approval. In addition to the landscapes and waterscapes encompassed by Wilderness Parks, other significant areas of Crown land retain wilderness characteristics. These characteristics are important to the functioning of healthy ecosystems and the cultural, social, and economic values derived from them. Wilderness characteristics are maintained through: Other classes of parks and protected areas, such as Provincial Nature Reserve Parks, Conservation Reserves, and Provincially Significant Wetlands. Through the commitment to provide protection to these significant natural heritage areas and to complete the park class targets as part of the Lands for Life initiative, wilderness values will be significantly enhanced. Operational planning and management tools and techniques. For example, some Forest Management Plans restrict access (called Limited Access Areas ) to maintain the undeveloped and roadless nature of
Crown land areas which exhibit wilderness characteristics, and some District Land Use Guidelines (DLUGs) designate Remote Areas within which access is limited. Historically, MNR has developed, or sponsored development of, many programs that collectively contribute to the maintenance of wilderness values on the intervening landscapes and waterscapes. However, more work needs to be completed to assess their cumulative contribution. 6.0. Policy Implementation Wilderness values will be accounted for under the auspices of land use planning and resource management planning, such as MNR s Lands For Life program, and policy, legislation, and management programs developed in support of sustainable natural resource management in Ontario. Specifically, MNR will: 1. Identify and establish a Wilderness Park in each of Site 3S and 5S through the Lands for Life land use planning program. Candidate areas will be protected through interim management guidelines (see Appendix 2). This target will be met by 1998. 2. Identify and establish Wilderness Zones in each of Site 0E, 1E, 2E, 3S, 4S, 5S, and 2W through park management plans. Wilderness Zones in Site 3S, 4S, and 5S will be identified in 1998. Wilderness Zones in Site 0E, 1E, 2E, and 2W Table 4. A summary of Wilderness Park and Wilderness Zone target requirements in Ontario. Site Number of Parks Area of Park Number of Zones Fig. 4. Site Summary of wilderness Zones in Ontario 5S 3S 4S Area of Zones 4W Total Area of Wilderness Wilderness Area Requirements Parks Zones 0E 1* 2,408,700 0 0 2,408,700 Met 2,000-50,000 1E 1* 0 0 2,000-50,000 2E 1 55,977 0 0 55,977 Met 2,000-50,000 3E 1** 187,780 2 21,375 209,155 Met Met 4E 1 75,400 2 23,102 98,502 Met Met 5E 1 48,500 4 95,587 144,087 Met*** Met 6E +++ +++ 0 0 0 +++ 2,000-50,000 7E +++ +++ 0 0 0 +++ 2,000-50,000 3S 0 0 0 0 0 50,000-100,000 2,000-50,000 4S 1 450,000 0 0 450,000 Met 2,000-50,000 5S 0 0 0 0 0 50,000-100,000 2,000-50,000 2W 1 473,000 0 0 473,000 Met 2,000-50,000 3W 1 155,000 1 2,960 157,960 Met Met 4W 1 475,819 3 14,565 490,384 Met Met Total 9 4,330,176 12 157,589 4,487,765 100,000-200,000 14,000-350,000 * Polar Bear Provincial Park meets the Wilderness Park commitment for Site s 0E and 1E. ** Pukaskwa National Park. +++ Wilderness Park targets cannot be met in southern Ontario (Site s 6E and 7E). *** 1,500 additional hectares are needed to meet the minimum size requirement for Killarney Provincial Park. 2W 3W 1E 2E Site s in which Park and W ilderness Zone Targets have been met N 10 0 0 10 0 20 0 30 0 Kilom ete rs 3E 0E 4E 6E 7E 5E
will be identified by December, 1999. 3. Continue to work with partners and clients to assess opportunities to protect and manage for additional wilderness areas (e.g., Wilderness Zones and other public and private land opportunities) in southern Ontario Site s 6E and 7E. This will be pursued under the auspices of a variety of public land protection programs and private land stewardship and acquisition programs. 4. Continue to provide direction for the management of wilderness values on the intervening landscapes and waterscapes through a variety of existing policies and ongoing resource management and operational planning initiatives (e.g., Wetlands Policy, Policy Framework for Sustainable Forests, and forest management planning). 5. Enter into discussion with clients and partners to determine if there are any changes required to existing resource management and operational planning guidelines. The discussion will aim to: 5S Operationally define wilderness characteristics and identify those Fig. 5. Site s in Which All Wilderness Park and Zone Targets Have Been Met 3S 4S 4W 2W 3W 1E Wilderness Zone Target Met N 100 0 100 200 300 Kil om eters 2E 3E 0E 4E 6E 7E 5E characteristics through landscape-level assessment. MNR will complete a GISbased mapping project in support of landscape-level assessment. Identify and describe the cumulative contribution of existing area designations (e.g., Conservation Reserves, Wildlife Management Areas, Limited Access Areas, Areas of Concern, Provincial Nature Reserves and other parks, and Provincially Significant Wetlands) to the maintenance of wilderness characteristics. Identify and describe existing tools and techniques (e.g., Provincial Guidelines, Construction/Operation Manuals, and Resource/Environmental Manuals) that collectively can be employed to manage for wilderness characteristics on the intervening landscapes and waterscapes. Assess the need, pursuant to the above discussions, for additional guidelines and techniques to manage for wilderness characteristics. Appendix 1: A Description of Wilderness Parks in Ontario Parks Parks are established under authority of the Provincial Parks Act. They are Crown lands set aside to protect ecological and cultural values throughout the Province. Park management plans are used to identify and establish management zones in each park. Wilderness Parks Wilderness Parks are large areas where the forces of nature are permitted to function freely and where visitors travel by non-mechanized means. With the exception of strictly managed access points in some parks, they are roadless. Wilderness Parks contain no permanent structures and are subject to restrictive management policies (Table A1) (a complete description of park management policies can be obtained
from Ontario Provincial Parks: Planning and Management Policies: 1992 Update, MNR). Recreational use is permitted only in ways that do not conflict with the primary goal of protection. Development is limited to backcountry campsites, portages, trails, and signs necessary for route identification. Wilderness campsites are either canoe-in or hike-in, established at a very low density, and offer primitive levels of facility development (e.g., designated fireplaces and pit privies) in keeping with the character of the landscape. MNR strives to create Wilderness Parks encompassing 100,000 hectares or more. The minimum size for a Wilderness Park has been established at 50,000 hectares. Wilderness Parks are managed through the establishment of zones: Wilderness Zone: This zone includes wilderness landscapes of appropriate size and integrity to protect natural and cultural values, and support remote recreation. Nature Reserve Zones: These zones include the significant biological and geological features. Access Zones: Access zones are small staging areas that provide parking and other basic facilities. Normally, only one access zone is established in each Wilderness Park. Historical Zones: In cases where Wilderness Table A.1. An abbreviated summary of management prescriptions in Wilderness Parks and Wilderness Zones. Detailed prescriptions are outlined in Ontario provincial Parks: Planning and Management Policies: 1992 Update, MNR". Activity Wilderness Park Wilderness Zone Roads No No Permanent Facilities No No Mining No No Hydro Development No No Logging No No Commercial Fishing No No Commercial Hunting No No Sport Fishing Yes Yes Sport Hunting No No Recreation Yes (Remote) Yes (Remote) Education Yes Yes Research Yes Yes Scientific Monitoring Yes Yes Parks contain sites of archaeological or historical importance, Historical Zones are created and protected with special measures. Wilderness Zones Wilderness Zones include wilderness landscapes of appropriate size and integrity to protect natural and cultural values, and to support extensive types of back-country recreation, such as canoeing or hiking. Development is limited to back-country campsites, portages, trails and signs necessary for route identification. Wilderness campsites are either canoe-in or hikein, established at a very low density, and offer primitive levels of facility development (e.g., designated fireplaces and pit privies) in keeping with the character of the landscape which the zone protects. Wherever possible, management policies are directed toward achieving minimum human intervention and the maintenance of Table A.2. The use of zones to protect wilderness in Ontario. Type of Park Wilderness Zone Waterway Yes Natural Environment Yes Wilderness Yes Recreation No Nature Reserve ++ Historical No ++ A Wilderness Zone designation is not required given the purpose and restrictive management prescriptions for Nature Reserve Parks. natural vegetation succession patterns (see Table 1). Wilderness Zones can be established only in Wilderness, Waterway, or Natural Environment Parks (Table A2). Wilderness Zones range in size from 2,000-50,000 hectares. Appendix 2: Interim Protection Guidelines Interim protection guidelines for candidate protected areas include: Temporary withdrawal from prospecting and staking under the Mining Act. No permits, or licenses, granted under the Aggregates Act.
Deferral of forest management activities through the forest management planning process. No new dispositions granted under the Public Lands Act
Ontario's Approach to wilderness: A Policy