ISO. It is hoped that through the ISO, a statement of principles and measurable standards for

sustainable forest management could be developed at the global leveL io Under this arrangement,
the CSA certification process would be in conformity with ISO requirements.
The Committee was informed of another option for dsolgning a forest management

certification program. In testimony to the Committee, Professors Baskenrifie and Wsetman called
for the federal government to create an in-house Forest Management institute which would have

three functions: (a) certification of individual forests so as to srrsurs that these are being managed
in a sustainab!s manner with respect to an array of values; (b) the development of certification
procedures for non-timbsr values; and (c) periodic auditing of forest management activities.4'he
principal objective would be to ensure that the forest can consistently deliver an array of values
over a time hodzon of the order of 100 years."43
As much as the Baskerville and Weetman proprrssl warrants serious examination, we tend at

this time to favour the industry led process, on the basis of cost and the fact that the current drive to

develop an international certification process under the auspices of the ISO is well underway. Given
that Canadian industry is heavily dependent cn exports, it is also critical that any csrtWcation be
acceptable internationally rather than just oriented to Canadian conditions. Ths ISO process
should provide this international recognitiorn. However, should the industry-driven process prove to
be unacceptable to the Canadian public and!or international markets, ws would then urge the
federal government to assess the feasibility of developing a replacement certification process. The
Committee therefore recommends:

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Recommendation No. e: That the federal government fully support current efforts
to obtain domestic and international certification for Canadian forest products
through the Standards Council of Canada and the International Standards
Organization.

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It is generally recognized that the forestry sector suffers from a low public profile, apart from

ths negative pub! icily that the clsarcuNng controversy has generated. This is regrettable, given the
industry's status as the country's largss&, and ths need for sound forest policies backed by an

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educated and supportive public. There is an urgent need for sensitizing all groups in society, from
politicians and political leaders to the school-aged child, of the merits of our most important natura!
resource, and of Canada's efforts and performance in implementing sustainable forestry.
Increasingly, the Canadian public is also expressing its interest to decide how its forests are to

be used and managed. The National Forest Strategy recognizes and supports this move toward
greater public involvement. Ths Committee is also of the view that greater public involvement is an
entirely appropriate objective, especially given the fact that 90% of Canadian forests are under
j0ublic tenure,
In order for that decision-making to be effective, however, the public requires timely, accurate,

objective and easy-to-comprehend information on the state of forests and forestry issues in
Canada. According to the Canadian Forestry Association (CFA), a national federation of provincial
organizations specializing in educating the public about forestry issues, "never in the history of
Canada has there been a greater need for public forest education."ss
We are whole-heartedly in agreement with this statement. Canadians need to have all of the
. facts regarding forest inventory, harvesting practices, other aspects related to sustainabls forest

management and the current state of the industry. Only then will they be in a position to make
Jnformed opinions and participate in decision-making. In this regard, it is also worth mel!tloning
that the CFS is required by law to publish an annual State of ths Forests Report. Moreover, in
cooperation with provincial and territorial departments responsible for forestry, ths lsderal
government undertakes every five years a comprehensive national forest inventory. The resulting
information is then made public.
The Committee would like to ensure Canadians that the information contained within these

documents is authentic. It is our view that these reports be made subject to an independent review
mechanism. Possible approaches, among others, could include a broadening of ths Canadian
Forest Inventory Committee to include an audit fun&ion, or the establishment of an
ombudsman/auditor specifically for the forest sector. Ths Committee recommends:

Recommendation No. Sl That the federal government work with provincial and
territorial governments to develop, on the basis of scientific Indicators, the national
data required to accurately measure and report on the achievement of sustainable
forestry.

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Recommendation No. 6: That ths federal government, ln conjunction with the
provinces and other stakeholders, design an independent review mechanism to
assess the Information contained in ths National Forestry Data Base and the annual
Report "The State of Canada's Forest".
While the Committee's report will hopefully help in the education process, its distribution is

rather limited. Fortunately, the principal mandate of the CFA itself is one of balanceo and objective
public education. Examples of CFA activity include the organization of forestry conferences for
school teachers as well as the organization of the annual National Forest Week. We believe that the
federal government could, through the CCb-M, strike up an effective partnership with such a group

to disseminate information about forestr

hs Committee therefor:; '.commends:

Recommendation No. 7: That thb: iederal government, irl conjunction with the
provinces/territories and other major staksholders, launch an aggressive and
comprehensive public education campaign to infornb Canadians about ths current
state of Canadian forest management es wsff as ths economic and environmental
Importance of a sustainabls forest resource.
4.

Research & Development
R&D has always been the basis of federal acflon in the forestry sector. The Canadian Forest

Service (CFS) undertakes a wide range oi research projects both in the basic and applied fields,

and it is also involved in ths transfer of technology to the foresb. Issues addressed include forest
protection, the environment, forest utilization and production. Increasingly, research priorities are
being revised to ensure that they reflect resource sustainability and environmental protection. The
R&D work that the federal government conducts in forestry has allowed its scientists to become
internationally recognized.
The annual R&D budget and related manpower at the CFS is in ths order of 890 million and
850 staff respectively. On top of this, strategic links have also been developed with industry,
universities, the provinces, other federal departments and three organizaffons undertaking

industrial research (Forest Engineering Research Institute cf Canada, Forintek, Pulp and Paper

Research Institute of Canada). Even greater coordination of effort will be required in the future.
The Committee heard from a number of sources of the need for a world-dass national R8 D
institution. A call also went out for a shift in ths focus of ths CFS away from traditional sustainable
timber yield research towards research on the broader ecosystem and landscape management

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approach referred to in Chapter 3. Finally, the Committee heard of a perceived need for greater
coordination between various government and academic research arms in the "ransfer of
information and technology to forest operations. We understand that the CFS is currently
fifevsloping its nsw Strategic Plan for Research. As input to this important process, we would
.recommend:

Recommendation No. th That the Rfko capabilities of ths Canadian Forest Service
be reoriented to place even greater emphasis on the sustainabllity of Canada's
forest harvesting and regeneration practices, especially clearcutting. Special
attention should be devoted to biodiverslty; wildlife; and forest ecosystem and
landscape management.
Recommendation No. 9: That the federal government, the provincial governments,
research institutes snd ths academic community work together to more effectively
transfer ideas and technoiogy to stakeholders active in the forest. Ths Model
Forests network, among others, should serve as an appropriate two-way
mechanisnt for such a transfer of knowledge.
tfrfodei forests frrogrsrn

The Model Forests Program is a $ 54 million, six-year Green Plan program whose objective is
to enable various forestry Btakeholders in a region to cooperate in the development of nsw

approaches to sustainable development of the forest. Included in the new forestry practices being
examined are landscape design, a comparison of harvesting to natural disturbances and new
efforts to support the natural regeneration of the forest.
Tsn working modsls44 of sustainable development, identified through a national competition,

are spread across the five major forest eco-regions of Canada. Together, these projects cover
almost six million heclares of forest lend, snd involve up to 250 groups. Each site is a working scale
model of sustainable forest management, managed by a partnership ot ksy interest groups relating
to the forest in question.

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An additional two model forests have been developed in conjunction with Mexico,

negotiations with Russia and Malaysia are undenvay to establish madel forests there. Funding for

this $ 10 miliion international initiative is derived from the budget of ths Department of Foreign
Affairs. The eventual aim is to develop an international network of projects, with funding to come
from an international partnership of institutions and countries.
The Committee is qui'e appreciative of the effort undertaken within the model forests to test
-

nd demonstrate the best sustainab!e and ecologically-based forestry pracffcss available. In our
view, they represent an appropriate response to the growing sense in Canada that forest
management needs to change to integrate the array of values that the forest offers. We are of ths
opinion, wever, that the selected projects within the program t fully adaptable to the rapid
evolution of forest management practices, The Committee is of t:» view that ths Model Forests
Network be expanded.
.

It has also come to our attention that none of the applications for Model Forests management

from abariginai groups were accepted. According to witnesses, in only ons Model Forest (that at
Prince AlbeV) is the aboriginal input into decision-making substantial. Ws believe it would be
appropriate for the Model Forests Network to be expanded, to allow for the testing of sustainabl+
forestry models that are suitable to the particular perspective of aboriginal people.
The Committee recommends:

Recommendation No. 10: That to contribute to the achievement of sustainable
forestry, the federal government enlarge the existing network of Model Forests, and
ensure that at least ons sdditlonsi Model Forest be totally under ths management of
aboriginal people.
IThe Committee notes fhsf members of the Reform Party oppose fffN expansion of fhe
fyforfsl Forssf program pending the assembly of sufficient data from existlng Nodsf Forests fo

slloav reflosel evaluation of fhe concept.J
8.

Forest Resource Developmsnf Agrssmsnfs
Ta promote regional forestry development, the federal and provincial governments have

signed incividual cost-shared Forest Resource Development Agreements (FRDAs) and such
initiatives asthe Eastern Quebec Forestry Development Program. These programs are designed
stimulate increased and sound forest management activity by various stakeholders such as

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industry, woodlot owners, Indian bands, provinces/territories and the federal

government and to
provide a program of R8D and technology transfer to the areas of Integrated resource

management, forest management planning and silviculture. Unless extended or reconstituted in
some other way, most of these will run out at the end of the 1994-95 fiscal year.
As many witnesses stressed before the Committee, the FRDAs have, over the years, provided

important benefits to the forestry sec'sr, and the Coinmittee does not wish to see funding for the
FRDAs terminated. At the same time, we would like to see future funding to be more targeted

towards defined uses and to be conditional upon the demonstration of sustainable forestry

practices. Recognizing that FR DAs are but one of many mechanisms to transfer federal assistance
to the forest sector, the Committee recommends:

Recommendation Mo. 11i That the federal government negotiate a renewal of the
Forest Resource Development Agreements (or equivalent arrangsmsnts) wÃh the
provinces for an additional five-year phase, and that the principal foci of ths new
programming be the devstopmsnt of forest ecosystem snd landscape
management techniques, and the continuation of financial assistance to private
woodlot owners to encourage sounder forest management practices.
Recommendation ffo. 12: That in the future, the provision of assistance through
reconst uted FRDA programming be conditional upon program
of sustainabls forestry practices. In the case of private woodlots,
federal funding would be contingent upon the existence of an approved
management plan.

recipients'emonstration

Aboriginal Forester Inifiativss

7.

For hundreds of years, the aboriginal people of Canada have held a unique bond with the

forest, which has served their material, cultural and spiritual needs. In fact, ths point has often been

made that aboriginal people were the first stewards of Canada's forests.
Throughout this extended period of time, considerable respect for the protection of the forest
for future generations has been observed within the aboriginal community. Respect for biodiversity

has a(so been of paramount importance. This respect is derived from native peoples'ong-held
views that land and forests should be viewed in s holistic way.
41

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his rather unique perspective, it is not surprising that the Committee heard a host o

tm aboriginal peoples and groups on the issue of forest harvesting specifically, as we
concern
as on the broader subject of forest management. Whereas there was a modicum of supp'or the

clearcuttirig method, when undertaken in appropriate circumstances, concern was expressed

(most elaborately perhaps by the Cress of Northern Quebec) svith the effects of forest harvesting on
traditional land-based activity such as hunting and trapping. As Peggy Smith put it so simp!Ir, it is
aboriginal communities who have suffered the most from poor harvesting practices in the past."&&
Above all else, the dominant message that the Committee received was that aboriginal

peoples want greater involvement in decision-making regarding forest use. TI. was a point
in the forest
stressedby virtually all aboriginal witnesses. It is also their de"". 9 to actively particir
sector and to have access to greater business development, training ai educational
opportunitiss. Finally, they stated that since ths federal government has a fiduciary responsibility
on reserve lands, it must continue to fund adequate forest programming on these lands generally,
and particularly in the case of discontinuation of the FRDAs. The regeneration of forests on reserve
lands is an issue of particular importance within the aboriginal community.

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Strategic Direction
No. 7 of the National Forest Strategy already commits governments
e
implement an aboriginal forest strategy. This strategy would address issues unique to forests on
reserve lands given their legal status under the Indian Acf, In particular the question of forest

regeneration. It would also provide for enhanced aboriginal opportunity in the forest indu~, an
important development, given that a full 80% of all aboriginal communitiss are located in Canada's
forest productive regions.
While the federal government has recognized the benefit of such a strategy, its
implementation strategy has not yet come about. The Committee is of the view that aboriginal

concerns must be dealt with in a timely fashion.
A final concern to note is ths expressed need for an inventory of traditional land uses, to
accompany that of the timber resource. This, it was felt, is required for aboriginal peoples to have a

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more informed voice in the forest management planning exercise. According to Dwayne Desjarlais,

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Notional Aboriginal Forestry Associetlon, submission to rno House ot commons stsnding commlsee on Neturel Resources,
Atutl 13, 1994, p. 3.

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"We need to document where prime hunting, fishing and trapping areas are. We need to pinpoint

specific sites traditionally used for berry picking, medicine gathering and spiritual use. Then we
must gst involved in the planning process at the operational levei "4s
To ensure that the aboriginal community has a greater voice in Canadian forest management,

the information on traditional land use patterns on which to base its public involvement, as well as

an improved position within the industry itself, the Committee recommends:

Recommendation No. 13: That the Minister ot Natural Resources work together
with other federal government departments snd the Canadian Council of Forest
Ministers to implement the aboriginal component of Canada's National Forest
Strategy under strategic direction no. 7.
Recommendation No. 14: That the national forest Inventory be broadened to
include an inventory of traditional'land use activities.
8.

Concerns Regarding Private yyoodfots
Almost 9% of Canada's commercial forso&, in total over 19 million hectares, is privately-owned.

=This resource base, subdivided amongst the more than 425,000 private forest landowners, is

intensively harvested to provide a full 15% of Canada's annual wood harvest. Private forests are

also a good source of specialty products such as maple syrup, Christmas trees and fuelwood, and
provide significant recreational and environmental benefits. The size of private forests varies
greatly, ranging from small individual woodlots to the large holdings of certain forest products
firms.

There appears to be considerable scope for improving the level of forest management on
private lands. Recent estimates peg the proportion of private forests being managed through
sound forestry practices at a mere 30%.47 Often, the level of the private owner's resources or
expertise restrict management quality. Moreover, the Committee was told that the boom in U.S.
lumber markets has recently provided owners with an incentive to overcut their woodlots without
having the full capacity to undertake adequate regeneration and proper forest management.

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incorporate sustainable forestry practices? In many cases, landowners have joined together

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form associations or marketing boards to improve forest management and forest products

marketing. The document underlying the National Strategy offers additional possibilities:

development of small-scale forest management techniques; improvement in information on
private forests and markets; the development of skills and knowledge, and the provision of support
for models of sound forest practices on private lands. s
Another possibility might be the renewal and expansion of the FRDAs to include the provision
of assistance programs to private woodlot owners based on satisfaction of sustainable forestry

criteria. This policy measure we have already recommended, in Recommendations 11 and 12

above. The same integration of improved management objectives could also be factored into
provincial assistance programs.
Both of the witnesses representing private woodlot owners, the Canadian Federation Of

Private Woodlot Owners and the Regroupement des sociIffIIs d'amIfnagemenf foresffer du QuIfbec
(RESAM), called on the federal government to reform the tax provisions facing their members. The

former group in fact presented the Committee with an 8-point list of recommendations dealing

with

tax issues.
in a nutshell, the Federation asked for assistance in the following areas:

e

recognition of small woodlot owners as a special class of taxpayers;
ability to access unlimited deductibility from income of forest development expenses

and deductibility of the cost of timber stands in the year of woodlot purchase;
o

ability to employ the cash basis of accounting, and to consider a woodlot as an

income-earning asset or as a capital asset;

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capital gains eligibility; and

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access to a number of tax credits and shelters to promote woodlot purchases and forest
development.

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While the Committee recognizes that these requests for government support represent

important initiatives for the Federation, it has regrettably determined that a thorough examination of
these tax reform recommendations and their implications lies outside its current mandate. We
would like to assist, however, by submitting these private woodlot owners'oncerns to the federal
government for review of the feasibility of such tax reform.

International

EI.

As was already pointed out, certain environmental groups have criticized Canada's forestry

practices in key European markets. According to several witnesses, groups such as Gresnpeace
have been extremely successful inraising funds, upwards of $ 55 million per year in Germany alone.
A considerable portion of this amount is speciffcally directed to the campaign against clsarcutting.
Next to this, the International Forestry Communications Program of the CCFM, the promotion

campaign of the forest industry,4& and the effort undertaken by provincial governments pale in
comparison. The Committee was told by the Canadian Ambassadors to Germany and the
European Community that even indivi'.ual companies should be undertaking active promotional
campaigns to defend their forestry operations.
In our view, and the minister of Natural Resources concurs, there is an urgent need to develop

a more effective communications/public relations campaign there and in other countries, to
provide consumers with accurate information on industry's shift to ecologically sound forestry

practices. It is absolutely vitai that the positive message of Canadian forestry go out to
overseas markets, so that the world can discover that Canada's forestry practices are as

enlightened as anywhere else.
During her appearance before the Committee at the time of Main Estimates review, the
Minister of Natural Resources announced her intention to request the Ministers of Foreign Affairs

and of International Trade to accelerate their department'fforts to properly inform Europ
journalists and consumers. We applaud the Minister'5 intentions, but feel that more needs to
done.

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lsd erel funds.

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First, we are of the view that t ~ various overseas: mpaigns employed be coordinated into
more effective bilateral response. Ws also believe that,ne organization of a high-level conference~
on sustainable forestry management at the level of the European Parliament or at the country level
would serve to lend a higher proffle to the European campaign. The Committee therefore

recommends:

Recommendation No. 15: That the federal government, In conjunction with the
provinces and territories, industry, environmentalists and other stskeholders,
strive to consolidate the communications strategies currently employed in
International markets Into a single snd effecthre campaign to promote Canada's
forest management practices abroad.

Rscommendatlon Mo. tfk That as part of such a revamped international
communications strategy, the federal government work in concert with Canadian
forestry stakeholders and their international counterparts to organize a
high-profile conference on sustainable forestry st the European Community level
and/or within specific countries.

Ill

As this report has stressed, Canada's forest practices are similar to, if not superior, to

those

adopted by other forest nations. Yst Canada continues to be the subject of international pressure
regarding Canadian forest products derived from old-growth forests. Other trading nations may be
similarly at risk in the future.

~~rit'%s
M~I se

What is urgently needed to "level the playing ffsld" between various forestry countries is an
international agreement on principles and standards of forest management that would be both
transparent and scientifically defensible. Such an International Convention on Sustainable
Forestry would address the management, conservation and sustsinabie development of all types
of forests and, in so doing, provide benchmsrks against which Canada's performance could be
measured objectively. In general terms, it would also help to facilitate international trade in wood
products As one of the Committee's witnesses pointed out in a June 1993 speech. the

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international agreement must, as a minimum, address the following topic areas:

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forestry practices, silviculture, and forest renewal;

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wilderness protection and biodiversity;

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protection of air, water and soil;

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conversion of native forests to plantation forestry with exotic species;

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9

conversion of forest lands to agriculture and human settlement; and

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morlitoring, compliance and enforcement sg

In the months leading up to the Earth Summit in June 1992, delegates from

forestry countries
were involved in serious discussions surrounding the development of such an international
agreement. Regrettably, the forests issue tumed out to be among the most controversial.
Consensus could not be achieved on a number of key issues, with the 6-77 group of developing
countries not on side with the proposals of developed nations. There did emerge, however,
,consensus on a non-binding Declaration of Principles dealing with forestry management, which
recognized both the socio-economic and environmental value of forests.

Discussions on the convention have resumed in the two years since the breakdown of the

talks at Rio. The confrontation which was so prevalent between developing and developed
countries appears to have now evolved into a mood of cooperation. A good example of the new
spirit of cooperation is the joint Canada/Malaysia initiative designed to provide a forum on

internationa! forest policy issues. It essentially represents a major step in the movement towards a

global consensus on the pressing need to fashion an international convention on sustainable
forestry.
As a precursor to international efforts to gain consensus on a forestry convention, Canada is

also spearheading discussions on the development of internationally acceptable criteria for
sustainable forestry. These indicators are necessary to develop common concepts and language
to assist international deliberations on forestry. To this end, in the fall of 1993, it hosted a major
international Seminar of Experts on Sustainable Development of Boreal and Temperate Forests

under the auspices of the Conference on Security and Cooperation in Europe (CSCEj, at which
some 40 countries were present. This Seminar resulted in the drafting of a set of sustainable
development criteria, indicators and measurement schemes for the boreat and temperate forests.
The Committee recognizes the adoption of an international forest convention to be an
extremely important policy achievement. Canada's position as a global forestry superpower

makes it incumbent that it show proactive leadership at these international discussions. At the
same time, the Committee heard that next to other forest nations, the resources of the Canadian
negotiating team were stretched to the limit. We believe that a sizeable enhancement of support is
required, and thus recommend:
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notes lor a presentation to the Fest Global Conferenoe on Paper and tho BrNlronmenh Brussels, Belgium

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Recommendation No. 17: That given the critical Importance to Canada and the rest
of the vrorld of achieving an intersectional Convention on Suatalnable Forestry, the
federal government Increase ita financial and personnel support of the Canadian
negotiating team leading up to the conclusion of such sn agreement.

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APPENDIX A

List of witnesses
Associations and Individuals
:Department of Natural Resources, Canadian
Forest Serviceo
Yvan Hardy, Assistant Deputy Minister;
Fred C. Pollett, Science and Sustainable
Development Directorate.
National Forest Strategy Coaiition:
Jean-Claude Mercier, Chair.
Canada's Future Forest Alliance:
Colleen McCrory, Chairperson, Valhalla Society;
Adriane Carr, Executive Director, Western Canada
Wilderness Committee.
Canadian Federation of Woodlet Owners:
John Robiee, President, Forest Group Ventures
Association of Nova Scotia;
Victor Brunette, Director, "F(odo)ration des
producteurs du bois du Quebec".
eeansdian Nature Federation:
Caroline Schultz, Coordinator,
Ancient Forest Program;

Issue

Date

8

Tuesday, April 12, 1994

8

Tuesday, April 12. 1994

9

Wednesday, April 13, 1994

9

Wednesday, April 13, 1994

9

Wednesday, April 13, 1994

9

Wednesday, April 13, 1994

9

Wednesday, April 13, 1994

9

Wednesday, April 13, 1994

Jim Gray, Member, (Wildlands League).

Council of Forest Industries of British Columbia
(COFI):
Dan Alexander, President and General Manager,
Rustad Bros. & Co. Ltd.;
Raid Carter, Resource Analyst,

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Fletcher Challenge Canada.
Forest Alliance of British Columbia:
Patrick Moors, Director and Chair, Forest Practices
Committee;
Earl Smith, Chief, Ehattesaht Tribe;
Jack Munro, Chairman.

Gresnpeacs Canada:

Jeanne Moffatt, Executive Director;

Dr. Elliott Norse, Chief Scientist, Centre for Marine

Conservation (USA);
Karen Mahon, Campaigner.
49

nd Individuals

Issue

s Association of

9

Wednesday, April 13, 1994

edt

9

Wednesday, April 13, 1994

overnment Affairs;
gist,
stry Association:

9

Wednesday, April 13, 1994

9

Wednesday, Ap

9

Wednesday, April 13, 1994

10

Thursday, April 14, 1994

President;
Environment snd

lsor;
ginal Forest Technician.

4s d's tnagement
ESAM';
g., Dirt

1, 1994

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nt forestier et agricole

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fiance:
Director, Western Canada

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rson;
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es of British Columb..

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Thursday, April 14, 1994

1L

Thursday, April 14, 1994

and General Manager,
d.
Forest Alliance of British Columbia:

10

Thursday, April 14, 1994

10

Thursday, April 14, 1994

10

Thursda J, April 14, 1994

Patrick Moore, Director and Chair,
Forest Practices Committee;
Earl Smith, Chief, Ehattesaht Tribe.

GreenpeaceCanada:
Dr. Elliott Norse, Chief Scientist, Centre for Marine

Conservation (USA);
Karen Mahon, Campaigner.

International Woodworkers Association of
Canada:
Warren Ulley, Third Vice-President;
igm Pollock, Director of Environment and
Land use.

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University of New Brunswick.
tniatlf'form

Quebec Forest industries Association Umlted:

22

Thursday, May 12, 1994

Quebec Lumber Manufacturers'ssociation:

22

Tllursdayi May 12, 1994

IHlll

Andrh Duchesne, President and Director General.

mk II II

Gaston Ddry, President and Director General.

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Associations and Individuals

Issue

Canadian Embassy to the Federal Republic of
Germany:

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Paul Heinbecker, Ambassador.
Mission of Canada to the European Communities:
Gordon Smith, Ambassador.
Department of Natural Resources:
Hon. Anne McLellan
Minister of Natural Resources
Yvan Hardy
Assistant Deputy Minister

Thursday, June 2, 1994

Thursday, June 2, 1994

Wednesday, June 8, 1994

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Canadian Institute ot Forestry
Canadian Nature Federation
Canadian Pulp 8 Paper Association
Council of Forest Industries of British Columbia
Conseil rtfgional de concerfafion ef de dgveloppement du Bas St-Laurenf
Department of Natural Resources — Jag Maini, Special Advisor
Department of Natural Resources — Hon. Anne McLellan
Department of Natural Resources — Jean-Claude Mercier
Department of Natural Resources — Fred C. Poliett
East Kootenay Environmental Society

April 2u, 1994

Ecoforestry Institute
Forest Alliance of British Coiumbia
Forest Engineering Research Institute of Canada

May 8, 1gg4

Spring 1994
May 12, 1994
April 13, 1994
March 31, 1994
May 5, 1994
June 8, 1994
April 12, 1994
April 12, 1994

June 5, 1994
April 13, 1gg4
April 20, 1994

FRANKIN, Jeny F,

April 1994

Grand Council of the Cress of Quebec
Greenpeace Canada
HARDY, Yvan — Canadian Forest Service
International Woodworkers Association of Canada (IWA)
Intertribal Forestry Association of British Columbia
KIMMINS, J.P. (Hamish) — University of British Columbia

May 10, 1 gg4
April 13, 1994
April 12, 1gg4
April 12, 1gg4

May 10, 1gg4
April 25, lgg4
May 11, 1gg4

LaPIERRE, Louis

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Date Received

Saskatchewan Department of Environment and Resource Management
SHARE B.C.

Silva Forest Foundation
Sierra Club of Canada
SMITH, Gordon (Mission of Canada to the European Communities)
Town of Lac la Biche (Alberta)
Wildlife Habitat Canada

May 17, 19~94
April 13, 1994

April 13, 1994

May 10, 1994
May 12, 1994

May 16, 1S94
May 12, 1994
May 12, 1994

May 4, 1994
April 20,
1994'arch

Manitoba Department of Natural Resources
MacMillan Bloedel Limited
National Aboriginal Forestry Association — Peggy Smith
National Aboriginal Forestry Association — Harry M. Bombay
New Brunswick Forest Products Association
Newfoundland 3 Labrador Department of Forestry & Agriculture
Ontario Forest Industries Association
Quebec Forest Industries Association
Quebec Lumber Manufacturers Association
Quebec Order of Forestry Engineers
Province of British Columbia
PULKI, Reino — Lakehead University
RESAM — Regroupement des socit)tds d'smr)nagement du Quttbec

1994
April 5, 1994
April 25, 1S94
May 10, 1994
April 13, 1994
April 26, 1994
May 10, 1994
April 21, 1994
June 16, 1994
May 6, 1994

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57

APPENDIX

Standing Committee on Natural Resources
Report on Forestry Practices in Canada
Dissenting Opinion by Bloc Qubbecois MPs

1.

INTRODUCTION

Mataphdia— Matane, Mr. Roger Pomerleau, MP for
Abitibi, all three representing the
Anjou — Rivi(ire-des-Prairies and Mr. Bernard Deshaies, MP for
Resources, listened closely to the
Bloc Qu(ib(cols (BQ) on the Standing Committee on Natural
and its broader
witnesses who appeared before the Committee on the issue of clearcutting
Mr.

Renvoi

Canuel,

MP

for

implications.

several witnesses.
The BQ MPs carefully noted the concerns expressed to the Committee by
contribution by the forestiy sector to the
They were sensitive to points including (1) the significant
regions; (2) the
economies of Canada and Quebec and particularly those of many outlying
certain Canadian forestry
international problems created by a poor image of cutting practices by
an indispensable touchstone
companies; snd (3) the importance of sustainabls development as
that must guide action by all parties in the forestry sector.
This paper is the dissenting opinion by the BQ MPs.
I

have endorsed some
On reading the Committee Report, the BQ MPs consider that they could
find the Committee's technical analysis
of the Committee's recommendations. For example, they
provinces may legitimately
relevant in some regards. In their opinion, however, since (1) only the
National Forest Strategy and
enact legislation in this field; and (2) Quebec is not a signatory to the
jurisdiction over natural resources
the Quebec government has continually reaffirmed its full
guidelines on Quebec or allow
including forests, they cannot accept a Report that would impose
full and formal consent by Quebec.
the federal government to take action or make policies without
international

2.

UNACCEPTABLE CENTRALIZATION PROCESS

hue and cry raised by cutting practices in British
As was repeatedly stressed, the
spotlight,
Columbia placed the issue of forest development in Canada in ths
with those in other provinces,
some figures presented to the Cominittee, nearly all cutting

Cutting practices in effec in B.C. cannot be compared

particularly Quebec, According to

done in B.C. in 1992 ': as clsarcutting without soil protection or forest renewal.'hs BQ MPs
note recent efforts by the B.C. government to remedy the situation.

di

The purpose of the Committee's present deliberations was originally "to determine if
clearcutting represented a sound practice within the context of sustainable forestry..." That
purpose rapidly spread to a "broader ccntext of forest management",3 which is an area of exclusive
provincial jurisdiction.
The BQ MPs note that the federal government intends to adopt a centralized approach in
order to better mediate a problem concentrated in one province.s

Constitutional ote
Section 92A of the Constitution Act, 1982 specifies the powers of the provinces in ths areas of
"development, conservation and management of non-renewable natural resources and forestry

't

resources... including... !he rate of primary production therefrom".

Qn ths other hand, using its spending power and its judisdiction in related areas as pretexts

and despite ooposition from Quebec, the federal government has gradually intruded into this area
of provincial jurisdiction.

Quebec'a absence from the so-called national process

Ths BQ MPs noted that the federal government and i!s various departments and agencies
justify their actions in the forestry sector on the basis of, for example, decisions by ths Canadian
Council of Forest Ministers (CCFM), the originator of ths National Forest Strategy.
!t must be pointed out—and this point was rarely noted by ths various federal representative

the Committee hearings—that Quebec has always rejected this process, which it finds
illegitimate and centralist:
(1)

Quebec opposed, in vain, the creation of canada's Department of Forestry, lightly seeing it
as an intrusion into one of its areas of exclusive jurfsdbtfcn;

pv 8 urdages, presentsaon to the standing committee on Natural Resources ciearcutsng, April 20, 1834, page 5

canada: A Madel Forest Nafron in roe Making, Repen by the standing Commiaee on Natural Retmurces, 1934, page 4,

3

It is no secret thai most et the controversy over the ctesrcutllng issue has occurred in srilish columbia.'eport by ms standing
Committee on Natural Resources, page 33.

(2)
(9)

(4)

Quebec is not 6 signatory to the National Fore~& Strategy;"

since 1991 and the failure of the Meech Lake Accord, no Quebec Minister has participated
in the work of the CCFM;
Quebec hss just published its ovrn strathgie d'amsnagement des forsts [forest
development strategyj, thus exercising its exclusive jurisdiction recognized in the
Constitution.

Consequently, the BQ MPs cannot ratify a federal process that Quebec would not fully
sUpport.
The BQ MPs note the illegitimacy of every action taken by the federal government without

unanimous formal agreement by the provinces, including Quebec. In their opinion, Quebec could
confer legitimacy on such actions only by signing the National Forest Strategy and participating
acti " 'y and formally in the work of the CCFM.
In light of the preceding observations, the BQ MPs must dissociate themselves from most of

the Committee's recommendations.
It is therefore regrettable and very revealing

that the Committee has seen fit to recommend
that the federal government "adopt a more proactive national leadership rois in the forest sector,
ftotwlthstandjgg the fact that jurisdiction aver forest management lies with the provincial
governments" 6
m

The BQ Migs nevertheless consider that it is their responsibility to promote the interests of

I&l~s

Quebec and lne provinces in certain areas addressed by the Committee, particularly
federal-provincial forest development sgreemsnts, the rights of aboriginal peoples, the national
certification process, and Canada's international forestry strategy,

3.

~agtE

THE ISSUE OF FEDERAL-PROVINCIAL AGREEMENTS
The Quebec government has always opposed the federal government'6 spending power, that

is, its ability to uss sales and income taxes from Quebec taxpayers to invade areas of exclusive

Quebec jurisdiction.
4

The order dated December \, 1 gas

(f684 93) does not aulhortse the Copftt to scion Quebec's behalf. In it, Quebec tunes that it
shares the strategy's concerns,values and obiectives,andunequivocdfymIteratesilsfulliurisdic6ontodetermineils own policies,
progrmns and priorities in the forestry sector.
Report of the Standing Committee on Natural Rssourum, page 40.

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In addition, the BQ MPs cannot accept the obligation imposed on benefic anes of federal,unding to

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observe federai sustainable development standards (Recommendatrcn 11). They also consider
that it is the provinces'esponsibiiity to determine what standards will apply on their respective
temtories.

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The BQ MPs noted the willingness by all forestry companies, in Quebec and in the rest of
Canada, to set voluntary forest development standards.

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THE ISSUE OF CERTIFICATION

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These companies, in light of ths situation in which they find themselves in all provinces, find
the present pmcsss, initiated by private parties with the Standards Council of Canada (SCC),
legitimate. However. these voluntarv standards cannot then be imoosed on the orovinces.

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Nsveftheless, the BQ MPs consider that provinces wishing to do so must also take an active

part in the work of the SCC.

5.

THE INTERNATIONAL ISSUE
Under certain conditions, the international strategy proposed by the Committee appears

interesting to the BQ MPs.
First, ths major environmental groups must be party to Canada's certification process and

agree tc its main principles.
Second, the provinces must be party to the negotiation and organization of the Conference
and the International Convention on Forests, since it is ths provinces that will ultimately have to
ratify and enforce those decisions,
In addition, there can be no "consolidat[ing ofj the communications strategies currently

employed in international markets into a single... campaign... ",6 if that meansthat the provinces,
particularly Quebec, could not themselves set up their own international promotion and defence
stratsg e s.
I

B.

THE ABORIGINAL PEOPLES
In principle, the BQ is favourable to any proposal aimed at allowing the aboriginal peoples

to

participate in the management of forestry resources located on reserves.
This position by the BQ is part of its policy of recognizing greater selfMetsrmination by the
aboriginal peoples in managing their own tools for development.

7.

OTHER CONSIDERATIONS

The BQ MPs note that the concerns of environmental groups were not adequately taken into
consideration by the Committee. They also note that the position of the large forestry companies

dominated the Committee's deliberations. This point would have deserved more attention.

IIIMRII

feels obliged to
rescue Canada's international image, but that this image was tarnished by a fsw large forestry

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companies in B.C.

In addition, the BQ MPs could not help noting that ths federal government

ears/

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Reeommendafion No. 16, Repen of Ine standing commlaee on Natural Reeoumee, p. 54.

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Roger Pomorgeau, MP for Aniou—Ritfgtgre&es-Prairies
ggernsrd Qeshaies, MP for Abgtibi

Appearance before ths Standing Commates on Natural Resources. June

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At 10:00 o'lock a.m., the sitting was suspended.

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At 11:25 o'oclock a.m., the sitting resumed, the Vice-Chairman, Guy Arseneault, presiding.

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Rene Canuel moved, — That, pursuant to Standing Cider 108(1) (a), the Standing Committee
on Natural Resources append to its report on forestry practices the dissenting opinions and
recommendations of the Members of the Official Opposition.

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Julian Reed moved,— That ths motion be amended by adding at the end of it the following
words "of not more than 7 pages",
After debate thereon, the question being put on the amendment, it was agreed to, on division.

Afterfurtherdebate, thsquestionbeingputonthemainmotion
on the following division:

(as amended), itwasagreedto

YEAS

Julian Reed
George Rideout
Roseanne Skoke — (6)

Rfjginal Bblair

John Loney
Lee Morrison
NAYS

Roger Pomerleau — (3)

Renfj Canuel

Bernard Deshaiss
At 12j45 o'lock p.m., the Committee adjourned to the call of the Chair.

THURSDAY, JUNE 16, 1994

(33)
The Standing Committee on Natural Resources matin camera at 3:40 o'lock p.m. this day, in
Room 208, West Block, the Chairman, Robert Nault, presiding.

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Member(s) of the Committee pressntr Guy Arssneauit, R9ginald Bfjlair, Bernard Deshales, Jay

Hill, John Loney, Lee Morrison, Robert Nault, Julian Reed, George Rideout, Bsnolt Serrh, and Peter

Thalheimer.

in attendance: From the Research Branch of the Library of Pariisment: Peter Berg and
Jean-Luc Bourdages, Research Officers.
In accordance with Standing Order 108(2), the Committee resumed its consideration of
clear-cul jng. (Sse Minutes of Proceedings snd Ew'dence, dated Tuesday, April 12, 1994, issue No.

9)

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Ths Corj..rnittce resumed consideration of its draft report.

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It was agreed. — That ths draft report, as amended, be adopted
It was agreed,— That the Chair present the report, as amended, to ths House at the earliest

possible opportunity.

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It was agreed,— That, pursuant to Standing Order 109, the Committee request that the

government table a comprehensive response to this report within one hundred fifty (1 50) days.

It was agreed,— That the Chair be authorized to make such typographical and editorial

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ort be submitted to ths Clerk of the Committee no later than f 2:00 noon

lt was agreed, — That, in addition to the 550 copies printed by the House, t

0 additional copies with a special cover, and that the additional cost be assi
e Committee.
At 4:50 o'lock p.m., the Committee adjourned to the call of the Chair.

Roger Pr5fontainc
Clerk of the Committee

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east coast of Vancouver Island. In this case, the small stems of the understory, infested or deformed
trees, or trees that are too fragile to survive until the final harvest, are cut. However, it should be
borne in mind that this approach makes it possible to maintain the even-age character of the stand

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J.P. (Hi Igmmins. Unlverwly of British Columbic, Pmceedmgs, Issue No. 11, April 19, 1994, p. 9.
In Ibis mood we distinguish between 'selection end seleahre cutsng" since seleceve mmlng le synonymous wilh
high~roding.

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and, in the end, there will be a final cut or cfsarcut. In ths uneven hardwood forests
Ontario and Quebec, the method primarily used is also selection cutting, whereby sma
trees ars removed so that light can reach the soil and ths seedlings can get started.
cutting may be used in certain softwood stands.
The statistics compiled by FERIC for 1992 show a clear trend, in some provinces

use of modified clearcutting on Crown land and large industrial freeholds. For exam
Scotia and Quebec, 41% and 78% of cuts, respectively, were reporte as modiTied cise
with protection of soil and the naturally established regeneration inde understory. In ad
of the cuts in Quebec were partial cuts in tolerant hardwood forests, which leaves
traditional clearcutting operations.
However, FERIC recognizes that such stat -"rw must be viewed with caution

respondents designate silvicultural systems in the arne way, with the result that these
sometimes more reflective of the opinions of the people surveyed. For example, st
technically selection cutting, but is frequently considered clearcutting. Yet, some sxpe
Dr. Pulkki of Lakehead University, have informed ths Committee that when afi stems a
over more than two hectares, this must be considered clearcutting.
An example of statistical discrepancies lies in the data provided by Or. Bout

indicate that only 51%, not 78%, of forests harvested in Quebec in 1992 were harvested
of cutfing with protection of regeneration and soil protection.s

Once the various types of cutting have been defined in terms of the silvicultural syst

harvesting systems should be defiined in terms of the type of operations that take place
during cutting. F ERIC identifies four major categories of harvesting systems:
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Full-tree systems, in which trees ars brought with their limbs and tops to th

where they are usually mschanicafiy delimbed.
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Shortwood systems are similar to tree-length systems except that ths boles
shorter lengths in the stand snd hauled to roadside as logs.

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Cable systems include the same practices as those described in the two

previous types
of systems, but the logs and boles are moved using various cable systems.

The 1992 FERIC survey revealed that overall, the full-tree system predominates,

accounting
Quebec and
Ontario. In Newfoundland, on the other hand, 72% of wood is harvested
using the shortwood
system and 26% by the tres-length system. The cable system is restricted almost exclusively
to ths
woast of British Columbia, accounting for 36% of harvesting, while the other 64% is harvested
using
the tres-length system.

for 65% of industrially harvested wood and far exceeding this figure in New Brunswick,

Harvesting methods ars also undergoing a period of change in Canada. For instance, a
certain increase has been observed! n the use of tree-length systems so that the cutting

residues

are left on the ground, thereby ensuring better soil fertility. Some witnesses also mentioned this
aspect of forest harvesting to demonstrate the extent to which public perception of a practice can
influence its direction. For example, leaving the branches and tops of the trees in the
cutting ares
emphasized ths unsightly appearance of clearcutting. It was partially for this reason, but also to
facilitate silvicultural work after the cut, that there was a tendency to delimb the trees at

the roadside

and bum the limbs. Now because this practice reduces soil fertility, it is considered preferable to
leave this debris at the harvesting sites and perhaps even to reduce the residues to chips in order to
accelerate decomposition.
Aside from the choice of silvicultural and harvesting systems, the equipment used will also

have an impact on ths forest environment. For instance, because of the growing interest in cutting
with protection of regeneration and soil protection, harvesters must carefuliy plan the hauling roads
in order to limit the movement of heavy equipment. Similarly, the use of offroad haulers instead of
skidders Is preferable because csnying the logs has a much lesser negative impact on
regeneration than using skidders, which drag them along the ground.lo

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C994i, Preseedlngs, issue No. 11, p. 29.

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8. Clearcuttlng In Other Countries
Clearcutting is not limited to Canada; in fact, it is used widely in such countries as Finland,
Sweden, the United States and Russia. Of the 20 1 million hectares of forest lands in Finland," for
example, 100,000 hectarss was clearcut in 1990.12 This represents 0.5% of Finland's productive
forest, a figure similar to that of Canada. Over the past five years, clearcutting on forest lands

represented 25% of the total area harvested, althoug'n it bears noting that the individual clssrcut
areas are much sma! Ier than in Canada. Clearcutting is not regulated in Finland, and relatively little
research is being undertaken on the effects of clearcutting on forest fauna, biodiversity and
threatened species. The other major harvesting methods used include thinning (51%), as well as
seeding and shelterwood felling (11%).12
In Sweden, legislation governing forests requires that most forests be clearcut.'4 Indeed, s full

70% of the Swedish annual harvest is undertaken by way of clsarcutting, while ths remainder is

accounted for by thinning. In recent years, roughly195000 hectarss has been cfsarcut annually. Of
this area, 70% has been planted, with ths rest naturally regenerated.'8 The size of clsarcut blocks is
fairly strictly regulated in that country; the average area of clsarcuts in Sweden is 6.3 hectares.'8
According to Professor igmmins, Swedish forests were altered and damaged by 50 years
selective harvesting (high-grading) to such an extent that it has become absolutely vital, even in thHP
view of a Swedish representative of the World Wildlife Fund, that mandatory ciearcutting be used as
one of the methods of forest harvesting in order to renew the original character of the forest and to
protect biodiversily.»

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Clearcutting is also practised in Germany, New Zealand, Australia and many countries in the
Southern Hemisphere. However, ths areas involved in our country and ths characteristics of our
forests are such that the disadvantages associated with this practice are more visible and give rise

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to greater criticism. Because of the size of our country and its forests, forestry acfivities practised
here take on impressive, if not immense, proportions in the eyes of foreigners and even some
Agricuaural Informason centre, Agdfsce '94 Abouf Finhmd, Hfssinhl, 1994, p. 29.

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K. HelSvsars, univmshy of Helsinhf, leiter to the House of Commons Stsnrilng Ccmmihse on Natural Resources, June 1, 1994.
The total ares clesrcut in Finland'3 forests hes been increasing rapidly, imm 1 9000 heaares in 1982 to 100000 in 1990.

13

Finnish Forestry Associehon, Annual Rlngr Rnlsnd'3 Rnests, Fomslry snct Fonrst Indussy tlSS, Hslslnld, 1984.

13

Ths Swedish institute, Feel Sheets on Sweden, Sfochholm, 1 ggt, 4 p.

14

K. Echerberg, EnvimnmentsiPmfecfionln Seedish Fcratey Avebury Aldershof, England, Avebury Studies In Green Research,

17

Klmminc (1994), Pmcsedings, issue No. 11, p. 9.

J.P. IH.) Igmmlns, ssfanclng Act Envlnmmenl issues In Forestry. Uso Press, vancouver, f 992, 244 p., p. Ts.

1290. 1 yg p., p. 02.

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Canadians. A comparison with Europe, for example, reveals that the prevalence of clearcutting
there is also quite high. However, with ths size of the continuous forest much smaller than in
- Canada, and the European tenure
system generally more oriented towards private ownership, it is
-not surprising that the kequency of clearcuts is less and the sizes of openings are smaller,

C. Scientific Considerations Concerning Clearcutfing
Before examining the practice of clearculting in detail, it should be borne in mind that Canada

is still harvesting many of its first-growth forests and that most of them, especially in the Boreal
forest, are of fairly uniform age — or even-aged to use the more technical term — and that they are
frequently mature, if not overmature. It is estimated that about 98% of ths commercial Canadian
forest is even-aged.
This situation can be explained primarily by the fact that Canada's coniferous forests are

shaped by natural events, especially fire, but also windfall, insect epidemics and disease. The
Committee quickly perceived that one of the major issues surrounding the study of clearcutting
was whether this wood harvesting method fairly closely mimics these catastrophic events in ths
evolution of forests. Supporters of clearcutting believe that it is the most appropriate practice for
nmost forestry ecosystems found in Canada precisely because it mimics natural events to some
extent. The opponents of clearcutting, on the other hand, maintain that it does not.
A number of experts, with supporting photographs or slides, illustrated to ths Committee the

important role which forest fires play in the overall dynamics of most forest ecosystems found in

Canada. They particularly stressed the resilience and vitality of forests in order to demonstrate that
Canadian forests have evolved in response to fires and other natural events. As one witness noted:
The point this makes though is that our forests have evolved under very frequent recycling through
Nres, They have survival strategies built in that we can emulate, in some respects, through our forest
harvesting approach."'2

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Based on the frequency, area and intensity of forest fires, them experts conclude essentially
that clsarcutting very closely mlmics what happened when there was less strict forest fire controL
They agree, however, that despite the similarities between these fires and cutting, we cannot make
any absolute analogy between the two, except that these two phenomena create replacement

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cycles and conditions which favour even-age stands.

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Consequently, much of the current criticism of clearcuttlng is related to biodiversity. This
harvesting practice can have an impact on the structural diversity of a forest, particularly when large
areas of forest of high structural variability are converted to early successional stages. Similarly, the
practice of short rotations of single-species stands reduces the level of diversity of the
structure. Indeed, many people reduce clsarcutting to a harvesting method aimed essentially at
implementing a system of intensive management of slngl~pecies plantaffons, the objecffvs of
which is to minimize the rotation time as much as possible. It is feared. that, by creating forests that

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eliminated forever. Sweden is frequently:sd as a case in point; it is suggested that intens, J forest
management pracffces in that country have resulted in the loss of more than 200 species of plants
and animals and ths decline of 800 others.'s However, species diversity will generally be more

affected by management pracffces such as burning, site preparation and thinning, than by the
actual halvsstzc
Although the Committee recognizes that these fears and criticisms are legiffmate and that
more research is called for where intensive forestry is pracffsed, it notes that only a relatively smaff
proportion of Canadian forests are managed intensively, On the contrary, it even notes a trend

towards better protection of the natural pnPsstabffshed regeneration rather than systematic use of
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Slemsng comrnwm on lsmural Recourses, Fsoiusrr 1893, p. r.

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ad. Kesnsn snd J.p(H.) ltntnlns, nee Ecoloelcel Eeecm ol oesr42dsns,'nrkonmsnsv Irtsrteer, I IISN), pp. 121.144.
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higher sediment load in the watercouises. However, it must be dearly understood that erosion
problems have frequently resulted from the building of logging roads snd consequently this type of
impact is not exclusive to the practice of clearcutting. It is necessary to rs examine the planning of
Mess roads and the quality of their construction.
As regards wildlife, the impacts of clearcuNng are more veiled and can be positive or negative

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Regardless of the impacts assodated with dearcuNng, it is important to reiterate that ths
analysis should not be conducted sokRly in terms of the harvesting method, but also equally in
terms of the silvicultural system of which it Is a part and all the activNes associated with It. For

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depending on the species or species-group. For example, it is well known that certain species of
ungulates, sucn as deer and moose, csn beneiit from the abundance of food available in the years
following a clsarcut. However, these same species also need considerable forest cover for
protection from bad weather and predators. Hence, if too large an area is cut, it can be detrimental
to them. In addition, a number of species are psrttcuktrly dependent on the structure of the forests
and can thus be affected by dearcuNng which, ln general, results in a sfmpliTicabon of the forest
structure. However, since spades have different ecological requirements, some will be favoured by
the edge effects created by the cuts and will replace, at least temporarily, other spades which will
be displaced by change in their habitat.

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health Of Certain fOreSt Stat Idu, nc'Vb! y these affeCted by fnietletOe and rOOt rOt, require that they be
clearcut, otherwise a p ~l cut would hat "ad the effect of encouraging the infestation.940n the

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report race
made public by Environment Canada concerning
biodiuersity in British,umbia maintain at second-growth stands of ponderosa pine end
Douglas fir seem to be more vulnerable to insect epidemics and root disease than the old stands
which they replaced 49 Consequently, there remains a great deal of ambiguity and uncertainty with
respect to certain aspects of clearcutting, which fully justify more research In this field.

Improvement Of Clearcuttfng

D.

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There is no doubt that the practice of clearcutting can be greatly improved; in fact, most of

those involved in forestry are already working seriously toward this end. The most notable changes
involve first of all the Bias and shape of the clearcut areas. For instance, there is a clear trend toward
much smaller cutting areas of irregular shape and orientation, somewhat like what would be
observed following a forest fire. However, there is no unanimity regarding what these modifications
ought to be. For instance, we continue to hear from environmentalists that by making smaller
clsarcuts, logging companies will have to harvest more parcels in order to attain their allowable cut
level and, with various cuts made side by sids over the years, in the end there will bs vast disguised
cfea route.

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Ths Committee believes that based on the evidence received from several experts, the
use of smafler clearcuts In a configuration more similar to ths characteristics of the
e 'ironmsnt end the aftermath of natural events must bs encouraged snd even become the
norm. In order to deal with concerns that such a practice could result in greater fragmentatlon of

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There seems to be agreement that ciearcutting is not suitable in the case of unstable terrain,
i,e, sites subject to landslides. The Committee was told that experts have long been interested in

these questions in British Columbia and that, in addition to determining the areas at risk,
recommendations are also being made concerning the placement of logging roads and harvesting
methods. Logging at high altitudes also poses particular difficulties in that province, especially with
regard to steep siopes, Since shade-tolerant species present mors growth problems at altitude,
othe 'harvesting me1thods such as shelterwood cuts, patch cfsarcutffng and other selection cutting
techniques must bs examined. During its visit to the west coast of Vancouver Island, the Committee
noted changes in practices in mountainous zones, where the size of cutffng areas is being reduced.
Undoubtedly, additional modifications will probably bs required as e result of the upcoming
regulatory changes in tha', province.

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the
harvesting sites are properly distributed and separated in both space and time. In this respect,
of
Committee was greatly impressed by the use that has been made, notably in New Brunswick,
in that
Geographic Information System (GIS). Indeed, the Committee noted that GIS is used
taking into
province to plan logging over a 35-year pediod, while limiting contiguity of sites and
ffsh
account factors such as white-tailed deer and pine marten habitats as well as waterways and

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habitat.

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The Committee understands that every technology has its limitations and is beneficial only
data on
used wisely and properly. In this regard, GIS is essentially dependent on the quality of the
associated with
which they are based, and attains its full potential only when other uses and values
shou!dbe more widely
the foresters included. Inthissense, the Committesfirmly believesthat GIS
be
used and that the necessary research snd development efforts should be devoted to It. It would
for the
unfortunate if forest planners limited their application to the management of stands strictly
and
purposes of wood production rather than for the management of forest ecosystems
if

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Research and knowledge in forestry, partlculariy on siMcuttural systems, have made great
to
strfdes and provide a basis for making enlightened decisions concerning the best practices
more detailed
adopt. It is necessary that research projects continue to provide a dearer and
understanding of the options offered by the partial cutting and clearcuttlng systems. For example,
the nutrlents
we have yst to determine the actual effect of the removal of branches from stands on
endeavour
found in the soll, oa the chemical balance and on regeneration. Similarly, we must also
clearcuts and what
to learn how the erwironmental parameters change depending on the size of
are the effects of the various types of harvesting on wildlife, notably non-game species.
18

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ln the opinion of FERIC, "the federal government needs to show continued leadership to
. promote the required research and development, and assure its transfer to the 8etd for application.

Partial cutting is not the panacea of silvicultural systems nor is it a miracle recipe to ensure general

environmental integrity. Each site must be evaluated for its appropriate silviculture system and

managed accordingly. This is the challenge facing Canada not an either/or on clearcuts or partial
cuts."33

E.

Clearcuttlng And Worker Safety
An extremely important issue in any assessmsnt of whether a logging method is appropriate

or not is the safety of the loggers active in the forest. Compelling testimony on this aspect of legging
was received from ths International Woodworkers of America (IWA) union.

IIIII
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Forest harvesting, particularly when it is occurring in dense timber and or. steep slopes, is an
extremely dangerous activity. According to ths B.C. Council of Forest Industries, it is the most

$

dangerous occupation in that province, since the mountainous terrain requires that chainsaws
remain in use. In other provinces, where mechanization is more prevalent, safety is perceived to be
,somewhat less of a factor.
From a safety perspective, the evidence the Committee heard was that clearcutting is the
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preferred harvesting option In many instances. With clearcutting, everything is cut in front of the
iog ger in question, so that trees do not get deflected by other, standing timber into the path of ths
workers, Far less fatalities and serious injuries occur when workers operate in an open setting, with
fewer overhead hazards. Data provided to the Committee show that of 87 B.C. logging fatalities
between 1981 and 1987, 84 resulted from trees getting "hung up" in others or hitting "snags"
(standing dead trees).zs The risk of the overhead hazard is deemed to be so high that the B.C.
Workers'ompensation Board requires that the dead trees be felled in situations where a safety
hazard is present.

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FERIc, srlef submhted to lhe House of commons standlns commhtee on Natural Resources, Aprs 20, tops. p. 13.

safety In Tho sslancs,
la 1394, p. Z

tweeds submission to the House ot commons standlnp committee on Nruumt Resources,

April

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There is no question that, as the union made clear, greater uss of selection

logging as
opposed to clearcutting would bias ths fatality rssuits upwards. Safety is also enhanced
increased mechanization in felling techniques. As the IWA submission to the Committee points out,
"it is clear that mechanized systems in clearcut
settings ars far and away the safest possible

with

arrangements."z7
F.

Harvesting Costs And Employment Conalderatlons
The fact that the Committee did not receive much evidence on ths economics oi forest

harvesting in no way suggests that it is a trivial subject. Canadian forestry is largely expoit&riven.
The economic health of the forest industry is therefore vitally dependent on the ability of the
industry to keep operating costs as low ss possible, bearing in mind ths need to respect

governments'egulatory requirements.
What the Committee did hear repeatedly was that clsarcutting is often the most efficient and

the most cost-effective form of ha)vesting. However, this conclusion is valid on a sustainable basis,
only in forests that are capable of regeherating successfully after clesrcutting. The long-term

economics of the site in question would look considerably different if ths clearcutting method
suppressed the forest's ability to regenerate.

O

Under clearcutting, the logging process has traditionaliy been less costly than under other
systems. Road construction has also been less expensive with clearcutting than with other

harvesting methods such as selection cutting because fewer roads are generally required. With

selection cutting, not only are more roads required, but road maintenance is also necessary overs
longer period of time. The cost differential between the two forms of harvesting may, however,
diminish with changes in the practice of clearcutting.
By far the most detailed information on productivity and cost issues associated with forest

harvesting methods was provided by FERIC.zs On the basis of its in-house studies, FERIC has

concluded that productivity of harvesting decreases as one goes from cfearcutttng to partial
cutting. This phenomenon occurs for two reasons: a lower volume is removed psr srsa under
partial cutting, and greater care is warranted in positioning the felled trees and in yarding/skimming

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the stems. Given that direct harvesting costs are inversely proportional to productivity, it comes as
no surprise to find out then that in general, the costs of clsarcutting a certain volume of wood
are
less than the respective costs with partial cuts.
While these were the general conclusions reached by FERIC, the Committee learned

that
comparing the costs of various harvesting situations represents a difficult undertaking given the
many variables. This is the case since there are literally hundreds of different combinations and
permutations from among the following four variables: the type of silvicultural system chosen, the
harvesting system selected, the different forms of harvesting equipment used, and the various

characteristics of the stand under consideration.ss
Finally, concerns were expressed by several witnesses that clearcutting is much less

Iabour~ntenslve than alternative harvesting methods and that over time, technological innovation

has caused a decline in forest industry employment per unit of production. According to the Sierra
Club's brief, the number of direct jobs per 1,000 cubic metres of wood production in
British
Columbia has declined from a figure of 2.64 in the f 950s to that of 1.0 currently.sc
The Committee has concerns with the suggestion that alternative logging methods would

result in greater employment. While there is no question that clearcutting is generally less
labour-intensive on an individual application basis, it is important to consider what the impact of

higher-cost harvesting methods would be on the industry's overall competitiveness and resulting

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employment base. It also bears observing that the emerging shift to mors intensive silviculture (for
example, the new silviculture program announced in British Columbia) should result in greater use
of labour.
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the criticisms levelled against the management of Canada's forests in general. It symbolizes
over-cutting, the issue of protected areas and outdoor recreational areas, protection of
the problem of old-growth forests, the issues of regeneration and silviculture, the issues associated
with jobs and the survival of rural communities. It is therefore clearly a high-profile public issue, not
just in Canada, but also around the world.
rbsl., p. g.

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sierra club, 'Ecologically sustainable Foresay: rhn Envlronmentaast's view, submission to the House or commons standing
Commihee on Natural Resources. p. 2

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Canada has gone from an administrative approach, under which governments universally
applied legislation and regulations without necessarily taking into account the intrinsic
characteristics and variability of the forests, to a forest management approach based.more on the
ecology of tree species and on the forest environment in general. It is in this context that we must
deal with questions relating to clearcutting and other wood harvesting methods. As a number of
vvitnsssss pointed out, the worst mistake would be to attempt to ban dearcuNng everywhere and
replace it with vadlous forms of partial cutting that are not necessarily appropriate to all types of
forests found in Canada.

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The Committee notes that certain types of forests are not appropriate for clearcutting. These
include areas where excessive heat, frost, ore potential rise in ths water table following clearcutting

may lower ths probability of successful regeneration; steep, geologically unstable areas; and
areas where structural variability is considered an important component of wildlife habitat.» On the
other hand, the clearcutting silvicultural system is appropriate for most types of forest in Canada.
This is the case, for example, for trembiing aspen and lodge pole pine forests in Alberta, and indeed
for a large part of the coniferous forest in Canada.
The Committee believes that, In an absolute sense, the fact that most of Canada's forests ars
even-aged should not preclude the examination of alternative harvesting options in such forests.

Selection logging methods should be examined in cases where potential for significant ecological
dalnage exists. Qn balance, however, the Committee concludes that clearcuttlng Is an

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ecologically appropriate silvicultural system for most forest types In Canada. It is a safe and
economically-sound system that ls used extensively and successfully throughout ths world.
The Committee stresses the necessity of using this system not only as a method of wood
production and harvesting, but also as part of a comprehensive management of Canadian

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Cutting with soil protection and forest renewal, photographed in the summer of 1993 in the Riviera aux hcleirs
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A.

The Evolution Of Forestry

Since colonization, there have been three major stages in ths management of Canada's
forests. Until the 19th century, forests were simply cleared to make way for human settlemsnt and to
obtain firewood and timber. Subsequently, the forest industry properly speaking began, essentially
in order to supply Britain and especially her navy. The first stage of forestry p&ectices in Canada was
characterized by high grading, a method whereby the best tress are harvested, leaving behind the
less valuable specimens. Widely used in Europe, this practice, comparable to selective cutting,
resulted in poorer quality forests since the poorer quality trees formed the basis of regeneration. In
.Canada, this form of cutting was a major contributing factor in the disappearance of vast forests of
white pine, which characterized the St. Lawrence and Outaouais valleys in particular.
it was not until the 1930s that the first real forest management initiatives were introduced, in the

!ICiii

form of forest inventory establishment and fire control. In the 1960s, insect control was established

—-

on a more systematic basis. Ths 1970s were characterized by an emphasis on access to the

resource, while the 1980s were marked primarily by regeneration activities and by a growing
interest in integrated forest management.

This second stage in the development of Canadian forestry is now making way for a more
corn prehensive approach, based on the sustainable development of our forests. Indeed, Canada's

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forests are no longer considered simply a reserve of wood; as was already mentioned, people ars
ncw taking an interest in all the other functions and values associated with our forests.

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8. Sustainable Forestry, Not Clesrcuttlng, Is The Issue

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The Committee was told repeatedly that the real issue in forest management is not whether
clesrcutting is a preferred harvesting technique or not, but rather how can sustainable forestry be
practised in a way that also ensures that economic benefits are derived from the forest. It bears

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reiterating that clearcutting is simply a tool within a broader silvicultural system, to be used

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forestry professionals in designated forest situations. The real issue then is how doss one achieve
long-term sustainability of the forest resource and all the environmental, social and economic

values that go with it. Employing the standard definition, sustainabkt development implies that the
uss by future generations of the forest resource not be jeopardized by the use of ths forest in the

present.

The question then is: what is it that society is attempting to sustain? Not so long ago, the
answer was quite simple: timber yield. lucre recently, however, forest management has moved
away from a focus on sustainable timber yield towards the integration of other long-term objectives
such as the preservation of wildlife and fish habitats, watersheds, biodivsrsity, and the diverse
social uses of the forest. In this respect, the concept of sustainable forestry represents an extension
of integrated forest management. In the Committee's opinion, these objectives must all be
preserved for future generations of Canadians.
According to Dr. Kimmins, a number of minimum conditions must be present, for sustainable
forestry to be fully realized.sz First, forestry practices must be based on a sound ecological
foundation. Obtaining adequate knowledge of various ecosystems and how these change
time is essential.

over

Another crucial element for sustainability is the need to have accurate inventories of both
timber- and non-timber values. This input is considered to bs an essential first step to sound

forestry decision-making.

forest managers require mors highly developed tools such as Geographical
Information System (GIS) and computer simulation models, with which to predict the long-term
effects of forest management decisions made today.

8 f NIK Nl1NIII II

Taken collectively, the above three conditions imply an important role for governments in
enhancing R8D in the areas of ecosystem management and prediction, as well as in the

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development of a broader forestry data base.

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The Committee also heard extensively of ths need of individuals to be actively involved In
decision-making processes concerning forest management, Increasingly, there is a desire on the
part of the public to know about forestry pracflces and mors importantly to paNcfpate in forest

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Indusay Lecture Setiaa, Unhamaly of Albene, Noaembcr 21, Illa'lj

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management. Greater public involvement is appropriate given that 90% of the forests are under
public tenure, and that the public's interest in the forest nss grown. Indeed, forest management has
become a social issue.
With society now imposing greater demands on the public forest, industry needs to respond

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in a cooperative manner by building partnerships with local staksholders, In fact, it is in industry's
best interests to consult widely at the outset of a forest management plan, and allow for local
decision-making input. As representatives of ths Canadian Institute of Forestry noted in their
,submission to the Committee, "most people's concerns ars greatly reduced juste by having those
people Involved in the planning process. In most cases, soon as they are involved and have a
chance to have their concerns expressed and listened to, and when various options and results of
those options are explained, they are much more comfortable with the decision on which
hawestlng method to uss."99

will not be attained. "Unless there is a commitment by all parties to move away from polarization,

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confrontation and rhetoric, to embrace positive change, and to proceed to find ways of achieving
sustainable forestry, it is doubtful that we will achieve it."ss

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Finally, Or. KImmins points out that unless society is fully committed to sustainabls forestry, it

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movement to nationwide sustainable forestry. Such principles would also bs of uss in the
development of national and international forest management standards arid csrtigcation.

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that a number of stakeholders (e.g, Canadian Pulp and Paper Association, B.C. Forest Alliance)
have independently developed sets of principles tc guide forest management towards sustain abls
forestry. Even more recently, over 25 stakeholdem agreed to a comprehensive sst of principles for
sustainable development as part of the Forest Round Table on Sustainable Development of the
National Round Table on the Environment and the Economyss These have been developed undsr
four broad themes:

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Natkeal Round Table on the Environment and the Ecormmy, Forest Round labia on susrahmbpe cmempment IFlnap Resorb,
April 1994. pp, 99.

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Resources, Aprl ao, 1994, p. 9.

25

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The Committee understands that the Natlor al Forest Strategy contains general principles and

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The Committee is of the view that a concrete set of guiding principles is requirrpd to direct the

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Looking after the environment (e.g. ecosystem integnty, biodiversity);

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Taking care of people (e.g. public awareness and involvement, aboriginal recognitlon,

worker and public heaith and safety);
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Land use (e.g. protected areas, economic evaluation); and
Managing resources (e,g. recognition of multiple values, regulating land use on private
forest land, research, competitiveness).

The Committee believes the Forest Round lhbfe set of principles to be totally
appropriate and would urge federal, provincial snd territorial governments to endorse them.

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Progress Is Being Made

C.

There is no question in the Committee's view that Canadian government policies and forest

industry practices are evolving quickly in the direction towards sustainable forestry. Indeed, this

progress was demonstrated to the Committee throughout its'earings as well as during the site
tours undertaken in forestry regions.

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At the policy level, perhaps the most vivid symbol of progress to date is the acceptance and
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adoption, by a wide range of stakeholders, of a National Forest Strategy. This is the document
which is currently guiding Canada's efforts in forest management, Unique in the world, the Strategy

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is an aggressive five-year blueprint for change in Canada's forests.

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The document contains nine broad strategic priorities, as well as a total of 96 commitments to
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be ected on over the five-year period ending in 1997. Moreover, the Strategy will be subjected to
both a mid-term and endkf-period evaluation by a panel of independent experts of progress
achieved in attaining the numerous commitments made. The implementation of the Strategy is
currently being overseen by the National Forest Strategy Coalition.

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The essential goal of the Strategy is to guide forestry stakeholders to sustainable forestry over

the course of t.. f!ve-year period in question. This it will attempt to do th.ough the following action
steps:

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accelerate knowledge of forest ecosystem management and complete the
classification of Canada's forest lands;
26

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review and alter Canada's forestry practices, including a broadening of forest inventorie
to include non-timber information;

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satisfy Canadians'emands for greater input;

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enhance the competitiveness of the Canadian forest products industry in world markets

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broaden the level of scientific research;

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develop additional labour skills;

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increase involvement in forestry on the part of the aboriginal community;

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implement a stewardship ethic for private forests; and

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work towards sustainable forest managemeiit at the global level.

At the provincial level, Canada has a strong and comprehensive framework to regulate and

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manage its forests. Each province, as the owner and ths ultimate steward of much of the forest
resource, has its own forest legislation, regulations, standards and programs through which it can
set policy for forest land use.
Typically, two tiers of legislation exist: a 25-year plan, updated every five years subsequent to

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regional public hearings; and an annual plan. On the basis of the annual plans, harvesting licenses
are disbursed, confining operators to specific areas and requiring them to engage in certain duties
regarding forest management (i.e. road construction, fire protection, forest regeneration). Industry
activity Is audited against the regulations on a regular basis, with license renewal based on past
performance.
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In response to public concerns and in order to comply with the commitments made under ths

National Strategy, many provincial and tenftorlal governments have recently reassessed their

forest management codes and practices to reflect the new emphasis on sustainable development
and public participation. To respond to the public's environmental concerns, new regulations have
been or are being developed with respect to such activities and/or issues as road construction, the
crossing of streams, the establishment of buffer strips along waterways and the sizes of the
cutblocks, to name a few. While ths provinces have acted for the most part independently of each
other, over time a certain amount of convergence of policy-making can be expected. Whet follows
is a brief description of some of '.he provincial initiatives that have been brought to the Committee's
attention.
27

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It is no secret that most of the controversy over the clsarcutting issue has occurred in British

Columbia. In that province, the government has introduced a new Forest Practices Code that i
arguably the most restrictive of any of its kind ln Canada. The Code, once passed by the provincial
legislature, will disallow the use of clearcutting in sites with unstable terrain, in sites where ths visual
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quality of the landscape needs to be preserved, in wildlife and old-growth management areas,

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streamside locations and in other sensitive sites identified in the code standards. The Code will also
restrict clearcut size and establish minimum standards for green tree retention within larger
cutblocks. In addition, it will regulate biodiversity requirements to protect unique ecosystems,
measures.
impose tough new restrictions on road construction and strengthen soll conservation

.cad in the B C, legislature, Among
other things, this Plan is designed to improve reforestation t care of the forest after rsplantlng,
and
and to develop nsw environmentally-sound forest practices such as more selective logging
commercial thinning. Yet another policy undertaking is ths doubling of ths province's acreage sst
aside as protected area, Ths government has found all of these measures to be necessary to
In April of this year, a Forest Renewal Plan was aiso intro

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respond to the concerns of logging critics and ths generally unfavourable perception of certain
harvesting practices.
environmental
Conservation
is expected to Ised to a successful conclusion of that province's Forest

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In Alberta, a two-year tripartite initiative between government, industry and

groups

Strategy. This consensus-building process has spun off a number of strategic working groups
aboriginal
the important areas of ecosyst n management, forest pract. -„protected areas and
een estabilshsd. Given that the
concerns, Moreover, commur. r working groups have als
between
consultative process is still underway, it remains to bs seen what ths final balance

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economic and ecosystem management will be,

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Saskatchewan, for its part, is finalizing a two-year process of public consultation culminating
to guide future forest
ln ths release of an Integrated Forest Resource Management Pian designed
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management in that province. Sustainable development and public invohrernent are
implemented
ingredients in that plan. The provincial government antld pates that the plan will be
later this year.

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considerable emphasis on natural as opposed to artificial regeneration, on respect of the
=biodiversity of the forest environment, and on public involvement in the planning of forest
management activities. A principal objective is the reduction and elimination by 2001 of chemical
pesticides snd herblcidss.
In New Brunswick, intensive forestry appears to be an important objective, particularly on the

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large tracts of privately held land. ArttScial regeneration Is the preferred option. The industry
continues to operate under ths 1882 forest policy, which is based on sustained timber yield and
recognizes clearcuttlng as a useful silvicultural prescription. The policy also provides for multiple

use and the protection of water courses and wildlife habitat.
In 1993, the Newfoundland forest Senrice prepared its Environmental Protection Plan for

Timber Resource Management (EPP). The EPP consists of environmental protection guidelines for
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improved forest management and mechanisms to improve knowledge on the effects of forest
management activities on non-timber resources. One of the specialized planning techniques that

the province plans to employ is adaptive ecosystem management, an evolving process of adapting
to new ecological information.

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various provinces are in a state of rapid evoluion. For its part, industry is also adapting its
rnanac ament philosophies and practices to respond to the environmental challenge. The
cmtadian pulp and paper Associaaon, submission to tne House ot ccmmons standlnp comminee on Retund Resources,
May 12, 1994, p. 5.

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Committee finds these trends encouraging, and urges policy-makers and industry to continue this

adaptive process. Justifiably, Canada is being increasingly recognized as an innovator in the

movement away from sustained timber yield to sustainable forestry.
At the same time, the Committee is convinced that more needs to be done if sustainable

development is to truly become a reality. The Committee is particularly intrigued by the possibility of
a nsw forest management approach undertaken at a broad landscape level (20 to 100 thousand
hectares). By examining forest ecosystems from a much broader geographical perspective, and
taking into account a host of non-timber values, this new approach of forest management

essentially holds the promise of extending the traditional sushtlnsd yield and integrated forest

management concepts to the level of sustainable forestry.
A 1 993 report by Booth ef air provides information on this promising made-in-Canada forest

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management option which, according to ths authors, is seen as a logical progression in the
evolution of forestry and could salve as a "global standard of excellence in forest management".»
This model, referred to as the Natural Forest Landscape {NFL) approach, is designed to examine
the forest from a much broader perspective than the traditional forest stand viewpoint. Its major
difference with traditional management schemes such as Integrated Forest Resource
Management (IFRM) is that it manages on sn ecosystem basis resources other than those which
have a recognized economic value. 01 so doing, NFL maintains the full range of natural forest
ecosystems over the entire forest landscape management area, thereby ensuring that all other
land uses and activities are respected.

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It does so by adopting a less intensive (and more visually appealing) silvicultural approach
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over a broader geographical area. Within the landscape would bs "a continuum of resource uses of
varying intensities, interspersed throughout the forest".33 What this means in practical terms is that
within any given forest landscape, one would find combinations of commercial forest areas,

recreational use areas and habitat preservation areas. Within the commercial areas, a more gentle
form of forestry would generally bs practised, with an emphasis on natural regeneration, longer

rotations, and the preservation of natural ecosystems, On occasion, certain areas would be

designated for intensive wood harvesting.
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Dose/opmenr, March 1333), 16 p.

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1957/1988- Before and After
Above Franklin River Logging Camp, British Columbia, looking towards Mt. Gray Clearcnt logged in 1955, cable
yarded to railway at bottom of early photo, and burned for site preparation, Parts of the cutblock were planted to
Douglas fin the rest regenerated naturally. Last railway logging operation in Franklin River Division. Stand in foreground (1957 photo) was clearcut in 1942-43 and planted to Douglas ftr in 1945.
Photo — 1989

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CHAPTER 4:
THE FEDERAL RGLE

The Canadian Constitution has assigned responsibility for forest management to the
provinces. Each province as well as the Northwest Territories has in place a number of vehicles
through which it exercises its management duties, including legislation, regulation, the imposition
of standards and government programs. Responsibility for forest management in the Yukon has,
up to now, remained with the federal government.
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While the federal government does not exercise a direct day-to-day forest management

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dunction, its influence can be felt in the areas cf industrial and regional development; international

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.affairs including trade; research and development (R&D); the environment; and the management

of forest activity on federal lands and aboriginal reserves. Mors specifically, the Oeparfment of

Forestry Acf assigns tbe following duties and functions to the Minister responsible for Forestry:

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to coordinate the development and implementation of forestry and forest resources
policy;

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to enhance the development of the domestic scientific snd technological base in forest

management;
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to monitor and promote the development and application of forest management codes

and standards;
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to take into account the integrated management and sustainable development of thv

forest resource; and

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to enhance the use of forest resources and the domestic and international
competitiveness of Canada's forest sector.

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As has already been mentioned, the federal government has also played an important role in
working through the Canadian Council of Forest Ministers (CCFhl) to help develop the Canada

Forest Accord and the National Forest Strategy. Increasingly, however, the federal government is
also being called upon, by many forestry stakeholders including the provinces, to show a more

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aggressive leader

role at both the national and intematlonal levels to devela~
widely-recognized indicators of sustainable forest management and tc work towards aiM
international convention on forestry. It is also being asked to serve as a more effective national
coordinator of R&D efforts as well as of domestic and international communications strategies.
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Canada's forest management policies and practices remain the target of environmental
campaigns and are still nct well understood by the Canadian public. There hss never been a more
opportune moment for the federal government to show leadership to reverse the perception of
Canadian forestry. The Committee believes that federal funds spent in the forest sector within
current financial constraints represent a necessary investment, given the strategic importance ol

Canada's forests to the economic and environmental well-being of the nation. This Committee
therefore recommends:

Recommsndatlon Ito& 3: That, notwithstanding the fact that jurisdiction over forest
management Iles with ths provlnclsi and territorial governments, the federal
government through the Canadian Forest Service adopt a more proactive national
leadership role in the forest sector tc coordinate governments'fforts in such
crees as R&D; effective domestic snd International communicstians; public
education; the development cf national forestry data and sustainable development
indicators; the collection of Information on sustalnabis forestry pragram and
blodivsrsity ih other countries; and the negotiation of an International
est
convention.
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It is this Cc

rnittee's view that the Government of Canada, in cooperation with thr

&vinces

and other stakeholders, should develop strategies at both the national and internationai levels.
A. National

f. Development Of Sustainable Forestry Irfdlcsfors
An important cha! Isnge for national policy makers is to define, based an sound science and in

measurable terms, what constitutes sustainable forest management. Only then would it be
possible for all groups in society tc objectively assess the quality of forest management in this
country. We understand that the Canadian Forest Service, through the CCFM, hss taken the lead to
establish criteria and indicators for sustainable forest management, for use at both the domestic
and international levels. These, it bears mentioning, ars not technically national standards, but
rather benchmarks on which provincial legislation and regulations can be developed.

34

Designed to measure and provide both cuantitative ano qualitative evaluation of the progress
toward meeting policy objectives, the indicators will prove to be very useful in helping to measure
Canada's relative progress in forest management. As will be pointed out further in this Chapter they
are also essentisi to the successful resolution of an international convention on sustainable
forestry. The Committee is of the view that continued federal leadership ls required In this

eras,

2. Support For tnctustry's Efforts To Derive A Certification System
International pressu, s has been borne on Canada to ensure, through credible means, that its
forest management methods meet the important test of sustainability. An international convention

on forestry will take some time to sign snd ratify. There is thus, in the interim period, an urgent need
to develop an effective and credible certification process, one which could be iised at both the
Momsstic and international levels. Csrtiffcation is required, since consumers of Canadian forest
roducts need to be assured that such products are derived from forests that are sustainsbly
managed. It would also obligate forest companies to have their inventories audited on a regular
basis.
Tc this end, the forest products industry has chosen to work through the Standards Council of

Canada (SCC) tc achieve both national and international certification. Ths SCC is the official
'federal government organization responsible for standards in the country, and is Canada's oflicial
representative to the Internationa! Standards Organization (ISO). The SCC has commissioned the
Canadian Standards Association (CSA) to provide secretariat and coordination services for the

SCC work in ISO pertaining to environmental management.
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The industry has been working actively for roughly six months now with provincial and federal

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governments, as well as the CSA, to establish Canadian standards for certNcstion of sustainabls
forest management. Ultimately, it would then be upon these standards that individual forest
companies would be evaluated and judged by independent csrtNers. Equivalent criteria could
then be used in other forestry nations to objectively judge the performance of forestry operations
elsewhere.

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With the support and cooperation of the CCFM, the industry has already initiated discussions

end is in the final stages of negotiation with the CSA for the development of an international
certification process, to be administered under the Environmental Management Program of the
35

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