Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada. Nunavut Field Unit, Parks Canada Iqaluit, Nunavut

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1 Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada Nunavut Field Unit, Parks Canada Iqaluit, Nunavut December 2005

2 POLAR BEAR SAFETY PLAN APPROVAL This Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada is approved by: Superintendent, Nunavut Field Unit, Parks Canada Date This Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada is recommended by: Manager, Resource Conservation, Nunavut Field Unit, Parks Canada Date ACKNOWLEDGEMENTS This polar bear safety plan was prepared by A. Grant MacHutchon and Andy McMullen. V. Sahanatien, P. Smillie, and Y. Bosse provided technical edits and helpful suggestions for improvement. Much of the background information for this safety plan came from Parks Canada s 1995 interim Polar Bear Management Plan for the Nunavut District authored by Y. Bosse and B. Thorpe however the original material was substantially edited and rearranged here. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada i

3 TABLE OF CONTENTS POLAR BEAR SAFETY PLAN APPROVAL...I ACKNOWLEDGEMENTS...I TABLE OF CONTENTS...II LIST OF FIGURES... V LIST OF TABLES... V LIST OF APPENDICES... V 1. INTRODUCTION Purpose, Principles, and Objectives of the Polar Bear Safety Plan Principles Objectives POLAR BEAR ECOLOGY Status Distribution Diet and Seasonal Habitat Use Senses and Mobility POLAR BEAR CONSERVATION AND MANAGEMENT INITIATIVES International Agreement for the Conservation of Polar Bears and Their Habitat Convention on International Trade in Endangered Species of Wild Fauna and Flora Greenland Polar Bear Management US Marine Mammal Protection Act National Committee on the Status of Endangered Wildlife in Canada Species at Risk Act Polar Bear Technical and Administrative Committees Environment Canada and the Canadian Wildlife Service Parks Canada Parks Canada Agency Act Canada National Parks Act and Regulations Parks Canada Guiding Principles and Operational Policies Parks Canada Management Directives Park Management Plans Northwest Territories, Yukon and Provincial Nunavut Nunavut Land Claims Agreement & Inuit Impact and Benefits Agreements...14 Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada ii

4 Joint Planning and Management Committees Nunavut Wildlife Act Nunavut Wildlife Management Board Polar Bear Management Memorandums of Understanding NUNAVUT NATIONAL PARKS Polar Bear Incidents & Issues in Nunavut National Parks Auyuittuq National Park ANP Polar Bear Status and Distribution Regional Populations In and Near ANP ANP Polar Bear Incidents & Issues Quttinirpaaq National Park QNP Polar Bear Status and Distribution Regional Populations In and Near QNP QNP Polar Bear Incidents & Issues Sirmilik National Park SNP Polar Bear Status and Distribution Regional Populations In and Near SNP SNP Polar Bear Incidents & Issues Ukkusiksalik National Park UNP Polar Bear Status and Distribution Regional Populations In and Near UNP UNP Polar Bear Incidents & Issues POLAR BEAR SAFETY PLANNING AND GENERAL OPERATIONAL PROCEDURES Gathering Information Research Monitoring Considerations for Sighting and Sign Surveys Inuit Knowledge Communication and Public Education Evaluation of Communication Effectiveness Attractant Management Human Use Management Facility Management Training Parks Canada Staff Guides Inter-jurisdictional Cooperation Nunavut Wildlife Management Board...60 Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada iii

5 Nunavut Government Hunter and Trapper Organizations Polar Bear Technical Committee Detection and Deterrents Firearms Emergency Procedures Human Injury or Death Translocation of Polar Bears Destruction of Polar Bears COMPLIANCE AND ENFORCEMENT Polar Bear Safety Plan Compliance POLAR BEAR SAFETY PLAN EVALUATION LITERATURE CITED...68 APPENDICES...71 Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada iv

6 LIST OF FIGURES Figure 1. Geographic boundaries of Canadian polar bear populations as defined by Taylor et al. (2001) Figure 2. Polar bear distribution in North America (from McMullen 2002a)...5 Figure 3. The four national parks of Nunavut Territory...18 Figure 4. Auyuittuq National Park, Nunavut Territory...21 Figure 5. Winter concentration (C) and denning (D) areas documented by Fleck and Herrero (1988) to be used by polar bears near Auyuittuq National Park Figure 6. Relative risk of encountering polar bears in different zones of Auyuittuq National Park during March to mid-may Figure 7. Relative risk of encountering polar bears in different zones of Auyuittuq National Park during mid-may to early August Figure 8. Relative risk of encountering polar bears in different zones of Auyuittuq National Park during early August to November Figure 9. Quttinirpaaq National Park, Nunavut Territory...32 Figure 10. Quttinirpaaq National Park polar bear hazard ratings. Hatched areas were rated low and areas with no pattern within park boundaries were rated very low (Parks Canada 1995)...34 Figure 11. Sirmilik National Park, Nunavut, Territory...35 Figure 12. Winter concentration (C), denning (D), and summer retreat (SR) areas documented as used by polar bears near Sirmilik National Park by Fleck and Herrero (1988) Figure 13. Ukkusiksalik National Park, Nunavut Territory...39 Figure 14. Denning (D) and summer retreat (SR) areas documented as used by polar bears near Ukkusiksalik National Park by Fleck and Herrero (1988) Figure 15. Annual polar bear survey route (in red) in northern coastal areas in and near Auyuittuq National Park, Nunavut LIST OF TABLES Table 1. Polar bear total allowable harvest for 2005 for populations containing Auyuittuq, Sirmilik, and Ukkusiksalik National Parks...16 Table 2. Visitation and rates of perceived aggressive interactions with polar bears in Canadian national parks, (from Clark 2003). Data for Ukkusiksalik National Park will be compiled as the park becomes operational LIST OF APPENDICES Appendix 1. Relevant acronyms used in this Polar Bear Safety Plan Appendix 2. Definition of terms used in this Polar Bear Safety Plan Appendix 3. Sources of information relevant to polar bear safety planning and operational procedures...78 Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada v

7 1. INTRODUCTION For many Canadians the polar bear (Ursus maritimus) symbolizes the arctic environment, but for northerners polar bears also are an important cultural and economic resource. Canada is home to about 15,000 polar bears, more than 50% of the world s population. As a signatory to the international Agreement on the Conservation of Polar Bears and their Habitat, Canada has a mandate to conserve both the species and its habitat. Within Canada, the polar bear has been recognized by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) as a "species of special concern," that is, one that is particularly sensitive to human activities or natural events but is not endangered or threatened. Conservation and management of the polar bear in Canada is complex because it comes under the jurisdiction of at least eight territorial, provincial, or federal government agencies. The conservation and management of polar bears depends on land use and management practices throughout their range and in this regard Canada s northern national parks play a significant role in the protection of polar bears and their habitat. The management of polar bears within national parks are guided by the Canada National Parks Act and regulations, as well as Bear Management directive Auyuittuq, Quttinirpaaq, Sirmilik, and Ukkusiksalik National Parks are all used by polar bears and contain or are adjacent to significant polar bear habitat. Parks Canada is obliged to manage for ecological integrity but at the same time must identify and address public safety concerns including those posed by the presence of polar bears. Parks Canada also recognizes that national parks are not islands, but are part of larger ecosystems and cultural landscapes. Therefore they must work cooperatively with local people and other government agencies in the implementation of park programs and in the management of local polar bear populations. To that end, Parks Canada has developed a polar bear safety strategy for the national parks of Nunavut Field Unit (NFU), which follows a two tiered approach. First, this Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada, hereafter referred to as the Polar Bear Safety Plan (PBSP), is the umbrella document with information relevant to polar bear safety, management, and operational procedures for all Nunavut National Parks. This document includes sections that outline the purpose and objectives of the plan, relevant initiatives in polar bear conservation and management, an overview of Nunavut National Parks and more detailed reviews of each park and what is known about polar bear status, distribution, and issues, safety planning actions and general operational procedures for nine major categories (i.e., gathering information, communication & public education, attractant management, human use management, facility management, training, inter-jurisdictional cooperation, detection & deterrents, emergency procedures) and plan compliance & evaluation. Second, each national park will develop their own park specific Polar Bear Safety Operational Procedures (PBSOP). Park-specific operational and emergency procedures will be developed cooperatively among park staff, knowledgeable and interested people from local communities, and other government agencies. The first PBSOP to be Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 1

8 developed is for Auyuittuq National Park and that document will be a template for other park-specific operational and emergency procedures. Appendix 1 contains the full name for acronyms used throughout this plan and Appendix 2 has definitions of terms used Purpose, Principles, and Objectives of the Polar Bear Safety Plan The purpose of this PBSP is to provide background, guidelines and a course of action for the management of human activities within Nunavut National Parks with the goal of minimizing the chance of negative bear human interaction while protecting and maintaining local polar bear populations. Specific focus on polar bear safety issues is done in context of the NFU Public Safety Plan (Parks Canada 1998). Although the overall risk of injury from polar bears was considered low, the NFU Public Safety Plan identified polar bears as first priority in the wildlife encounter category not only because of their potential threat to park visitors but because of their high ranking as a wildlife species that warranted special attention. Presently, more people are travelling, living, and working in the north and in some places warmer temperatures are changing ice dynamics forcing bears to spend more time on land. As a result, the number of interactions between bears and humans is on the rise Principles The principles of the Nunavut Field Unit public safety plan (Parks Canada 1998) also guided the development of the NFU polar bear safety strategy: Comply with statutes, regulations and policy Share responsibility Support cost effective and quality service Communicate risk Accept risk Practice due diligence Objectives The following are the objectives of Parks Canada s polar bear safety strategy including this Polar Bear Safety Plan and park specific operational procedures: To minimise any adverse effect of human activities on polar bears. To minimise the probability of conflict between polar bears and humans, including the chance of injury to human visitors or polar bears. To have operational procedures in place to respond to any conflict or emergency involving polar bears and humans. To define appropriate training for employees of Parks Canada regarding polar bear biology, conservation, and management. To increase the knowledge of local polar bear ecology and potential influences of human use through monitoring data collection and exchange of Inuit Knowledge (IK) and scientific knowledge. To promote continued cooperative human use management, research and monitoring, education, and information exchange among Parks Canada, the Nunavut Department of Environment, the Canadian Wildlife Service, and the people of Nunavut. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 2

9 2. POLAR BEAR ECOLOGY A number of sources of information were used for the following review of polar bear ecology. Literature references within those information sources mostly have been left out for ease of reading. For a recent and detailed review of polar bear ecology see Amstrup (2003) Status The world population of polar bears is estimated to be between about 20-25,000, of which about 15,000 are in Canada (IUCN Polar Bear Specialists Group 2002). Polar bears are not evenly distributed throughout the Arctic, nor do they comprise a single nomadic cosmopolitan world population, but rather they occur in about 20 or so relatively discrete subpopulations, of which 14 are solely within Canada or shared with either Alaska or Greenland (Figure 1). Canadian sub-population estimates range from 100 to 2200 bears. Of the 14 subpopulations in Canada, the IUCN Polar Bear Specialists Group (2002) estimated two were increasing, two may be declining, and 10 were likely stable Distribution In Canada, polar bears are found throughout the Arctic Archipelago, Beaufort Sea, Hudson and James Bays, and along the Labrador coast (Figure 2). The 14 subpopulations of polar bears in Canada are relatively discrete with limited interchange so that spatial variation (Taylor et al. 2001) and geographic variation in population genetics (Paetkau et al. 1999) have been demonstrated. The length and frequency of seasonal movements by bears within each population varies with the size of the geographic area they occupy, the annual pattern of freeze-up and break-up of sea ice, and other features such as land masses, expanses of multi-year ice, and polynyas. Polar bear range is limited to areas in which the sea is ice covered for much of the year. Over most of their range, polar bears remain on the sea-ice year-round or visit land only for short periods. In most areas, pregnant females come ashore to create a den in which to give birth to young. Even then, however, they are quick to return to the sea ice as soon as cubs are able. In some areas females den and give birth to their young on drifting pack ice. Polar bears are most abundant in areas of good seal habitat: shallow-water areas near shore and in other areas where currents and upwellings increase productivity and keep the ice cover from becoming too solidified in winter. From early winter until break-up, polar bears are dispersed predominantly over the annual ice along the coast, usually at the interface between land-fast ice and drifting pack ice. Despite apparent preferences for the more productive waters near shorelines and polynyas (areas of persistent open water), polar bears occur throughout the polar basin including latitudes >88 N (Amstrup 2003). Because they derive their sustenance from the sea, the distribution of polar bears in most areas changes with the seasonal extent and type of sea-ice cover. Throughout the polar basin, polar bears spend their summers concentrated along the edge of the persistent pack ice. Significant northerly and southerly movements appear to be dependent on seasonal Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 3

10 Figure 1. Geographic boundaries of Canadian polar bear populations as defined by Taylor et al. (2001). The boundaries of the Viscount Melville Sound VM), Norwegian Bay (NW), Kane Basin (KB), Lancaster Sound (LS), Baffin Bay (BB), northern Baffin Bay (NBB), southern Baffin Bay (SBB), and Davis Strait (DS) polar bear populations were modified from previous boundaries by Taylor et al. (2001). Also included are the current best estimates for the boundaries of the southern Hudson Bay (SH), western Hudson Bay (WH), Foxe Basin (FB), Gulf of Boothia (GB), M Clintock Channel (MC), southern Beaufort Sea (SH), northern Beaufort Sea (NB), and Arctic Basin (AB, but QE on above figure) populations. Boundaries are subject to periodic revision as new research data are obtained and analyzed. melting and refreezing of ice near shore. In other areas, for example, Foxe Basin, Hudson Bay, James Bay, Davis Strait, and portions of the Canadian High Arctic, when the sea-ice completely melts, polar bears are forced onto land for up to several months to wait for winter and new ice formation (Amstrup 2003). Polar bears in these areas are typically on land during a period from about August to early November each year. The length of time spent on land depends on the timing of ice break-up and formation, which varies considerably within location and among years. While on land, polar bears are usually within a few kilometres of the coast however they have been seen as far as 150 km inland. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 4

11 Figure 2. Polar bear distribution in North America (from McMullen 2002a) Diet and Seasonal Habitat Use Polar bears are almost exclusively predatory, and most of their diet consists of ringed (Phoca hispida) and bearded seals (Erignathus barbatus). They hunt throughout the year, with seasonal changes in hunting techniques and rates of success. Spring offers the greatest access to food while periods of low energy availability occur throughout the remainder of the year. If forced on land during an ice-free period, fewer calories from natural sources are available so polar bears live mainly on their fat reserves and reduce activity to conserve energy. When seals are not available polar bears may eat animal carcasses, seabirds and their eggs, lemmings, berries, seaweed, shrubs, lichens, and grass. Polar bears constant search for food can lead them to sources of carelessly stored human food or garbage. The productivity of polar bear habitat is closely linked to the type and distribution of sea ice and the density and distribution of seals. Preferred habitat is wherever ice conditions are suitable for catching seals, such as pressure ridges, areas of broken unstable ice, floe edges, polynyas, and continually changing open water leads. In spring and early summer, polar bears actively hunt vulnerable young seals in birth lairs. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 5

12 When annual ice breaks up in summer, many bears move to permanent pack ice. As the pack ice recedes, some of these bears will be further from shore. Other bears go into deep bays and fjords that retain annual ice for a longer period. These bears then move on shore when this ice melts. Polar bears that move onto land spend their summers along coasts and on barrier islands and stretches of land extending out into the sea. Their choice of habitat during the ice-free season depends on avoidance of other bears, energy conservation, previous experience, and available denning habitat. During the ice-free season, there may be times when winds push large amounts of floating pack ice or icebergs onshore. Bears can drift to shore with this ice and turn up unexpectedly anywhere along the coast in summer. In autumn, bears on land gather where freeze-up is earliest. When new sea ice forms these bears move onto the ice in search of seals. Bears that remained on offshore pack ice in the high Arctic during summer and fall also move onto newly forming ice. In most cases this brings them closer to land. Pregnant female polar bears cease feeding and enter dens in which they spend the winter without food and water. Maternity dens are most commonly on land, but can occur on multi-year pack ice. The type of den varies with the terrain, but many are excavated in snowdrifts on south-facing slopes of hills or valleys. Most females return to the same general area in subsequent years. Maternity denning sites and spring feeding areas are two of the most important polar bear habitats. Many other polar bears may use snow shelters in autumn as well, but they generally return to the sea ice in mid-november. In winter to escape stormy weather or intensely cold conditions bears may occupy excavated snow shelters for a few days at a time Senses and Mobility Polar bears have a remarkable sense of smell that can lead it to a source of food many kilometres away. Their hearing is also well developed and their eyesight is thought to be comparable to humans. Polar bears have remarkable agility for their size and weight. If threatened, they can run at speeds of km/hr (25 mph), quickly outdistancing any person. Polar bears are great travellers and are also expert swimmers and divers; they have been sighted in open water many kilometres from shore. The linear movements and activity areas of polar bears are very large and vary in magnitude in different regions because of variation in patterns of productivity and other sea-ice characteristics. For example, in the dynamic sea ice habitat of the Beaufort Sea movements of >50 km per day have been observed and total annual movements averaged 3,415 km and ranged up to 6,200 km. Annual activity areas averaged 149,000 km 2 with the smallest nearly 13,000 km 2 and the largest 597,000 km 2. In the less dynamic and more predictable sea ice of the Canadian Arctic Archipelago, reported maximum activity areas were <23,000 km 2. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 6

13 3. POLAR BEAR CONSERVATION AND MANAGEMENT INITIATIVES The following outlines international, national, territorial, and provincial initiatives in polar bear conservation and management including governing legislation, regulation and directives. These wide-ranging initiatives provide the context for Nunavut Field Unit s role in polar bear conservation and management International Agreement for the Conservation of Polar Bears and Their Habitat In 1973, Canada signed the Agreement for the Conservation of Polar Bears and Their Habitat in Oslo, Norway and by doing so took on significant national and international responsibility for research and management of polar bears. This agreement, which came into effect in May 1976, was the first agreement of any kind, relating to the Arctic, signed by all five polar nations (Canada, Denmark, Norway, USA, and USSR). It was unanimously reaffirmed for an indefinite period in January 1981 (Canadian Wildlife Service 2003). Under the terms of the agreement, the taking of polar bears is restricted to "local people", which in Canada is interpreted to mean Aboriginal people or sport hunters guided by Aboriginal people. Although the terms of the agreement are not enforceable in any country and there is no infrastructure to oversee compliance, the agreement has contributed to legal protection and regulation within each signatory country. Research and conservation of polar bears is coordinated internationally by the World Conservation Union Species Survival Commission (IUCN/SSC) Polar Bear Specialist Group (PBSG). The IUCN/SSC PBSG meet every 3-4 years and currently have Canadian representation from the Canadian Wildlife Service, Nunavut Department of Environment, Ontario Ministry of Natural Resources, and University of Alberta Convention on International Trade in Endangered Species of Wild Fauna and Flora The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) has been in effect since July Polar bears are included in Appendix II to CITES and are classified as Lower Risk, conservation dependent under the IUCN 2004 Red Book of threatened species in the world. Under CITES, any international shipment of polar bears or parts must be done under permit. Since July 1975, a permanent record of all polar bears, hides, or any other products legally exported from or imported to Canada has been maintained by the Government of Canada (Canadian Wildlife Service 2003). In June 2005, the IUCN/SSC PBSG concluded that the IUCN Red List classification of the polar bear should be upgraded from Lower Risk, conservation dependent to Vulnerable based on the likelihood of an overall decline in the size of the total Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 7

14 population of more than 30% within the next 35 to 50 years. The principal cause of this decline was considered to be climatic warming and its consequent negative affects on the sea ice habitat of polar bears. In some areas, contaminants may have an additive negative influence. A species is considered vulnerable by IUCN when it is not critically endangered or endangered but is facing a high risk of extinction in the wild in the medium-term future Greenland Polar Bear Management Regulations for the management and protection of polar bears in Greenland were introduced in 1994 and various amendments to the regulations have been made since, however there were no quotas for polar bear kills and no administrative allocation of the catch to management areas or sub-populations. From 1993 to 2005, information about the catch was obtained from hunters by voluntary reporting. In the early 2000 s, Greenland government began to put more effort into improving hunting statistics, however in February 2005 it became apparent that hunters from Greenland had been taking many more bears off the east coast of Baffin Island than previously thought. The unregulated Greenland kill went from 65 in 1998 to 206 in 2003 and 164 in In June 2005 at the IUCN/SSC PBSG meetings, the Greenland Home Rule government announced that quotas were to be implemented and enforced as of January 1, Hunters will have to have a special license for each polar bear hunted and this will be used to track the sale of hides or trading in parts. As of November 2005, these quotas were in the process of being implemented. The Greenland Government, Canadian Government, and Government of Nunavut have initiated discussions to develop co-management agreements and determine the size of sustainable quotas for subpopulations of polar bears shared between the two countries using both scientific information and traditional knowledge. The shared polar bear populations are Kane Basin, Baffin Bay and Davis Strait (see Figure 1) US Marine Mammal Protection Act In the United States, all marine mammals, including the polar bear, are protected under the Marine Mammal Protection Act (MMPA) regardless of whether they are endangered, threatened, or depleted. The MMPA establishes Federal responsibility to conserve marine mammals and management of polar bears is the responsibility of the Department of Interior, U.S. Fish and Wildlife Service (US FWS). Congress passed the MMPA in 1972, but it was amended substantially in The MMPA currently provides for the importation of a polar bear trophy into the U.S. taken in a sport hunt in Canada if the bear was legally harvested from a populations considered sustainable by the US FWS National Committee on the Status of Endangered Wildlife in Canada The Committee on the Status of Endangered Wildlife in Canada (COSEWIC) is a committee of experts that assesses and designates the national status of wild Canadian species, subspecies and separate populations suspected of being at risk. COSEWIC bases its decisions on the best up-to-date scientific information and Aboriginal Traditional Knowledge available. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 8

15 COSEWIC designated polar bears Not at Risk in April Their status was reexamined and designated Special Concern in April The Special Concern status was re-examined and confirmed in April 1999 (Stirling and Taylor 1999) and again in November 2002 (based on an addendum to Stirling and Taylor 1999). A species of special concern is one that is particularly sensitive to human activities or natural events but is not an endangered or threatened species Species at Risk Act The Species at Risk Act (SARA) came into effect in 2002 and is intended to protect wildlife species at risk in Canada. Species at risk means an extirpated, endangered or threatened species, or a species of special concern. The Act seeks to prevent Canadian wildlife species from becoming extinct, to recover those that are in danger of becoming extinct, and to ensure that common wildlife species stay common. Species that have been designated at risk by COSEWIC since SARA came into effect must be added to Schedule 1 of SARA through a regulatory amendment before receiving protection under the Act. As of November 2005, polar bears have not been added to Schedule 1 of SARA because of ongoing concern that there was not enough consultation with Inuit hunters and gathering of Inuit Qaujimajatuqangit (IQ) or Inuit knowledge for COSEWIC s 2002 species of special concern designation. The PBTC agreed that the COSEWIC evaluation needs to be updated to take into account new scientific information and to include IQ before any listing occurs by SARA Polar Bear Technical and Administrative Committees Management authority for polar bears, including the regulation of hunting, rests with the provinces, territories, and wildlife management boards established under land claims. There are harvest quotas in effect in Nunavut, Northwest Territories, Ontario, Yukon, and Labrador. The Federal-Provincial-Territorial Technical Committee for Polar Bear Research and Management (usually referred to as the Polar Bear Technical Committee or PBTC) conducts an annual review of research conducted and proposed in Canada and management issues such as the boundaries and status of each polar bear population, sustainable harvest levels, annual kill, change in management by jurisdiction, and international trade. Members include researchers and managers working on polar bears in all jurisdictions of Canada, including Nunavut, NWT, Ontario, Newfoundland, Manitoba, Quebec, Yukon, federal governments departments such as the Canadian Wildlife Service and Parks Canada, and aboriginal wildlife management organizations from Nunavut, Quebec, Northwest Territories, and Labrador. There is also a complementary Federal-Provincial-Territorial Administrative Committee for Polar Bear Research and Management (usually referred to as the Polar Bear Administrative Committee or PBAC). The PBAC is responsible for provincial and territorial ministerial-level contacts and decisions on polar bear management. Because the PBTC acts as an advisor to the PBAC and is intended to be a forum for cooperation Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 9

16 between researchers and managers, the structure of membership is not rigid, and no votes are taken on resolutions. Meetings of each committee are held annually Environment Canada and the Canadian Wildlife Service Environment Canada (EC) is the lead federal department for the implementation of the Species at Risk Act. EC is also the federal lead in developing and implementing the Accord for the Protection of Species at Risk in Canada and the Canadian Habitat Stewardship Plan, but works closely with territorial governments and co-management bodies to implement the Accord and the Plan. Environment Canada's Canadian Wildlife Service is one of the Canadian representatives on the IUCN/SSC Polar Bear Specialist Group and in formal negotiations related to the Agreement for the Conservation of Polar Bears and Their Habitat. CWS provides national coordination of polar bear research and management by chairing and providing a secretariat for the PBTC and also provides a secretariat for the PBAC CWS meets Canada's research commitments to the international Agreement for the Conservation of Polar Bears and Their Habitat by undertaking research on: polar bear populations, their habitat, and their inter-specific relationships; the health of the marine ecosystem in which they live; possible effects of climatic change; the health of bear populations as an indicator of the state and natural variability of the environment; and the consequences of various industrial and management options in offshore marine areas of the Arctic (Canadian Wildlife Service 2003). Data from mark-recapture studies, harvest, and management actions throughout Canada are entered into a National Polar Bear Data Base administered and maintained by CWS. These data remain the property of the jurisdictions that collected them Parks Canada Where applicable, management actions in this plan are in accordance with the Canada National Parks Act and Regulations, Parks Canada Guiding Principles and Operational Policies, and various management directives, particularly Directive 2.4.8: Bear Management (Parks Canada 1991) and a draft revised Directive 2.4.8: Bear Conservation and Management (Parks Canada draft 2004) Parks Canada Agency Act In 1998, Parliament passed the Parks Canada Agency Act, removing Parks Canada as a program of the Department of Canadian Heritage and establishing it as a separate Government of Canada agency. In December 2003, responsibility for the Parks Canada Agency was transferred from the Minister of Canadian Heritage to the Minister of the Environment, but Parks Canada continues to operate as a separate agency (Parks Canada 2004). Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 10

17 Parks Canada Agency s mandate is to protect and present nationally significant examples of Canada s natural and cultural heritage, and foster public understanding, appreciation and enjoyment in ways that ensure the ecological and commemorative integrity of these places for present and future generations Canada National Parks Act and Regulations In 2000, Parliament passed a revised Canada National Parks Act, which is the law governing the creation and management of Canada s National Parks. The new Act confirmed that ecological integrity will continue to be the top priority for parks management. Polar bears are listed as a Part 1, Protected Species in Schedule 3 of the Act. This means that the penalties for poaching or trafficking of polar bears are significant up to $250,000 and/or five years in prison (see Sections 26 (1) and (2) of the Act) National Parks General Regulations Relevant sections of the National Parks General Regulations include: 7. (1) The superintendent may, where it is necessary for the proper management of the Park to do so, designate certain activities, uses or entry and travel in areas in a Park as restricted or prohibited. Section 7 further describes how notices of restricted or prohibited entry will be posted, special permits for entry, and suspension or cancellation of the restriction or prohibition. 36. (1) Where the superintendent deems it necessary for the prevention of any seasonal or temporary danger to persons, flora, fauna or natural objects in a Park, he may by notice in writing close to public use or traffic any area in the Park for the period he considers the danger will continue. Section 36 further describes how notices of closure will be posted and restrictions on entry National Parks Wildlife Regulations The National Parks Wildlife Regulations are currently being revised and will be renamed the Wild Animal Regulations. As of November 2005, it is not known when these new regulations will be approved by the Minister of Environment. One new regulation will be of particular consequence to NFU the provision to permit commercial guides to carry firearms for the protection of clients. But in the meantime, the existing National Parks Wildlife Regulations apply. Relevant sections of the National Parks Wildlife Regulations include: 3. (2) These Regulations do not apply to a superintendent, park warden, peace officer or any other person authorized by the superintendent to carry out functions related to the management of a park while any of those persons is engaged in carrying out such functions. 4. (1) (a) Except as otherwise provided in these Regulations, no person shall hunt, disturb, hold in captivity or destroy any wildlife within, or remove any wildlife from, a park. 4. (1) (f) Except as otherwise provided in these Regulations, no person shall touch or feed wildlife in a park or entice wildlife that is in a park to approach by Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 11

18 holding out or setting out decoys or any such devices, foodstuffs or bait of any kind. 15. (1) (a) A superintendent may authorize the removal, relocation or destruction of wildlife for scientific purposes or park management purposes. 16. (1) A superintendent may, where it is necessary for the protection, conservation or management of the wildlife in a park, by notice in writing, prohibit the possession of firearms or other devices for capturing or destroying wildlife during specified periods and in specified areas of a park. 20. (1) No person shall be in possession of a firearm in a park unless the firearm is not loaded and is transported in a case or is wrapped and tied securely in such a manner that no part of the firearm is exposed. 20. (4) The superintendent may issue a permit authorizing a person to carry a firearm or trap where the firearm or trap is to be carried through the park for use outside the park. 22. Every person acting as a guide for any individual or group carrying firearms or traps shall ensure that they are carried in accordance with these Regulations National Parks Garbage Regulations Relevant sections of the National Parks Garbage Regulations include: 2.2 The superintendent shall approve an enclosure for the storage of containers if the enclosure is designed and constructed to prevent access to the garbage in the containers by domestic animals and wildlife. 6. (2) In the event of an escape of garbage from any vehicle the owner of the vehicle shall be responsible for the immediate clean-up. 8. No person shall discard or dispose of or deposit garbage anywhere in a park except in such places and at such times and under such conditions as the superintendent may authorize Parks Canada Guiding Principles and Operational Policies Under Parks Canada s guiding principles, protecting ecological integrity and ensuring commemorative integrity take precedence in the management and administration of national parks. In every application of policy, this guiding principle is paramount. The integrity of natural and cultural heritage is maintained by striving to ensure that management decisions affecting national parks are made on sound cultural resource management and ecosystem-based management practices. Parks Canada recognizes that national parks are not islands, but are part of larger ecosystems and cultural landscapes. Therefore, decision-making is based on an understanding of surrounding environments and their management. Further management direction for national parks are found within strategic plans, management directives, management plans, ecosystem management plans, community plans, and regulations Parks Canada Management Directives The following Parks Canada's management directives may be relevant to polar bear safety planning and operational procedures however some directives are dated or based on old information. Consequently, these directives are referred to in this PBSP where they are considered relevant and, in some cases, the rationale given for particular management action is the appropriate management directive. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 12

19 2.2.4 Emergency Services Natural Resource Management Processing (1992) Bear Management (1991) & draft Bear Conservation and Management (Parks Canada, draft 2004) Reporting of Serious Incidents (1983) First Aid to the Public Public Safety Management (1986) Wildlife Immobilization Drugs, Equipment and Related Management (1992) Posting of Warning Signs in Dangerous Areas Pack In Pack Out Litter Control (1975) Management directive first came out in 1991 as the Bear Management Directive, but in 2004 it was being revised as the Bear Management and Conservation Directive (Parks Canada draft 2004). Similar to the 1991 directive, the purpose of the new directive will be to provide direction on planning for bear conservation and for the management and prevention of bear human conflicts. Parks Canada also is revising Directive on Wildlife Immobilizing Drugs, Equipment and Related Management, but as of November 2005 the new version was not yet complete (T. Shury, Wildlife Health Specialist, Parks Canada, personal communication, 2005) Park Management Plans Park Management Plans set guidelines for protecting the health of each park, including the land, water, plants, and wildlife. They also set guidelines for managing cultural resources, for tourism and other relevant topics. In Nunavut, park management plans are currently being prepared for Auyuittuq and Quttinirpaaq National Parks. Park management plans for Sirmilik and Ukkusiksalik National Parks will be prepared in the near future. Park management plans will be important for directing the implementation of recommendations and action items from this PBSP and from park-specific operational procedures Northwest Territories, Yukon and Provincial In the Northwest Territories (NWT) and Yukon, polar bear harvest by Inuit and Inuvialuit is controlled by a quota system and outfitted hunts by non-residents are included in the quota. In addition to quotas, the hunting of denning bears or females with cubs is prohibited. To help ensure that mainly male bears are harvested, the hunting season opens after the majority of pregnant females have denned for the winter. In Manitoba, polar bears are listed as a protected species under the Wildlife Act, so the harvesting of polar bears for either recreational or commercial purposes is not permitted. Some of Manitoba s portion of the Western Hudson Bay population quota is used for polar bear control in and around the town of Churchill. The balance of Manitoba s quota is loaned to and administered by the Government of Nunavut on the understanding that all or part of the quota will be returned to Manitoba at their request. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 13

20 In Ontario, treaty rights do not allow regulation of hunting of polar bears, but there is an agreement with Cree hunters on an allowable annual harvest quota. Females with cubs and bears in dens are not specifically protected in Ontario, but the dens are protected, and only persons with treaty rights can legally hunt polar bears. In Quebec, there are no quotas currently in effect, but Quebec Inuit hunters have agreed to limit harvesting to current levels, which appear to be sustainable. When sustainable harvest levels have been determined for three affected populations (SH, FB, DS; see Figure 1), the Quebec Inuit are expected to enter into co-operative management agreements with other jurisdictions that share those populations Nunavut Nunavut Land Claims Agreement & Inuit Impact and Benefits Agreements The Nunavut Land Claims Agreement (NLCA) between Inuit and the Government of Canada was signed in May Under the NLCA, National Parks can not be formally established until the Government of Canada has negotiated an Inuit Impact and Benefits Agreement (IIBA) with the Inuit people. An IIBA includes any matter connected with the proposed park that would have a detrimental impact on Inuit or that could reasonably confer a benefit on Inuit either on a Nunavut-wide, regional or local basis. General benefits to Inuit, as set out in the NLCA, include: To provide opportunities for Inuit in adjacent communities to benefit from the establishment, planning, management, and operation of the Park. To enhance cooperation between Inuit and the Government of Canada and to strengthen Inuit participation in the planning, management and operation of the Park. To honour the rights of Inuit in the Park as set out in the NLCA and to promote greater awareness of these rights. To enhance the sustainable use of park resources by integrating Inuit knowledge, culture, and practices into protection and conservation activities. Inuit Impact and Benefits Agreements have been signed for all 4 Nunavut national parks: IIBAs for Auyuittuq, Quttinirpaaq, and Sirmilik National Parks (August 1999) here after referred to as the Baffin IIBA, and, an IIBA for Ukkusiksalik National Park of Canada (August 2003) here after referred to as the Ukkusiksalik IIBA. The Baffin IIBA (Article 2, Sections and 2.2.2) provides direction for polar bear emergency kills made by park employees or contractors in regards to financial compensation to adjacent communities. The Ukkusiksalik IIBA (Article 4) describes how Parks Canada will pay compensation and how Foxe Basin tags will be removed from the quota for emergency killed polar bears within the park area. This includes bears killed by Park employees, contractors, researchers, licensed outfitters, leaseholders, park visitors and volunteers. Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 14

21 Joint Planning and Management Committees As per the NLCA and the IIBAs, all Nunavut national parks are cooperatively managed with a Joint Planning and Management Committees (JPMC). Each JPMC is a six-person team, three appointed by the regional Inuit Association and three by the federal government. JPMCs provide advice to Parks Canada on all aspects of park planning and management and their deliberations are guided by the NLCA and federal legislation such as the Canada National Parks Act and the Crown Liability Act Nunavut Wildlife Act The purpose of the Nunavut Wildlife Act is to ensure that wildlife in Nunavut is harvested in a responsible and controlled manner. The Act applies to everyone who hunts in Nunavut and trapping is considered a form of hunting under the Act. However, no restriction is placed on the right of Inuit to hunt wildlife on unoccupied governmentowned land for food, provided there is no conservation risk to the wildlife population. The Minister of the Department of Environment appoints Wildlife Officers (WO) to enforce the Act. Members of the Royal Canadian Mounted Police (RCMP) and the president of every Hunters and Trappers Organization (HTO) also have the powers of a wildlife officer. Parks Canada is currently seeking to have Park Wardens designated as Wildlife Officers Nunavut Wildlife Management Board Under the NLCA, several land and resource co-management boards were set up to guarantee Inuit involvement in decisions relating to the conservation and future development of lands within the Nunavut Settlement Area (NSA). The Nunavut Wildlife Management Board (NWMB) is the largest co-management board and strives to enable and protect the beneficial utilization of wildlife for and by the beneficiaries of the NCLA as well as other residents of the NSA and to manage wildlife consistent with the principles of conservation, sustainability and ecosystem integrity. It attempts to fulfill this mandate by carrying out its various functions, as set out in the NLCA, in cooperation with Inuit and Government partners Polar Bear Management Memorandums of Understanding Polar Bear Management Memorandums of Understanding (MOU) were developed for each identified polar bear population in Nunavut (see Figure 1) between affected HTOs and Regional Wildlife Organizations (RWO) and the Nunavut Department of Environment. MOUs recognize and respect both the intent of the NLCA and the jurisdiction of the NWMB under the NLCA, therefore do not come into effect until they have been reviewed and accepted by the NWMB. MOUs specify actions and regulations for the management of polar bear populations to simultaneously maximize benefits to beneficiaries of the NLCA, safeguard the interests of future generations of hunters, and ensure conservation of polar bears. Management actions and regulations are guided by Inuit Qaujimajatuqangit (IQ) and scientific information and include: the setting of total allowable harvest of polar bears, target sex, age, and reproductive status for polar bear harvest, community allocation of the harvest and other human-caused polar bear kills, Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 15

22 minimizing detrimental effects of other human activities on polar bears and their habitat, and encouraging individual and community participation in research and management. Current regulations for all Polar Bear Management MOUs require that no person hunt any member of a polar bear family group or any female polar bear using or constructing a den. Fourteen polar bear populations are entirely within Canada or shared with either Alaska or Greenland (see Figure 1). Of these, 13 are partly or wholly in Nunavut and Nunavut national parks are within or adjacent to 5 polar bear populations, 4 that are currently hunted by Inuit. Therefore, polar bears using Nunavut national parks are potentially influenced by the actions and regulations of Polar Bear Management MOUs as follows: Auyuittuq National Park is largely within the boundary of the Baffin Bay (BB) population but the Davis Strait (DS) population borders the south edge of the park. The BB polar bear quota is allocated to Qikiqtarjuak, Clyde River, and Pond Inlet. The DS polar bear quota is allocated to Pangnirtung, Iqaluit, and Kimmirut. Both the BB and DS polar bear populations are also hunted by Greenland Inuit. The northwest and western portions of Quttinirpaaq National Park are within the Arctic Basin (AB, but QE on Figure 1) population boundary. There is no MOU for the AB population as there is no hunting quota allocated for the population. Sirmilik National Park is largely within the Baffin Bay (BB) population boundary but the Lancaster Sound (LS) population boundary includes much of the Borden Peninsula, which is the western section of the park. The LS polar bear quota is allocated to Arctic Bay, Grise Fiord, and Resolute Bay. The BB polar bear quota is allocated to Pond Inlet, Clyde River, and Qikiqtarjuak. Ukkusiksalik National Park Reserve is within the Foxe Basin (FB) population boundary. The FB polar bear quota is allocated to Repulse Bay, Chesterfield Inlet, Coral Harbour, Hall Beach, Igloolik, Cape Dorset, and Kimmirut. In January 2005, the Nunavut Government increased the number of polar bears that hunters could kill across Nunavut in 2005 from 403 to 518. These quota adjustments were made after IQ suggested that some polar bear populations were increasing as more bears were being seen in and around communities and population estimates of bears in the eastern part of their range suggested their numbers were slowly increasing. Increased quotas were suggested for the four polar bear populations containing Auyuittuq, Sirmilik, and Ukkusiksalik National Parks (Table 1). Table 1. Polar bear total allowable harvest for 2005 for populations containing Auyuittuq, Sirmilik, and Ukkusiksalik National Parks. Polar Bear Population Previous Base Quota 2005 Total Allowable Change Harvest as per MOU Davis Strait Baffin Bay Polar Bear Safety Plan for Nunavut Field Unit, Parks Canada 16