Table of Contents

Executive Summary
Introduction
Vision
Goal
Principles
Sustainability
Strategic Direction: 1 Ecological Management
Strategic Direction: 2 Sustainable Forest Economy
Strategic Direction: 3 Protected Areas
Strategic Direction: 4 Range of Management Intensities
Strategic Direction: 5 Participation and Partnerships
Implementation
Executive Summary
The Alberta Forest Conservation Strategy is a fulfillment of commitments made by
the Government of Alberta under the National Forest Strategy, and it is one of
the government's responses to the report of the Expert Panel on Forest Managemen
t. In 1994, the Minister of Environmental Protection established a multi-stakeho
lder Steering Committee to consult with Albertans and develop a long-term vision
and recommendations for sustaining Alberta's forest. Over 800 Albertans have pa
rticipated in the development of the Strategy.
AFCS VISION
For centuries to come, Alberta will have vast forest areas, including forest are
as with a pristine character, in which natural structures and functions continue
to evolve.
Forest areas will continue to meet our needs for ecosystem services such as clea
n air and water, as well as economic opportunity, material goods, recreation, le
isure and spiritual connection.
Albertans will have the opportunity to be informed and to participate in decisio
ns made affecting the forest. Users of the forest will work as partners to meet
the challenges of sustaining the forest.
The Alberta Forest Conservation Strategy aims to guide Albertans' future use and
appreciation of the province's forests. Front and centre within the Strategy ar
e a Vision, Goal, and six Principles. Collectively, they describe a future ideal
for Alberta's forests, and criteria by which Albertans can evaluate whether the
y are on the right path. The Vision, Goal, and Principles point to a future wher
e continuing economic and environmental benefits from the forest are desirable a
nd possible.
The Alberta Forest Conservation Strategy is organized around five Strategic Dir
ections. The first direction, called Ecological Management, describes a new para
digm of human interaction with the forest. Alberta's forest has historically bee
n subject to disturbances, typically fire and insects.
Ecological management proposes that forestry and other human activities be condu
cted in ways that resemble the scale and effects of natural disturbances. The fo
rests that result, and the environmental benefits we gain, should be similar to
those crafted by natural ecosystem processes.
Successful ecological management will require monitoring, and the flexibility to
use up-to-date scientific information about how ecosystems work. Changes in for
estry practices and planning approaches will be required to implement ecological
management.
The second strategic direction seeks a Sustainable Forest Economy. There are opp
ortunities to use Alberta's forest resources for economic gain and still maintai
n ecosystem functions. Alberta' s economic gains can be enhanced by looking for
ways to process and add value to raw products from the forest ecosystems. To ens
ure a sustainable forest economy, efforts are needed to re-evaluate the ways we
measure the benefits and impacts of human activities in the forest.
Direction three addresses Protected Areas. The Alberta Forest Conservation Strat
egy calls for protection of a network of representative areas within the forest
ecosystems. The need to establish protected areas is born out of recognition tha
t ecological management is a different approach. We do not completely understand
forest ecosystems, and protected areas are needed as storehouses of information
and scientific controls. They are also vital to the realization of other values
, such as recreation, tourism, culture, and wildlife habitat.
The fourth strategic direction is Range of Management Intensities. With ecologic
al management, human activities have to be managed over large landscape areas. F
our management intensities are proposed within the Alberta Forest Conservation S
trategy - extensive management, intensive management, facility, and protection.
• Ecological management would be widely applied in extensively managed areas. Huma
n activities would be managed to result in forest conditions similar to those re
sulting from natural processes.
• Intensive management provides an opportunity to achieve higher levels of resourc
e and economic return by increasing the level of effort and expense to achieve t
hese returns. Intensive management would be practiced on a smaller landbase than
extensive management, where they can fit with ecologically-based landscape plan
s.
• Facility developments, such as coal mines, roads, and tourist resorts, share man
y characteristics with intensive management. Site reclamation needs to be consid
ered during initial project evaluations.
• Protection through mechanisms such as timber harvesting operating procedures, bu
ffer strips, and land use restrictions, are required to safeguard forest ecosyst
ems where human activity is significant. A wide variety of mechanisms already in
place may need to be modified with ecological management.
Strategic direction five is Participation and Partnerships. Ecological managemen
t requires information from diverse quarters and decisions made on a shared basi
s. Forest users have a responsibility to govern their activities appropriately.
They also need information to use in their decisions, and need to know the conte
xt in which their contributions are being used. Participation in decisions, and
partnerships in implementing ecological management, are key elements of forest s
ustainability.
INTRODUCTION
Why the Strategy was Created
The forest of Alberta is a vibrant, living system of ancient and evolving natura
l communities. Its diversity is seen in a mosaic of forest types - boreal, monta
ne and parkland - and in the countless living things that depend on its cover an
d bounty.
The forest is the dominant natural feature of Alberta, covering more than 50 per
cent of the province, and it has supported many human activities for hundreds o
f years. It is an integral part of our identity, culture: tradition, and economy
, just as much as it is a part of our natural landscape. The forest is far more
than a store of spiritual and economic gifts, however. It is also part of a life
line that is interwoven with the wellbeing of the human species, and for this an
d many other reasons Albertans want assurance that what we do will not compromis
e its continued health and vitality.
Ever-increasing human demands and uses of the forest have created a compelling n
eed for a long- term vision to guide our actions today and far into the future.
Alberta began this journey in the late 1980s, when the government appointed an E
xpert Panel on Forest Management to provide advice on the state of forest manage
ment in Alberta. In 1992, the Prime Minister of Canada signed the Convention on
Biological Diversity in Rio de Janeiro. In the same year, Alberta was a partner
in the development of the National Forest Strategy and, in 1992, it co-signed th
e Canada Forest Accord. The Alberta Forest Conservation Strategy, which has been
developed with the help and input of several hundred Albertans, is the fulfilme
nt of one commitment under that accord, and is a reflection of the importance th
at all stakeholders place on the forests in Alberta.
Significant Change
The Alberta Forest Conservation Strategy calls for significant change in how act
ivities are planned and carried out in forest ecosystems at the legislative, com
mercial and personal level. The change has to do with giving forest ecosystems f
irst consideration in all that we do, to ensure that the forest and forested lan
ds of Alberta will continue to provide a sustainable flow of goods (such as timb
er, recreation, and tourism opportunities) and services (such as clean air, clea
n water, fish and wildlife habitat) for many generations to come.
Broad Support
The Strategy sets out a framework of strategic directions which were developed f
rom a broad range of input and perspectives provided by those involved in develo
pment of the Strategy over the past three years. These directions come out of th
e broad consensus of partnerships including government, industry and all those w
ho care about and benefit from the forest.
The stakeholder partnership has included several hundred committed Albertans who
have contributed their ideas and beliefs to make this a Strategy that will stan
d the test of time, scrutiny and practice.
• The Stakeholder Advisory Group, comprising more than 100 Albertans who over thre
e years helped provide direction and develop agreement on what the Strategy shou
ld accomplish.
• The Steering Committee, comprising individuals nominated by, and acting on behal
f of governments, industry, environmental groups, recreational interests, and Ab
original and academic communities.
• The seven Strategic Issues Working Groups? which reviewed key forest issues and
developed reports that form the foundation of the Strategy.
• The 16 rural Community Working Groups and others which met across the province t
o provide input during development of the Strategy.
The VISION of the Strategy
The Strategy participants considered it important to set out their vision for th
e future of Alberta 's forests. The vision represents an ideal which will guide
us into the future.
For centuries to come, Alberta will have vast forest areas, including forest are
as with a pristine character, in which natural structures and functions continue
to evolve.
Forest areas will continue to meet our needs for ecosystem services such as clea
n air and water, as well as economic opportunity: material goods, recreation, le
isure and spiritual connection.
Albertans will have the opportunity to be informed and to participate in decisio
ns made affecting the forest. Users of the forest will work as partners to meet
the challenges of sustaining the forest.
The GOAL of the Strategy
A goal is a specific statement of what is needed to achieve a vision. The goal o
f the Alberta Forest Conservation Strategy is.
To maintain and enhance, for the long term, the extent and health of forest ecos
ystems in Alberta for the sake of all living things locally, provincially, natio
nally and globally, while providing environmental, economic, recreational, socia
l and cultural benefits for present and future generations.
PRINCIPLES
All action taken in pursuit of the Vision and Goal will be guided by the followi
ng principles.
Ecological Sustainability:
The forest of Alberta will be appreciated as ecosystems and our activities manag
ed in ways that conserve ecological integrity, biological diversity, long-term f
orest productivity and the forest landbase. There will be a range of management
options across the forest.
Economic Sustainability:
Human activities on forested lands in Alberta will be managed in ways that will
provide sustained and enhanced, economic and other benefits for Albertans well i
nto the future.
Precautionary Principle:
Caution will be exercised when the consequences of actions in the forest are unc
ertain. Where there is a threat of serious or irreversible damage to any forest
ecosystem, lack of full scientific certainty will not be used as a reason for fa
iling to implement appropriate ecological measures to avert the threatened damag
e.
Adaptive Management:
Forest managers will employ the adaptive management approach in managing the for
ests of Alberta. This approach will be based on the best-available scientific in
formation, ongoing research, and routine monitoring of all activities carried ou
t in the forest to continuously improve our management techniques as we learn fr
om experience and adapt to evolving conditions and demands.
Accountability:
Individuals, companies and governments, as forest users and as consumers of fore
st products, have a duty to minimize the adverse effects of their actions upon t
he forest. They will be accountable and responsible for all of their actions and
decisions which affect the forest.
Decision-making:
All Albertans will have the opportunity to contribute in meaningful ways to deci
sions that are important to them. Decisions affecting the forest will consider t
he entire spectrum of interests in a fair and open manner.

SUSTAINABILITY
The Context for the Strategy
"Sustainable development is development that meets the needs of the present with
out compromising the ability of future generations to meet their own needs. "
Brundtland Report.
The World Commission on Environment and Development,
Oxford University Press, 1987
The Brundtland Report's definition of sustainable development, released in 1987,
has helped to influence the way that resource use is regarded around the world.
In June of 1992, the Alberta legislature unanimously adopted the principles of
sustainable development as outlined by the Alberta Round Table on the Environmen
t and Economy.
The Strategy takes the concept of sustainable development and broadens it to one
of "sustainability." A sustainable forest can be defined as a forest in which b
iodiversity, ecosystem integrity and the flow of benefits are maintained.
As a province blessed with a rich endowment of resources, we have been able to s
upport the expansion of industries such as oil and gas, forestry, mining, agricu
lture, outdoor recreation, tourism, and trapping to provide jobs, income and eco
nomic growth for Albertans.
However, the pursuit of economic goals alone does not ensure the sustainability
of either the economy or the forest. There are limits to the resources and benef
its that the forest can provide. Exceeding these limits will damage the forest's
ability to sustain itself and the processes that have shaped it over thousands
of years.
Our use of forest resources must not exceed the forest's capacity for renewal, o
r the capacity of the forest to generate ongoing flows of benefits. Ecological a
nd economic systems will only be sustainable if the integrity of each component
of these systems is maintained over the long term.
The forest is a part of our heritage and a living legacy to be passed on from ge
neration to generation of Albertans. That legacy includes not only the beauty an
d diversity that the forest provides, but also the economic opportunity that com
es from use of the forest.
The Vision, Goal and Principles of the Alberta Forest Conservation Strategy are
founded on the concept of sustainability. They are based largely on the ideal th
at, by working together as partners and stewards of the resource, we can learn t
o sustain forest ecosystems that are not only healthy and diverse, but also able
to contribute to our economic well-being.
Recommendation:
1: That the Government of Alberta and all forest users adopt the Alberta Forest
Conservation Strategy's Vision, Goal and Principles as a basis for future legisl
ation, policy and management action related to the forest, and that existing sta
tutes, regulations, rules, policies and practices relating to the forest be revi
sed to reflect those elements of the Strategy.
The following strategic directions outline a foundation for ensuring the long-te
rm sustainability of the ecosystems and economic benefits of the forest.
STRATEGIC DIRECTION
1: Ecological Management
"Humans are a part of, not apart from, a life support system composed of the atm
osphere, water, minerals, soil, plants, animals and microorganisms that function
together to keep the whole viable."
Adapted from Odum, Eugene P. 1970.
The forest must be viewed and respected as an ecosystem. Changes in an ecosystem
, whether caused by humans or nature, alter its "life history"
Ecological management is an evolving approach that focuses on ecological process
es and ecosystem structures and functions, while sustaining the types of benefit
s that people derive from the forest. It acknowledges the importance of all spec
ies, regardless of obvious human utility, and the processes that support them in
the soil, water, and air. It recognizes that ecosystems occur across the landsc
ape, crossing human boundaries, jurisdictions and ownership limits. Everything i
s connected to everything else - in ecosystems, in economies and in society.
There is an important difference between ecosystem management and ecological man
agement. Ecosystem management implies that we will manage ecosystems to ensure t
hat they are healthy and productive, a difficult if not impossible task when you
consider how complex ecosystems are in both structure and function. Ecological
management is based on managing our own activities in the forest to ensure that
they do not interfere with the ecosystem's ability to manage itself.
The following concepts and directions are central to adopting an ecological mana
gement approach.
Maintaining The Forest Landbase
An essential component of ecological management is the maintenance and enhanceme
nt of the forested landbase in Alberta. The benefits that the forest provides ca
nnot be sustained if the forested landbase is continually eroded.
Operating Within The Range Of Natural Variability
The unmanaged forest, even without human influence, is subject to a variety of n
atural processes and disturbances such as succession, nutrient cycling, fire, fl
ood, blowdown, insect attack and disease. These processes vary in duration, freq
uency of occurrence, size of affected area and severity. For each type of proces
s, there will be a particular range of variability. The result is a mosaic of na
tural communities representing the range of natural variability in forest ecosys
tems. Each of these communities plays an integral role in maintaining the divers
ity and function of the forest ecosystem. An understanding of "natural variabili
ty" is fundamental to the implementation of ecological management.
To varying degrees, natural disturbances have been reduced in intensity, scale a
nd frequency through a variety of means such as fire and insect/disease suppress
ion and abatement programs and flood control measures. As these disturbances dec
lined, they were gradually replaced by human activities such as commercial loggi
ng, oil and gas exploration programs and agricultural activities. This trend has
the potential to simplify the diversity of the forest and, over the next severa
l decades, may push it beyond the historic range of natural variability. Ecologi
cal management proposes that we use human activities to maintain that range of n
atural variability.
Achieving Ecological Management Through An Adaptive Management Approach
The key idea behind ecological management is that we can substitute planned, hum
an activities for random and naturally occurring biological processes within the
range of natural variability of those processes. This requires us to make the f
ollowing new assumptions:
• That human activities can approximate natural processes, at least to some degree
. From a forestry perspective, this may be accomplished through the use of cutbl
ocks of different sizes and shapes, by variation in rotation age, and by varying
the percentage of removal within harvested areas.
• That our treatment of the forest will fall within the range of natural variabili
ty with respect to area, shape, age class and severity of disturbance (within so
cially-acceptable limits). Natural processes will still inevitably occur.
• That human activities carried out in a manner that bears some resemblance to nat
ural ecological events, will result in the conservation of biodiversity, mainten
ance of ecosystem structure and function, and generate a sustainable flow of goo
ds and services provided by the forest.
• That by a process of "adaptive management," forest managers will be able to dete
rmine what practices work and to detect problems: and correct them, before irrev
ersible damage occurs to either individual species or the ecosystem as a whole.
Although our knowledge and understanding of ecosystems and their functions is im
proving we will never know all that there is to know about them. With a commitme
nt to ongoing research that is essential to the implementation of ecological man
agement concepts, our level of knowledge will continue to increase over time. Fo
r now, resource managers have to make decisions about use of forest according to
ecological management concepts using the best available current information.
An adaptive management approach to ecological management and the use of the prec
autionary principle will lessen the risk of loss of diversity and productivity o
ver time because of our lack of knowledge. This approach calls for resource mana
gers to use the best applicable scientific information and recognize that the in
formation base can always be improved upon. Routine monitoring of all activities
carried out in the forest is required to understand and quantify changes that o
ccur over time as a result of human and natural disturbance. This approach calls
for the testing and application of scientific principles and methods to continu
ously improve resource management practices and the ability to adapt to evolving
conditions and demands as managers and scientists learn from research and exper
ience.
A system of ecological benchmarks and improvements in research: inventory, model
ing, monitoring and communication are other key elements of adaptive management.
They will bolster our ability to do the best job possible today, even though we
do not have complete knowledge and understanding of the forest.
In order to evaluate new approaches and practices, experimental controls or "ben
chmarks" are required. Within these areas ecosystem processes and patterns, such
as those created by fire, would be allowed to develop naturally to whatever ext
ent is safe and socially acceptable. Prudent and responsible stewardship require
s the establishment of benchmarks to serve as controls for both short and long-t
erm research. Through an ongoing process of data gathering, compilation, analysi
s storage, and monitoring, scientists will study ecosystem attributes such as ec
ological composition, structure, and function and will be able to evaluate the p
erformance of land-use principles and practices against these attributes. Based
on research conducted in benchmark areas, researchers will be able to suggest mo
difications to those human activities with undesirable consequences. The informa
tion and knowledge gained as a result of this process should be stored for use b
y future forest managers.
Benchmark areas will be identified primarily through processes like the Detailed
Forest Management Plan required for large-scale forest operations in Alberta. F
or long-term research requirements, existing protected areas or new areas design
ated under the Special Places program should be used.
All of the elements listed in this Strategic Direction must be supported by ongo
ing research and inventory programs, and effective mechanisms for getting the la
test monitoring and research information into the hands of resource managers. We
need the best information possible, and the most effective ways of sharing it.
Changes in Practice
Practices affecting all resources and benefits of the forest need to be modified
to meet the principles and directions of the Strategy. Examples of how the Stra
tegy will affect the way various activities in the forest are carried out includ
e:
• Management activities, including harvesting, silvicultural, forest protection an
d fire suppression practices will be planned at both the stand and landscape lev
el to assist in creating the mosaic of forest conditions that approximates the t
emporal and spatial distribution of natural disturbances and other processes and
their relationship to geographic, topographic and ecological associations. This
may include the use of extended rotation periods, some of which may be quite lo
ng. It will also include the use of a broader range of disturbance sizes and har
vest types.
• The variety of silvicultural systems that best suits the ecological requirements
of the site and that provides the range of site conditions necessary will becom
e one of the basic tools for practising ecological management;
• Low impact seismic, exploration and development methods now being used by the oi
l and gas industry to reduce or mitigate surface disturbance and protect environ
mental values would be implemented wherever appropriate;
• Future forest-based tourism developments would fit into the realm of ecological
management. Planning and development processes would be based on site-specific i
mpact information and relevant landscape considerations and would also be coordi
nated with affected stakeholders;
• Planning and allocation for grazing, like any other consumptive use, would be in
tegrated with other uses and would be based on the ecological capacity of the fo
rest to provide adequate forage production on a sustainable basis while consider
ing other values. Riparian area protection, erosion potential, impacts on native
wildlife species and habitat, maintenance of existing forest cover and water qu
ality would also be considered essential elements in the allocation and administ
ration of grazing leases;
• Access, like other human activities, must be evaluated in the context of ecologi
cal management in terms of its impact on the forest. Cooperative access planning
programs involving various forest users and education and awareness programs wi
ll provide users with information on the reasons for access limitation. Access r
estrictions and closures will be a part of the adaptive management approach in a
reas where continued access threatens the sustainability of other forest values.
We do not understand the importance of natural disturbances such as forest fire
to Alberta's forest ecosystems. We do know, however, that forest harvesting is a
different type of forest disturbance. Ongoing research programs are needed to b
etter understand how closely we can approximate these types of disturbance and w
hat attributes are most important. Adaptive management will help us to improve o
ur management practices as we learn from experience.
Forest Planning
Ecological management entails planning at ecologically meaningful scales and tai
loring management practices to the requirements and capacities of a given site.
Management planning must be based upon clear and widely accepted objectives for
the forest.
These objectives will define how management is to sustain the diversity, structu
re and function of the affected ecosystems while providing a sustainable level o
f resource outputs. A key function of forest management plans prepared under the
ecological management approach will be to define the intended range of variabil
ity, under managed conditions, for ecologically significant variables (such as t
ree stand age, size and structure) at the landscape level. Other important varia
bles that deal with the complex interactions between forest structures and patte
rn: and issues such as wildlife habitat requirements, watershed protection, amon
g others, will be added as our level of understanding grows.
Industrial and commercial users of the forest will have to collaborate on joint
management plans. Detailed Forest Management Plans are currently the best availa
ble planning tool for use at the landscape level and are based on the best avail
able information for that particular area. Public involvement in the development
of these plans is also a legislated requirement.
At present, the various industries operating in the forest employ differing plan
ning processes. For instance, oil and gas exploration and development programs a
re largely driven by market conditions and have relatively short planning horizo
ns. This issue must be addressed if the process of collaborative, long-term plan
ning is to succeed. Other forms of collaboration will be required for public and
private lands not included in Forest Management Agreement areas.
Private and public lands, particularly in the White Area of the province, have t
remendous potential for management as sustainable woodlots. Increased government
commitment to the sustainable long-term management of those forested lands, com
bined with an effective education and awareness program for private land-owners
and interested parties, could provide the foundation for a successful woodlot pr
ogram in Alberta. Such a program would encourage stewardship of the forest while
providing a sustainable flow of economic benefits.
Recommendation 2: That the Government of Alberta and forest land users and owner
s adopt and implement ecological management for the management of forest areas a
s quickly as practicable.
Recommendation 3: That the Government of Alberta and municipalities-adopt the po
licy objective of maintaining or enhancing the size of the forested landbase of
the province.
Recommendation 4: That the Government of Alberta and all forest users adopt adap
tive management in the allocation of forest resources and management in the fore
st.
Recommendation 5: That the Government of Alberta, industry and all forest users
develop and jointly fund long-term research programs that address the issues sur
rounding our lack of understanding of forest ecosystems. Funds for these program
s should be generated directly from the production of goods or services from the
forest to ensure that sustainable forest management practices are supported by
sustained research programs.
Recommendation 6: That the Government of Alberta's land-use planning focus on se
tting broad objectives. Industries, in cooperation with one another and with oth
er users, should plan how these objectives can best be achieved. Forest planning
conducted by either government or industry should:
• be based on the best applicable science and inventories of ecological and other
forest values;
• plan over ecologically meaningful landscapes and time frames;
• integrate all forest values and uses;
• involve all forest users cooperatively.
Recommendation 7: That the Government of Alberta and the wood products industry
encourage the development of a sustainable woodlot program in the province. This
can be accomplished by:
• offering advice and leadership to municipal governments on how to encourage resp
onsible stewardship of forested lands;
• working to jointly develop and provide educational programs for landowners, loca
l farm leaders, and Alberta Agriculture, Food and Rural Development field staff
in forest ecology and woodlot management;
• expanding support for sustainable wood lot management programs that provide info
rmation on timber and non-timber values and technical information on how to carr
y out sustainable woodlot management;
• encouraging sustainable woodlot management on White Area Crown lands where appro
priate.
STRATEGIC DIRECTION
2: Sustainable Forest Economy
The economy and the forest are interrelated. Our forest economy depends upon con
tinued viability of the forest. The forest's viability is, in turn, affected by
the type and scope of human economic activity within it as well as in other part
s of the world.
Albertans expect that the forest will contribute to an economic foundation that
will maintain and enhance their quality of life and sustain individual, family,
and community needs indefinitely. This means that market values for forest-based
resources (including forestry, tourism, agriculture, and trapping), sub-surface
resources found beneath forested lands (petroleum. coal), and non-market values
 such as fish and wildlife habitat, the maintenance of forest soils, clear air a
nd clean water, and aesthetics must be recognized and considered as elements of
a sustainable forest economy. The Strategy recognizes the interdependence of for
est and economy, and the need for sustainability of both.
A sustainable forest economy is a state in which activities that take place in t
he forest are carried out in a manner that allows them to persist over the long
term. The concept of sustainability allows for production, allocation, and distr
ibution of goods and services from the forest, among competing interests, for th
e satisfaction of human needs while not exceeding ecological limits.
A variety of different forest ecosystems exist within Alberta. The boreal forest
of northern Alberta is much different from the forest of the foothills. A susta
inable forest economy must therefore be defined in terms of specific ecosystems,
as well as in a provincial context.
A sustainable forest economy can be defined from the standpoint of a wide variet
y of economic, ecological, social, cultural or spiritual value sets. As a result
, individual, industrial, and other interests concerned with forest land resourc
es may define or approach the issue of sustainability in different ways and from
different contexts. For that reason, it is imperative that there be comprehensi
ve, scientifically-based processes for gathering, analyzing, processing, and pub
licly reporting economic: ecological, and social information in a manner that ca
n be clearly and easily understood by Albertans. This type of information is ess
ential if we are to make informed ecological and economic decisions that affect
our future.
Scope of the Forest Economy
Resources found in and under Alberta's forests contribute to numerous sectors of
the economy. These sectors contribute to economic diversity, community stabilit
y and employment throughout most of the province in a direct or indirect fashion
.
Communities
The economic health or prosperity of forest-dependent communities is important t
o the people who live in them and to the Alberta economy as a whole. If the prov
ince benefits economically from the forest in a particular area, then communitie
s in that area must have the opportunity to share in benefits, such as jobs, con
tracts and sales. They cannot, however, be insulated from larger economic or eco
logical realities tied to the concept of sustainability. For this reason, all pr
ojects that are to be developed based on resources provided from the forest shou
ld be subjected to a broad scale analysis of costs/benefits, including assessmen
t of market and non-market values, as opposed to the traditional project-specifi
c analysis dealing with local job creation, total capital construction cost, and
potential contribution to the tax roll. All aspects of the project should be re
viewed in the context of a sustainable forest ecosystem and sustainable forest e
conomy prior to submission and approval.
Value Added
Sustainability of the forest economy will be supported by having a range of econ
omic activity, as opposed to a singular focus on primary production. The pursuit
of this type of economic diversity should be encouraged and, where possible, ex
panded by adding value to all sectors. Manufacturing processes for raw materials
should be as efficient as possible to maximize recovery. It is equally importan
t to explore whatever opportunities exist for the production of "value-added pro
ducts" to enhance the economic return from our resource-based products.
Diversity and Stability
Alberta's forest economy should accommodate a wide range of types and scales of
enterprise, each providing a variety of employment and business opportunities. T
his type of forest-based economy may offer more flexibility and resiliency to lo
cal, regional, and provincial economies in the face of rapidly changing markets.
It will, in turn, contribute to the stability and sustainability of the forest
economy in the future.
A sustainable forest economy for Alberta must consider worldwide synergies, link
ages, and impacts (economic and ecological) as well as the needs of future gener
ations. The Alberta government must work in partnership with the federal governm
ent and its trading partners to create a level playing field that adequately ref
lects the costs of sustainable forest management practices. Without it, Alberta
may be at a disadvantage in the global marketplace, at least in the short term.
Market and Non-market Values
Our economy depends on markets for signals to producers and consumers on how bes
t to allocate resources. In order to encourage efficiency, markets should be all
owed to operate as freely as possible without compromising the goal of sustainab
ility. Economic tools and arrangements should be used to achieve both environmen
tal and natural resource management objectives. These tools should not, however,
be used as subsidies to entice new project development or artificially stimulat
e markets for short term investment opportunities.
Markets do not fully account for costs (such as pollution) and benefits that are
not borne by the buyer or seller. The market system can be adjusted to account
for important "non-market" values and thus contribute effectively to the goal of
a sustainable forest and a sustainable forest economy. The key is to internaliz
e environmental costs, to have the producer and/or consumer of a product or serv
ice bear that cost.
Many key policy and allocation decisions involve conflicts between beliefs that
are strongly held by some people and largely ignored by markets. Those responsib
le for management of the forest and the development of policy to guide such mana
gement must be responsive to those desires and accountable for the outcomes.
Measuring Stability of the Forest Economy
Data currently available to help us define some characteristics of a sustainable
forest economy are incomplete. Indicators of sustainability are not sufficientl
y developed to be operational. They will be required to make better and more eff
ective decisions than in the past in pursuit of a sustainable forest economy, an
d to measure our progress. The Canadian Council of Forest Ministers in consultat
ion with a broad range of forest stakeholders, has developed a national set of c
riteria and indicators. Although they are national in scope, they should provide
a useful foundation for the development of more appropriate provincial and regi
onal indicators.
Recommendation 8: That the Government of Alberta and proponents of major develop
ments ensure that environmental impact assessments and other assessments for all
projects based on resources from the forest include comprehensive, scientifical
ly-based, integrated assessments that address environmental, social, and economi
c aspects; market and non-market values, and resource supply, and processing com
ponents.
Recommendation 9: That the Government of Alberta and forest stakeholders review
existing tenure types and commitments for forest resources of all types, to dete
rmine whether these commitments are sustainable. Those that are not must be revi
sed appropriately. Any revision must consider existing contractual agreements an
d the interests of stakeholders and communities.
Recommendation 10: That the Government of Alberta, other provinces, and the Gove
rnment of Canada actively pursue an international protocol that establishes fore
st management standards that would deny market access to any jurisdiction attemp
ting to achieve commercial advantage through the use of destructive or unsustain
able forest practices.
Recommendation 11: That the Government of Alberta and other governments, along w
ith industries and communities, pursue the use of economic instruments, the prin
ciple of user pay, and other regulatory and contractual arrangements that would
encourage a sustainable forest economy.
Recommendation 12: That the Government of Alberta, in partnership with forest us
ers, set the establishment of sustainability indicators and targets as a high pr
iority. The National criteria and indicators developed by the Canadian Council o
f Forest Ministers will provide an appropriate starting point for an Alberta sys
tem. The Government of Alberta should gather analyze, process, and publicly repo
rt the economic, ecological, and social information necessary to assess performa
nce in terms of sustainability indicators and targets, in order to evaluate the
sustainability of the forest and forest-based economy of Alberta.
STRATEGIC DIRECTION
3: Protected Areas
The Special Places program is recognized as the protected-areas program of the G
overnment of Alberta. Its vision is to complete a system of areas that represent
s the province's six natural regions (20 sub-regions) by the end of 1998. Albert
a currently has areas protected for ecological, cultural and recreational purpos
es. The degree of protection and level of human activity allowed in these areas
varies.
The vision and scientific basis for protected areas found in the Special Places
program are compatible with the need for protected areas as identified in the Al
berta Forest Conservation Strategy. However, the Special Places policy and proce
ss need greater definition to ensure that they are consistent with an ecological
management approach on the forested landbase. This would not preclude establish
ment of Special Places for values other than ecological management.
Two types of protected areas have been identified as essential to the success of
the Strategy. They include:
Special Protected Areas
• "Special Protected Areas." including unique or exceptional biological, geologica
l or cultural features or offering unique opportunities to study natural process
es;
Representative Protected Areas
• "Representative Protected Areas," containing ecosystems typical of the natural r
egions and sub- regions of Alberta. They should be selected on the basis of scie
ntific criteria to provide:
• baseline or benchmark natural history data for the region or sub-region;
• opportunities to observe natural processes;
• preservation of biodiversity.
The size of representative protected areas should be related to the type and siz
e of natural disturbance as defined by sound science, and must be suitable for u
se as a benchmark or scientific control with which to assess the impact of human
activity. Scientific research may suggest that while some areas can be relative
ly small, others may need to be large. Representative areas in support of the St
rategy should include existing protected areas and new ones designated under the
Special Places program.
The level of protection for a designated area should depend on the purpose for i
ts designation. Areas set aside to protect unique and highly sensitive features
will have to be very strictly controlled. Areas representative of natural region
s will have varying management patterns within them. Typically, they will accomm
odate a somewhat broader range of uses than Special Protected Areas. However, th
ey must exclude industrial development and other activities that disturb the lan
d surface. Other activities will only be allowed where they do not conflict with
the protected purpose. Whether or not a specific activity is compatible will de
pend on the management purpose of the area and the manner in which the activity
is to be carried out. These activities should be defined through a management pl
anning process.
Recommendation 13: That the Government of Alberta under the Special Places progr
am, complete its system of protected areas to represent the full diversity of al
l the forested natural regions of Alberta, in a manner that is compatible with t
he need for protected areas as identified in the Alberta Forest Conservation Str
ategy.
STRATEGIC DIRECTION
4: Range of Management Intensities
The Alberta Forest Conservation Strategy proposes that the public forest landbas
e be managed according to a range of intensities of use. This is intended to for
ge stronger links between human uses and desired ecological conditions. Clear de
scriptions of the desired ecological condition for forest ecosystems at various
scales in the forest will be used to guide future management practices.
Four levels of management intensity are proposed:
• Extensive Management
• Intensive Management
• Facility
• Protection
Extensive Management
In Alberta, the public expects a variety of goods and services from forested lan
ds, including timber, oil and gas, mineral development, wildlife production and
conservation, watershed protection, the maintenance of biodiversity and a host o
f recreational opportunities. The Alberta Forest Conservation Strategy proposes
that ecological management will be used as the management approach for extensive
management areas to meet these demands. Most of the forested landbase will fall
into this category.
All activities carried out on extensive management areas will be monitored in an
effort to learn from past and ongoing experience. Activities that have an impac
t on the forest will be designed and managed to approximate, more closely than a
t present, the range of natural variability in forest structure and composition
left by natural processes. Where particular management practices are necessary t
o meet special needs (such as the provision of critical wildlife habitat) they w
ill be carried out with the utmost care and sensitivity.
Intensive Management
Some areas of Alberta's forests are well suited for the production of increasing
amounts of goods and services through the implementation of intensive managemen
t practices. Areas managed in this way will provide higher levels of resource pr
oduction and economic return by increasing the amount of effort and expense dire
ctly related to the management of a particular resource.
Intensive management will be practiced on areas of the forest landbase in an eff
ort to maximize the production of a primary product (such as timber, forage prod
uction, wildlife habitat, and tourism development) and should be proposed and im
plemented as part of a comprehensive process such as the development of a forest
management plan. This will ensure that interim management activities and their
application, in terms of location and timing, fit within the larger ecologically
-based landscape plan. Public involvement and ongoing monitoring and feedback me
chanisms will be necessary components of both site selection and implementation
phases of intensive management. Activities proposed as part of an intensive mana
gement regime must be identified and their effects on forest productivity and pr
ocesses be defined to better understand the cost/benefits of intensive forest ma
nagement. This type of study will also help to identify-potential impacts of int
ensive forest management on other forest values.
In areas where forested lands will be managed primarily for the production of co
mmercial goods or services, secure long-term tenure systems that adequately prot
ect the public trust in terms of accountability, the maintenance of ecological i
ntegrity, and satisfactory revenues to the Crown and profits for industry, as we
ll as recognition of the economic risk accepted by those who practice intensive
management, will need to be developed.
Facility
At the most intensive end of the management spectrum are single-use facilities i
ncluding gas plants coal mines and other industrial sites, pipelines, roads, tou
rist resorts and communities, where the site is totally transformed from its ori
ginal forested condition. The appropriateness of all sites and facilities must b
e evaluated in the context of the sustainability of surrounding ecosystems and l
andscapes. The fact that facilities have a finite lifetime, typically several de
cades, means reclamation and uses of the site after the project is finished are
important subjects for initial project evaluation.
Protection
Some aspects of ecological management can only be achieved by setting aside area
s of land protected from human uses that significantly alter the landscape. Stra
tegic Direction 3 of this Strategy document defines the role of protected areas
in ecological management.
In addition, the province of Alberta has a wide range of legislative tools and g
uidelines (such as the Forests Act, Alberta Timber Harvest Planning and Operatin
g Ground Rules) already in place that provide varying forms of environmental pro
tection for forested lands in Alberta that are managed either under an extensive
, intensive, or facility management regime. Examples of these include the mandat
ory use of "buffer strips" or vegetated reserves along watercourses to protect w
ater quality and to minimize sedimentation, the exclusion of timber harvesting f
rom slopes in excess of 45 percent to minimize erosion potential, the use of app
ropriate bridges and culverts in road construction to minimize sedimentation and
protect aquatic habitats, and timing constraints for various land use activitie
s.
The use of these legislative tools and guidelines to protect the environment wil
l continue as a part of the Alberta Forest Conservation Strategy, with appropria
te changes to reflect the move towards ecological management.
Determining Management Intensity
The process of determining what type and extent of management intensity will app
ly to an area will come from one or more of the many existing processes such as
the Special Places program, integrated resource planning, forest management plan
ning, and other approval processes, including those controlled by municipal gove
rnment. All of these processes may need some modifications to conform to the pri
nciples of ecological management and to reduce unnecessary duplication and red t
ape. All determinations of management intensity must have full and meaningful pu
blic involvement.
Recommendation 14: That the Government of Alberta support management in the fore
st according to the following range of management intensities:
• Extensive Management
• Intensive Management
• Facility
• Protection
Recommendation 15: That the Government of Alberta provide opportunities for inte
nsive management on forested lands in an effort to maximize a particular use or
the production of a primary product (such as timber, forage production, wildlife
habitat and tourism development) if the practice is proposed and implemented as
part of a comprehensive process such as a forest management plan. The total are
a that may be allocated as a part of an intensive management regime will respect
ecological limitations, as defined by sound science, and a need for positive ec
onomic return. Public involvement, ongoing monitoring and feedback mechanisms wi
ll be necessary components of both site selection and implementation phases of i
ntensive management. Activities proposed as part of an intensive management regi
me must be identified and their effects on forest productivity and processes be
defined to better understand the cost/benefits of intensive forest management. T
his type of study will also help to identify potential impacts of intensive mana
gement on other forest values.
Secure long-term tenure systems that adequately protect the public trust in term
s of accountability, the maintenance of ecological integrity, and satisfactory r
evenues to the Crown and profits for industry, as well as recognition of the eco
nomic risk accepted by those who practice intensive management, will need to be
developed.
STRATEGIC DIRECTION
5: Participation and Partnerships
The achievement of sustainability will depend on countless large and small decis
ions that affect the forest. Results will be shaped according to who is involved
in the decisions, how decisions are made and ultimately on the collective wisdo
m of the people who make them.
Sustainability calls for the participation and partnership of all Albertans, inc
luding residents, government and industry. We are all dependent upon the forest
ecosystem and the economy, and we must all be part of the solutions that support
the goal of sustainability.
The essence of this strategic direction is a shift towards more effective involv
ement of forest-based communities in the processes of decision-making and identi
fication of objectives, as well as to ensure that all forest users assume greate
r responsibility for their actions. Some critical elements of this direction wil
l include the following:
• Opportunities for involvement
• Stewardship
• Sharing of information
• Community-based participation
• Appropriate decision-making processes
Opportunities for Involvement
The management and administration of our activities in the forest must be open a
nd transparent. This means giving everyone the opportunity to have a meaningful
say. It means appreciating and accommodating other points of view, and sharing t
he benefits of the forest. The rights of all partners and users must be defined
and mutually respected.
Stewardship
Forest users should be accountable and responsible for their actions and decisio
ns. There is a need for a comprehensive program that encompasses elements of edu
cation, monitoring and enforcement. We must provide forest users with the inform
ation that they will require as we move to ecological management, to better unde
rstand why certain activities are no longer acceptable or are regulated to a gre
ater degree, if we hope to gain their acceptance. Monitoring of our activities w
ill be required to gauge the effectiveness of these information programs. Effect
ive penalties should be put in place to better encourage respect for and complia
nce with legislative or regulatory requirements.
Information
Respectful partnerships require an open and accessible process for generating an
d sharing information. All input should be given due consideration, regardless o
f whether it is based on scientific study or local wisdom. The level of knowledg
e about all ecological and economic aspects of the forest (on public and private
land) should be broadly reinforced by information and education programs. All o
f the information used in planning and decision-making processes should be avail
able to those who wish to be involved.
Community-based Participation
The needs of local communities must be recognized and respected. At the same tim
e, these needs must be considered in the context of overall provincial economic,
environmental and social needs and priorities, as well as national and global r
esponsibilities. One way that a greater emphasis on community-based involvement
and participation will be realized is through local advisory groups throughout t
he forested area. These groups could integrate many public participation process
es already in place, as well as new functions identified in the Strategy.
Decision-making Processes
The decision-making process - the scope of the questions to be addressed, the te
rms of reference that guide the decisions, and the decision-making process itsel
f - must provide for public participation, and be understandable and accessible.
The public should be made aware of the avenues of appeal that exist. There is a
full range of decision-making processes that affect activities in the forest, i
ncluding the Natural Resources Conservation Board, the Alberta Energy and Utilit
ies Board, and various approvals at the provincial and municipal levels.
All decision-making regarding activities in the forest should be consistent with
the Vision, Goal and Principles expressed in this document. They should be revi
ewed to ensure they recognize the principle that all Albertans must have the opp
ortunity to contribute in meaningful ways to decisions that are important to the
m.
Aboriginal Peoples
The aboriginal peoples of Alberta have used the forests of the province for gene
rations to provide for shelter, subsistence, and spiritual renewal. They have do
ne so based on a philosophy described by some of the aboriginal peoples who part
icipated in the development of this document as "Sagow Pematosowin", or "life as
a whole", that is similar to many of the ideals set out in the Alberta Forest C
onservation Strategy such as sustainable use and biodiversity.
Aboriginal peoples were given a number of opportunities to be involved in the St
rategy's development and have played an important role through participation in
the Aboriginal Issues Working Group, various Community Working Groups and the St
akeholder Advisory Group. They provided valuable input and identified issues tha
t are of concern to the Aboriginal peoples of Alberta.
Although the Strategy provides a framework to address a number of the issues ide
ntified, many are beyond the scope of the Strategy or are specific to local area
s or communities. Those issues that are within the scope of the Strategy should
be addressed in a coordinated manner between aboriginal groups, local communitie
s, and the appropriate levels of government as a part of the implementation phas
e of the Strategy.
Recommendation 16: That the Government of Alberta, in partnership with forest st
akeholders, including aboriginal peoples and municipalities, establish community
advisory committees in the forested portion of the province, to provide policy
and planning advice to the government, industry and municipalities on local and
regional forest matters, and to provide a regional perspective on provincial iss
ues. Committees should consolidate the functions of some existing advisory commi
ttees in order to reduce duplication.
Recommendation 17: That the Government of Alberta, in partnership with forest st
akeholders, review and clarify processes for making decisions about activities i
n the forest to achieve clear and consistent processes, clear identification of
responsibilities and accountability, and full disclosure of the rationale for de
cisions. Meaningful public involvement must be an integral component of all majo
r decisions. The types of decisions for which the public will be informed in adv
ance need to be clearly identified. Citizens must have access to accurate. perti
nent and timely information about the forest and proposals for its use.
IMPLEMENTATION
Reaching the Strategy's goal of sustainable forest ecosystems and economies will
require the cooperation and dedication of all forest partners. Getting there wi
ll require that Albertans make a fundamental change in their perceptions and att
itudes about the forest and their relationship to it.
This strategic framework represents the first step towards reaching the Strategy
's goal. It points out the route for the start of the journey, rather than provi
ding a complete roadmap to the destination. The broad directions contained here
represent the consensus of the diverse range of stakeholders who helped develop
the Strategy.
The Steering Committee recognizes that more work is required to resolve details
and develop consensus on the specific actions to be taken. These actions will bu
ild on and reinforce the principles and directions in the strategic framework.
The initial requirements are revised policies, laws and programs; improvements t
o planning and decision-making processes; modified forest practices; scientific/
research efforts; and development of cooperative relationships between forest us
ers.
This report is presented to the Minister of Alberta Environmental Protection, wi
th the hope that the Minister and Government of Alberta accept a leadership role
in ensuring that the Strategy is implemented, in continuing cooperation with ot
her governments, industry and all those who care about and benefit from the fore
st.
In addition, it is recommended that the Minister provide regular reports to the
public on progress made towards implementing the Vision, Goals and Principles of
the Strategy. This can be achieved through a process similar to the provincial
"State of the Environment Report" or the federal government' s "State of Canada'
s Forests" report.