Proposed Conservation Strategies for Fundy Biosphere Reserve, New

Brunswick, Canada

Geographic Features (FBR, 2016)

Debborah Donnelly
15200636
University College Dublin
World Heritage Conservation
April 21, 2017
 D. Donnelly 1

Introduction
In 2007 the Fundy National Park (FNP) of Canada became the core area of the UNESCO Fundy
Biosphere Reserve (FBR). It was the 15th of 18 listed biospheres in Canada. The site lies on the
eastern edge of New Brunswick on the Upper Bay of Fundy, which is known for the high tides it
attains twice daily,1 a rich biodiversity, and a strong cultural connection with both aboriginal and
colonial Europeans.

Fig. 1 Biosphere Reserves of Canada (Canada Council, 2016) Fundy Biosphere Reserve highlighted

This paper will review the nomination file (FBRN, 2007 & 2007a), the current Management Plan of
the Fundy National Park (Parks Canada, 2011), and the FBR Strategic Plan 2012-2015 (FBRA,
2012). The value of the Management Plan will be presented against a set guideline for development
of a Plan under a UNESCO mixed heritage site to help determine areas in need of improvement.
From that analysis one will be able to propose areas for ongoing research and monitoring needed,
to further develop and prioritize areas for the conservation strategy for the site. In addition, the

1 The highest tidal range in the world.

 D. Donnelly 2

specific elements within the property in need of conservation (e.g. monuments, buildings,
landscape, biodiversity, etc.) will be identified.

UNESCO Biosphere Reserves

Biosphere reserves are Science for Sustainability support sites special places for testing
interdisciplinary approaches to understanding and managing changes and interactions between
social and ecological systems, including conflict prevention and management of biodiversity
(UNESCO, 2017).

The criteria for becoming a Biosphere Reserve are listed in Article 3 of the 1995 Statutory
Framework of the World Network of Biosphere Reserves (MAB, 1995: 18). Specifically it should
include 3 zones as follows:

a legally constituted core area or areas devoted to long-term protection, according to the
conservation objectives of the biosphere reserve, and of sufficient size to meet these
objectives;
a buffer zone or zones clearly identified and surrounding or contiguous to the core area or
areas, where only activities compatible with the conservation objectives can take place;
an outer transition area where sustainable resource management practices are promoted
and developed. (MAB, 1995:19)

Article 9 Periodic Review (MAB, 1995: 20) indicates that each Biosphere Reserve must undergo
a review every 10 years to be assessed by the International Co-ordinating Committee (ICC) of the
Man and the Biosphere Programme. This means the Fundy Biosphere Reserve should be reviewed
in 2017.

The Geographic Area of the Fundy Biosphere Reserve

Each Biosphere is intended to fulfill three complementary and mutually reinforcing functions:

Conservation: Contribute to the conservation of landscapes, ecosystems, species, and

genetic variation.
Development: Foster economic and human development that is socially, culturally and
ecologically sustainable.
Support: Create a support network of scientists, resource managers and policy makers to
assist communities and resource sectors address sustainability issues and concerns.
 D. Donnelly 3

The total area of the Fundy Biosphere Reserve is 442,250 hectares in the upper Bay of Fundy
coast, stretching from St. Martins to the Tantramar Marsh near Sackville and inland to Moncton.

Core Area: 20,600 hectares

Buffer Zone: 26,124 hectares
Transition Area: 395,552 hectares (FBR, 2016)

The map on the title page shows the geographic boundaries of each of these zones.
Core Area
Fundy National Park was designated under Canadian federal protection in 1948. It was also named
as a Dark Sky Preserve2 by the Royal Astronomical Society of Canada in 2011. The Dark Sky
Preserve (DSP) key components are:

control of local lighting,

outreach programs aimed at the general public and neighbouring municipalities,
and to demonstrate good nighttime lighting practices. (RASC, 2011)

The Fundy National Park was selected as the Core Area of the Fundy Biosphere Reserve for
several reasons:

It is a large contiguous area with a low level of natural or man made disturbance over the
past 60 years;
It has long-term legal protection under federal legislation and it is dedicated to preserving
the ecological integrity of its lands;
There is an open dialogue with adjacent land managers intended to reach reasonable
decisions related to mitigating the potential effects of operational projects; and,
It also has an active habitat restoration program that is promoted outside, as well as inside
the park (FBR, 2016)

Buffer Zone
The nomination committee included all the other protected areas, conservation areas and special
management areas that exist in the region (FBR, 2016) to ensure that there is some component
of rationalization for cooperative management planning strategies.

2 It means that the Fundy National Park Dark Sky Preserve is one of the best places to explore the night sky in
Canada. It also helps prevent light interference with nocturnal species (Dick, 2013: 1).
 D. Donnelly 4

Transition Area
The Transition Area in the Fundy Biosphere Reserve is made up of provincial Crown lands, federal
Crown lands, large industrial freehold forest lands, small private woodlots, agricultural and dyked
marshlands, municipalities, roads, highways and energy corridors (FBR, 2016).

The human land-use in the area of the Bay of Fundy has created significant change in the
landscape, distribution of species, and supply of habitat for those species (FBR, 2016). The large
transition zone was developed to share knowledge across a variety of resource sectors in order to
better plan for the conservation and restoration of native biodiversity.

Development of a Plan

Unlike a designated World Heritage Site, plans for Biosphere Reserves are not as strictly controlled.
However, it would be prudent for management plans to have the same components. While there
does not exist a Management Plan for the overall Biosphere Reserve, the core area is the Fundy
National Park, and its Management Plan as well as the FBR Strategic Plan 2012-2015, will be
assessed against the following, based on UNESCO World Heritage mixed sites.

A description of the proposed item is followed by how it is (or is not) articulated by the Fundy
National Park Management Plan (FNPMP) or the FBR Strategic Plan

Purpose

The purpose statement should simply and briefly describe what are the goals and objectives of the
Management Plan and may include a note on:

Accountability for the mandate of the site

Framework on stakeholder collaboration

The FNPMP specifies the accountability of Parks Canada for the site, and sets a clear, strategic
direction for the management and operation of Fundy National Park by outlining a 15-year vision,
establishing a set of 5-year to 15-year objectives and outlining a 5-year implementation strategy
with focused targets and actions (Parks Canada, 2011: Section 1.1). The plan is developed
through public consultation.

The FBR Strategic Plan does not provide a Purpose statement but does list three main functions
of the Biosphere Reserve as the following activities:
 D. Donnelly 5

Conservation: To contribute to the knowledge and practices concerning the conservation

of ecosystems, species and the natural biodiversity of the region.

Sustainable Development: To foster and promote sustainable development, i.e.

development that is socially, culturally, economically and ecologically sustainable across
human generations.

Capacity Building: Provide a forum for dialogue and information-sharing between

communities, resource sectors, governments and researchers (FBRA 2012: 4).

The last item in particular speaks to the necessity for stakeholder collaboration.

Vision Statement

A vision statement should be broad enough to ensure that the focus is not only on the present
condition of the site but should ensure the continued maintenance (of the outstanding universal
value) and development of the site for the future.

It should also specify the intent for safeguarding both the cultural knowledge and materials, along
with the natural ecosystems and biodiversity.

The FNPMP (Parks Canada, 2011: Section 4) provides for a very extensive vision of what services
the Park will offer by the year 2025. It is a very long description and therefore is not included here
in full.

The following statements are listed under the Fundy Biosphere Reserve Associations (2016)
website:

Mission - The UNESCO-designated Fundy Biosphere Reserve contributes in building

vibrant and resilient human and environmental communities through conservation and
promotion of sustainable development.
Vision - Communities, stakeholders and partners of the UNESCO-designated Fundy
Biosphere Reserve in various sectors have achieved a greater level of sustainability in the
region, while conserving the areas cultural and natural heritage.

Of particular note is that the Vision on the website is written in the past-tense and is not a forward-
looking statement.
 D. Donnelly 6

The FBR Strategic Plan (2012) actually had a different Mission and Vision as follows:

Mission The UNESCO Fundy Biosphere Reserve is dedicated to conserving biodiversity

and promoting sustainable economic development.
Vision To create a diverse network of partners and stakeholders who will work to assist
communities and resource sectors on the upper Bay of Fundy to achieve a greater level of
sustainability, while preserving the areas cultural and natural heritage.

While the website appears to have been more recently updated, the mission and vision
statements are less clear than the Strategic Plan document (although the latter is technically
expired).

International, National and Provincial Frameworks

Existing regulations, legislative authority, initiatives, partnership programs, and resources need to
be acknowledged within a plan so that actions can be taken and goals made that are realistic, and
can be reflective of these defining factors. This is a section that provides context (outside of the
geographic and historic) that is necessary for efficient and effective management of a site.

The FNPMP (Parks Canada, 2011: Section 1.1) refers directly to The Canada National Parks Act
(2000) and the Parks Canada Agency Act (1998); (Ibid Section 3.4 State of the Park) refers to the
Species at Risk Act (2004).

With regards to partnership programs, the FNPMP (Ibid Section 2.0) notes the FNP is also
considered the important core of the UNESCO Fundy Biosphere Reserve (designated in 2007),
which focuses on protection and encouraging sustainable tourism in the biosphere region.
Likewise, Section 2.2 mentions the requirement for consulting local communities, Aboriginal
peoples, stakeholders, partners and staff.

A key strategy of the FNPMP (Ibid Appendix 1) includes the need to engage the Fundy Biosphere
Reserve, New Brunswick universities and other partners in species at risk recovery program.

Parks Canada and the FBR have also signed a separate Memorandum of Understanding on their
collaboration on the Reserve (Parks Canada, 2012).

The FBR Strategic Plan notes that a major strength includes being a member of a large,
international programme and part of a strong national and international network of Biosphere
Reserves (FBRA 2012: 5). They also have had the opportunity to make use of an increasing strong
network that includes local and regional non-profit organizations, community groups, Fundy
National Park, and educational institutions (Ibid 6) to increase collaboration and partnerships on
projects.
 D. Donnelly 7

Ownership

It is important to include a clear description of (all) the ownership of the land in question (public
and/or private). Not only does this help define the primary stakeholders, but also ensures that
consideration of the relationships between the different owners and access to communications with
them and between them are established.

This statement should also provide information on the differing administrative bodies of the public
lands, which is even more important when you have the possibility of several diverse ministries
responsible for different areas of a site (i.e. cultural versus natural).

Fundy National park is operated by Parks Canada which is an agency of the Government of Canada
that is managed by Environment Canada. Ownership is not specified anywhere in the document
(FNPMP) only that Parks Canada is responsible for its mandate related to the protection of
ecological and cultural resources and delivery of the management plan and overseeing all Park
activities.

The Fundy Biosphere Reserve Strategic Plan does not provide a compiled list of ownership as
the area is vast and includes substantial towns, crown lands, and private property. It would be very
difficult to maintain a list of all owners, but major owners could be identified and included in their
plan.

Context

A thorough geographical and historical background of the site should be highlighted in the
management plan. It shall provide context for users of the plan who may not have all the important
background information. Knowledge about the physical and social history of the site ensures that
decisions can be made that are reflective of this site, which is unique in its basis. It is often from
this information that makes it possible for the reader to understand the reason for the site being
granted outstanding universal value.

The FNPMP provides an extensive and thorough geographical and historical background on the
Park in Section 2.1 Regional Context and Geographic location, and Section 3 Planning Context
and Current Park History.

The FBR Strategic Plan does not provide any significant background on the location or historical
context of the site (a single paragraph on page 2). The website does however provide a section on
Geographical Features but lacks information on historic cultural sites within the Biosphere
Reserve. Mention is made in the Nomination File (FBRN, 2007: I-5) to Aboriginal (Mikmaq)
settlement and artefacts ranging back 6000 years, as well as of European settlers.
 D. Donnelly 8

Heritage and Ecological Inventories

This section should include detailed inventories of current cultural resources on the site, including
changes that have been noted over a period of observation (if possible).

Identification and numeration of all species on the site with specific attention given to those
species identified on national lists (Species at Risk Act Canada) and/or the IUCN Red List.
These inventories help to determine if there are particularly sensitive areas of the site that may
need extra care.

There is a rich diversity of life in Fundy National Park. The FNPMP (2011: Section 3.4) specifies
the following:

Two-thirds of native fish species in the park may have been extirpated3 (American shad,
gasperau, and American smelt).
Three dominant fish species remain: American eel, Atlantic salmon and Brook trout.
However, American eels were assessed in 2006 by the Committee on the Status of
Endangered Wildlife in Canada (COSEWIC) as being of special concern4 while the inner
Bay of Fundy population of Atlantic salmon was listed as endangered5 under the Species
at Risk Act (SARA) in 2004. (According to the current listings (Table 1 below) the American
eel has now been further downgraded as threatened.)
Six of the 42 native mammal species have either been extirpated or are at risk of extirpation
within the park. (Note that by 2017 the Fundy National Park website lists 38 mammals within
its boundaries).
Three freshwater fish species and 20 species of vascular plants have also been lost from
the park.
Fundy National Park has played an important role in efforts to re-establish several of these
species, including marten, Atlantic salmon, and peregrine falcon.

While somewhat useful, the plan falls short of supplying a list of exact species at risk within the
Park (other than the Atlantic Salmon and Peregrine Falcon), and there is no references to marine
species, arthropods, other birds, molluscs, lichens, amphibians or reptiles.

3 Extirpated species means a wildlife species that no longer exists in the wild in Canada, but exists elsewhere in the
wild. (Parks Canada, 2011: Appendix 5 Glossary of Terms)
4 Species of special concern means a wildlife species that may become a threatened or an endangered species

because of a combination of biological characteristics and identified threats. (Ibid)

5 Endangered species means a wildlife species that is facing imminent extirpation or extinction. (Ibid)
 D. Donnelly 9

The FNP website (2017) provides the following current overview of information regarding an
ecological inventory, without providing a specific list:

Flora

On the Caledonia Highlands Plateau some 658 species of vascular plants, 276 species of
bryophytes and 400 species of lichens are known.

The park harbours some of the last pure stands of red spruce in Eastern North America (Parks
Canada, 2017).

Fauna

Over 260 bird species have been identified in the park, of which 95 are known to have nested there.
The Peregrine Falcon, which was extirpated by the time the park was established in 1948, has
been successfully introduced (Parks Canada, 2017).

There are at least four species of snake, seven different species of frog and toad, and seven
species of salamander. Of the latter, three are considered rare. Four-toed salamanders6 have not
been found anywhere else in New Brunswick, and Fundy is the only Canadian national park known
to contain northern dusky salamanders. The third rare salamander is the blue-spotted salamander
(Parks Canada, 2017).

There are 38 species of mammal in the national park and many are nocturnal, which would
presumably have greater protection now that the park has also been designated a Dark Sky
Preserve.

Marine Coastal System

There is much less information available on coastal flora and fauna, and the information is mostly
restricted to land accessible species.

References are made to brown seaweeds, barnacles (Balanus balanoides), periwinkles (Littorina
spp.), side swimmers, gumdrop sea-slugs (Onchidoris bilamellata), dog whelks (Thais lapillus),
limpets (Acmaea testudinalis), butterfish, crabs, mud shrimps (Corophium volutator), clams, the
clam worm (Nereis virens) and bamboo worm (Parks Canada, 2017a).

The only reference to fish are the mummichog and threespine stickleback (which) forage and grow
in the briny creeks of the salt marsh (Parks Canada, 2017a).

Species at Risk Act (SARA) List for New Brunswick

6However, the fourtoed salamander is also known in populations in Ontario, Quebec and Nova Scotia and is
considered Not At Risk by COSEWIC (SARA Registry, 2017).
 D. Donnelly 10

As of 18 April 2017 a search of the SARA registry indicated 110 records of species recorded
within the range of New Brunswick. Of that 110, 76 were listed as being of special concern,
threatened, endangered, extirpated or extinct by either the COSEWIC, or by SARA. The
COSEWIC status has been included as it is most often more up-to-date than SARA, as they
conduct the monitoring and reviews of species for the Registry and it often takes time to change
the listing.

Table 1 List of Species at Risk in New Brunswick (Govt of Canada, SARA Registry 18 April 2017)

Common name Scientific name Taxon COSEWIC status SARA status

American Eel Anguilla rostrata Fishes Threatened No Status

Anticosti Aster Symphyotrichum anticostense Vascular Plants Threatened Threatened

Atlantic Salmon Salmo salar Fishes Endangered Endangered

Atlantic Salmon Salmo salar Fishes Special Concern No Status

Atlantic Salmon Salmo salar Fishes Endangered No Status

Atlantic Sturgeon Acipenser oxyrinchus Fishes Threatened No Status

Atlantic Walrus Odobenus rosmarus rosmarus Mammals Nonactive Extirpated

Atlantic Walrus Odobenus rosmarus rosmarus Mammals Special Concern No Status

Bank Swallow Riparia riparia Birds Threatened No Status

Barn Swallow Hirundo rustica Birds Threatened No Status

Barrow's Goldeneye Bucephala islandica Birds Special Concern Special Concern

Bathurst Aster Symphyotrichum subulatum Vascular Plants Special Concern Special Concern

Beach Pinweed Lechea maritima Vascular Plants Special Concern Special Concern

Bicknell's Thrush Catharus bicknelli Birds Threatened Threatened

Blackfoam Lichen Anzia colpodes Lichens Threatened No Status

Blue Felt Lichen Degelia plumbea Lichens Special Concern No Status

Bobolink Dolichonyx oryzivorus Birds Threatened No Status

Boreal Felt Lichen Erioderma pedicellatum Lichens Endangered Endangered

Brook Floater Alasmidonta varicosa Molluscs Special Concern Special Concern

Butternut Juglans cinerea Vascular Plants Endangered Endangered

 D. Donnelly 11

Canada Warbler Cardellina canadensis Birds Threatened Threatened

Chimney Swift Chaetura pelagica Birds Threatened Threatened

Cobblestone Tiger
Beetle Cicindela marginipennis Arthropods Endangered Endangered

Common Nighthawk Chordeiles minor Birds Threatened Threatened

Dwarf Wedgemussel Alasmidonta heterodon Molluscs Extirpated Extirpated

Eastern Meadowlark Sturnella magna Birds Threatened No Status

Eastern Waterfan Peltigera hydrothyria Lichens Threatened No Status

Eastern Whippoor
will Antrostomus vociferus Birds Threatened Threatened

Eastern Woodpewee Contopus virens Birds Special Concern No Status

Eskimo Curlew Numenius borealis Birds Endangered Endangered

Evening Grosbeak Coccothraustes vespertinus Birds Special Concern

Fourtoed Salamander Hemidactylium scutatum Amphibians Not at Risk

Furbish's Lousewort Pedicularis furbishiae Vascular Plants Endangered Endangered

Gasp Shrew Sorex gaspensis Mammals Not at Risk Special Concern

Great Auk Pinguinus impennis Birds Extinct

Gulf of St. Lawrence

Aster Symphyotrichum laurentianum Vascular Plants Threatened Threatened

Gypsy Cuckoo Bumble

Bee Bombus bohemicus Arthropods Endangered No Status

Harlequin Duck Histrionicus histrionicus Birds Special Concern Special Concern

Labrador Duck Camptorhynchus labradorius Birds Extinct

Least Bittern Ixobrychus exilis Birds Threatened Threatened

Little Brown Myotis Myotis lucifugus Mammals Endangered Endangered

Maritime Ringlet Coenonympha nipisiquit Arthropods Endangered Endangered

Monarch Danaus plexippus Arthropods Endangered Special Concern

Northern Myotis Myotis septentrionalis Mammals Endangered Endangered

Olivesided Flycatcher Contopus cooperi Birds Threatened Threatened

 D. Donnelly 12

Passenger Pigeon Ectopistes migratorius Birds Extinct

Peregrine Falcon Falco peregrinus

anatum/tundrius anatum/tundrius Birds Special Concern Special Concern

Piping Plover melodus

subspecies Charadrius melodus melodus Birds Endangered Endangered

Prototype Quillwort Isoetes prototypus Vascular Plants Special Concern Special Concern

Pygmy Snaketail Ophiogomphus howei Arthropods Special Concern Special Concern

Rainbow Smelt Osmerus mordax Fishes Threatened Threatened

Rainbow Smelt Osmerus mordax Fishes Threatened No Status

Red Knot rufa

subspecies Calidris canutus rufa Birds Endangered Endangered

Redbreast Sunfish Lepomis auritus Fishes Data Deficient Special Concern

Rednecked Phalarope Phalaropus lobatus Birds Special Concern No Status

Redshouldered Hawk Buteo lineatus Birds Not at Risk Special Concern

Roseate Tern Sterna dougallii Birds Endangered Endangered

Rusty Blackbird Euphagus carolinus Birds Special Concern Special Concern

Sea Mink Mustela macrodon Mammals Extinct

Shorteared Owl Asio flammeus Birds Special Concern Special Concern

Shortnose Sturgeon Acipenser brevirostrum Fishes Special Concern Special Concern

Skillet Clubtail Gomphus ventricosus Arthropods Endangered No Status

Smooth Skate Malacoraja senta Fishes Special Concern No Status

Snapping Turtle Chelydra serpentina Reptiles Special Concern Special Concern

Striped Bass Morone saxatilis Fishes Special Concern No Status

Striped Bass Morone saxatilis Fishes Endangered No Status

Thorny Skate Amblyraja radiata Fishes Special Concern No Status

Transverse Lady
Beetle Coccinella transversoguttata Arthropods Special Concern

Tri-colored Bat Perimyotis subflavus Mammals Endangered Endangered

Vole Ears Lichen Erioderma mollissimum Lichens Endangered Endangered

 D. Donnelly 13

Wood Thrush Hylocichla mustelina Birds Threatened No Status

Wood Turtle Glyptemys insculpta Reptiles Threatened Threatened

Wrinkled Shingle
Lichen Pannaria lurida Lichens Threatened No Status

Yellow Lampmussel Lampsilis cariosa Molluscs Special Concern Special Concern

Yellow Rail Coturnicops noveboracensis Birds Special Concern Special Concern

Yellowbanded
Bumble Bee Bombus terricola Arthropods Special Concern No Status

Under SARA, 14 species in New Brunswick are currently shown as Endangered, 10 are
Threatened, and 18 of Special Concern. However, without a specific list of species within the
Fundy National Park, or the larger Fundy Biosphere Reserve, it is not known if any of these
species are habitants within these protected areas.7

The FBR Strategic Plan does not provide an ecological baseline in its wider region context at all,
however one of their objectives was to create an Environmental and Cultural Atlas.

Cultural Heritage Inventory

References are made under the FNPMP (Parks Canada, 2011: Section 3.1 Park History) to
remnants of an abandoned copper mine, homesteads, village houses, roads and tracks,
cemeteries, schools, bridges, and industry-related structures such as dams (to permit log driving
and to power sawmills), wharves and mills are still located within the Park, but a proper cultural
resources inventory is lacking. Under Key Strategy 3 (Ibid Appendix 1) Parks Canada has identified
the need to Inventory and evaluate the parks cultural resources to gain a better understanding of
their values to local and regional communities, to improve the visitor experience offers within the
park, and to meet the interests of visitors.

There is currently no documented evidence of Aboriginal presence within the park, possibly due
to European settlements being built on top of previously occupied Aboriginal settlements (Parks
Canada, 2011: Section 3.1 Park History).

Notably, significant progress has not been made since the last management plan (2005) to
investigate the potential for oral history, nor has documented research been carried out to elucidate

7 Except the Peregrine Falcon and Atlantic Salmon, noted previously.

 D. Donnelly 14

the role that the park area may have played in the lives of Aboriginal peoples prior to and during
European settlement of the region (Parks Canada, 2011: Section 3.4 State of the Park).

The FBR Strategic Plan (2012) does not provide a cultural baseline in its wider regional context at
all, however one of their objectives was to create an Environmental and Cultural Atlas. Although
this appears to have not yet occurred, a current project is listed on their website as a Historic
Places register.

Risks and Risk Management8

Under Section 111. c of the Operational Guidelines (2015) it is important to include an, assessment
of the vulnerabilities of the property to social, economic, and other pressures and changes, as well
as the monitoring of the impacts of trends and proposed interventions.

This speaks directly to Risk Analysis and Risk Management, through identifying hazards and
developing a risk matrix in order to determine which risks are most important to deal with to reduce
damage through mitigation efforts (for example).

The FNPMP (Parks Canada, 2011: Section 10.2 Environmental Stewardship) discusses Risk
Management, specifically around contaminated sites,9 and the development of a Salt Management
Plan in 2010, to deal with the spreading and limitation of road salt within the Park. Otherwise, there
is little reference to natural or human-induced hazards, risk analysis or a risk management plan.

Challenges listed under the FNPMP include the redevelopment of the Visitor Centre and access to
Cruise Ship passengers. Opportunities include the UNESCO designation of the Park as a core
zone of the Fundy Biosphere Reserve, celebrations around the 100th anniversary of Parks Canada,
and the expected completion of the Fundy Trail Parkway (Parks Canada, 2011: Section 3.5
Challenges and Opportunities).10

The FBR Strategic Plan (FBRA, 2012) does however, have a section entitled Strengths,
Weaknesses, Opportunities and Threats which outlines their major concerns (similar to a risk
matrix).

Strengths:

Membership of a large, international programme and part of a strong national and

international network of Biosphere Reserves.

8 Risk: A potential event that, if it materializes, may have a positive or negative impact on the achievement of
UNESCOs objectives. Risk is as much a potential threat as a missed opportunity (UNESCO, 2016: 2)
9 Seven sites in the park have been registered on the Federal Contaminated Sites Inventory.
10 Surprisingly there was no reference to the opportunity of Canada150 in 2017 which should focus on the founding

provinces of the country. This was a missed opportunity.

 D. Donnelly 15

Respectability associated with the UNESCO brand, which lends credence to the FBRs
activities.
The FBR has a committed and relatively active Board of Directors, many of whom have
been involved in the initiative since the very beginning.

Weaknesses:

instability of available funding for its operations

communication of the FBR activities At present, most people living inside the FBR are
mostly unaware of its existence and have even less knowledge of the UNESCO MAB
program

Opportunities:

to make use of an increasingly strong network

to develop the Charter Membership Program into a strong and benchmark-setting program
that could in turn make the FBR a regional hub of sustainable development.

Threats:

The possible loss of funding for the remaining year (2012-2013) of the Contribution
Agreement with Environment Canada.

While this is indeed a form of risk analysis, this is based primarily on the organization, and does
not consider other natural (e.g. climate change impacts) or human-induced threats (e.g.
development encroachment) to the Fundy Biosphere Reserve as a whole.

Conservation Program

Following the risk analysis and development of a risk matrix, a specific conservation plan needs to
be established that describes the intervention, restoration, protection and maintenance processes
to be taken either as preventative actions or in response to a problem (e.g. an insect infestation
causing damage to cultural property or destroying a natural habitat).

The FNFNP (Parks Canada, 2011: Section 5.0) has identified specific areas for conservation
particularly around species at risk (Objective 1.5 with regards to the American eel, and the Atlantic
salmon). A part of Key Strategy 1 (Ibid Appendix 1) is also to engage Aboriginal conservation
groups and networks such as the Aboriginal Traditional Knowledge (ATK) network and the Maliseet
Nation Conservation Council (MNCC) in discussions on ecological integrity projects to determine
interests and future engagement.
 D. Donnelly 16

The FBR Nomination File (FBRN 2007: I-7 to I-11) has a section titled Conservation that outlines
their intent to work with senior government departments, resource management agencies,
conservation groups, communities and academic institutions to further environmental and
community sustainability and to foster ecological integrity within the proposed bounds of the FBR
and within the whole bioregion. They also provide descriptions of primary objectives of the various
Categories of Protected Areas within the Biosphere Reserve (see Table 2 below).

Table 2 Categories of Protected Areas in the Proposed FBR (FBRN 2007: Table 3.1)

However, the FBRN does not intend to duplicate ongoing efforts in conservation, research and
monitoring, but will draw on the knowledge and resources previously developed by the broad
spectrum of organizations working toward greater sustainability and conservation in the region
(FBRN 2007: I-9).

The FBR Strategic Report (FBRA 2012: 3) states they shall act as a site of conservation and
sustainable cultural and economic development, a living research laboratory for collaborating
organizations and researchers, and as a hub for networking, information exchange, and capacity
building.
 D. Donnelly 17

Sources and Levels of Finance

By defining current funding streams, this helps to organize and keep goals in perspective. Whatever
funding is initially available is what is going to constrain the operations of the site.

Government, UNESCO, private donors

Admissions, art sales, educational programs, guided tours

By specifying the intended direction for the planning to diversify and secure future funding helps to
initiate strategies that will help meet requirements to obtain that funding. This can be directed by
specific protection policies, creating fundraising proposals, completing grant applications, etc.

The FNPMP does not specify their sources of funding except for specific projects. They receive
federal funds for the administration and general operations of the Park. Funds for projects within
the park are sought through a variety of sources including for example, through the Economic
Action Plan (for construction and road work (Parks Canada, 2011: 45), and the Federal
Contaminated Sites Action Plan for remediation of contaminated sites identified on park land (Ibid
55).

The FBR Strategic Report (FBRA 2012: 5) indicated their reliance on Environment Canada funding
as their greatest threat, and a loss of those funds would force them to seek grants for individual
projects. Therefore they will make every attempt to secure long-term funding and funding that
permits a wider scope of activities (e.g. administrative costs) than just individual projects (Ibid 6).

Sustainable Tourism

Identifying the numbers and types of expected tourists, how they travel and their needs at the site
are necessary in establishing sustainable tourism standards. There needs to be a balance between
economic gain and protecting the property, while still providing opportunities for the tourist to
engage with the site.

Through collaboration and partnering opportunities, FNP will maintain a key position within the
Upper Bay of Fundy regional sustainable tourism strategy (FNPMP, Parks Canada 2011: viii).

FNP is also considered the important core of the UNESCO Fundy Biosphere Reserve (designated
in 2007), which focuses on protection and encouraging sustainable tourism in the biosphere region
(Ibid 5).

Section 3.4 - State of the Park (Ibid 18), has a section on Visitor Experience which discusses data
trends (by percentage) declining on park use, but there is no specific plan for determining
sustainable use, except through the comments quoted above.
 D. Donnelly 18

The FBR Strategic Plan (2012: 4) lists Sustainable Tourism as a past or current activity of the
organisation, but there are no details on how this has been or will be established.

Our sustainable tourism activities are all directed toward building the capacity of our communities
while improving visitors appreciation for the natural features that make this region so special.
Megan de Graaf, Executive Director - Fundy Biosphere Reserve (Godmaire, et al, 2913: 26).

Monitoring and Reporting Program

Section 111 of the Operational Guidelines includes the following as a requirement of an effective
management system:

a cycle of planning, implementation, monitoring, evaluation and feedback.

This is necessary as no management plan is a static document, but must change to reflect changing
needs, philosophies, regulations, response to damage and deterioration, etc. Like the Species at
Risk cycle demonstrated in Fig. 2 below, there is also need for the entire plan to be revised on a
regular basis.

Fig. 2 Foundational Elements of the Species at Risk Conservation Cycle (Canadian Ministry of the
Environment, 2014)
 D. Donnelly 19

The FNPMP (2011: Section 11.1 Condition Monitoring) states that the development of a long-term
monitoring program for cultural resources was not completed during the last management plan
cycle (2005-2010) and is considered a significant gap in the management of cultural resources.

Monitoring was identified as a Strategic Objective to be undertaken over the next three years
(FBRA 2012: 5) by the Fundy Biosphere Reserve. However, it appears to be intended as an
exercise to review their own organisational progress. They shall engage in assessing,
documenting, and reporting on progress toward the achievement of the mission of the FBR (Ibid).
They do not have a specific plan for conducting monitoring and review on an ongoing basis.

Actions
Recently reported actions include substantial identification and remediation of dozens of high-
priority barriers of streams in Fundy National Park (Parks Canada, 2013: 11.5), as well, park staff
and partners are actively at work improving the health of stream ecosystems through innovative
research and practices, captive rearing and reintroduction of native fish11 (Ibid. 11.6; Parks
Canada, 2016).

Proposed Priorities
The first major challenge is that the Fundy Biosphere Reserve Association does not appear to have
an overall Management Plan or Conservation Strategy for the entire site. Their Strategic Plan
(2012-2015) has expired, and It appears to have depended on Parks Canada to produce and
review the Fundy National Park Management Plan as its major source of documentation. It
continues to promote programs throughout the Biosphere but apparently not in a strategic way.

A complete inventory of all species in the Park (firstly) and the Reserve (secondly) should be
undertaken, including arthropods and marine species. Because the formal boundary is on the
coastline does not mean that species in the ocean are not a major food source for other species
within the Reserve. This needs to be checked against the SARA listings (and IUCN Red List) and
all at risk species should be identified in the plan, not just the ones with an economic impact like
Atlantic salmon.

A complete inventory of all cultural resources within the Park and the Reserve needs to be
undertaken. You cannot protect what you have not identified.

11 While it does not specifically note that Atlantic Salmon are endangered within the Management Plan for the

Fundy National Park (FNP), the release of Atlantic Salmon in FNP rivers in October2016 makes note that they are
aware of the status of this fish species.
 D. Donnelly 20

The next major priority should be to undertake a holistic risk analysis and development of a risk
management plan for impacts that are already occurring within the park. There are declining
populations of many species but no related causes have been identified or strategic mitigation and
response efforts planned. While the Park continues to work on stream clearing and recovery there
are other things that should be done concurrently. Analysis, particularly on coastal sites, should be
at the forefront to determine the impacts of sea level rise on cultural resources and ecological
habitats.

Conclusion
While it is understandable that a new organisation like the Fundy Biosphere Reserve has needed
time to become fully functional, it has now been a designated site for ten years. A Strategic Plan
for the FBR is a priority and there should be evidence of collaboration on the FNP Management
Plan as it constitutes the core area of the FBR.

Significant resources should be allocated for establishing a survey and inventory of species and
cultural resources within the Park and the Reserve. Without an inventory, an accurate risk analysis
and conservation plan can not be effectively undertaken.

The Park has successfully incorporated many successful recovery programs, but they should be
proactively seeking mitigation efforts instead of reactive measures, particularly to loss of species
and cultural heritage resources.

Funding seems to be a major challenge and their needs to be more communication and advocacy
on what is at risk.

While it is easy to stand outside of the operations and look for ways to improve, it is also important
to acknowledge that a lot of good work is going on in both the Park and the Reserve.
 D. Donnelly 21

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Word count (excluding footnotes and references) ~ 4808