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WASKESIU COMMUNITY COUNCIL

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Policy Analysis: Control of Spruce Budworm at Waskesiu Community, Prince Albert National Park

Presented to

Mr. Gaby Fortin, Parks Canada and Waskesiu Community Council

September 6, 2002
(Public Release Date)

SITUATIONAL AND POLICY ANALYSIS

CONTROL OF SPRUCE BUDWORM AT WASKESIU TOWNSITE
PRINCE ALBERT NATIONAL PARK

A. Issue

B. Present Situation

C. Community Representation

D. Scientific Issues

E. Policy Issues

F. Conclusions

G. Recommendations

A. Issue:

Spruce budworm (Choristoneura fumiferana <Clemens>), a naturally occurring forest insect, has infested the forests of portions of Prince Albert National Park (PANP) since the early-1990's and has impacted White Spruce (Picea glauca) and Tamarack (Larix laricina) trees within Waskesiu Townsite for the past 3 or 4 years. Unless prompt action is taken to control the infestation, it is expected that as many as 70% of the community's larger coniferous trees will die over a five to ten year period with concomitant loss of community heritage character; and costly programs for removal of dead trees, enhanced fire-protection, and tree replacement. Without prompt action, Parks Canada's and leaseholders' liability exposure will rise exponentially.

B. Present Situation:

The vast majority of park users, including seasonal residents, business operators and Waskesiu visitors wish to pursue urgent action to prevent the destruction of community trees. Park users place high value on protecting the mature White Spruce stands that define the visual character of the community and its rich heritage as Saskatchewan's Summer Playground. Many park users, through the Save Our Spruce Committee, have urged Parks Canada to apply BtK (Bacillus Thuringienis var. kurstaki) to community trees in May, 2003 using aerial tanker spraying, and to develop a long-range strategy to prevent large-scale loss of community trees while the spruce budworm infestation runs its course in surrounding National Park forests.
Legislation (National Parks Act), and Parks Canada policy (Guiding Principles and Operational Policies, 1994) requires that national park ecosystems be managed with minimal interference to natural processes, including insect infestations. However, it permits the manipulation and control of insects under special circumstances, subject to requirements that park ecosystems not be impaired.
Park users were advised that this policy provided a window that would allow intervention as late as June 30 2002. Several interested parties independently began a research process to examine alternatives for protecting community trees including consulting scientific experts in the business and government sectors. On July 13, 2002 seven park users presented their arguments to Parks Canada in support of an aerial spraying program (BtK). Following these presentations, Park Superintendent Anne Morin advised the forum's participants that Parks Canada would not consider aerial spraying within Waskesiu Community to control the spruce budworm infestation.
This decision was re-confirmed at an Aug. 3, 2002 public meeting at which time the Superintendent presented her annual report to the community. The park position is to consider the spruce budworm infestation within the context of a 'Vegetation Management Plan'. While aerial spraying with BtK would not be considered, alternatives to reduce the impact of the infestation on community trees would be considered. The Superintendent advised that the decision was based on policy and mandate, not science.

Subsequent to vigorous appeals by the SOS committee and the Waskesiu Community Council, Parks Canada has agreed that all available alternative methods of spruce budworm control within the Waskesiu townsite boundaries including aerial application of BtK would be considered within the context of a 'vegetation management plan' for Prince Albert National Park.

Other forms of intervention in natural processes are evident in and around the townsite area. Action is underway to create a fireguard around the perimeter of the townsite. The fireguard will protect the community from forest fires burning in the surrounding forested areas. The fireguard will be vital as forest fuels accumulate should the budworm infestation in forests surrounding the townsite not be controlled. A PANP resource management program is underway in the townsite to apply chemical agents to eliminate Caragana shrubs on slopes adjacent to Waskesiu Lake.

C. Community Representation:

Waskesiu Community residents are represented by several organizations, including the long-standing elected Waskesiu Community Council (the Council), which provides on-going liaison and a community voice to the administration of PANP. The Council comprises representatives of all other community organizations including business owners, cabin and cottage representatives, and permanent residents who are primarily Parks Canada staff.
The Council has adopted, and communicated to Parks Canada, its position favoring the aerial spraying of Waskesiu Community with BtK to control spruce budworm damage to community trees. Community residents endorsed this position virtually unanimously at the Council's well-attended AGM, held at Waskesiu on Aug. 4.

In July 2002, a group of concerned residents established the "Save our Spruce" (SOS) committee. This group actively pursues a favorable decision by Parks Canada for aerial spraying of the community with BtK, which it considers to be the only acceptable, proven and effective means to control the spruce budworm infestation.
The SOS committee has, and continues to pursue its goal through a program of direct action with residents, public information campaigns within and outside the community, direct action with Parks Canada, and Political intervention. This group has mobilized public opinion in Saskatchewan using a media campaign including radio talk shows, newspaper articles, and television interviews in major centres.

D. Scientific Issues:

Community residents, and SOS have consulted regional experts to determine the potential viability of spraying with BtK to save coniferous trees in Waskesiu. Experts consulted include:

Joe Meating and Paul Bolin, Bioforest Technologies;
Dr. Rory Macintosh; and
Bruce Walker, Saskatchewan Environment & Resource Management.

In addition, they have consulted with or contacted:

The Town of Nipawin;
Health & Welfare Canada (Health Protection Branch);
Province of British Columbia, Ministry of Forests;
Province of Newfoundland and Labrador, Environment and Labour;
Abbott Laboratories;
Environment Canada.

Based on their research, community members and SOS reached the following conclusions which were communicated to a public forum established by Parks Canada on July 13, 2002:

1. That the white spruce and Tamarack of Waskesiu are young and vigorous enough to survive past infestations if measures are taken in 2003 to prevent a recurrence of unchecked spruce budworm infestation within the townsite.
2. That the trees are young enough, and have sufficient years to grow and prosper, that an extended program (costs and effort) to save them is warranted.
3. That it is a viable proposition that the townsite trees can be largely saved through an aggressive spraying program beginning in the spring of 2003.
4. That aerial spraying using BtK is the only effective means of ensuring the protection of the community's large white spruce and Tamarack.
5. That an effective program to save the trees of Waskesiu will require two or three annual rounds of aerial spraying using BtK to provide recuperation time while the budworm infestation crests.
6. That if no action is taken to stop or dramatically reduce the spruce budworm infestation within the townsite, the cost of removing dead trees from within the townsite (to ensure public safety) will cost several million dollars. With inaction, Parks Canada is at risk of being sued by leaseholders to recover associated costs.
7. That human health risks associated with BtK are minimal. BtK has been registered for use in Canada since 1961. It is approved for use on human food products including fruit and has been declared exempt from pesticide residue tolerances on food crops (Source: Province of B.C., Ministry of Forest, Health & Welfare Canada "Effects of BtK Bulletin). BtK has been approved for release over major centres (including Victoria and Vancouver) to combat the spread of the Asian Gypsy moth.

People who are hypersensitive or asthmatic are advised by Health & Welfare Canada to take reasonable precautions in the same way they would to avoid pollen.

8. The environmental effects of using BtK on natural ecosystems are of limited duration, intensity and extent. BtK is sensitive to sunlight, breaking down in several days or after a heavy rain. Requiring an alkaline gut to be effective in killing organisms, BtK does kill other species of lepidoptera, but has no effects on mammals, birds, reptiles or insects including honeybees. BtK does not accumulate in the food chain of species that may feed on affected spruce budworm (Source: Department of Environment and Labour, Province of Newfoundland and Labrador). Insects have shown no known instances of developing resistance to BtK (Source: Province of B.C., Ministry of Forest, Health & Welfare Canada "Effects of BtK Bulletin).
9. Four species of lepidoptera (including spruce budworm and tent caterpillar) will be impacted by the release of BtK at Waskesiu. To be impacted, other species must be at or near the same point of evolution (4th instar larval stage) as the spruce budworm.
10. Other methods of controlling spruce budworm, including mechanical removal of larvae using high-pressure water, are ineffective on larger trees and more environmentally intrusive than BtK spraying.
11. The cost of spraying with BtK will be approximately $100,000. Using direct tree counts, and professional quotations, the Save our Spruce committee estimates that the annual cost of tree removal (if trees are permitted to die) will exceed Parks Canada annual Waskesiu Townsite operating budget.
12. From the information that park users have reviewed, the risk of environmental impacts, both direct and cumulative, is extremely low and not significant. Based on more than 30 years experience in the application of BtK for budworm control in the boreal and other coniferous forests, the risk of unexpected or new environmental impacts is minimal. Based on this analysis, the use of BtK to control spruce budworm in the Waskesiu Townsite area is not expected to have any measurable ecological impacts on the surrounding natural forests of PANP.

E. Policy Issues:

Section 3.0 of Parks Canada's Guiding Principles and Operational Policies confirms that national park ecosystems will be managed in as natural a state as possible. Sustaining the ecological integrity of national park ecosystems is a significant challenge in the face of increasing use, external and internal threats, and limited budgets for research and protection. The Waskesiu Community Plan identifies very clearly that "ecological integrity cannot be achieved within the limits of Waskesiu Townsite".

Holistic ecosystem management is recognized in policy as providing an effective strategic basis for protecting national park ecosystems. It recognizes the complex interactions of dynamic park ecosystems. It is science-based, focused on assessing the ability of park ecosystems to withstand stresses that result from external and internal causes.

Human activities that threaten the integrity of park ecosystems will not be permitted (3.1.2). Human activity in and around national parks may be altered where it can be demonstrated that reliance on natural processes cannot sustain or meet ecosystem restoration goals.

Measurable goals will be established to ensure the protection of ecosystems in and around parks (3.2.1). For Prince Albert National Park, measurable goals for vegetation management, and appropriate monitoring procedures will be established within a 'Park Vegetation Management Plan'. The role that the Townsite plays in meeting goals for PANP vegetation management will be specifically addressed.

Section 3.2.3 specifies that national park ecosystem will be managed with minimal interference, but that active (adaptive) management may be allowed when the structure or function of an ecosystem has been seriously altered and manipulation is the only possible alternative means to restore ecological integrity. Subject to the requirement that park ecosystems will not be impaired, Section 3.2.4 specifies that manipulation of such naturally occurring processes as fire, insect infestation, and forest disease may be permitted where no reasonable alternative exists and when monitoring has demonstrated that without limited intervention:

1. There will be serious adverse effects on neighbouring lands; or
2. Major park facilities, public health or safety will be threatened; or
3. The objectives of a park management plan prescribing how certain natural features or cultural resources are to be maintained cannot be achieved.

In the case of Prince Albert National Park, the lack of an approved Park Vegetation Management Plan means that no goals have been identified for protecting mature trees in the Waskesiu Townsite area and on neighbouring recreational lands, including the golf course.

The effect is that there is no document that represents the shared interests of Parks Canada and the residents of Waskesiu for protecting townsite trees in the event of threat of fire or insect infestation, although a fire break being constructed by Parks Canada for public safety reasons will serve the purpose of providing a degree of protection from forest fire risk. The residents have assigned significant heritage value to townsite trees, which they consider to be a 'major park facility'.

As a result, and pending approval of a Park Vegetation Management Plan, an interim decision will have to be taken with respect to how to best respond to the impacts associated with the spruce budworm infestation. Expert advice has been given that failure to act decisively in 2003 to combat the infestation will have serious consequences for fir, spruce and Tamarack trees. As trees die, they will pose a significant and costly risk to public safety, and will increase the risk of fire spread within the limits of the townsite.

Section 3.2.5 confirms that manipulation, where permitted, will be based on scientific research and will use techniques that most closely duplicate natural processes. Section 3.2.13 specifies that Parks Canada will be exemplary in respecting and applying the provisions of the Canadian Environmental assessment Act including subjecting Parks Canada projects to assessment under CEAA.

F. Conclusions:

Subject to expert confirmation, aerial spraying with BtK has been recommended by Saskatchewan Environment and Resource Management, and Bioforest Technologies to be the only effective means that can be used to save the spruce and Tamarack trees of Waskesiu Townsite. Residents and visitors to Waskesiu attribute significant heritage value to the mature white spruce trees that give the townsite its character and appearance. In the face of a variety of insect infestations Canadians of urban and rural residency have demonstrated their refusal to allow wholesale destruction of mature trees.

The affected area represents about 1% of the surface area (1,680Km2) of Prince Albert National Park, which represents Canada's southern boreal forest ecoregion. The SOS Committee has limited its request for BtK spraying to saving the trees within the townsite. However, should expert advice recommend spraying the PANP forests to restore ecological integrity or reduce unacceptable fire risks, SOS supporters would have no objection to such a recommendation.

The SOS Committee will work expeditiously with Parks Canada through the Community Council to complete a comprehensive 'Park Vegetation Management Plan', but has declined to participate in that process until Parks Canada demonstrates that it shares the concern they have for saving townsite trees from destruction by spruce budworm.

The SOS Committee believes their position is firmly in support of long-term community interests and consistent with Parks Canada policy and mandate.

The SOS Committee is prepared to assist Parks Canada to secure required funding through its lobbying efforts.

G. Recommendations:

1. Parks Canada should announce its support for the tangible heritage and economic value the residents of Waskesiu assign to townsite fir, spruce and tamarack trees;
2. Parks Canada should recognize the community spirit and support the health and safety of Waskesiu residents and visitors.
3. Parks Canada should announce that it will carry out all methods within its power to save townsite trees from destruction by spruce budworm, including using aerial spraying with BtK;
4. Parks Canada and the Waskesiu Community Council should jointly announce their intention to address action required to save the trees of Waskesiu within the context of a Park Vegetation Management Plan, and confirm that, in the absence of any other viable option, the process for plan development will include aerial spraying with BtK in spring, 2003. Further, the decision to include BtK spraying should be made forthwith in order to permit the full consequences of the decision to be considered in the plan development.
5. Parks Canada, the Community Council and other user groups should jointly announce their intention to use the spruce budworm action plan as a model for working cooperatively to develop mutually agreeable solutions to other major park management planning issues
6. Parks Canada should review its consultation processes to ensure that future public consultations will be open, transparent and honest in obtaining public input to be assessed objectively in the development of solutions to manage Park issues.

"Saving the trees of Waskesiu is about the preservation of a National Heritage - one of few gifts that we will be able to pass along intact to our kids, our grand and great grand children". (Manley McLachlan, July 2002).

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The Waskesiu Community Council is democratically elected to represent your views to Parks Canada. We assist Prince Albert National Park in establishing practices for the operation of Waskesiu. Our council operates under the terms of a Memorandum Of Understanding outlining responsibilities to you and to Parks Canada.

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