Workshop Proceedings How is Biodiversity Policy Informed by Science?

Cheryl Lewis
Director of Applied Research and Development
Ontario Ministry of Natural Resources
PDF (220 KB)

Biodiversity and Ontario

Canada is unique on the global stage in that it has some of the youngest ecosystems and environments on the planet, situated on some of the oldest rocks in the world. More impressive is Canada's standing as the only industrialized nation with significant wilderness and natural systems still intact. Other G7, G8, or G20 countries have largely consumed their wilderness areas, and the developing world depends on resource exploitation to try to achieve a comparable standard of living and/or cope with their international debt load.

Through a mix of history and environment, we have a relatively small population spread over a large geographic area. Over 90% of our population is concentrated along the southern margin of the country, with vast areas with low populations and low levels of disturbance. Still, the southern regions have great pressures on their biodiversity, creating an excellent potential for stewardship.

Of the different provinces, Ontario has the greatest industrial wealth and the greatest species and ecosystem diversity, with ecosystems ranging from Carolinian Forest to Arctic Lowlands. This combination gives us a unique opportunity and responsibilities for long-term sustainable management and stewardship, which is critically dependent on having the best information possible and making good use of it. Ontario has a vast diversity of ecosystems and species, including: 107 million hectares of land and water; 250,000 lakes; thousands of kilometres of rivers and streams; and more than 30,000 plant, invertebrate and vertebrate species.

Globally, Ontario's biodiversity is important because it has some of the last healthy populations of large mammals, such as moose and wolves, as well as globally rare ecosystems, such as the Great Lakes and boreal forest. Ontario's boreal forest is globally important for carbon dynamics and oxygen production.

Ontario's Commitment to Biodiversity

Ontario's Ministry of Natural Resources (OMNR) has developed several strategies to support sustainable resource development, while maintaining a strong emphasis on protecting the natural environment. Our Sustainable Future (2005) focused on sustainable development, ecological sustainability, a commitment to biodiversity conservation and sustainable use, as well as stewardship principles. Ontario's Biodiversity Strategy (2005) focused on protecting the diversity of genes, species, and ecosystems. The strategy includes using and developing Ontario's biological assets in a sustainable manner.

How is Policy Informed by Science?

OMNR makes internal investments in science (applied research, inventory, and monitoring and assessment) to support policy and management. This is broadened through collaboration with universities and agencies, and use of science panels and other external expertise. "Science-based" information then helps us understand and manage our biodiversity. Resource managers may be interested in a hierarchy of questions:

· Biodiversity Inventory and Status (what biodiversity exists, what's its condition, uniqueness/ rarity?)

Examples include:

• Characterization - Caribou, wolves, coyotes, Great Lakes fish populations

• COSSARO/ COSEWIC assessments

• Far North Biodiversity Survey

• Breeding Bird Atlas

• Natural Heritage Information Centre (tracks priority species and ecological communities to assist in land-use planning and biodiversity conservation programs)

• State of the Resource Reporting

· Structure, function, threats and disturbance (How does it work? How is it influenced/ shaped by natural and human-related disturbance? What are the cumulative effects?)

Examples include:

• Mink and fur farms (Jeff Bowman)

• Bird diversity and forest management (Rob Rempel)

• Lake trout diversity and climate change (Chris Wilson)

• River fragmentation (Nick Jones)

· Sustaining biodiversity (How do we keep/ maintain it?)

Examples include:

• Conservation planning: design of protected areas; priorities for land securement

• Land use planning: Lake Simcoe, Far North

• Management regimes: forest, fish, wildlife management

• Species at Risk: recovery plans, knowledge gaps

· Policy Evaluation (Did it work?)

Examples include:

• Effectiveness monitoring
  • Forest management guides
• Fish Culture monitoring program for genetic diversity

An important role for science, not just for policy!

The science-policy interface

Public policy is informed by science but not only science (Figure 1). There are diverse information sources and viewpoints. Science is not the only driver or information source, but an essential component of building and implementing informed policies. It is important to note the two-way arrows in Figure 1 indicate communication between policy maker and natural science advisor is not a one-way hand-off, but rather a dialogue.

However, this schematic only goes so far. The real picture is much more complex, and we think about the exchange of knowledge and understanding in this space, the values, cultures, expectations, extent of influence, etc., for each party.

Figure 1. Public policy is informed by science as well as many other diverse information sources.

Figure 2 provides another, perhaps better picture, of the way science fits with the policy function. In Figure 2 we see that policy is an adaptive process, starting with a problem or requirement that may arise from the established government agenda or priorities, and which goes through options identification, analysis, decision, implementation and evaluation. Closely connected along the way are people working in the science field, who can help with framing the question, identifying science needs or the science dimensions of the policy question (including ecological, social and economic aspects), and sharing or transferring what is known and unknown in the policy options and analysis and implementation stages. Science involvement is also key to the policy evaluation stage, as is discussed in the next presentation.

Actively exploring what is known and not known at the policy options and analysis stages can be challenging, in terms of using policy as a learning opportunity. An important role for science is helping identify, and then answering the questions.

Factors at the policy-science interface

The interface of policy and science is a critical place for the effectiveness of both. There is quite a body of literature exploring what contributes to an effective interface. Important factors include: timing of engagement; stakeholders involved; organizational cultures; context/ framing, including scale; positioning of the parties, including listening, and willingness to learn; and communication, including translating science for policy makers.

Figure 2. Policy is an adaptive process.

Cash et al. (2003) reported that scientific information is likely to be effective in influencing social responses to public issues to the extent that stakeholders perceive it to be: 1) credible by being scientifically adequate; 2) salient and relevant to the policy context; and 3) legitimate by being respectful of stakeholders' divergent values and beliefs, and through being unbiased and fair. Factors that contribute to credibility, salience and legitimacy can therefore help at the interface.

The N.Z. Parliamentary Commissioner for the Environment 2004 found that working across the policy-science interface is influenced by many factors, including:

• Framing - who defines the policy question and how it is defined

• Transparency - scientific input is clear and open to scrutiny

• Availability of time - versus in-depth research

• Mutual awareness - need for understanding of policy and science cultures

• Strategic thinking - taking account of wider strategic goals, longer-term science requirements

• Relationships - incentives and enablers for information flow

In the Ministry of Natural Resources, the science-policy interface can be both internal and external. To help use work effectively, we have developed "Principles for a science-based ministry". These are:

• Be mission-oriented

• Engage early

• Think multi-scale

• Share and collaborate

• Seek out and apply available science, but…

• Embrace uncertainty.

Final Thoughts on Science and Policy (from Tom Nudds)

Science does not have a say on whether or not to conserve biodiversity! Knowledge is in a constant state of flux, as we are learning new things and the world is constantly changing. However, the scientific process, properly engaged, can inform on the potential risks and rewards of alternate policy scenarios, and aid to reduce risk associated with uncertainty.

Questions for your consideration

Thinking about policy in its broadest sense (including policy implementation on the ground):

· Where have you participated in a "science-policy" space?

· What factors were present that enabled the effective use of science to support policy?

· What factors worked against such effective support?

· What "model situations" can you point to that we can learn from?

· Ontario's biodiversity is influenced by more than provincial policy. In what other forums do we need to ensure science is better-linked?

· What would you recommend to ensure biodiversity policy (and practice) is appropriately linked to science?

References

Cash, D.W., W.C. Clark, F. Alcock, N.M. Dickson, N. Eckley, D.H. Guston, J. Jager and R.B. Mitchell. (2003). Knowledge systems for sustainable development. Proceedings of the National Academy of Sciences of the United States of America. 100 (14): 8086-8091.

Ontario Ministry of Natural Resources. (2005). Our Sustainable Future. Accessed August 24, 2009. URL: http://www.mnr.gov.on.ca/MNR_E000002.pdf

Ontario Ministry of Natural Resources. (2005). Ontario's Biodiversity Strategy. Accessed August 24, 2009. URL: http://www.mnr.gov.on.ca/MNR_E000066.pdf

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