Action Plan for the Long’s Braya (Braya longii) and the Fernald’s Braya (Braya fernaldii) in Canada 2018

• Table of contents
• Document information
• Part 1

• Table of contents
• Preface
• Acknowledgments
• Executive summary
• 1.Recovery actions
  
  • 1.1 Context and scope of the acction plan
  • 1.2 Measures to be taken and implementation schedule
  • 1.3 Critical habitat
    
    • 1.3.1 Identification of the species’ critical habitat
  • 1.4 Proposed measures to protect critical habitat
    
    • 1.4.1 Measures proposed to protect critical habitat on federal lands
    • 1.4.2 Measures proposed to protect critical habitat on non-federal lands
• 2.Evaluation of socio-economic costs and of benefits
• • 2.1 Policy baseline
  • 2.2 Socio-economic profile and baseline
  • 2.3 Socio-economic costs of Implementing this action plan
  • 2.4 Benefits of implementing this action plan
    
    • 2.4.1 Value of biodiversity to Canadians
    • 2.4.2 Eco-tourism and cultural values
    • 2.4.3 Conservation of other species
  • 2.5 Distributional impacts
• 3.Measuring progress
• 4.References
• Appendix A: Effects on the environment and other species

For copies of the action plan, or for additional information on species at risk, including the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) Status Reports, residence descriptions, recovery strategies, and other related recovery documents, please visit the Species at Risk (SAR) Public Registry.

Cover illustration: Michael Burzynski and Susan Squires (inset)

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« Plan d’action pour le braya de Long (Braya longii) et le braya de Fernald (Braya fernaldii) au Canada »

Content (excluding the illustrations) may be used without permission, with appropriate credit to the source.

The federal, provincial, and territorial government signatories under the Accord for the Protection of Species at Risk (1996) agreed to establish complementary legislation and programs that provide for effective protection of species at risk throughout Canada. Under the Species at Risk Act (S.C. 2002, c.29) (SARA), the federal competent ministers are responsible for the preparation of action plans for species listed as Extirpated, Endangered, and Threatened for which recovery has been deemed feasible. They are also required to report on progress within five years after the publication of the final document on the SAR Public Registry.

Under SARA, one or more action plan(s) provides the detailed recovery planning that supports the strategic direction set out in the recovery strategy for the species. The plan outlines what needs to be done to achieve the population and distribution objectives (previously referred to as recovery goals and objectives) identified in the recovery strategy, including the measures to be taken to address the threats and monitor the recovery of the species, as well as the proposed measures to protect critical habitat that has been identified for the species. The action plan also includes an evaluation of the socio-economic costs of the action plan and the benefits to be derived from its implementation. The action plan is considered one in a series of documents that are linked and should be taken into consideration together. Those being the COSEWIC status report, the recovery strategy, and one or more action plans.

The Minister of Environment and Climate Change and Minister responsible for the Parks Canada Agency is the competent minister under SARA for Long’s Braya and Fernald’s Braya. To the extent possible, it has been prepared in cooperation with Fisheries and Oceans Canada and the Province of Newfoundland and Labrador, as per section 48(1) of SARA.

Success in the recovery of this species depends on the commitment and cooperation of many different constituencies that will be involved in implementing the directions and actions set out in this action plan and will not be achieved by Environment and Climate Change Canada, Parks Canada Agency or any other jurisdiction alone. All Canadians are invited to join in supporting and implementing this action plan for the benefit of Long’s Braya and Fernald’s Braya and Canadian society as a whole.

Implementation of this action plan is subject to appropriations, priorities, and budgetary constraints of the participating jurisdictions and organizations.

The recovery strategy sets the strategic direction to arrest or reverse the decline of the species, including identification of critical habitat to the extent possible. It provides all Canadians with information to help take action on species conservation. When critical habitat is identified, either in a recovery strategy or an action plan, SARA requires that critical habitat then be protected.

In the case of critical habitat identified for terrestrial species including migratory birds SARA requires that critical habitat identified in a federally protected area^Footnote1 be described in the Canada Gazette within 90 days after the recovery strategy or action plan that identified the critical habitat is included in the public registry. A prohibition against destruction of critical habitat under ss. 58(1) will apply 90 days after the description of the critical habitat is published in the Canada Gazette.

For critical habitat located on other federal lands, the competent minister must either make a statement on existing legal protection or make an order so that the prohibition against destruction of critical habitat applies.

If the critical habitat for a migratory bird is not within a federal protected area and is not on federal land, within the exclusive economic zone or on the continental shelf of Canada, the prohibition against destruction can only apply to those portions of the critical habitat that are habitat to which the Migratory Birds Convention Act, 1994 applies as per SARA ss. 58(5.1) and ss. 58(5.2).

For any part of critical habitat located on non-federal lands, if the competent minister forms the opinion that any portion of critical habitat is not protected by provisions in or measures under SARA or other Acts of Parliament, or the laws of the province or territory, SARA requires that the Minister recommend that the Governor in Council make an order to prohibit destruction of critical habitat. The discretion to protect critical habitat on non-federal lands that is not otherwise protected rests with the Governor in Council.

Thanks to Julie Robinson for drafting the original version of this document. This action plan was prepared by Peter Thomas, Krista Baker and Kathy St. Laurent (Environment and Climate Change Canada, Canadian Wildlife Service - Atlantic Region), in cooperation with members and associated specialists of the Limestone Barrens Species at Risk Recovery Team (LBSARRT). Thanks also to the LBSARRT for their knowledge and support during the preparation of this document as well as their continued commitment to the conservation of species at risk. Thanks to the many graduate and undergraduate students whose research has contributed to our current knowledge of Long’s Braya and Fernald’s Braya.

Long’s Braya (Braya longii) and Fernald’s Braya (Braya fernaldii) were listed under the Species at Risk Act (SARA) in 2003 as Endangered and Threatened, respectively. Fernald’s Braya was subsequently re-assessed by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) in 2012 as Endangered, but this change to the species status has not yet been made under SARA. This action plan identifies recovery measures required to meet the population and distribution objectives outlined in the Recovery Strategy for Long’s Braya (Braya longii) and Fernald’s Braya (Braya fernaldii) in Canada (Environment Canada 2012):

Long’s Braya: Ensure that populations are viable within the current species range and establish additional populations in natural areas within their historic range by 2015.

Fernald’s Braya: Maintain populations within the current species range and, when possible, attain self-sustaining populations.

A total of 32 recovery measures are identified in this action plan, and address 6 broad strategies (monitoring, habitat management and protection, restoration and species reintroduction, scientific research, ex-situ conservation, and education and stewardship).

Critical habitat was partially identified for Long’s Braya and Fernald’s Braya in the recovery strategy (Environment Canada 2012). Additional critical habitat for Fernald’s Braya is identified on non-federal lands in this action plan based on partial completion of the Schedule of Studies outlined in the recovery strategy (Environment Canada 2012). Critical habitat (from both the recovery strategy and action plan) is identified on both federal and non-federal lands on the limestone barrens of the Great Northern Peninsula of Newfoundland. Environment and Climate Change Canada is collaborating with the Government of Newfoundland and Labrador to determine if the critical habitat on non-federal lands is considered protected.

A socio-economic evaluation for Long’s Braya and Fernald’s Braya was developed jointly with the Barrens Willow (Salix jejuna) socio-economic evaluation because their ranges, threats, and habitat are comparable. The direct and indirect costs associated with the implementation of this action plan are considered low. The implementation will not only benefit both Long’s Braya and Fernald’s Braya, but the larger ecological community, including other species at risk (e.g., Barrens Willow) found within the same habitat.

Long’s Braya (Braya longii) and Fernald’s Braya (Braya fernaldii) are small herbaceous plants restricted to the limestone barrens of the Great Northern Peninsula of insular Newfoundland. They were listed as Endangered and Threatened, respectively, under both the Federal Species at Risk Act (SARA) in 2003 and the Provincial Endangered Species Act in 2002. Fernald’s Braya was subsequently re-assessed by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) in 2012 as Endangered, but this change to the species status has not yet been made under SARA.

All the broad strategies to recovery identified in the Recovery Strategy for Long’s Braya (Braya longii) and Fernald’s Braya (Braya fernaldii) in Canada (Environment Canada 2012) will be implemented through measures outlined in this action plan. They are intended to address all of the population and distribution objectives outlined in the recovery strategy:

Long’s Braya: Ensure that populations are viable^Footnote2 within the current species range and establish additional populations in natural areas within their historic range by 2015.

Fernald’s Braya: Maintain populations within the current^Footnote3 species range and, when possible, attain self-sustaining populations^Footnote4.

Due to a precipitous decline in the Fernald’s Braya population, as recorded by survey work in the summer of 2011, specific actions are focused toward Fernald’s Braya in an effort to recover its population to previous (2008) levels.

This action plan should be considered along with the federal recovery strategy (Environment Canada 2012). The recovery strategy provides more details on the species, strategic direction, and approaches for recovery of Long’s Braya and Fernald’s Braya, including information on the approach to critical habitat identification, biophysical attributes of critical habitat, and threats to the species.

Critical habitat was partially identified for Long’s Braya and Fernald’s Braya in section 7 of the recovery strategy (Environment Canada 2012). The recovery strategy contains details regarding the identified critical habitat, including its biophysical attributes (section 7.1 of the recovery strategy), the activities likely to destroy critical habitat (section 7.3 of the recovery strategy), and the Schedule of Studies required to complete the identification of critical habitat (section 7.2 of the recovery strategy).

Additional critical habitat for Fernald’s Braya has been identified in this action plan using the same approach described in the recovery strategy and based on partial completion of the Schedule of Studies outlined in the recovery strategy. The critical habitat identified in this action plan has the same biophysical attributes and activities likely to destroy it as that identified in the recovery strategy. Nevertheless, the critical habitat remains partially identified. Surveys of potential substrate within the range of Fernald’s Braya will allow for the complete identification of critical habitat.

No additional critical habitat for Long’s Braya is identified in this action plan.

The location of critical habitat for Fernald’s Braya and Long’s Braya is identified in the series of Figures 1 to 7 and includes critical habitat already identified in the recovery strategy (for both species) as well as the additional critical habitat identified in this action plan (only for Fernald’s Braya).

Twenty-nine (29) new critical habitat sites for Fernald’s Braya are identified in this action plan. Twenty-eight of these sites span the area northwest of Watsons Pond (51° 32′ N and 56° 02′ W) to Cook’s Harbour, Newfoundland and Labrador (51° 36′ N and 55° 53′ W); one site is north of Bellburns, Newfoundland and Labrador (50° 20′ N and 57° 31′ W) (Figures 1 and 2). This latter occurrence expands the previously known range of Fernald’s Braya approximately 35 km southward.

Critical habitat for Long’s Braya and Fernald’s Braya is identified on both federal and non-federal lands on the limestone barrens of the Great Northern Peninsula of Newfoundland.

Critical habitat for Fernald’s Braya was identified in the recovery strategy on federal lands within the Port au Choix National Historic Site of Canada and on a property owned by Fisheries and Oceans Canada in Cape Norman.

Subsection 58(5) of SARA requires the competent minister to make an order for any part of the critical habitat that is not legally protected by the provisions or measures under SARA or any other federal act within 180 days of the final posting of the recovery strategy identifying the critical habitat in the Species at Risk Public Registry. If the competent minister does not make the order, he or she must include in the Public Registry a statement setting out how the critical habitat or portions of it are legally protected. Parks Canada Agency is responsible for the legal protection of critical habitat found in Port au Choix National Historic Site of Canada as per section 58 of SARA. Environment and Climate Change Canada is currently working with Fisheries and Oceans Canada to develop an order to legally protect critical habitat of the endangered Barrens Willow (Salix jejuna) in Cape Norman under subsections 58(4) and (5) of SARA. Given there are portions of Barrens Willow and Fernald’s Braya critical habitats that overlap, Fernald’s Braya will benefit from the order being developed for Barrens Willow. A specific order for the legal protection of critical habitat of Fernald’s Braya will however still be pursued.

A large portion of critical habitat for Long’s Braya and Fernald’s Braya is located on non-federal lands.

With regard to the portions of critical habitat on non-federal lands, Environment and Climate Change Canada will assess the protection currently in place. This involves first working with the Government of Newfoundland and Labrador to determine which laws and legal instruments are in place to prevent destruction of critical habitat. If there are gaps in the protection of critical habitat, provisions or measures in place under SARA or other federal legislation will be reviewed to determine whether they prevent destruction of critical habitat. The laws and legal agreements in place that protect critical habitat will be monitored for efficacy at least every five years. Conservation measures, including stewardship initiatives, that contribute to preventing critical habitat destruction will also be considered and monitored.

If it is determined that any portions of critical habitat are not protected, and steps are being taken to protect those portions, those steps will be communicated via the Species at Risk Public Registry through the reports referred to in section 63 of SARA.

SARA requires that an action plan include an evaluation of the socio-economic costs of the action plan and the benefits to be derived from its implementation (SARA 49(1)(e), 2002). This evaluation addresses only the incremental socio-economic costs of implementing this action plan from a national perspective as well as the social and environmental benefits that would occur if the action plan were implemented in its entirety, recognizing that not all aspects of its implementation are under the jurisdiction of the federal government. It does not address cumulative costs of species recovery in general nor does it attempt a cost-benefit analysis. Its intent is to inform the public and to guide decision making on implementation of the action plan by partners.

The protection and recovery of species at risk can result in both benefits and costs. The Act recognizes that “wildlife, in all its forms, has value in and of itself and is valued by Canadians for aesthetic, cultural, spiritual, recreational, educational, historical, economic, medical, ecological and scientific reasons” (SARA 2002). Self-sustaining and healthy ecosystems with their various elements in place, including species at risk, contribute positively to the livelihoods and the quality of life of all Canadians. A review of the literature confirms that Canadians value the preservation and conservation of species in and of themselves. Actions taken to preserve a species, such as habitat protection and restoration, are also valued. In addition, the more an action contributes to the recovery of a species, the higher the value the public places on such actions (Loomis and White 1996; Fisheries and Oceans Canada 2008). Furthermore, the conservation of species at risk is an important component of the Government of Canada’s commitment to conserving biological diversity under the International Convention on Biological Diversity. The Government of Canada has also made a commitment to protect and recover species at risk through the Accord for the Protection of Species at Risk. The specific costs and benefits associated with this action plan are described below.

The Long’s Braya and Fernald’s Braya socio-economic assessment was conducted jointly with the Barrens Willow (Environment Canada 2015) because their range and habitat are comparable. Limestone barrens conservation in Newfoundland is an important issue, and stewardship initiatives are underway from multiple organizations to facilitate and promote these efforts.

The province of Newfoundland and Labrador has access to many legislative, regulatory, and management tools for the conservation and stewardship of Fernald’s Braya and Long’s Braya (e.g., Newfoundland and Labrador’s Endangered Species Act , Newfoundland and Labrador Wilderness and Ecological Reserves Act, and Sensitive Wildlife Area designations).

The Limestone Barrens Habitat Stewardship Program has been ongoing in the area for many years in an effort to promote the long term conservation of rare plants in the area.

Additionally, many recovery measures can be supported by federal species at risk funding programs, contributions by recovery biologists, or research by universities.

There are few communities that are affected by protection of these species and their critical habitat. The primary industries of the area relate to the fishery and natural resource extraction. Although there are no Aboriginal groups native to the area, Qalipu First Nation has indicated traditional use of resources on the Great Northern Peninsula.

Direct costs are those that result from the implementation of the approaches identified in the implementation schedule (Table 1). Only the incremental costs are considered and therefore do not include ongoing actions or initiatives discussed in section 2.1 (Policy Baseline). Certain approaches listed in the implementation schedule also apply to the recovery of Barrens Willow because these species coexist at a number of sites identified as critical habitat. As a result, the action plan for the Barrens Willow (Environment Canada 2015) and the action plan for the Long’s Braya and the Fernald’s Braya were developed concurrently. In order to ensure that all direct costs are captured, the shared costs have been calculated in both action plans. The direct costs of implementing the recovery actions for all three species are expected to be low (between $0 and $5 million) over the short (2018-2023) and long term. These anticipated costs include salary, volunteer time, travel, materials, equipment, and other related costs.

Indirect costs are the costs associated with implementing the action plan, which may affect various stakeholders including foregoing or modifying current and future activities. The anticipated indirect costs of implementing this action plan are considered low.

Off-road vehicle (ORV) damage is a threat throughout the limestone barrens. Presently, the Watts Point Ecological Reserve prohibits the use of ORVs, and it is expected that the proposed expansion area will have a comparable prohibition against motorized vehicles. In addition, critical habitat found on federal property in the Cape Norman area will be protected from destruction by ORV use through the measures under SARA. However, there is minimal foreseen impact to ORV users given the relatively small area that will be affected.

Quarry operators may need to spend additional time completing the provincial application process and searching for newly proposed quarry sites to ensure they are outside of critical habitat.

Biodiversity is essential for healthy ecosystems, human health, prosperity, security, and wellbeing. Canadians derive many benefits from biodiversity including recreational, aesthetic, educational, and cultural benefits, as well as ecological goods and services essential to human survival. Care for the environment is consistently ranked as one of Canadian’s top priorities in public opinion polls^Footnote6. A recent opinion poll found that three-quarters of Canadian respondents feel that preserving natural areas and the diversity of native plant and animal life in Canada is important to them^Footnote7.

The total value of endangered species includes non-consumptive-use values (such as recreation, spiritual/cultural, research, and education), indirect-use values (value of the ecological role of a species in an ecosystem), and non-use values (i.e., preserving the benefits of nature for future generations)^Footnote8. Achieving the objectives of this action plan will have a positive impact on society. The direct value of recovering these species, for the preservation or the enhancement of biodiversity, is not easily estimated.

Eco-tourism is the fastest-growing area of the tourism industry (Mastny 2001). In 2004, this market grew three times faster than the industry as a whole and the World Tourism Organization estimates that global spending on eco-tourism is increasing by 20% a year, about six times the industry-wide rate of growth (TEEB 2008).

Communities near critical habitat have been attempting to utilize the uniqueness of the local terrain as a way to generate economic growth. Northern Newfoundland is made up of small coastal communities with a history of unemployment and loss of industry. The expansion of Watts Point Ecological Reserve and the potential designation of an area near Cape Norman as an ecological reserve may enhance tourism in the local communities. For example, Port aux Choix National Historic Site of Canada and Burnt Cape Ecological Reserve have similar designations for those being sought for Watts Point Ecological Reserve expansion, and the Cape Norman area, and these sites have increased tourism as a result of their protected area status.

As a result of achieving the recovery goals of this action plan, there will likely be an increase in eco-tourism activity, and the associated economic spin-offs to local businesses and enhanced cultural value of local communities.

Of the approximately 300 rare vascular plants on the island of Newfoundland, approximately 100 species grow in the ecoregions containing limestone barrens, and 30 of those species are found only on the limestone barrens. Long’s Braya, Fernald’s Braya, and Barrens Willow are all endemic to the limestone barrens. By focusing on permanent conservation measures, including the expansion of ecological reserves and increased communication among provincial agencies, as well as improved public outreach, it is expected that the recovery approaches outlined in the action plan will benefit the larger ecological community as well as other species-at-risk.

Although Long’s Braya and Fernald’s Braya occur on provincial, federal, and private properties, private landowners are not expected to bear the brunt of the responsibility for the species’ recovery. Non-governmental organizations are active in Newfoundland and Labrador where the species occur, and an approach of this action plan is to foster cooperative relationships with landowners and others to maintain critical habitat.

The performance indicators presented in the associated recovery strategy provide a way to define and measure progress toward achieving the population and distribution objectives.

Reporting on implementation of the action plan (under s. 55 of SARA) will be done by assessing progress towards implementing the broad strategies.

Reporting on the ecological and socio-economic impacts of the action plan (under s. 55 of SARA) will be done by assessing the results of monitoring the recovery of the species and its long term viability, and by assessing the implementation of the action plan.

Copp, C. 2014. The Development of Protocols to Restore the Globally At-risk Limestone Barrens Ecosystem. M.Sc. Thesis. Department of Biology, Memorial University of Newfoundland, St. John’s, NL.

Environment Canada. 2012. Recovery Strategy for Long’s Braya (Braya longii) and Fernald’s Braya (Braya fernaldii) in Canada. Species at Risk Act Recovery Strategy Series. Environment Canada, Ottawa, ON. v + 38 pp.

Environment Canada. 2015. Action Plan for Barrens Willow (Salix jejuna) in Canada [Draft]. Species at Risk Act Action Plan Series. Environment Canada, Ottawa. iv + 16 pp.

Fisheries and Oceans Canada. 2008. Estimation of the Economic Benefits of Marine Mammal Recovery in the St. Lawrence Estuary. Policy and Economics Regional Branch, Quebec 2008.

Loomis, J.B. & White, D.S. 1996. Economic Benefits of Rare and Endangered Species: Summary and Meta-analysis. Ecological Economics 18: 197-206.

Mastny, L. 2001. Traveling Light: New Paths for International Tourism [PDF, 261 KB]. The World Watch Institute. Available:

Species at Risk Act (SARA) (S.C. 2002, c. 29).

TEEB (The Economics of Ecosystems and Biodiversity). 2008. An Interim Report. European Communities.

A strategic environmental assessment (SEA) is conducted on all SARA recovery planning documents, in accordance with the Cabinet Directive on the Environmental Assessment of Policy, Plan and Program Proposals. The purpose of a SEA is to incorporate environmental considerations into the development of public policies, plans, and program proposals to support environmentally sound decision-making and to evaluate whether the outcomes of a recovery planning document could affect any component of the environment or any of the Federal Sustainable Development Strategy’s (FSDS) goals and targets.

Recovery planning is intended to benefit species at risk and biodiversity in general. However, it is recognized that implementation of action plans may inadvertently lead to environmental effects beyond the intended benefits. The planning process based on national guidelines directly incorporates consideration of all environmental effects, with a particular focus on possible impacts upon non-target species or habitats. The results of the SEA are incorporated directly into the action plan itself, but are also summarized below in this statement.

This action plan will clearly benefit the environment by promoting the recovery of Long’s Braya and Fernald’s Braya, as well as the many other rare plants found on the limestone barrens of the Great Northern Peninsula of Newfoundland (e.g., Barrens Willow). The potential for the plan to inadvertently lead to adverse effects on other species was considered. The SEA concluded that this plan will not entail any significant adverse effects.