Appendix E - Management of Migratory Bird Sanctuaries in the Inuvialuit Settlement Region

Management Plan

Appendix E - Management of Migratory Bird Sanctuaries in the Inuvialuit Settlement Region

MANAGEMENT OF MIGRATORY BIRD SANCTUARIES IN THE INUVIALUIT SETTLEMENT REGION

(Selected Portions)

Environment Canada
Canadian Wildlife Service
Western and Northern Region
Northern Conservation Branch
Yellowknife, Northwest Territories
December 1992

PART A

INTRODUCTION

Under the Migratory Birds Convention Act, the Canadian Wildlife Service (CWS) is responsible for conserving and managing populations of migratory birds that occur within Canada. Under this Act, CWS administers the Migratory Bird Regulations, which address the harvest and possession of migratory birds, and the Migratory Bird Sanctuary Regulations, which provide for the establishment and management of Migratory Bird Sanctuaries. General regulations pertaining to the management of Migratory Bird Sanctuaries are listed in Appendix A-1.

Migratory Bird Sanctuaries are established to provide long-term protection to migratory bird populations and their key habitats. At the present time (December 1992) there are 17 Migratory Bird Sanctuaries in the Northwest Territories (NWT), five of which occur within the Inuvialuit Settlement Region: Anderson River Delta Bird Sanctuary, Banks Island Bird Sanctuary No. 1, Banks Island Bird Sanctuary No. 2, Cape Parry Bird Sanctuary, and Kendall Island Bird Sanctuary.

The establishment of Migratory Bird Sanctuaries is consistent with the principles of the Inuvialuit Final Agreement (1985), specifically, "to protect and preserve the Arctic Wildlife, environment and biological productivity" (p. 1). CWS will endeavour to ensure that the management of Migratory Bird Sanctuaries is consistent with the Inuvialuit Final Agreement and its underlying conservation principles.

The purpose of this document is to outline the approach used by CWS in managing Migratory Bird Sanctuaries in the Inuvialuit Settlement Region, in particular, and in the NWT generally. Development of a management plan is consistent with Environment Canada's policy on public consultation and is intended to promote dialogue between Environment Canada staff and the public. Open communication between CWS and interest groups contributes to the formulation of effective policies and programs for Migratory Bird Sanctuaries. Preparation of management plans also addresses a recommendation of the Conservation Advisory Committee (Northern Mineral Policy). In its final report (1990), the committee recommended "that the Canadian Wildlife Service complete and distribute to interested parties, management plans for the northern sanctuaries" (p. 7).

MANAGEMENT GOAL OF MIGRATORY BIRD SANCTUARIES

The management goal of Migratory Bird Sanctuaries is to ensure the long-term protection of migratory bird populations and their key habitats. Management practices focus on preventing disturbance to migratory birds, with special emphasis on rare and endangered species, maintaining the ecological integrity of their habitats.

MANAGEMENT OBJECTIVES OF MIGRATORY BIRD SANCTUARIES

The management objectives of a Migratory Bird Sanctuary are:

1. To manage and conserve migratory bird populations and their natural habitats in a manner consistent with the Migratory Birds Convention Act and the Migratory Bird Sanctuary Regulations;
2. To manage the Sanctuary according to sound ecological principles; and
3. To encourage public awareness of and appreciation for the natural environment of the Sanctuary.

MANAGEMENT POLICIES FOR MIGRATORY BIRD SANCTUARIES

Management Authority

The Management Authority for Migratory Bird Sanctuaries is the Minister of the Environment, represented by the Regional Director, CWS, Western and Northern Region, Edmonton. Migratory Bird Sanctuaries that overlap with Inuvialuit (private) lands (Anderson River Delta, Banks Island No.1 and Cape Parry) will be managed in consultation with the Land Administrator of the Inuvialuit Land Administration, in accordance with the Inuvialuit Final Agreement. The reader should consult the metes and bounds contained in the Inuvialuit Final Agreement for the locations of privately owned lands.

Sanctuaries located on federal Crown lands, or within National Parks will be managed in consultation with the Minister of Indian and Northern Affairs, in accordance with the Territorial Lands Act, or the Minister of Parks Canada, in accordance with the National Parks Act.

Wildlife Management

Migratory birds (as defined in Appendix A-2) are managed by the Canadian Wildlife Service. Other wildlife is managed by the Government of the Northwest Territories (Department of Renewable Resources), pursuant to the NWT Wildlife Act, or the Canada Department of Fisheries and Oceans, pursuant to the Fisheries Act, as appropriate, CWS will manage migratory bird populations in consultation with the Wildlife Management Advisory Council (NWT).

Management responsibility for rare and endangered wildlife in the NWT is shared by CWS (pursuant to the Canada Wildlife Act ) and the Government of the Northwest Territories. Protection of rare, vulnerable, threatened and endangered species, as defined by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC), is a management priority. CWS will endeavour to ensure that any initiatives regarding these species are consistent with those of the Territorial Government.

Subsistence Hunting and Trapping

Under the Migratory Bird Sanctuary Regulations, any person who is the holder of, or eligible for, a General Hunting Licence for the Northwest Territories may take fur bearing animals, big game, or marine mammals within a Migratory Bird Sanctuary, in accordance with that licence. Ancillary activities associated with subsistence hunting must not have negative impacts on migratory bird populations or habitats. Provisions in the Inuvialuit Final Agreement concerning the harvesting rights of the Inuvialuit in the Inuvialuit Settlement Region apply equally to Migratory Bird Sanctuaries within the Region.

Research

Research that will promote a greater understanding of the natural resources of Migratory Bird Sanctuaries is encouraged. All research proposals will be reviewed by EISC, Parks Canada & CWS to ensure compatibility with conservation objectives and other ongoing research. Appropriate permits are required to conduct research in Migratory Bird Sanctuaries (Appendix A-3).

Recreation

CWS recognizes that recreational activities associated with wildlife viewing and appreciation are a legitimate land use. Their acceptability, however, is a function of the season, location, nature and intensity of such pursuits. Recreational activities will be monitored by CWS and, if necessary, restrictions may be imposed on visitor access.

Restricted Areas

Some migratory birds are particularly sensitive to disturbance at certain times of the year. Thus, it may be necessary to prohibit access to a portion of a Migratory Bird Sanctuary for a specified time, or to place special conditions on Sanctuary Permits to safeguard bird populations. Land-use activities within the following "restricted areas" may be prohibited or strictly controlled.

Significant Natural Features

CWS recognized that Migratory Bird Sanctuaries may contain significant natural features in addition to those that comprise important habitats for migratory birds (e.g., plant communities, geological formations or topographic features). CWS will assist in protecting such natural features from land-use activities by cooperation with the appropriate management authorities.

Public Consultation

The management of Migratory Bird Sanctuaries involves consultation with all interested parties. Public input is a fundamental step in the development and subsequent review of management plans. Comments are welcome at any time, and should be forwarded to:

Northern Conservation Branch
Canadian Wildlife Service
P.O. Box 637
Yellowknife, N.W.T
X1A 2N5

Review of Management Plan

The Management Authority, in consultation with interested parties, will review the Management Plan after five years initially and at ten-year intervals thereafter, and will amend the Plan as required.

PART D

BANKS ISLAND BIRD SANCTUARY NO. 2

Historical Perspective

Archaeological sites on northern Banks Island include two Pre-Dorset sites near the Sanctuary. Evidence at these sites suggest that northern Banks Island was used primarily for muskox hunting. By the 19th century Banks Island may not have had any permanent residents, but the island was within the hunting territory of the copper Inuit from Victoria Island.

The first exploration of the coast of Banks Island by Europeans was conducted in 1851 by James M'Clure. In 1914, Stefansson spent the summer in the vicinity of the Bernard River, where remnants of this camp have been found. He also maintained a base camp at Cape Kellett until 1917. Recent occupation did not begin until 1929 when MacKenzie Delta Inuvialuit families founded the settlement of Sachs Harbour.

Scientific investigations were first conducted in 1906 when Horizon, while exploring for a "polar continent", documented some of the flora and fauna of the western coast of Banks Island. The surveys by T. W. Barry in 1960 documented the importance of western and northern Banks Island as nesting and moulting habitats for Lesser Snow Geese and other waterfowl.

Plans for extensive oil exploration on Banks Island, scheduled for the summer of 1961, prompted CWS to established two Migratory Bird Sanctuaries on Banks Island. Banks Island Sanctuary No.2 was established in 1961 (Orderin- Council P.C. 1961-1617) to protect moulting concentrations of Lesser Snow Geese along the Thomsen River valley and adjacent wetlands. The Sanctuary encompasses approximately 142 km2 (Appendix D-1). In 1992 an agreement to established a National Park in north-central Banks Island was signed by the Inuvialuit and the Federal and Territorial governments. When established, Aulavik National Park will encompass the Bird Sanctuary and will necessitate changes in the administration and management of the Sanctuary in order to be consistent with the National Parks Act. The Canadian Wildlife Service, in consultation with the Canadian Parks Service, will prepare a revised management plan for Banks Island Bird Sanctuary No.2 once the National Park has been created.

Natural Setting

Climate and Weather

The climate of northern Banks Island is characterized by short, cool summers, and long, dry winters. The mean annual temperatures is around -160C. June, July, and August are the only months with mean temperatures above freezing. January and February are the coldest months of the year with average temperatures around -320C. The average annual precipitation in the Sanctuary is low (87-102mm). The Thomsen River begins to break up in June and by mid-September is frozen until the following spring.

Geography

The north end of Banks Island Bird Sanctuary No.2 is an area of high to moderate relief with elevations rising from sea level to 350 metres. Along the Thomsen River valley the topography is characterized by undulating lowlands, gently rolling hills and a diversity of wetlands, including wet sedge meadows, tundra lakes and ponds, and ice-wedge polygons. A rugged plateau with steep-sided ravines and scarps occurs east of the river valley. The influence of permafrost on the land's surface is evident throughout the area, with vast expanses of patterned ground and other periglacial features. The flora of the Sanctuary is a mixture of High and Low Arctic species. Polar semi desert and desert communities are dominant, with localized areas of Arctic tundra. The general vegetation pattern comprises lush graminoid meadows in wetlands and other lowlands sites, sparsely vegetated communities (dwarf shrubs, cushion plants and lichens) on uplands, and intermediate communities on the intervening slopes.

Birds

Most of the Sanctuary's 43 regularly occurring species (Appendix D-2) have an affinity for wetlands habitats. The many lakes and ponds along Thomsen River valley provide nesting or feeding habitat for Pacific and Yellow-billed Loons, Glaucous Gulls, Long-tailed Jaegers, Red Phalaropes and other shorebirds. Peregrine Falcons and Rough-legged Hawks nest along the scattered cliff faces overlooking the Thomsen Muskox river. Upland species are present in low numbers and include Lapland Longspur, Horned Lark, Snow Bunting, Bird's Sandpiper, Buff Breasted Sandpiper and Blackbellied Plover.

Lesser Snow Goose

When the Sanctuary was established, up to 25,000 Lesser Snow Geese were reported to have used the Thomsen River valley and Castel Bay area for moulting. Surveys are needed to determine the current importance of these areas to moulting geese. Incidental observations by wildlife researchers suggest that, during the late 1980's, the Thomsen River was not used by Lesser Snow Geese during the moulting period. Geese did not appear in the Thomsen River area until the second half of August, where they used the wet sedge meadow habitats for feeding. Presumably, these birds were from nesting areas within Banks Island Bird Sanctuary No. 1.

Brant

The Sanctuary provides habitat for moulting Brant (subspecies nigricans) from Banks Island, islands north of Banks Island, and the NWT mainland. The moulting birds concentrate at the lower end of the Thomsen River and in Castel Bay. The number of Brant varies from year to year; up to 5,000 birds have been recorded. Departure from the Sanctuary begins in early to mid-August.

Peregrine Falcon

Peregrine Falcons (subspecies tundrius) have been observed along the Thomsen and Muskox rivers, and two eyries have been reported along the Thomsen River. The tundrius subspecies is listed as vulnerable by COSEWIC (1996). Further field work is required to determine the importance of the Sanctuary to this species.

Appendix A-2. Migratory birds, as defined by the Migratory Birds Convention Act.

Note: this appendix is prepared for purposes of convenience only. The original act and amendments thereto should be consulted for all purposes of interpretation and applying the law.

1. Migratory Game Birds:

• Anatidae or waterfowl, including brant, wild ducks, geese, and swans;
• Gruidae or cranes, including little brown, sandhill, and whooping cranes;
• Rallidae or rails, including coots, gallinules and sora and other rails;
• Limicolae, or shorebirds, including avocets, curlew, dowitchers, godwits, knots, oyster catchers, phalaropes, plovers, sandpipers, snipe, stilts, surf birds, turnstones, willet, woodcock, and yellowlegs;
• Columbidae or pigeons, including doves and wild pigeons.

2. Migratory Insectivorous Birds: Bobolinks, catbirds, chickadees, cuckoos, flickers, flycatchers, grosbeaks, hummingbirds, kinglets, martins, meadowlarks, nighthawks or bull bats, nuthatches, orioles, robins, shrikes, swallows, swifts, tanagers, titmice, thrushes, vireos, warblers, waxwings, whippoorwills, woodpeckers, and wrens, and all other perching birds which feed entirely or chiefly on insects.

3. Other Migratory Non game Birds: Auks, auklets, bitterns, fulmars, gannets, grebes, guillemots, gulls, herons, jaegers, loons, murres, petrels, puffins, shearwaters, and terns.

Appendix D-1. Metes and bounds of Banks Island Bird Sanctuary No. 2.

Banks Island Bird Sanctuary No. 2 is situated at the north end of Banks Island, and is described in the Migratory Bird Sanctuary Regulations as being:

" In the Northwest Territories, in the District of Franklin and the waters of M'Clure Strait, the whole of Banks Island Bird Sanctuary No. 2 more particularly described as follows: all that part of the valley of the Thomsen River lying northerly of the widening of said river at approximately latitude 73° 36'North and all that part of Castel Bay lying southerly of the northerly extremity of Mahogany Point, all according to map sheets 98 N.E., 88 N.W. and 88 N.E. dated 1956 and 88 S.W. and 88 S.E. dated 1957, of the National Topographic Series, scale 8 miles to 1 inch, and map sheet 98 S.W. and 98 S.E. dated 1957, of said Series, scale 1:500,000; said Sanctuary containing about 35,200 acres (14,245 hectares)."