Crown based grazing is an integral part of the management structure of cattle operations, and is very important to the economic fabric of rural communities. Federal crown lands, such as the PFRA operated community pastures are an integral part of the resource conservation efforts in western Canada. These lands represent a significant reservoir of the remaining natural lands which are important for wildlife habitat. Sustainable management of such contiguous blocks of land is essential for the maintenance of biodiversity. Proposed endangered species legislation would require the development of recovery plans on federal lands for endangered, threatened and extirpated species. Rural communities have a significant and vested interest in endangered species legislation due to potential economic impacts. Analyses show multi-million dollar impacts, even at low levels of stocking rate reduction. Stakeholders must be involved in both the development and implementation of endangered species recovery planning

Boyle, D M

Bristol, B

Luciuk, G M

Weins, T W

English

University of Kentucky

Session 27 - Integration of Environmental and Agricultural Policy 27-19ABSTRACTCrown based grazing is an integral part of the management structureof cattle operations, and is very important to the economic fabric ofrural communities. Federal crown lands, such as the PFRA operatedcommunity pastures are an integral part of the resource conservationefforts in western Canada. These lands represent a significantreservoir of the remaining natural lands which are important forwildlife habitat. Sustainable management of such contiguous blocksof land is essential for the maintenance of biodiversity. Proposedendangered species legislation would require the development ofrecovery plans on federal lands for endangered, threatened andextirpated species. Rural communities have a significant and vestedinterest in endangered species legislation due to potential economicimpacts. Analyses show multi-million dollar impacts, even at lowlevels of stocking rate reduction. Stakeholders must be involved inboth the development and implementation of endangered speciesrecovery planning.INTRODUCTIONNational and international concerns have resulted in the CanadianGovernment’s commitment to the conservation of biodiversity andthe protection of rare and endangered species. The globalization ofthe world’s developed economies and declining government grain-based support programs, have reinforced the vital contribution tosustainable agriculture of a competitive livestock industry in westernCanada. Thus, the linkages of this industry to the role of existingnative rangelands are of increasing importance.Historically, areas of native rangelands have been declining withincreasing fragmentation and diminished habitat quality. Recentlegislative proposals by Canada’s Parliament could impose obligatoryplanning for endangered species upon federal lands, including thecommunity pastures managed by Agriculture and Agri-Food Canada’sPrairie Farm Rehabilitation Administration (PFRA) on the CanadianPrairies. The relationship between agricultural use and non-agricultural objectives was an important issue in the endangeredspecies legislation debates.A proper understanding of sustainable grassland management andendangered species conservation must integrate questions of habitatrequirements and the economic importance of PFRA pastures tolivestock operations and rural communities. It is recognized thatsustainable management of private rangelands is essential to themaintenance of biodiversity.Crown grazing is an integral part of the structure of cattle operations,and is very important to the economic fabric of rural communities.Grazing allocations on PFRA pastures are designed to stabilize localranches, while ensuring the integrity of the resource base as aneconomically viable and environmentally positive alternative to theannual cultivation of erosion prone lands. The cattle industry providesa valuable contribution to local communities and the nation with atotal dollar value of about $20 billion (Canadian Cattlemen’sAssociation, 1996). Numerically, about 46 percent of prairie farmsreport beef cattle, with an average of 47 head per farm (StatisticsCanada, 1991) . The annual production value of beef is estimated at$325 million in Manitoba, and $635 million in Saskatchewan.Collectively, in Manitoba and Saskatchewan, PFRA pasturesID NO. 1963THE POTENTIAL IMPACT OF ENDANGERED SPECIES LEGISLATION ONFEDERAL GRAZING LANDS AND THE LIVESTOCK INDUSTRYG. M. Luciuk, B. Bristol, T. W. Weins, and D. M. BoylePrairie Farm Rehabilitation AdministrationAgriculture and Agri-Food Canada - PFRA, #603-1800 Hamilton Street, Regina, Saskatchewan  Canada  S4P 4L2constitute about 20 percent of the crown owned grazing lands. Thesepastures represent some of the largest contiguous blocks of grasslandsin Canada, and are examples of functional prairie ecosystems (PFRA,1996).The pressures for additional environmental objectives upon suchlandscapes, is evidenced by the interest in formal partnerships byvarious public interest groups and wildlife agencies with PFRA onprojects related to specific plant and animal species. (North AmericanWaterfowl Management Plan, 1996).This study evaluates the contribution of PFRA pastures to rural farmeconomies, and through sensitivity analysis examines the range ofpossible impacts of implementation of endangered species legislationon federal lands.MATERIALS AND METHODSA comparative analysis was made of various data bases related tolivestock production, habitat and ecosystem classification, PFRApasture locations, and economic evaluations of livestock production.Analyses were conducted using Geographic Information Systemtechniques to compare livestock enterprise profiles with PFRApasture allocations, by ecozone, and the relative occurrence of rareand endangered species. Comparisons of economic activity in eachof the ecozones were derived based on the 1991 Census ofAgriculture, industry estimates of the value of livestock production,and published reports on the economic contribution of rangelands.RESULTS AND DISCUSSIONThe PFRA pasture system totals 929 000 hectares, and is managedas 87 pasture units throughout the Prairie and Boreal Plain Ecozones.Research and biophysical inventories, conducted on the pastures byPFRA range ecologists and wildlife agencies, confirm the value ofPFRA pastures as critical wildlife habitat including that for rare andendangered species. Assessments show that 600 000 hectares of theSaskatchewan PFRA pastures remain in native vegetation, with 50percent classed as “critical wildlife habitat” (Saskatchewan Parksand Renewable Resources, 1983). Another assessment determinedthat the majority of the PFRA pastures in Saskatchewan and Albertacontain rare and endangered species (Saskatchewan ConservationData Centre, 1996).In Saskatchewan, about seven percent of the cattle in the Prairie andBoreal Plain ecozones are grazed on PFRA community pastures(Table 1). This increases to 13 percent of the cattle in the MixedGrassland and Moist Mixed Grassland ecoregions, where mostendangered species occur. In these two ecoregions, it is estimatedthat 93 percent of PFRA patrons could be impacted by endangeredspecies legislation.Preliminary analyses indicate an annual direct economic benefit of$22.4 million from cattle grazing on PFRA community pastures inSaskatchewan, and $8.7 million in Manitoba (Table 2). In addition,indirect economic activities are estimated at two to three times, for atotal economic impact in excess of $100 million in Saskatchewanand Manitoba.Necessary grazing adjustments to accommodate endangered speciesSession 27 - Integration of Environmental and Agricultural Policy 27-20objectives are uncertain at this time. PFRA co-management withnon-agricultural partners, for wildlife initiatives, has resulted instocking rate adjustments ranging from nil to 40 percent below ratesof adjacent private sites (PFRA Suffield Community Pasture, 1995;PFRA Monet Community Pasture, 1992; and PFRA Mount Hope -Prairie Rose Community Pasture, 1990). At Suffield, reduced grazingintensity readily improved range conditions above “high-good”.However, operating costs can exceed grazing revenues under regimesthat incorporate additional wildlife grazing objectives (PFRA, 1995).The proposed endangered species legislation would require thedevelopment of recovery plans for endangered, threatened andextirpated species. Current recovery plans for affected species suchas Burrowing Owl, Ferruginous Hawk and Swift Fox are not expectedto constrain PFRA pasture operations. However, additional recoveryplanning and management for “vulnerable” and provincially listedspecies could further impact stocking rates. A 10 percent reductionin stocking rates would create a 10 percent reduction in PFRA pasturerevenues, and increase the average cost for the remaining herd by 11percent. Revenue losses to PFRA would exceed $1 million. Otherreductions could be expected due to restrictions on surface leases,and reduced recovery of tax levies paid by patrons. At a 50 percentstocking rate reduction, grazing charges could increase by 50 percentfor the remaining herd. In this scenario, maintenance of a break-even breeding program becomes very difficult. In addition, for allscenarios, public costs can be expected from administering thelegislation.Compensation for potential economic losses to pasture patronscontinues to be an issue. PFRA pastures are an integral part of patrons’farming operations. Reductions in allocation would have a directimpact on farming operations and incomes. Significant localeconomic impacts are projected, even at low levels of reduction inthe stocking rate. Projected economic losses due to stocking ratereductions of 10, 25 and 50 percent are: $12 million, $31 millionand $62 million, respectively, for Saskatchewan and Manitoba PFRApastures. In addition, the provision of community pasture grazingallows for better utilization of roughage, feed grains, and chaffresources on patrons’ farms. Patrons may be faced with the optionsof reducing herd size, or converting annual cropland to forage. Forpatrons getting out of the livestock industry, private forage and pasturelands may be put into annual cultivation.CONCLUSIONSThe analysis supports the need for serious consideration of measuresto assist pasture patrons in properly dealing with any negative impactsto livestock grazing due to the implementation of the legislation.Such measures would be helpful in encouraging the continuingstewardship on their own lands, and gaining their acceptance ofobligatory grazing impacts on federal lands. Compensatory andcooperative approaches are consistent with the positions of theNational Agriculture Environment Committee and the CanadianCattlemen’s Association expressed to the Standing Committee onEnvironment and Sustainable Development.Agricultural producers have a significant direct interest in the pendingendangered species legislation. PFRA community pastures are asignificant contributor to farm and rural economies, and form anintegral element of a large proportion of cattle enterprises. Ruralcommunities also have a significant and vested interest in endangeredspecies legislation due to potential direct and indirect economiclosses. Although not available, a full cost accounting of the benefitsand associated impacts of biodiversity conservation would be useful.Stakeholders, especially PFRA patrons, must be involved in boththe development and implementation of endangered species recoveryplanning. At this preliminary stage, objectives remain vague and theimpacts of legislative proposals are difficult to quantify. Experienceat co-managed sites, and in other jurisdictions, suggests a range ofpossible stocking rate adjustments. Reductions, even at low levels,create multi-million dollar impacts in decreased economic activity,tax losses and increased costs to remaining patrons. Environmentalimpacts are also a concern as a result of shifts in grazing from PFRApastures to native range on Provincial grazing leases and privatepastures. This shift could negatively impact biodiversity and longterm sustainability of endangered species habitat on these Provincialand private lands.REFERENCESCanadian Cattlemen’s Association, and Agriculture and Agri-Food Canada. July 1995. Just Facts - by Canada’s Beef CattleProducers. p. 1-9.Canadian Cattlemen’s Association. November 1996. Commentson Bill C-65 The Endangered Species Protection Act. Submission tothe Standing Committee on Environment and SustainableDevelopment. Canadian Cattlemen’s Association, Calgary. pp. 1-20.Environment Canada. 1996. Canada Endangered Species ProtectionAct - A Summary. Minister of Public Works and Government ServicesCanada. Ottawa. pp. 1-14.Horn, Floyd P. 1995. The Importance of Rangelands in Sustainingthe Economies of Rural Communities. Proceedings of the FifthInternational Rangeland Congress. pp. 1-2.The House of Commons of Canada. March 1997. Bill C-65 AnAct Respecting the Protection of Wildlife Species in Canada fromExtirpation or Extinction. Ottawa: Minister of Environment.North American Waterfowl Management Plan. 1996. GainingGround. A Summary of Evaluation Studies: Prairie Habitat JointVenture. Edmonton.Prairie Farm Rehabilitation Administration. December 1987.Report of the Community Pasture Task Force. PFRA, Regina.Prairie Farm Rehabilitation Administration. 1990. Mount Hope- Prairie Rose Pasture Development - Project Overview. PFRA,Regina.Prairie Farm Rehabilitation Administration. 1992. MonetCommunity Pasture Development - Project Overview. PFRA, Regina.Prairie Farm Rehabilitation Administration. August 1995.Suffield Community Pasture - Interim Report. PFRA, Regina.Prairie Farm Rehabilitation Administration. 1996. PFRA ImpactAnalysis of the Canada Endangered Species Protection Act. PFRA,Regina.Prairie Farm Rehabilitation Administration. 1996. PFRA LandManagement Service 1995-96 Annual Report. PFRA, Regina.Prairie Farm Rehabilitation Administration. 1997. Rules andRegulations for the Operation of PFRA Community Pastures. PFRA,Regina.Roy, John and Curt Schroeder. December 1996. “The CanadianSession 27 - Integration of Environmental and Agricultural Policy 27-21Endangered Species Act - Important Legislation in Danger ofExtinction?”, Blue Jay. Vol. 54, No. 4. pp. 220-224.Saskatchewan Conservation Data Centre. 1996. Assessment ofPFRA Pastures. Saskatchewan Environment and ResourceManagement, Sustainable Management Branch. Regina.Saskatchewan Parks and Renewable Resources. December, 1997.“Hunting Recreation Value of PFRA Pasture in Saskatchewan”.Report of the Community Pasture Task Force. PFRA, Regina.Saskatchewan Parks and Renewable Resources. 1983. TerrestrialHabitat Inventory. Wildlife Technical Report. Selected volumes inthe series. Regina.Standing Committee on Environment and SustainableDevelopment. November 29, 1997. Report to the House ofCommons. Ottawa. pp 1-36.Statistics Canada Agriculture Division. 1991. Census ofAgriculture. Statistics Canada. Ottawa.Table 1PFRA Pastures: As a Contribution to Saskatchewan GrazingEcozones - ecoregions % of PFRA Average Averageof Saskatchewan Cattle Grazing Farm PFRA(number of pasture units) Farms as a % Herd  Allocationwith of Total Size Per PatronLivestock Herdon Pasture- Aspen Parkland (8) 5 3 51 27- Moist Mixed Grassland (23) 19 11 54 31- Mixed Grassland (28) 20 14 48 34Prairie Ecozone Total (59) 13 8 52 32- Mid Boreal Upland (4) 26 20 55 41- Boreal Transition (2) 4 3 58 40Boreal Plain Ecozone Total (6) 7 5 58 41Saskatchewan Average 12 7 53 33Source: Statistics Canada, Census of Agriculture 1991 and PFRA Land Management Service 1995-96 Annual Report.Session 27 - Integration of Environmental and Agricultural Policy 27-22Table 2Economic Contribution of PFRA Grazing in Manitoba and Saskatchewan ($millions)Province - ecozone Total(number of  Value ofpasture units) Direct Indirect Total CattleProductionSaskatchewanPrairie Ecozone Total (59) $19.2 $57.7 $76.9Boreal Ecozone Total (6) 3.2 9.7 12.9Saskatchewan Total (65) $22.4 $67.4 $89.8 $635.0ManitobaPrairie Ecozone Total (13) $6.1 $18.4 $24.5Boreal Ecozone Total (11) 2.6 7.6 10.2Manitoba Total (24) $8.7 $26.0 $34.7 $325.0Sources: Statistics Canada, “Census of Agriculture”; PFRA Land Management Service 1995-96 Annual Report; and “The Importance ofRangelands in Sustaining the Economies of Rural Communities”, Fifth International Rangeland Congress, 1995.

The Potential Impact of Endangered Species Legislation on Federal Grazing Lands and the Livestock Industry

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The Potential Impact of Endangered Species Legislation on Federal Grazing Lands and the Livestock Industry

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