Fisheries Management Plan for Fisheries Management Zone 4 1 Ministry of Natural Resources and Forestry
Fisheries Management Plan for Fisheries Management Zone 4 2
Fisheries Management Plan for Fisheries Management Zone 4 3 Table of Contents Titles and Approval... 2 1.0 Introduction... 5 2.0 Strategic Direction, Guiding Principles and Roles and Responsibilities... 5 3.0 Description of Fisheries Management Zone 4... 9 3.1 Geographic Description... 11 3.2 Biological Description... 11 3.3 Access Description... 12 3.4 Socio-Economic Description... 13 3.5 Current Fisheries Management Actions... 14 4.0 Broad Fisheries Management Goal for FMZ 4... 15 5.0 Issues, Challenges and Proposed Management Actions... 15 5.1 Exploitation of Fisheries Resources... 19 5.1.1 Walleye... 20 5.1.2 Northern Pike... 28 5.1.3 Lake Trout... 38 5.1.4 Smallmouth Bass... 46 5.1.5 Brook Trout... 61 5.1.6 Other Species... 65 5.1.7 Commercial Fisheries Management... 67 5.2 Exceptions... 71 5.2.1 Cedar River Watershed Sanctuary Dates... 72 5.2.2 Areas of Special Interest... 73 5.2.2.1 Watcomb Lake Chain... 73 5.2.2.2 Sydney Lake Area... 75 5.3 Fish Habitat and Ecosystem Health... 77 5.3.1 Habitat Management... 78 5.3.2 Invasive Species... 82 5.4 Education... 86 6.0 Public and Aboriginal Community Involvement... 87 6.1 Fisheries Management Zone 4 Advisory Council... 87 6.2 Aboriginal Community Involvement... 88 6.3 Public Consultation Program... 88 6.3.1 Background Report Invitation to Participate... 89 6.3.2 Draft Plan Consultation... 89 7.0 Ongoing Commitment to Monitoring... 90
Fisheries Management Plan for Fisheries Management Zone 4 4 8.0 Review and Amendment of the Fisheries Management Plan... 91 9.0 Implementation Plan... 91 References... 96 Appendices... 101 Appendix 1.0.... 101
Fisheries Management Plan for Fisheries Management Zone 4 5 1.0 Introduction This FMZ 4 Fisheries Management Plan was developed by the Ontario Ministry of Natural Resources (OMNR) with input and advice from the FMZ 4 Advisory Council. The plan identifies issues that are key to resource sustainability within FMZ 4; establishes management objectives for the major species and fisheries; and recommends actions and strategies to achieve these objectives. These management objectives are achievable within the biological capacity of FMZ 4 and balance the needs and requests of the various users of the fishery resources. In addition, as part of the process of developing this management plan, OMNR committed to reviewing the existing FMZ 4 angling regulations to determine their compatibility with the identified management objectives and evaluating the existing regulation exceptions to determine whether they are still required. The objectives and actions contained within this plan were developed to guide the management of fisheries at a broad scale. It is recognized that some fisheries will require more intensive management. Currently, the following lakes are being managed as Specially Designated Waters (SDWs): Red Lake/Gullrock Lake, Lac Seul, Big Vermilion Lake, Pelican Lake, Botsford Lake, Abram Lake, and Minnitaki Lake. These large, socially and economically important waters are afforded greater flexibility to develop waterbody specific objective and actions if required. The FMZ 4 Fisheries Management Plan will guide the management of fisheries resources within FMZ 4. Fisheries management zone plans do not have a sunset date; rather they are reviewed regularly. The review of the FMZ 4 plan will occur after the third cycle of Broadscale Monitoring is completed (anticipated to be completed in 2019). The achievement of management objectives and appropriateness of management actions and strategies will be evaluated. Fisheries Management Plans are expected to be flexible and dynamic and may be amended if required. 2.0 Strategic Direction, Guiding Principles and Roles and Responsibilities In 2005, A New Ecological Framework for Recreational Fisheries Management in Ontario (OMNR 2005) was approved to ensure fisheries resource sustainability and to optimize angling opportunities. The approach described in the framework is consistent with the OMNR strategic direction as outlined in Our Sustainable Future (OMNR 2011a), Ontario s Biodiversity Strategy, 2011: Renewing our Commitment to Protecting What Sustains Us (Ontario Biodiversity
Fisheries Management Plan for Fisheries Management Zone 4 6 Council 2011), and with the principles stated in the Strategic Plan for Ontario Fisheries (OMNR 1992). The Ecological Framework for Recreational Fisheries Management in Ontario (EFFM) initially focussed on four key areas: 1) new ecological fisheries management zones; 2) managing and monitoring at the broader landscape level; 3) enhanced stewardship; and 4) regular reporting on the state of fisheries in Ontario. Since EFFM was launched, it has evolved to include specific emphasis on the development of Fisheries Management Plans, a regulatory and policy framework that supports management, and broadened the stewardship focus to emphasize the role of public involvement in various stages of the decisionmaking process. Consistent with the first key area of the EFFM, FMZ 4 was one of 20 zones created as a new spatial unit for fisheries management planning across the province. The new boundaries were based on ecological factors and angler use patterns, such as: climate (growing degree days), watersheds, fishing effort, and access (e.g. road networks). The Broadscale Monitoring (BsM) program illustrates OMNR s commitment to manage and monitor fisheries at the landscape level. In the summer of 2009, this landscape level monitoring program was conducted throughout FMZ 4 and is scheduled to be repeated in five years. BsM not only provides a current status of the fisheries resources across the Zone, but will allow managers to detect changes over time in population status and fishing effort, and determine whether we are meeting our fisheries management objectives. The third component of the EFFM framework is enhanced stewardship. The Fisheries Advisory Council for FMZ 4, comprised of representatives from stakeholder groups and Aboriginal communities, provided advice to OMNR at all stages in the preparation of this management plan. Extensive consultation with sportsman s groups, the tourism industry and local citizens committees occurred throughout the development of the plan. Aboriginal involvement was strongly encouraged and sought. Information was made broadly available through public and stakeholder meetings and staffed displays at trade shows and local events. A summary of the public consultation program is provided in Section 6.0. The completion of the Background Information for the Development of a Fisheries Management Plan in Fisheries Management Zone 4 (also referred to as Background Report ) represents OMNR s first contribution to reporting on the state of the fisheries in FMZ 4. The background document is a synthesis of all past information, and provides a status of the resource, identifies data deficiencies, and sets biological boundaries for major species, in terms of present status and potential expectations. From this point on, BsM will provide timely and regular reports on the status of the fisheries in FMZ 4. This information will be used by fisheries managers and the Advisory Council to determine whether fisheries management objectives are being achieved and if additional actions or strategies are required.
Fisheries Management Plan for Fisheries Management Zone 4 7 Consideration of the strategic direction in the above noted policy documents resulted in the establishment of a set of 15 guiding principles. During the deliberations by the Advisory Council, proposed management goals, objectives, and actions were compared to the list of guiding principles to ensure that they were consistent. The principles that were used to develop this fisheries management plan are also important during plan implementation to guide managers with decision making in those situations that are not specifically addressed by this plan. Guiding Principles Ecological Approach: An ecological approach to fisheries management will be followed to ensure conservation and use of the resource in a sustainable manner. Landscape Level Management: Fisheries will be managed on a landscape scale the FMZ scale. Individual lake management is discouraged other than in the context of water bodies specially designated by OMNR (e.g. the Specially Designated Waters of Lac Seul, Red Lake and Minnitaki Lake). Balanced Resource Management: Strategies and actions will consider the ecological, economic, social and cultural benefits and costs to society, both present and future. Sustainable Development: The finite capacity of the resource is recognized in planning strategies and actions within a FMZ. Only natural resources over and above those essential for long-term sustainability requirements are available for use, enjoyment and development. Biodiversity: Fisheries management will ensure the conservation of biodiversity by committing to healthy ecosystems, protecting our native species, and sustaining genetic diversity of fisheries in the FMZ. All species in the FMZ, including non-sport fish and Species at Risk, must be considered. Natural Reproduction: Priority will be placed on native, naturally reproducing fish populations that provide predictable and sustainable benefits with minimal long-term cost to society. Hatchery-dependent fisheries will also play a role in providing fishing opportunities. Habitat Protection: The natural productive capacity of habitats for Canada s fisheries resources will be protected and habitat will be enhanced where possible. Valuing the Resource: Stakeholders and other users will be invited to understand and appreciate the value of fisheries resources and to participate in decisions to be made by OMNR that may directly or indirectly affect aquatic ecosystem health.
Fisheries Management Plan for Fisheries Management Zone 4 8 Responsibility: Local, regional, provincial and federal cooperation and sharing of knowledge, costs and benefits will be sought to manage fisheries at a FMZ level. Multi-Party Involvement: A wide range of stakeholders, Aboriginal peoples, and interested parties will provide fisheries management advice to ensure an open and transparent process that acknowledges their valuable role in the process. Aboriginal Interests: As current and historic primary users of the fishery, area Aboriginal communities will be encouraged to become engaged in the management planning process in order to ensure that the recreation fishery is managed in a sustainable fashion that recognizes and respects Aboriginal treaty rights. Direct Action: All possible options must be considered and evolve to implementation actions that are feasible. Knowledge: The best available information will be used for FMZ-based objective setting and strategy development and implementation. Adaptive Management: FMZ s will be managed using an adaptive management approach. Objectives will be set, monitoring will occur, results will be compared against objectives and management regimes adjusted as necessary and where possible to ensure attainment of objectives. Active adaptive management, where experimental treatments are tested, including a control, will be encouraged where FMZ Advisory Councils and OMNR have endorsed the experimental option Roles and Responsibilities The FMZ 4 Advisory Council is made up of representatives from First Nations communities, the Ontario Federation of Anglers and Hunters (OFAH), the commercial bait industry, the commercial fishing industry, Nature and Outdoor Tourism Ontario (NOTO), environmental non-governmental organizations, youth groups, professional anglers, resident anglers, and reflects the broad public interest in the fisheries resources of FMZ 4. The Advisory Council members provide advice and recommendations for consideration by OMNR managers on fisheries, including: the setting of FMZ-based fisheries objectives; review of monitoring and reporting results; and implementation of management actions and strategies to meet the fisheries objectives for the FMZ. The members are responsible for working with and informing the groups and associations they represent within the zone to ensure that locally based initiatives are complementary and supportive to objective setting and management at the zone level. The members also have a role in assisting the OMNR consultation processes by engaging and educating the public on fisheries management within FMZ 4.
Fisheries Management Plan for Fisheries Management Zone 4 9 In supporting the Advisory Council, OMNR is represented by managers and biologists from each of the Districts within FMZ 4. The responsibility of OMNR is to facilitate and inform council discussions, and provide the Advisory Council with technical advice on fisheries management and the status of the fisheries resources in FMZ 4, as described in the FMZ 4 background document (OMNR 2010). The background document sets the biological boundaries for each major species based on past and existing use, and productive capacity. The OMNR is ultimately responsible for the sustainability of the fisheries resource and balancing allocation to the various user groups. Within the biological boundaries set by OMNR, the Advisory Council provides advice to OMNR on how to manage the resources to achieve their various expectations. 3.0 Description of Fisheries Management Zone 4 The twenty fisheries management zones in Ontario were defined by similar ecological, physical, social and economic attributes and the delineated areas are expected to react similarly to external changes, pressures and management actions. Watershed boundaries, climate, productivity, fish communities and angler usage were all considerations of the zone delineations. Fisheries Management Zone 4 extends over a large geographic range, covering an area of approximately 60,440 km2, including land and water. The Manitoba border and the eastern boundary of Woodland Caribou Provincial Park mark the western extent of the FMZ, with the western boundaries of the Brightsand River Provincial Park and Wabikimi Provincial Park defining it to the east, over 350 kilometres away. The Berens River and Cat River systems provide the north boundary, while Highway 17 and the Canadian National Railway line define the south boundary (Figure 1). Located centrally in the OMNR s Northwest Region, FMZ 4 spans across five OMNR administrative Districts (Kenora, Red Lake, Dryden, Sioux Lookout and Thunder Bay), and encompasses the larger communities of Red Lake, Ear Falls, Sioux Lookout, and Ignace. Seven First Nations: Wabaseemoong Independent Nation, Asubpeeschoseewagong Netum Anishinabek (Grassy Narrows), Wabauskang First Nation, Pikangikum First Nation, Lac Seul First Nation, Saugeen First Nation, and Mishkeegugamang First Nation, are spread across the Zone. Kenora and Dryden, two of the Region s largest centres, lie just to the south along the TransCanada Highway (Hwy 17).
Fisheries Management Plan for Fisheries Management Zone 4 10 Figure 1. Fisheries Management Zone 4 boundaries with Specially Designated Waterbodies identified.
Fisheries Management Plan for Fisheries Management Zone 4 11 3.1 Geographic Description Similar to the rest of Canada, the current pattern of landform features, surface geology and distribution of lakes and rivers across FMZ 4 was defined by the actions of glaciers which also influenced the fish communities that we see today. Fisheries Management Zone 4 is dominated by glacial till and glaciofluvial morainal deposits (composed of sand, gravel and boulders) and bedrock landforms. Both are generally well distributed and together constitute almost 75% of the underlying substrate, with morainal features being more common in the eastern half of FMZ 4 and bedrock more common in the west. FMZ 4 typifies the abundance and wide range of aquatic habitat types found in Northwestern Ontario. Over 22,500 lakes and 44,315 kilometres of rivers and streams cover more than 17% of the total area in permanent water, with an additional 5% in associated wetlands; of that, the seven SDW s account for almost 3% of the total area of the Zone, with Lac Seul standing out as the largest waterbody in FMZ 4 (OMNR 2010). Most of FMZ 4 falls within the Nelson River primary watershed. Water from approximately 80% of the land base flows westward via the English River and some smaller systems to the Winnipeg River, Lake Winnipeg, then via the Nelson River to Hudson Bay. The remaining eastern and northeastern portions of the Zone contribute to the Hudson-James Bay primary watershed, with all water eventually flowing north to Hudson Bay and James Bay. Within this area lies a small portion of the Albany River watershed. FMZ 4 contains over 40,000 kilometres of rivers and streams that make up an important part of the total water area of FMZ 4. The major rivers and streams that connect the interior of FMZ 4 flow primarily to Lake Winnipeg include the Winnipeg River, English River, Berens River and Shabumeni River systems (OMNR, 2010). These waterbodies are significant features in FMZ 4 in supporting not only important populations of major sportfish species, but also Lake Sturgeon (Acipenser fulvescens) which is classified as threatened under the Endangered Species Act, 2007. 3.2 Biological Description The biological description of the fisheries resource in FMZ 4 is a critical component of the background report (OMNR 2010). Understanding the diversity and biological status of fisheries resources, and factors affecting this resource, is crucial to producing a sound and effective Fisheries Management Plan. Biodiversity refers to the variety of life as expressed through genes, species and ecosystems, which is shaped by ecological and evolutionary processes. Fisheries Management Zone 4 is known to have at least 46 species of freshwater fish that are widely distributed throughout the Zone. The most common sport fish
Fisheries Management Plan for Fisheries Management Zone 4 12 species within FMZ 4 include Walleye, Northern Pike, Lake Trout, Yellow Perch, Smallmouth Bass, Muskellunge, and Lake Whitefish. These species are distributed across the landscape of FMZ 4 in lakes, streams and rivers. In the northeast corner of FMZ 4 lies a small portion of the Albany River watershed where the only known native Brook Trout populations in FMZ 4 exist. The productive capacity (or amount of fish that can be produced) of waterbodies is an important biological concept in the management of fish populations. The capacity of lakes, rivers, and streams to produce fish is directly linked to the productivity of that waterbody. Lake shape, size and depth as well as the chemical and thermal characteristics all affect the amount of fish a waterbody can support. Lakes in FMZ 4 are generally characterized as having intermediate depth; medium mean surface area; stained water; and warm thermal regime (Cano and Parker 2007). When considered together, the characteristics of FMZ 4 lakes indicate a higher productivity than lakes in adjacent Zone 5 and Zone 6. A critical part of fisheries management involves knowing the current status and health of fish populations, as well as any limitations or potentials that may exist based on past and current exploitation, and the productive capacity of FMZ 4. This data was summarized in the Background Report (OMNR 2010) and was used to support the development of fisheries management objectives for FMZ 4 on non-sdw lakes. In cases where information was lacking, data from SDW lakes was included as well. Broadscale Monitoring (BSM) of FMZ 4 was conducted in 2009 and the analysis of this data was used to determine and describe the appropriate Indicators, Benchmarks and Targets related to species specific objectives. 3.3 Access Description In general, road-based access to the fisheries of FMZ 4 is greatest in the southern portions of the Zone. Road density decreases towards the north (as well as in select areas on the eastern and western edges), leaving large remote regions that are primarily accessed by air and utilized by the fly-in tourism industry. Major highways that provide primary access include: 17, 105, 72 and 599. Over 28,000 km of roads extend from these main corridors, approximately two thirds of which are gravel and classified as tertiary or operational roads. Most of these roads were built to provide access for forest management companies, but now also provide anglers with more direct routes to fishing opportunities. Over 8000 lakes in FMZ 4 are currently within 500m of a road, a distance that is considered accessible by anglers or other resource users. With increased use of all-terrain vehicles (ATVs), the zone of influence of road-based users may now be much wider than in the past. Increased access across the FMZ does diffuse angler effort over a larger area, making higher levels of effort sustainable, but can reduce angling quality on previously remote lakes.
Fisheries Management Plan for Fisheries Management Zone 4 13 Over three quarters of the land base within FMZ 4 is Crown land, with approximately 3% of that area located within Provincial Parks and other protected areas. Areas of private or patent land are generally small but widespread across FMZ 4. Private land is usually found near communities or associated with mining claims, with the exception of the large Wagner Blocks in the Dryden District which account for approximately one third of all private land. Five MNR District offices share responsibility to manage the fisheries resources, including access, within FMZ 4. 3.4 Socio-economic Description The fisheries in FMZ 4 are utilized by Aboriginal communities for subsistence and ceremonial harvest; by resident and non-resident sportfish anglers; by resourcebased tourist outfitters; by the commercial baitfish industry, and to a lesser degree by the commercial food fishing industry. The waterbodies and fisheries of FMZ 4 have significant importance to Aboriginal communities within and around FMZ 4. The abundance of waterbodies and diversity of fish species found within FMZ 4 provide First Nations communities with resources for subsistence living, an important component of traditional land use, in addition to social and spiritual significance which are unique to each community (OMNR 2010). Many community members also benefit financially from these resources through their involvement in the tourist and commercial food fishing industries. There are seven First Nations communities within Fisheries Management Zone 4, with populations ranging from 228 to 3280 people. These communities include Wabaseemoong Independent Nation, Asubpeeschoseewagong Netum Anishinabek (Grassy Narrows), Wabauskang First Nation, Pikangikum First Nation, Lac Seul First Nation, Saugeen First Nation, and Mishkeegugamang First Nation (Figure 1). Other First Nation communities outside of FMZ 4 may have traditional use areas within the Zone; however, these areas are not well defined. FMZ 4 includes portions of three treaty areas including Treaty 3, Treaty 5 and Treaty 9 (OMNR 2010). Due to the overall high quality of fisheries, good access and abundance of fishing opportunities in FMZ 4, many waterbodies within the Zone are popular destinations for Ontario resident, Canadian resident (those residing outside of Ontario) and non-canadian resident anglers. Angling by these residency groups remains primarily a consumptive use of the fisheries resources (OMNR 2010). According to the 2010 Survey of Recreational Fishing in Canada, the majority of the fishing effort (80%) in FMZ 4 resulted from angling by non-canadian residents; Ontario residents contributed 18% of the total angling effort, followed by Canadian resident anglers who only contributed 2%. Of the Canadian residents fishing in the Zone, 88% originate from Manitoba (OMNR, unpublished data). These numbers closely reflect the 2005 national survey, when 84% of the
Fisheries Management Plan for Fisheries Management Zone 4 14 fishing effort was from non-canadian residents; 14% was Ontario residents; and Canadian residents accounted for 2% (Hogg et al. 2010). Ice fishing accounts for approximately 10% of the total angling effort in FMZ 4 (OMNR, unpublished data). Ontario resident anglers contribute 74% of the ice fishing effort, with non-canadian residents exerting 26% of the effort. Canadian residents accounted for less than 1% of the total ice fishing effort, indicating their angling activity occurs primarily in the open water season. The 2010 survey estimates that recreational fishing contributes over $120 million to the FMZ 4 economy (combination of consumables and investments). Non- Canadian residents account for 74% of these expenditures, confirming the importance of these anglers to the tourism industry and local communities (OMNR unpublished data). The majority of non-canadian residents fishing in FMZ 4 utilized the services of the resource based tourist outfitters. The resourcebased tourism industry is well developed within FMZ 4 with approximately 104 main base lodges and 211 outpost camps. These facilities include drive-to facilities and remote fly-in or boat-in facilities (Hogg et al. 2010). There are 306 commercial baitfish harvest blocks in FMZ 4, all of which are currently allocated. Utilization is divided between regular harvesters, tourist harvesters, regular dealers and tourist dealers (OMNR 2010). Baitfish harvesting is a valuable business within FMZ 4, but there is currently no estimate of its economic contribution to FMZ 4. Commercial food fishing in FMZ 4 exists primarily for Lake Whitefish (88% of quota), and to a lesser extent for Northern Pike, Walleye, and Yellow Perch on a small number of lakes within the Zone. There is a declining trend in active commercial fishing licences within Northwestern Ontario. At present there are a total of twenty seven commercial licences in FMZ 4, nineteen of which are active and eight of which are inactive. Further information on the commercial food fishing industry is found in Section 5.1.7. 3.5 Current Fisheries Management Actions As with all inland Fisheries Management Zones in Ontario, the primary method of managing the fisheries of FMZ 4 is through angling regulations, as summarized in the annual Recreational Fishing Regulations Summary. Other indirect, nonregulatory, management instruments include access controls through the implementation of road use strategies, restrictions on where non-residents can camp on Crown Land (and associated conservation limits), and restrictions on the size and location of commercial outpost camps. The Northwest Region Boat Cache Program is also in effect for all of FMZ 4 except for the eastern portion of the zone that is located in the Territorial District of Thunder Bay. The Boat Cache Program controls the storing of boats on remote lakes for the purpose of angling by resident anglers or the tourist industry.
Fisheries Management Plan for Fisheries Management Zone 4 15 The program also allows for the storage of boats for trapping or baitfish harvesting, and transport to remote private property. To store a boat on any lake within this area, anglers/operators are required to apply for an agreement from the OMNR. The program allows fisheries managers to limit the number of boats cached on a lake based on its sustainable harvest. There are currently 1596 boat caches in FMZ 4 (recreational and commercial tourism boat caches combined). Commercial food fishing and baitfish harvesting is managed through licencing and, in the commercial food fishery, the use of quotas. Prior to completion of this Plan, the local fisheries management direction was provided in the District Fisheries Management Plans (DFMP s) that were prepared in 1988 for Kenora, Red Lake, Dryden, Sioux Lookout and Ignace Districts. The DFMP s were replaced by this FMZ 4 Fisheries Management Plan. 4.0 Broad Fisheries Management Goal for FMZ 4 The fisheries management goals for FMZ 4 are: a. To optimize social, cultural and economic opportunities and values derived through the biologically sustainable use of aquatic resources; and b. To protect genetic, species and ecosystem diversity within FMZ 4. Goal a) of the broad management goal incorporates the concept that there are biological limits to the use of fisheries resources. Use of the fisheries resources must be biologically sustainable for people to derive social, cultural or economic benefits and opportunities over the long term. Goal b) recognizes that there is a hierarchy of biological diversity that needs to be considered and protected. It is this hierarchy which encompasses genetic, species and ecosystem diversity that contribute to the biological well-being of the fisheries resources in FMZ 4. 5.0 Issues, Challenges and Proposed Management Actions Management Issues and Challenges The FMZ 4 Advisory Council, in cooperation with OMNR, undertook an extensive discussion of the management issues and challenges facing the fisheries resources in FMZ 4. Many of these management issues and challenges were
Fisheries Management Plan for Fisheries Management Zone 4 16 related and could be grouped into four broad categories: education, habitat, exploitation, and invasive/introduced species. Management Objectives, Indicators, Benchmarks, Targets, Management Actions and Monitoring Strategies One of the new or enhanced directions with fisheries management in Ontario is that fisheries management plans will be more objective-based and measurable (where possible) than in the past. This approach will more clearly identify what fisheries managers are trying to achieve and will allow both the OMNR and the public to assess whether management actions are working to achieve the desired results. The following sections describe the management objectives, indicators, benchmarks, and targets that are associated with the various management issues and challenges. Each of these factors will be described so that the reader understands what they mean and how they interact. Where it is applicable to have indicators, benchmarks, and targets, they are found in the Summary Table for each individual species within the exploitation section (Section 5.1). Management Objectives Management objectives describe the desired end result. Objectives need to contribute to the broad fisheries management goal for the Zone; be consistent with strategic direction and the guiding principles; and where possible, be measurable. Objectives can reflect biological, economic or social considerations. In some cases there may be a range of possible objectives, while in most cases there may only be one suitable objective. Biological and economic objectives can be quantified and measured, whereas some social objectives cannot be evaluated in a similar manner. In these cases, indicators, benchmarks and targets will not be included in the Summary Tables of Management Objectives, Actions and Monitoring Strategies; OMNR will measure success based on feedback from the Advisory Council and public. Indicators Indicators are specific variables that resource managers will measure so that they can determine whether or not they are achieving the management objectives. Indicators are directly linked to the management objectives and are measurable by monitoring programs. In most cases, if there is one biological objective and two social objectives then there must be indicators for each of those objectives, and a monitoring program identified for each of the three that is capable of measuring whether the objectives are being achieved.
Fisheries Management Plan for Fisheries Management Zone 4 17 Benchmarks Benchmarks are associated with each of the indicators; they provide a frame of reference that resource managers use to determine progress towards achieving the management targets and ultimately the management objectives. Benchmarks can be used in two ways. They can describe the baseline (current state) or provide a comparative measurement to another known value (e.g. regional average). Targets Targets translate a management objective that is described in words into one that is described in terms of numbers. It is this number that makes the objective measurable. Since they are very specific measures of an indicator, targets help the public and resource managers understand when an objective is achieved. Targets are critical to determining future management responses. When a target is not met, it implies that the objective is not being met and management actions may need to be taken to achieve it. It is important to remember that there is always some variability around these indicators, particularly at this time as there has only been a single BsM assessment completed in FMZ 4 and the natural variability of some of the indicators is not known. When an indicator is measured it could be the same as the target, above the target or below the target. If the indicator is above or below the target number the value s statistical significance should be evaluated. It may be that the difference is not significant and therefore the target may actually have been achieved. If an objective is not being met, assessment will be taken to determine the factors that may be responsible. Where appropriate, management actions will be taken to work towards achieving the objective. There may be instances, however, where failure to meet an objective is beyond the scope of fisheries management; for example, a socio-economic objective might be to maintain the current number of angling tournaments but if the number of tournaments decreases solely because of other factors (e.g. lack of volunteers to run the tournament), this would not be considered a failure that could dealt with through fisheries management. Regardless of whether an indicator is measured at, above, or below the target, a formal review of the objectives and management actions associated with that target is undertaken. The review may suggest that the management objectives and actions remain the same or that they be modified. This review process supports the adaptive management approach and confirms Fisheries Management Plans are expected to be flexible and dynamic, and may be amended if required.
Fisheries Management Plan for Fisheries Management Zone 4 18 For this 2014 plan, all objectives indicate the desire to maintain current conditions. Targets to measure objective achievement were set using a three level green, yellow, red approach. For each indicator, the green target has been set at the 2009 benchmark level with the implication that values falling at or above this level will achieve the objective of maintaining/improving current conditions. The red target level indicates that that the objective has not been achieved and, as an interim basis, was set using a 25% reduction from the benchmark level. A value falling in the red target level would imply that the objective is not being met and management action would need to be taken to achieve it. The yellow target level lies between these two zones and values falling in this zone that may indicate that the objective is not being met and suggesting corrective management action could be considered if this objective is to be met. As more understanding of the variability of these indicators is gained, these values will be adjusted. Accomplished By Date This date identifies when the achievement of objectives will be assessed. For most objectives that have indicators based on Broadscale Monitoring, this date has been identified as after the third round of BsM (anticipated to be completed in 2019), which, assuming a 5 year assessment cycle will allow two rounds of BsM to assess management actions that have not changed and one round of BsM to assess objectives which have had a change as a result of the 2014 plan (e.g. Lake Trout regulations). Most management action changes would have occurred in January 2014 but will not result in any change in population status in the 2014 BsM assessment. For objectives that are not based on BsM monitoring, the target date was also identified as after the third round of BsM, which is when the plan review is scheduled. Management Actions and Monitoring Strategies Management actions (e.g. angling regulations) are implemented to achieve management objectives (e.g. prevent over-exploitation), whereas monitoring strategies (e.g. angler diaries) are used to determine appropriate management actions or evaluate existing management actions. Presently the majority of indicators, benchmarks and targets in the Summary Tables of Management Objectives, Actions and Monitoring Strategies are based on OMNR s Broadscale Monitoring (BsM) program. The OMNR and Advisory Council have identified other monitoring strategies using citizen science to supplement the BsM program. Indicators, benchmarks and targets of the citizen science projects (e.g. volunteer angler diaries) will be developed as projects are implemented.
Fisheries Management Plan for Fisheries Management Zone 4 19 5.1 Exploitation of Fisheries Resources Ontario s recreational and commercial food fisheries are guided by two separate policies: Ecological Framework for Recreational Fisheries Management in Ontario (OMNR 2005) and the Strategic Policy for Ontario s Commercial Fisheries (OMNR 2011b). The Advisory Council and OMNR acknowledge that recreational and commercial food fisheries may have different management objectives, actions and strategies to achieve their respective objectives. As a result, recreational and commercial food fisheries are discussed separately. Recreational angling includes both sport fish angling by resident and nonresident anglers and commercial activities offered by the resource based tourist outfitters and competitive angling events (tournaments). As well, there are also a limited number of quota based commercial food fisheries licenced within FMZ 4. However, from a socio-economic perspective, recreational angling is the most significant fishing activity within FMZ 4 and the following defines the scope of this activity in FMZ 4. In FMZ 4, recreational angling is about the total fishing experience. This includes enjoying and experiencing the outdoors/wilderness by oneself or with family and friends; the opportunity to experience high quality fishing in terms of species diversity, number of fish caught; and the chance to land a memorable or trophy fish. It also includes the opportunity to catch and eat wholesome fish for shore lunch or to take home. The Advisory Council and OMNR also recognized the four broad categories of management issues and challenges (education, habitat, exploitation and invasive/introduced species) are not independent of each other, and in fact there are direct linkages and relationships between them. To facilitate the planning process and avoid repetition, the Advisory Council and OMNR felt establishing management objectives for each of the major sport fish species in FMZ 4 would provide strategies and actions to guide the management direction to address these interrelated issues. Subsequent to the release of the Ecological Framework for Recreational Fisheries Management in Ontario (EFFM), species tool kits for managing all major sport fish species (except Walleye) were developed. These tool kits provide a series of science-based regulatory options to ensure seasons, size limits and catch limits are streamlined and simplified, and are linked to management objectives. The tool kits contribute to achieving the goals of the EFFM by making the fishing regulations in Ontario easier to understand; increasing compliance by anglers; removing possible barriers to fishing due to complex fishing regulations; and providing a more consistent approach to managing fisheries on a broad scale. Regulations should align to the tool kit options unless biologists within the Zone can provide biological rationalization for alternate regulations.
Fisheries Management Plan for Fisheries Management Zone 4 20 5.1.1 Walleye Walleye (Sander vitreus) are tolerant of a wide range of environmental conditions, but are generally most abundant in moderate to large lakes (>100 ha) or riverine systems characterized by cool temperatures, shallow to moderate depths, extensive littoral areas, moderate turbidity and extensive areas of clean rocky substrate. Walleye populations are most successful in lakes classified as mesotrophic (Regier et al. 1969) with morphoedaphic indices (MEI) in the range of 6.0 to 7.2 (Ryder et al. 1974; Ryder and Kerr 1978). They are less abundant in oligotrophic lakes dominated by salmonids (e.g. Lake Trout) or eutrophic water bodies dominated by centrachids (e.g. Largemouth Bass). Walleye are broadcast spawners and preferred spawning habitats are shallow shoreline areas, shoals, and riffles with rocky substrate and good water circulation from wave action or currents (McMahon et al 1984). Walleye survival, growth and standing crop have been related to the abundance and availability of the small forage fishes (e.g. Yellow Perch, Ciscoes) it utilizes as food (Groen and Schroder 1978). However, light intensity is probably the most critical factor influencing Walleye distribution, abundance and feeding (McMahon et al 1984). Walleye are extremely sensitive to light and generally prefer waters with moderate turbidity where light penetration does not exceed two meters (Kerr et al. 1997). Walleye exhibit sexual dimorphism once they become mature. Typically males mature when they reach total length of 34 cm. (2 to 9 years of age) whereas females spawn 1 to 2 years later at total lengths ranging from 44 to 48 cm (3 to 11 years of age). Females attain larger asymptotic size (mean total length = 75 cm.) than males (mean total length = 63 cm.). Females also exhibit lower mortality than males, and thus tend to live longer (Kerr et al. 2004). Walleye are widely distributed in waterbodies across FMZ 4. Through a combination of native distribution and past introductions, Walleye are currently found in almost 1000 lakes throughout FMZ 4. They are found in a variety of lake types from shallow, stained lakes to deep, clear waterbodies with differences in biological characteristics and densities between lake types. Walleye are the most popular sport fish species in FMZ 4, accounting for the majority of angling harvest in the Zone, and provide considerable economic and social benefits to resident and non-resident anglers who target this species almost year round. The FMZ 4 Background Report revealed information on Walleye populations in the Zone is limited and past surveys have focussed primarily on SDW lakes or lakes with identified fisheries problems. However, the Background Report did indicate existing monitoring results suggest Walleye populations are very healthy. Walleye abundance is the highest in FMZ 4 compared to other zones in the Northwest Region and second only to FMZ 2 for the greatest number of age
Fisheries Management Plan for Fisheries Management Zone 4 21 classes above ten years of age and the lowest mortality. Initial results from the BsM program confirm FMZ 4 exhibits the highest abundance of Walleye in Northwest Region. Based on tourism lodge records and individual angling experiences, Advisory Council members concurred, most Walleye populations in FMZ 4 are abundant and healthy. In the late 80 s, size regulations were placed on Walleye angler catch and possession with a restriction of not more than one fish greater than 50 cm. in the limit of six for sport fishing licence holders (three fish for conservation licence anglers). In 1999, Northwest Region reduced the Walleye catch and possession limit to four for sport fishing licences and two for conservation fishing licences, and lowered the size limit to not more than one fish greater than 46 cm. to protect and reduce the harvest of mature females. The current Walleye regulation in FMZ 4 is as follows: Season: open January 1 st - April 14 th & the 3 rd Saturday in May to December 31 st Limits: Sport 4; not more than 1 greater than 46 cm. Conservation 2; not more than 1 greater than 46 cm. As well, there is regulation in place in FMZ 4 that restricts non-residents of Canada camping on Crown land to conservation catch and possession limits, regardless of the licence type they purchase. In addition, there are several non-sdw lakes with exceptions or additional regulations (e.g. sanctuaries) to the zone regulations which are identified in Appendix 1.0. Objectives for Walleye Management in FMZ 4 The following objectives were developed to guide future management of Walleye populations in the Zone: Biological Objectives: 1. To maintain current Walleye abundance. 2. To protect mature female Walleye ( 46 cm.) from over-exploitation. 3. To protect mature Walleye while spawning. Social Objectives: 4. To maintain current angling opportunities for Walleye consistent with the sustainability of the populations. 5. To provide anglers with trophy Walleye ( 60 cm.) opportunities in those lakes that can provide such opportunities. 6. To provide anglers with the opportunity to consume Walleye.
Fisheries Management Plan for Fisheries Management Zone 4 22 Discussion The Advisory Council agreed the Walleye fishery is the most valued fishery by resident and non-resident anglers, and the tourism industry in FMZ 4. Although fishing quality for Walleye in FMZ 4 is generally very good, and the populations appear to be healthy, the Advisory Council expressed concern that OMNR must maintain monitoring efforts to ensure that fishing effort and harvest focused on Walleye populations remain within sustainable limits. The first established biological objective for Walleye to maintain current Walleye abundance in the zone by ensuring harvest remains within the limits of sustainable yield. In order to maintain the current Walleye abundance in the zone, it was recognized that mature Walleye, particularly large females, must be protected from over-exploitation; this became the second biological management objective for Walleye. In the Northwest Region, female Walleye generally mature at a total length of 46 cm. (Cano and Parker 2007). The Advisory Council remained supportive of continuing to provide protection to Walleye over this size. Walleye are highly vulnerable when they congregate on spawning grounds. Disruption of spawning activity and over harvest can occur if anglers target them while they are spawning. The importance of protecting mature Walleye while spawning was recognized, and established as the third biological management objective for the zone. In terms of social objectives, there was widespread recognition by the Advisory Council of the value of Walleye angling opportunities for tourism interests, the quality of life for residents and to the economic well-being of local communities and the region. An objective to maintain the current Walleye angling opportunities consistent with the sustainability of the populations was developed. It was also recognized that trophy Walleye, in lakes where they are capable of being produced, are a valuable asset and an attraction for non-resident anglers that are effectively marketed by the tourism industry. Acknowledging that not all lakes are capable of producing trophy Walleye, an objective to maintain opportunities in those lakes capable of producing trophy Walleye was developed. Recognizing that Walleye is the most sought after species for consumption by anglers in FMZ4, the Advisory Council and OMNR agreed that providing anglers with the opportunity to consume Walleye was also a social objective. Management Actions to meet Walleye Management Objectives in FMZ 4 The following management actions were developed as part of this plan to meet the Walleye management objectives in the zone: 1. Maintain the current Walleye regulations.
Fisheries Management Plan for Fisheries Management Zone 4 23 Season: open January 1 st - April 14 th & the 3 rd Saturday in May to December Limits: Sport 4; not more than 1 greater than 46 cm. Conservation 2; not more than 1 greater than 46 cm. 2. Maintain conservation limits for non-residents camping on Crown land 3. Using Council s extensive network of contacts, encourage the use of the TIPS reporting line to report resource use violations in FMZ 4. 4. Prepare public education materials that: Illustrate correct handling and release techniques (visual posters) Describe the importance of large female Walleye to the population, and why we protect them. Inform anglers how and why fishing Walleye in deep water increases mortality. Rationale for Selection of Management Actions Maintain the current Walleye regulations The Advisory Council and OMNR recommended maintaining the current Walleye regulations. Based on information in the FMZ 4 Background Report; initial BsM results; and the angling experiences of the Advisory Council representatives, the present regulation is achieving the biological and social objectives for managing Walleye within the sustainable yield. In general, it was felt the current regulations were effectively protecting Walleye populations, in particular the large breeding female component of populations, and also providing trophy Walleye opportunities. Initially, some members of the Advisory Council were concerned about harvest of mature Walleye in the spring when they are congregating prior to spawning. This concern was alleviated when they understood Walleye eggs are formed in the fall and to provide 100% protection of mature females prior to spawning would require a closed season extending from the fall throughout the winter. It was agreed in most situations the one over 46 cm. regulation provided adequate protection by reducing the harvest of mature Walleye during this period. However, there are locations where additional protection may be required and where identified, an extended closed season ( sanctuary ) to protect pre and post spawning Walleye from harvest may be warranted. In these cases, it was recommended a standard closed season from April 1 to June 14 be utilized. Maintain conservation limits for non-residents camping on Crown land The current regulation that requires non-residents of Canada camping on Crown land to adhere to conservation catch and possession limits will be maintained. This regulation was first implemented in 1984 to address concerns regarding competition between residents and non-residents for Crown land campsites; to generate revenue; to encourage non-residents to use tourist facilities; and, to aid