Sturgeon River Plains Bison Management Plan - March 2013
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Sturgeon River Plains Bison
Management Plan
March 2013
ii
Approval Page
The Bison Management Plan is approved by:
________________________________________________ _______________
Alan Fehr Date
Field Unit Superintendent
Prince Albert National Park
Parks Canada Agency
________________________________________________ _______________
Chuck Lees Date
Director
Fish and Wildlife Branch
Ministry of Environment
Government of Saskatchewan
iiiAcknowledgements
The Sturgeon River Plains Bison Stewards, Prince Albert National Park and Ministry of
Environment comprise the Coordinating Committee, which oversaw the management plan
workshops and writing. The Coordinating Committee is pleased to present the draft management
plan to Parks Canada and Ministry of Environment for final review and approval.
Acknowledgement is due to all individuals and organizations from the Advisory Committee,
workshop presenters, and draft management plan reviewers for their contributions and
continuous support through the Sturgeon River Plains Bison Management Plan writing process.
ivAbstract
The Sturgeon River plains bison herd are descendants of 10-15 bison from Elk Island National
Park of Canada, originally released north of the Thunder Hills region of northern Saskatchewan
in 1969. The small herd relocated to more southern regions of the Prince Albert National Park of
Canada and over the next 40 years grew to approximately 400 animals. Disease, predation and
harvest have resulted in the population declining to less than 250 animals in 2012. Plains bison
are listed as threatened by the Committee on the Status of Endangered Wildlife in Canada which
was an important consideration when management goals and actions were developed.
Bison have a long cultural history with First Nations and Métis. The Sturgeon River plains bison
herd plays an important role in reconnecting bison and First Nations and Métis. One of the goals
is to facilitate connecting First Nations and Métis youth and bison.
The Sturgeon River plains bison management plan is a multilateral plan designed to involve
many organizations, agencies and local stakeholders in implementing management goals and
actions, ensuring the Sturgeon River plains bison herd remains a self-sustaining, naturally
regulated, and free ranging population. At the time of publication, the genetic analysis of the
Sturgeon River herd is not yet available. The genetic work will assist in determining a minimum
viable population for the Sturgeon River herd.
The bison range overlaps Prince Albert National Park, Provincial Crown land and private land.
Their movements bring them into conflict with local landowners. Many of the goals and actions
presented in the management plan deal with reducing conflict between landowners and bison
while increasing social tolerance. Conflict arises when bison damage crops and infrastructure
resulting in economic losses for producers. Some compensation programs exist, but room is
available to expand the tools available to landowners to reduce conflict and help meet the overall
goal of a self-sustaining, naturally regulated, free-ranging bison population. Increasing the local,
national, and international profile of the bison through tourism activity will bring economic
benefits to the community.
This management plan is intended to be adaptive; evolving as more information becomes
available, social tolerance changes, awareness is generated, and goals are met. Going forward,
public support of the management plan will be important for the long-term conservation of the
Sturgeon River plains bison herd
vTable of Contents
1.0 Why Do We Need a Regional Plains Bison Management Plan? 3
2.0 Who Manages the Sturgeon River Plains Bison? 3
3.0 Goals of the Management Plan 4
3.1 Designing the Plan 4
4.0 Background and Status of the Sturgeon River Plains Bison 5
4.1 Conservation Status 7
5.0 Monitoring and Managing Plains Bison Population Demographics 7
5.1 Plains Bison Population Demographics Background Information 7
5.2 Goals and Corresponding Action for Population Demographics Section 9
6.0 Habitat Assessment and Planning 10
6.1 Bison Habitat Managed by Prince Albert National Park 10
6.2 Bison Habitat Managed by Private Landowners 10
6.3 Bison Habitat Managed by Saskatchewan Ministry of Environment 11
6.4 Goals and Corresponding Actions for Habitat Assessment and
Planning Section 13
7.0 Disease Management 14
7.1 Background Information for Relevant Diseases 14
7.2 National Wildlife Disease Strategy Implementation 16
7.3 Goals and Actions Corresponding to Disease Management 16
8.0 Managing Human and Plains Bison Interactions 18
8.1 Human and Plains Bison Interactions Background Information 18
18.2 Goals and Actions Corresponding to Human and Plains Bison Interactions 19
9.0 Recognizing the Cultural and Economic Importance of the Sturgeon River
Plains Bison 20
9.1 Cultural Significance of Plains Bison to First Nations People 20
9.2 Cultural Significance of Plains Bison to Métis People 21
9.3 Plains Bison and the Regional Economy 21
9.4 Goals and Actions Corresponding to Cultural and Economic Importance
of Sturgeon River Plains Bison 22
10.0 Schedule for Periodic Plan Assessment and Review 22
10.1 Dispute Resolution 23
10.2 Communications 23
11.0 Literature Cited 24
List of Figures
Figure 1 Sturgeon River Plains Bison Aerial Survey Data 1996 to 2012 7
Figure 2 Sturgeon River Plains Bison Range 12
Appendices
Appendix 1 Terms of Reference 25
Appendix 2 Dates and Themes of Advisory Workshops and Open Houses 29
Appendix 3 Prince Albert National Park Anthrax Procedural Guidelines 30
21.0 Why Do We Need a Regional Plains Bison Management Plan?
Managing a free-ranging bison population in the Sturgeon River area is challenging because they
travel on or across land administered by different jurisdictions. These lands include Prince
Albert National Park of Canada (PANP) administered by Parks Canada, Provincial Crown land
administered by Saskatchewan Ministry of Environment (MoE) and Saskatchewan Ministry of
Agriculture (MoA), and private land administered by individual landowners. In order to
maintain a self-sustaining, naturally-regulated, and free-ranging population, a cooperatively
administered management plan is necessary that attempts to meet the requirements of all parties
involved and works towards accomplishing common goals. It will be important for all parties
involved to focus on the long-term goal of a self-sustaining bison population. The management
plan will address the needs and concerns of people impacted, resource users, and Provincial and
Federal agencies. The management plan will discuss what is known about plains bison, what
needs to be done to better understand the complexities of bison ecology, and what actions will be
required by the various parties involved to successfully maintain plains bison on the regional
landscape and minimize conflict between humans and bison. PANP, MoE, and the Sturgeon
River Plains Bison Stewards (Bison Stewards) have agreed to lead the initial stages of
development and implementation of the management plan. There are many additional partners
whose participation is required to create and implement a successful management plan,
including: ranchers/farmers, wildlife non-government organizations (NGO’s), Rural
Municipalities and First Nations and Métis communities.
2.0 Who Manages Sturgeon River Plains Bison?
Legislative responsibilities for managing the Sturgeon River Plains Bison belong to PANP and
MoE. Within PANP the Canada National Parks Act and the National Parks Wildlife Regulations
establish protection and conservation for the bison. Parks Canada’s mandate is to “protect and
present nationally significant examples of Canada’s natural and cultural heritage and foster
public understanding, appreciation and enjoyment in ways that ensure their ecological and
commemorative integrity for present and future generations” (Parks Canada, 2011).
Outside PANP management authority falls to the Provincial Government through the Wildlife
Act, 1998. The Ministry of Environment “manages the province’s diverse landscapes and
renewable natural resources in a manner that supports a healthy environment, a growing
economy and strong, vibrant communities” (Ministry of Environment, 2012). Plains bison are
designated as big game under the act and a license is required in order to hunt or shoot them.
There is presently no open hunting season for bison.
3Management of the Sturgeon River Plains Bison will be most successful if all those affected, or
interacting with the bison, participate in their management. These groups include:
• Landowners - Affected landowners will need to have a voice and be heard in order for
the bison management plan to be effective. Progress is being made towards addressing
their concerns.
• Local municipalities (RM’s, town councils) – Have a management role on behalf of their
stakeholders.
• Wildlife NGO’s - Interested in the long-term conservation of the bison population.
• Local Community - Have an interest in the social, cultural, and economic well-being of
those interacting with the bison.
• First Nations and Métis – Bison are of cultural and subsistence importance.
• The Sturgeon River Plains Bison Stewards – The Bison Stewards are a group of
concerned ranchers, farmers, and other stakeholders working with PANP and MoE to
create an environment where wild plains bison can co-exist with local landowners in a
mutually beneficial way. The Bison Stewards will play a significant role in the
management outcomes for the bison.
3.0 Goals of the Management Plan
The overarching goal of the management plan is for the Sturgeon River plains bison population
to be managed as a self-sustaining, naturally regulated, and free-ranging plains bison population
that is genetically diverse and able to persist in perpetuity as a natural part of the regional
ecosystem. The outcomes envisioned in the plan include: cooperatively managing the plains
bison population, achieving long-term plains bison conservation, reducing human-bison
conflicts, gathering necessary and relevant information about the population, and promoting the
social and cultural importance of the Sturgeon River plains bison.
This management plan has been produced by the management planning Coordinating Committee
under the direction of the management planning Advisory Committee. The Coordinating
Committee is made up of one representative from each of the following organizations: Prince
Albert National Park of Canada, Saskatchewan Ministry of Environment, and the Sturgeon River
Plains Bison Stewards. Please see Appendix 1 for a list of the stakeholders that participated on
the Advisory Committee.
3.1 Designing the Plan
In 2006 the Sturgeon River Plains Bison Management Strategy was developed though never
fully approved by the involved parties. One goal in the strategy stated, “If needed develop a
4long-range Management Plan for the Sturgeon River Plains Bison Population in conjunction with
partners and stakeholders” (Frandsen, 2006). It became clear very early that a management plan
for the Sturgeon River plains bison population was required. In June 2010 an international
conference called “Bison on the Edge” was held in Big River, Saskatchewan. This conference
brought together many knowledgeable people who were committed to learning more about this
unique bison population. The conference was the kick-off to the management planning process.
Shortly after the conference a Coordinating Committee was established consisting of members
from the Bison Stewards, PANP and MoE. In January 2011 a public meeting was held in
Canwood, Saskatchewan to inform people of the planning process and provide some general
timelines on development of the management plan. A list of suggested agencies and candidates
to participate in the advisory workshops was developed and discussed.
The first workshop with the Advisory Committee was held on March 15, 2011. A list of
concerns, along with suggested solutions was developed at the first workshop. A total of seven
advisory workshops were held in Big River, after which a draft management plan was written by
the Coordinating Committee. Each section of the plan has a background piece followed by a
series of goals and actions. The Advisory Committee was instrumental in ensuring all aspects of
the management plan received sufficient discussion and analysis.
The draft management plan was discussed at several “open houses” throughout various
communities allowing stakeholders and affected members to comment on the plan. As a result of
the open house discussions, adjustments were made to the draft plan. Please refer to Appendix 2
for a list of Advisory Committee workshop meetings and open houses.
4.0 Background and Status of Sturgeon River Plains Bison
In 1969, 50 plains bison (36 female and 14 male) were obtained from the captive herd in Elk
Island National Park of Canada and released by the Saskatchewan Department of Natural
Resources near Meyakamew Lake, which is located north of the Thunder Hills region
approximately 60 km north of PANP. About 10 – 15 of these bison moved south and established
a home range in the Sturgeon River region in or adjacent to the south-west region of PANP. The
other bison that were released in Thunder Hills dispersed to various regions and were either shot
or rounded up and trucked to alternate locations. The bison that made their way to the Sturgeon
River region established the population that still exists there today.
The Sturgeon River plains bison population is currently the only wild population of plains bison
within their historic range in Canada. Other important conservation herds exist elsewhere in the
country; however, they are either fenced or outside areas where plains bison historically
occurred. Sturgeon River plains bison are one of the few bison populations in North America
that occupy their traditional niche in a naturally functioning and structurally complete ecosystem.
5For example, no other plains bison population within their historic range in Canada is part of a
natural predator-prey relationship with wolves. Predation and other natural events affecting
population size and structure such as resource fluctuations, disease, and mate competition
contribute to the long-term sustainability of the population through natural selection and
maintenance of genetic variability. The unique and rare wild status of this plains bison
population makes it an important environmental, cultural, social, and economic resource both
regionally and nationally.
In recent years the Sturgeon River plains bison have occupied an area of approximately 750 km2,
100 km2 of which is outside the PANP boundary. Even though suitable habitat exists on
provincial Crown land, when bison leave PANP they tend to congregate on privately owned
agricultural fields and occasionally come into conflict situations with landowners when they
trample crops or damage fences. When bison leave PANP it is typically during autumn;
however, the precise factors responsible for these cross-boundary movements are not well
understood. Currently, research on seasonal migration of bison inside and outside of the park is
being conducted through a joint project coordinated by the University of Laval, Bison Stewards,
and PANP.
Other research initiatives involving bison habitat selection, range expansion, movement patterns,
and predator-prey relationships are underway by PANP and the University of Laval. In addition,
PANP has been conducting annual aerial surveys of plains bison since 1996 to establish
population trends (Figure 1). Annual aerial surveys and local knowledge collected by the Bison
Stewards indicate the population peaked between 2006 and 2008 at over 400 individuals. Since
that time the population has steadily declined and as of 2012 it is estimated there are between
200 and 250 bison in the Sturgeon River population (Parks Canada, 2012). The recent population
decline is likely due to the interactions between disease (anthrax), wolf predation, and harvest.
Sturgeon River Plains Bison Aerial Survey Data
1996‐2012
400
Population Values Observed
300
200
100
0
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
Year
6Figure 1. Sturgeon River Plains Bison Aerial Survey Data 1996 to 2012. Population
values represent the number of bison observed during aerial surveys conducted annually
using a consistent search effort. These numbers are considered minimum population
counts.
4.1 Conservation Status
The Committee on the Status of Endangered Wildlife in Canada lists plains bison as threatened.
This designation was given in 2004. Status reassessment is expected to begin in November
2013. Under the Species at Risk Act plains bison are not considered to be at risk but are under
further consideration. The decision not to list Plains bison under the Species at Risk Act is due
to the potential economic implications for the Canadian bison industry (Dept. of Justice Canada,
2012).
5.0 Monitoring and Managing Plains Bison Population Demographics
5.1 Plains Bison Population Demographics Background Information
In 2012, the Sturgeon River bison population was estimated to be between 200 and 250 animals.
From its start in 1969, the population slowly increased over a 37 year period, peaking in 2006 at
over 400 animals. Although the biological carrying capacity, based on habitat, was not likely
reached, the social carrying capacity, based on tolerance of the bison at the time, was likely
reached or may have been exceeded.
Social carrying capacity is the maximum number of a species that humans will tolerate in a
geographic area. Social carrying capacity is often lower than the biological carrying capacity and
is based on human tolerance and society’s ability to coexist with a species. In contrast,
biological carrying capacity is the maximum population of a species that a particular ecosystem
can sustain indefinitely. Social carrying capacity is not static, and may change with increased
knowledge regarding best management practices and society’s view on the relative importance of
a species.
In order to address long-term conservation concerns for the Sturgeon River plains bison, both
genetic and demographic considerations must be addressed. There are various management
recommendations regarding the number of bison that should be maintained in a population to
ensure long-term genetic health. The International Union for Conservation of Nature status
survey and conservation guidelines for plains bison identify the ideal population number at 1000
7animals (Gross John.E., N.D. Halbert, and J.N. Derr, 2010). Populations with fewer animals
(250 – 750) can maintain genetic diversity, if herd demographics (gender ratio, age structure, and
recruitment) are properly managed.
The potential effects of low genetic variability are difficult to predict. One possible outcome is
that the ability of a population to adapt to environmental change decreases as genetic diversity
decreases. Once gone from a population, genetic diversity cannot be increased unless animals
from another population are introduced. If the genetic material that is lost is unique to the local
population it will never be replaced. A minimum viable population report completed by Elk
Island National Park indicates that its plains bison population should exceed 175 animals in order
to maintain or improve genetic diversity over a 200 year period (Parks Canada, 2003). PANP is
currently completing genetic analysis on the SRPB population. This information will be
completed during the first year of plan implementation and will be used to determine the
minimum viable population size that is required to maintain or improve the genetic diversity of
this population.
A SRPB minimum viable population threshold similar to Elk Island National Park should be
maintained until the results from the SRPB genetic analysis is complete; however, due to the
ongoing threat of anthrax, predation, and an unpredictable harvest level, a general consensus
among the Coordinating and Advisory Committees moved that a conservative minimum viable
population will be set at 250 for the SRPB herd.
Managing for an upper population threshold of 430 is required to accommodate unforeseen
environmental changes and/or disease outbreaks (Parks Canada, 2003). This number is based on
estimates of the current social carrying capacity combined with recommendations from the Elk
Island minimum viable population report. Managing for a population of 430 would also increase
the probability of protecting genetic variability (Parks Canada, 2003).
The upper threshold of 430 is meant to be viewed in conjunction with landowner conflicts. If the
population is > 430 and there is no increase in conflicts, relative to when numbers were lower,
then management actions to reduce the population will not be necessary. However, if the
population is > 430 and conflicts are increasing, and it is agreed that other options to mitigate
these conflicts have been reasonably applied and assessed, then further management actions may
be considered.
The upper and lower range should be adaptive to changes in social carrying capacity, changes in
bison distribution, and refined minimum viable population estimates based on the SRPB genetics
analysis. It should be noted that population demographics influence the genetics minimum viable
population predications and in recent years harvest field data collected by the Bison Stewards,
PANP, and U of Laval have shown subsistence harvest skewed towards breeding females in the
SRPB population.
85.2 Goal and Actions for Population Demographics
Goal 1: Maintain bison population numbers and population structure (age/sex) to allow for a
self-sustaining and genetically diverse population while ensuring that the social carrying capacity
for plains bison is not exceeded.
Action 1: Complete a genetic analysis of the SRPB population in order to determine a MVP
(PANP).
Action 2: PANP will continue to monitor the bison population using aerial survey methods on an
annual basis. New methods to refine these surveys will be explored through research studies
with the academic community and the MoE.
Action 3: If the estimated population numbers are near or below the minimum viable population
value, methods to herd bison into PANP will be used to keep them in regions where they receive
a higher level of protection (Bison Stewards lead; MoE).
Action 4: If the population nears or falls below the minimum threshold a voluntary moratorium
on bison harvesting will be requested. First Nations communities involved with harvesting bison,
and landowners affected by bison movement will be visited. Information regarding the current
status of the bison population, as well as information regarding the effects of the selective
harvest of breeding-aged females will also be provided (PANP, Bison Stewards, MoE).
Action 5: If the population is below the minimum threshold and a voluntary moratorium on
hunting is not successful then the MoE, with support from PANP and the Bison Stewards, will
begin the regulatory process necessary to stop bison hunting on provincial lands until
population numbers again exceed the minimum threshold.
Action 6: Establish a bison harvest protocol to guide management of the bison herd when the
upper population threshold is exceeded, and/or conflict with landowners is a concern (MoE).
Action 7: Increase social carrying capacity of the Sturgeon River plains bison by promoting the
importance of bison to landowners, the local community and the people of Saskatchewan, and by
improving best management practises for deterring bison off private land (Bison Stewards
mandate with support from PANP and MoE).
Action 8: Thresholds will be re-evaluated as new information becomes available (PANP, Bison
Stewards, MoE).
96.0 Habitat Assessment and Planning
6.1 Bison Habitat Managed by Prince Albert National Park
The majority of habitat available to the Sturgeon River bison population exists within the
southwest corner of PANP. Most of PANP’s bison habitat consists of discrete sedge or grassland
meadows interspersed within deciduous and conifer forest. Numerous small lakes, fens, and
bogs exist throughout this region. Bison spend most of their time during summer in southerly
portions of their range foraging in open meadows. During the winter months (December –
February), bison tend to move further north into coniferous-dominated habitat and some groups
may be found foraging along drainages or lake-sides as far north as Bagwa Lake (Figure 2).
Solitary adult bulls and bull groups, however, often remain in more southerly locations
throughout winter when compared to cows and younger bison.
PANP uses prescribed burning to mimic natural fire cycles within bison habitat and throughout
the park. The southern, aspen-dominated regions are targeted for managing on a 40 year fire
cycle and specific plans are in place to increase or maintain grasslands. The goal of the northern,
coniferous-dominated regions of bison habitat, are to be managed on a 100 year fire cycle. At
this time, it is unknown how prescribed burns will affect bison habitat use and distribution. It is
speculated that forest renewal and increases to the extent of open meadows will improve bison
habitat in PANP and may influence bison distribution patterns.
6.2 Bison Habitat Managed by Private Landowners
Bison can be found year-round on private land and provincial Crown leased land. During most
times of the year, the groups of bison are small and generally comprised of bulls; however, in
early August the annual rut begins and bison start to congregate in large groups, venturing daily
onto private, agricultural land adjacent to PANP. These large groups have numbered as many as
300 in the past, are known to cover an area over 100 km² and create challenges for agricultural
producers during haying and harvesting times. Bison will wallow or make trails in cash crops
during the entire growing season and will rub on hay and green-feed bales causing damage.
They also prefer to graze newly cut hayfields with fresh growth, tending to choose timothy over
other grasses and legumes. Bison will also increase alfalfa consumption in early fall, after a
10heavy frost. This grazing behaviour can reduce the available biomass for a second cut of hay or
fall grazing for cattle. Bison also cause damage to infrastructure such as cattle fences.
6.3 Bison Habitat Managed by the Saskatchewan Ministry of Environment
Adjacent to PANP, and north of the private agricultural land, is Provincial Forest. The landscape
is comprised of a gently undulating glacial till plain. It is predominately forested, consisting of
jack pine, white spruce, and aspen. Dotted throughout are numerous open and closed fens, bogs,
meadows, small water bodies and lakes. A number of commercial and recreational activities
occur throughout including cattle grazing, trapping, big game outfitting, hunting, angling,
camping, and berry picking. This portion of the Provincial Forest is part of the Prince Albert
Forest Management Agreement (FMA). Timber harvesting, both commercial and private-use,
occurs under the guidance of the Forest Service Branch of the MoE. Occasionally bison utilize
the Provincial Forest north of agricultural land. At this time, numbers of bison in this region are
small consisting of single bulls or small cow/calf groupings. It is unknown if the habitat has
sufficient meadows with preferred food types to support bison year-round.
11Figure 2 Sturgeon River Plains Bison Range
126.4 Goal and Actions for Habitat Assessment and Planning
Goal 1: Ensure that sufficient habitat is available to maintain a self-sustaining and wild plains
bison population in the Sturgeon River region while mitigating negative impacts to local
agriculture.
Action 1: Explore opportunities with universities, government agencies and NGO’s to develop
forage alternatives that will deter bison from grazing, while still meeting the needs of the cattle
industry (Bison Stewards).
• Evaluate what crops are attractants to bison
• Evaluate current crop science research to determine if there are alternate crops that
may be suitable for cattle but will not attract bison
Action 2: Augment the free ranging expansion of plains bison by attempting to purchase private
property that contains suitable bison habitat (Bison Stewards/NGO’s).
Action 3: Explore opportunities for land easements on private land to protect important bison
habitat (Bison Stewards/MoE/NGOs).
Action 4: Assess adjacent Crown Provincial Forest for plains bison habitat suitability and
explore the potential for increasing habitat suitability on Provincial Crown land (MoE,
Universities).
Action 5: Support ongoing research pertaining to bison food preference and habitat preference
throughout the current Sturgeon River plains bison range (Bison Stewards/Universities/PANP).
Action 6: Augment bison habitat within PANP with prescribed burning during spring season to
promote the expansion of meadows and to prevent aspen suckering (PANP).
Action 7: Evaluate the use of prescribed burns in meadows within PANP during late summer for
reducing bison landowner conflicts (PANP).
Action 8: Increase the use of diversionary fences on private land to steer the bison to more
preferable locations. These locations may include land acquired through land easements (Bison
Stewards).
Action 9: Explore payment for use of second-cut crops in areas and times when bison use is high
(Bison Stewards).
137.0 Disease Management
7.1 Background Information for Relevant Diseases
The diseases presented in this section have been identified by the Sturgeon River Plains Bison
Management Plan Coordinating and Advisory Committees, in consultation with wildlife
veterinarians, as being potentially relevant to the Sturgeon River plains bison population. Some
diseases can be transmitted between wild and domestic populations as well as to humans.
Therefore, the committees also recommend an official disease risk assessment be conducted by
wildlife veterinarians at the Canadian Cooperative Wildlife Health Centre to verify the relevance
of these diseases and identify any other potential diseases of concern.
Anthrax (Bacillus anthraci)
Anthrax is a naturally occurring disease caused by the bacterium Bacillus anthracis, which is
known to infect bison and other herbivores. Anthrax bacteria exist as resistant spores in soil and
develop into a vegetative form when they enter an animal’s body. Anthrax can infect an animal
when spores enter open wounds or are ingested or inhaled. Once spores have entered an animal
the vegetative form of the bacteria multiplies rapidly and causes a blood-borne infection that
usually results in death within a few days. After death, vegetative bacteria may exit a carcass via
blood oozing from the mouth, nostrils, or anus. Additionally, vegetative anthrax bacteria may
escape in large quantities if the carcass is opened by scavengers. Anthrax bacteria that exit the
carcass will form resistant spores and contaminate surrounding soil, which may result in future
anthrax outbreaks.
The only known anthrax outbreak to occur in the Sturgeon River plains bison population was in
July/August of 2008. During the 2008 outbreak, a total of 29 bison were found dead. However,
many carcasses were likely not discovered due to the remote location of some meadows
frequented by bison and the dense foliage at that time of year.
Bovine Tuberculosis (Mycobacterium bovis)
Bovine tuberculosis is caused by the bacterium Mycobacterium bovis and is not a naturally
occurring disease in wild animals. Wildlife species such as deer, elk, and bison may act as
reservoirs (i.e. perpetuate it indefinitely under natural conditions) and transmit bovine
tuberculosis to cattle and other wildlife species. Bovine tuberculosis is transmitted via ingestion
(contaminated food and water) or inhalation (contaminated air-borne dust particles). After
entering the host animal, bacteria may spread through blood or lymph nodes and create lesions in
any part of the body, which can lead to reduced fertility, weakness, and/or death.
14Currently there is no sign of bovine tuberculosis in the Sturgeon River bison population and the
plains bison released in 1969 were from the Elk Island plains bison herd that was and is
considered to be free of this disease.
Bovine Brucellosis (Brucella abortus)
Bovine brucellosis is caused by the bacteria Brucella abortus and most commonly affects cattle,
bison, and elk. Bison and cattle are primary hosts, where as elk are considered secondary hosts
because elk-to-elk transmission does not typically occur under natural conditions, except where
elk are fed in large numbers on feed grounds. Bovine brucellosis is most commonly transmitted
when animals ingest feed/water contaminated by infected tissues or otherwise come into direct
oral contact with tissues/fluids of infected animals or aborted foetuses. Subsequent to infection,
brucellosis bacteria spread through the blood and lymph nodes and most commonly affect
reproductive organs, mammary glands, and joints. Abortions, infertility, and weak offspring are
common effects of brucellosis infections.
Currently there is no sign of bovine brucellosis in the Sturgeon River bison population.
Bovine Viral Diarrhoea (Bovine Viral Diarrhoea Virus)
Bovine viral diarrhoea is a viral disease that affects cattle, sheep, goats, and wild ruminants such
as bison. Bison and cattle are the primary hosts of the disease but other species may act as
secondary hosts and play a key role in disease transmission. Transmission occurs through contact
with bodily secretions of infected animals, such as saliva, feces, urine, and nasal discharge.
Symptoms of the disease include fever, diarrhoea, decreased white blood cell count, and loss of
appetite. In some cases infection may result in abortions and/or death.
Currently there is no sign of bovine viral diarrhoea in the Sturgeon River bison population.
Malignant Catarrhal Fever (Ovine Herpesvirus 2)
Sheep are known to be carriers of the OHV-2 virus (ovine herpesvirus 2) which causes
Malignant Catarrhal Fever (MCF). Transmission from sheep to sheep is due to direct contact of
eye and nasal secretions. Bison are very susceptible to this virus if bison and infected sheep
interact and cases are always fatal. MCF does not spread from bison to bison. Some symptoms of
the virus are separation from herd mates, fever, nasal discharge, respiratory problems, and
difficult urination.
Currently there are no known cases of MCF in the region.
157.2 National Wildlife Disease Strategy Implementation
Canada’s National Wildlife Disease Strategy coordinates disease response and management at a
national level with the overall goal of minimizing negative impacts of wildlife disease. The
Strategy is meant to be integrated into disease management mandates and plans for various
government agencies at national and provincial/territorial levels. The Coordinating and
Advisory Committees for the Sturgeon River Plains Bison Management Plan have recommended
that the Strategy be used as a template to guide monitoring and management actions for diseases
of concern relative to the local plains bison population. The committees also recommended that
a disease risk assessment be conducted to determine which diseases are of high enough priority
in this region to be examined under the Strategy guidelines. However, given that anthrax has
already occurred in this population, an immediate implementation of the Strategy for this disease
is necessary.
The Strategy provides a framework to address a number of issues related to wildlife diseases,
including prevention, detection, response, effective management, education, and communication.
Management options under the Strategy typically aim to reduce the rate of disease transmission,
contain the disease to a geographic area, or eradicate the disease. Efforts are usually focussed on
diseases that have the potential to negatively impact society, the environment, or the economy.
7.3 Goals and Corresponding Actions for Disease Management
The following goals and corresponding actions provide a summary of the path necessary to
adequately assess and implement relevant disease monitoring and management for the Sturgeon
River plains bison population:
Goal 1: Conduct a disease risk assessment for plains bison in the Sturgeon River area to
determine which diseases should be addressed using the National Wildlife Disease Strategy
guidelines.
Action 1: Outline the parameters for a risk assessment and establish necessary
contracts/agreements with the Canadian Cooperative Wildlife Health Centre to complete
the assessment (PANP, MoE). Note: the Canadian Cooperative Wildlife Health Centre
has already completed a similar risk assessment for plains bison in Grasslands National
Park.
Action 2: Use the risk assessment to identify which (if any) additional diseases should be
monitored and managed using the National Wildlife Disease Strategy guidelines (PANP,
MoE).
16Action 3: Develop a timeline to have the risk assessment periodically reviewed and
updated by the Canadian Cooperative Wildlife Health Centre (PANP, MoE).
Goal 2: Apply National Wildlife Disease Strategy guidelines as they pertain to anthrax and the
Sturgeon River bison population. There is no need to wait for the completion of a disease
assessment to implement the NWDS guidelines for anthrax because the risk of this disease is
already relatively well understood.
• Prevention of Emergence
Action 1: Promote vaccination of cattle in proximity to wild bison (Bison Stewards).
• Early Detection
Action 2: Routine opportunistic surveillance and monitoring for bison carcasses during
late summer and early fall (PANP, MoE, Bison Stewards, and local landowners).
Action 3: Heightened monitoring such as air surveillance and targeted ground patrols
when a suspected or confirmed anthrax case occurs regionally in wild or domestic
animals (PANP, MoE, Bison Stewards). Environmental conditions suspected of
increasing likelihood of anthrax outbreaks could also trigger heightened monitoring and
surveillance.
Action 4: Test all suspected carcasses using field test kits. Additionally, sample other
biological specimens for further confirmation of positive case (blood, tissues or soil
soaked with blood, and turbinate bones) (PANP, MoE).
• Rapid Response
Action 5: Immediately treat suspected carcasses using treatment plans specific to the
jurisdiction in which the carcass is located (PANP, MoE). Carcasses that cannot be
immediately disposed of will be treated with formalin to prevent scavengers from opening
the carcass and spreading anthrax bacteria.
• Effective Disease Management
Action 6: PANP and MoE will develop and maintain anthrax carcass treatment plans in
accordance to the most recent information regarding effective carcass
disposal/treatment. Efforts will be made to strive for consistency in carcass treatment
methods regardless of the jurisdiction that a given suspected or confirmed anthrax cases
occurs.
For additional information on anthrax response guidelines see Appendix 3, or contact
PANP or MoE for details regarding each agency’s current Anthrax Response Strategy.
17• Education and Training
Action 7: An information brochure will be distributed annually to relevant landowners.
The brochure will provide details regarding the signs and symptoms of anthrax in wild
bison and domestic livestock (Bison Stewards). Phone numbers will be provided so the
public knows who to call when a suspected anthrax cases is discovered.
• Communication
Action 8: Rapid communications between PANP or MoE and the Bison Stewards will
occur regarding all suspected or confirmed anthrax cases in wild bison and domestic
livestock. Bison Stewards will then facilitate communications between landowners, First
Nations communities, and government agencies for the duration of the outbreak. A
contact list for all relevant landowners and First Nations communities will be maintained
by the Bison Stewards.
8.0 Managing Human and Plains Bison Interactions
8.1 Human and Plains Bison Interactions Background
As noted in the section on habitat, there are a number of issues that local landowners contend
with in regards to bison movements outside PANP. The primary concern facing landowners is
that plains bison leave PANP and move onto private land which leads to fence, crop, hay, and
pasture damage. This damage can result in economic losses for landowners. A bi-annual survey
of landowners has identified many of these issues. In some cases organizations, such as the
Sturgeon River Plains Bison Stewards and Saskatchewan Crop Insurance Corporation, have
provided short-term support and funding for projects and damages to help alleviate landowner
concerns. Saskatchewan Crop Insurance Corporation administers a Wildlife Damage
Compensation Program which is available to all producers who suffer crop or livestock losses
due to wildlife. But not all damages caused by plains bison are currently covered by the
compensation program, such as infrastructure damage.
The University of Laval and the Bison Stewards continue to gather information necessary to
determine plains bison migration routes and forage preferences. This research helps landowners,
government, and partner agencies make decisions on how to manage plains bison when they exit
PANP.
18Other concerns identified by landowners and the Coordinating and Advisory Committees
include: public safety; disease transmission between bison and cattle, and sheep and bison;
genetic transfer between wild and domestic bison herds, and to a lesser extent between wild
bison and domestic cattle; the additional cost and work load faced by several government
agencies; and finally increased conflict between landowners in the area immediately surrounding
PANP.
For a more detailed description of issues, considerations, and possible actions discussed during
the advisory committee meetings, see the interaction matrix located on the Bison Stewards
website (http://www.bisonstewards.ca/).
8.2 Goals and Corresponding Action
Goal 1: To minimize the time bison spend on private land.
Action 1: Fence key fords where bison cross onto private land – strategic fencing
(PANP, Bison Stewards).
Action 2: Request Saskatchewan Crop Insurance Corporation add additional funding
package to move bison back into the National Park (Bison Stewards).
Action 3: Manage bison habitat inside park and/or outside park (PANP, Bison Stewards,
MoE).
Goal 2: To reduce conflict between bison and private landowners.
Action 1: Request Saskatchewan Crop Insurance Corporation add additional
compensation package relating specifically to bison (fencing, labour, hay, trampling)
(Bison Stewards).
Action 2: Research and test different fence types utilizing new fence technology such as
stronger fencing, lay down fencing, electric fencing, virtual fencing, 3D fencing (Bison
Stewards, Academic Community).
Action 3: Develop a plan to utilize subsistence hunting and big game management
licenses as a management tool (MoE).
Action 4: Work with ENGO’s to offer easements or to purchase critical bison habitat
near PANP (Bison Stewards, PANP, MoE).
Action 5: Create a page within the Bison Stewards website with up to date funding
programs available to farmers and ranchers. Lobby for new programs and funding to
help landowners reduce bison interaction incidents (Bison Stewards, PANP, MoE).
19Action 6: Establish a volunteer fencing crew to assist producers with repair of damaged
fences, and round –up and return of escaped livestock (Bison Stewards).
Action 7: Develop protocols that will guide the actions of the volunteer fencing crew
(Bison Stewards).
Goal 3: To prevent genetic transfer from domestic bison and cattle to the Sturgeon River plains
bison.
Action 1: Prepare risk assessment on the potential for genetic transfer between domestic
bison and/or cattle and the Sturgeon River Plains Bison (Academic Institution).
Action 2: Develop a memorandum of understanding with the Canadian Prairie Bison
Cooperative, the Canadian Bison Association, and local bison ranchers concerning
domestic bison escapes within 50 km of PANP (Bison Stewards).
Goal 4: To ensure public safety with free-ranging plains bison.
Action 1: Develop brochures, presentations, articles, signage, and other relevant
educational information related to safety precautions and educational awareness when
near wild plains bison (Bison Stewards, MoE, PANP).
Action 2: Develop a protocol concerning the approval process for issuing special
permits to destroy aggressive or dangerous bison (MoE, PANP).
9.0 Recognizing the Economic and Cultural Importance of the Sturgeon River
Plains Bison
9.1 Cultural Significance of Plains Bison to First Nations People
Prior to European settlement, plains bison were a primary source of sustenance for First Nations
people living throughout the Canadian prairies. In addition to using bison for food, First Nations
people also used parts from harvested bison to make tools, clothing, medicine and shelter. Bison
were often incorporated into ceremonial rituals and First Nations people traditionally had strong
spiritual ties with plains bison. Despite the traditional relationship that First Nations people had
with bison, few contemporary First Nations communities continue to maintain a formal
connection with the historical and cultural significance of bison (Danette Starblanket, Federation
20of Saskatchewan First Nations, pers. comm.). The near extirpation of plains bison subsequent to
European settlement was a significant cultural and economic loss for First Nations people and
resulted in a permanent change to their way of life.
The Sturgeon River bison population area provides an ideal opportunity for First Nations
communities to reunite with their past and again benefit from the presence of bison on the
regional landscape. In recent years, local First Nations hunters have been able to harvest wild
plains bison as a means of providing a nutritious food source to their community. Furthermore,
First Nations people have been able to carry out spiritual ceremonies associated with the bison
hunt (Gordon Vaadeland, Sturgeon River Plains Bison Stewards, pers. comm.). The
establishment of the Sturgeon River plains bison population has also resulted in a tremendous
opportunity to connect people and bison through youth education programs within local First
Nations’ schools and communities.
9.2 Cultural Significance of Plains Bison to Métis People
Plains bison feature prominently in Métis culture across the prairies. Bison were of great
economic and cultural importance for Métis people during the fur trade and Prairie settlement
when bison meat, hides, and pemmican could be traded or sold to European fur trade companies.
Bison were also an important source of sustenance for Métis families and all parts of the bison
were typically used for food, clothing, or tools. Currently Métis are not legally permitted to hunt
plains bison in Saskatchewan; however, the Métis Nation Saskatchewan has shown interest and
support for the long-term conservation of the Sturgeon River plains bison population and
recognizes plains bison as a significant part of Canada’s heritage that must be preserved for
future generations.
9.3 Plains Bison and the Regional Economy
Conservation efforts surrounding the Sturgeon River plains bison may have a positive impact on
the economy of the region. Geotourism, “tourism that sustains or enhances the geographical
character of a place – its environment, culture, aesthetics, heritage, and the well-being of its
residents” (travel.nationalgeographic.com) is growing in popularity as a sustainable form of
tourism. Wildlife viewing, one type of geotourism activity, is the second most popular activity
that nature lovers will participate in when visiting a destination. In Canada, 6% of the population
can be identified as a nature lover, which translates to over 600,000 potential tourists (Research
Resolutions and Consulting LTD, 2009). Saskatchewan, and in particular destination tourist
locations, such as the Sturgeon River area, face challenges when drawing a portion of this group
to the area. However, research has shown that 25% of nature lovers consider Saskatchewan a
21prime destination for wildlife viewing (Research Resolutions and Consulting LTD, 2009). When
tourists visit an area, the primary tourism-based business see the economic return; however the
benefits spread to the service industry and the entire community.
9.4 Goals and Corresponding Actions
Goal 1: Promote the cultural importance of plains bison as it pertains to local First Nations and
Métis communities while focusing on historical context and modern-day reconnection between
bison and people.
Action 1: The Coordinating Committee will regularly contribute an article to Landscape (the
newsletter for Métis Nation-Saskatchewan) to distribute information regarding the current status
of the Sturgeon River plains bison population and relevant updates to the management plan
(PANP, Bison Stewards, MoE).
Action 2: The Coordinating Committee will regularly contribute to the FSIN Executive
Communiqué to distribute information regarding the current status of the Sturgeon River plains
bison population and updates regarding the management plan (PANP, Bison Stewards, MoE).
Action 3: Develop youth outreach programs that raise awareness regarding the Sturgeon River
plains bison population and discuss the cultural and historical significance of bison to First
Nations and Métis cultures (Bison Stewards).
Goal 2: Promote the economic importance of plains bison with a focus on tourism opportunities.
Action 1: Provide information to the Waskesiu Wilderness Region Destination Marketing
Organization on a regular basis and through various means to promote tourism opportunities
associated with the Sturgeon River plains bison herd (PANP, Bison Stewards, MoE).
Action 2: Provide information regarding the status of the population and tourism opportunities
associated with the Sturgeon River plains bison to all regional tourism websites (PANP, Bison
Stewards, MoE).
10.0 Management Plan Assessment and Review
The Sturgeon River Plains Bison Management Plan is meant to be a dynamic, useable document.
As new technology is developed or new science is learned, it will be incorporated into the
management plan. Action items will be initiated and delivered through work plans developed by
the lead agency or organization responsible for the action. The Coordinating Committee will
meet annually to review progress on action items within the plan. Advisory Committee
responsibilities will terminate at the point when the plan is signed off by officials from PANP
22and MoE. The Coordinating Committee will periodically review the management plan and
Advisory Committee members will be recalled if any major changes are required to the
management plan.
10.1 Dispute Resolution
During the development of the bison management plan, the Coordinating and Advisory
Committees used a consensus based decision making process. The same process will be used
during the implementation of the plan.
In the event consensus cannot be reached on a particular issue, decisions regarding that issue will
be made by the Coordinating Committee. If consensus cannot be reached among the
Coordinating Committee, then the agency having jurisdiction over the issue at hand will make
the final decision.
10.2 Communications
See Terms of Reference, Appendix 1
2311.0 Literature Cited
Department of Justice Canada. SI/2005-72 Lois du Canada-Justice. Order Giving Notice of
Decisions not to add Certain Species to the List of Endangered Species (SI/2005-72). 27 July
2005. Available at http://laws-lois.justice.gc.ca/eng/regulations/SI-2005-72/index.html,
Accessed October 9, 2012.
Frandsen, D. 2006. Sturgeon River Plains Bison Management Strategy. Unpublished. Strategy
Development Team. 12 pp. + Appendices.
Gross John E., N.D. Halbert, and J.N. Derr. 2010. Conservation guidelines for Population,
Genetic, and Disease Management. Pp. 85-101 in American Bison-Status Survey and
Conservation Guidelines. 2010. (C.C. Gates, C.H. Freece, P.J.P. Gogan, and M. Kotzman eds):
IUCN. 134 pp.
Ministry of Environment. Environment-Government of Saskatchewan. Ministry overview.
2012. Available at http://www.environment.gov.sk.ca/ministry-overview/, Accessed December
5, 2012.
Parks Canada. Parks Canada’s Mandate. 03 August 2011. Available at
http://www.pc.gc.ca/eng/agen/index.aspx. Accessed December 5 2012.
Parks Canada. 2012. Free-ranging plains bison census 1996-2012. Prince Albert National Park.
Waskesiu Lake, Saskatchewan. Canada. Unpublished files.
Parks Canada. 2003. Wilson, G.A, and K. Zitlau. Management Strategies for Minimizing the
Loss of Genetic Diversity in Wood Bison and Plains Bison Populations at Elk Island National
Park. Unpublished report. Elk Island National Park Fort Saskatchewan, Site 4 RR#1 Fort
Saskatchewan, Alberta, 57 p.p.
Research Resolutions and Consulting LTD. 2009. Nature Lovers: An Outdoor Activity Market
Opinion for Saskatchewan. Presented to Tourism Saskatchewan. 35pp.
Starblanket, Danette 2012. Personal Communication. Federation of Saskatchewan Indian
Nations. Saskatoon, SK.
Vaadeland, Gordon. 2012. Personal communication. Sturgeon River Plains Bison Stewards.
Big River, SK.
24Appendix 1: Terms of Reference for the Sturgeon River Plains Bison
Management Plan
Also located at: http://www.bisonstewards.ca/TOR_final_draft.pdf
Terms of Reference for the Sturgeon River Plains Bison Management Plan
Scope
The Sturgeon River Plains Bison Management Plan Coordinating Committee will develop a plan
to manage bison in Prince Albert National Park and adjacent lands. The management plan will
ensure the sustainability of the bison population and also provide guidelines to manage bison
when they are in conflict with other resource users outside of Prince Albert National Park. The
general public and all interested parties will have an opportunity to provide input and feedback
throughout the planning stages. The draft management plan will be presented for approval to
Sturgeon River Plains Bison Stewards, Saskatchewan Ministry of Environment, and Prince
Albert National Park
Vision for the Management Plan
The Sturgeon River Plains Bison population will be managed as a self-sustaining, naturally
regulated, and free-ranging plains bison population that is genetically diverse and will persist in
perpetuity as a natural part of the regional ecosystem.
Principles of the Coordinating Committee and the Advisory Committee
• The Coordinating Committee will draft a plan that will support the sustainability of the
plains bison population in Prince Albert National Park and adjacent areas.
• The Advisory Committee will provide suggestions and feedback throughout the process
and ensure their concerns are adequately addressed.
• The personal integrity, individual rights, interests and values of the participants and
others will be respected.
• The process will provide a time for all to speak and all to listen.
• Advisory Committee members have the responsibility to keep their public constituency
informed of developments and bring ideas and recommendations to the Coordinating
Committee.
• Coordinating Committee members are committed to a collaborative approach to problem
solving and whenever possible will achieve consensus when making recommendations or
decisions.
• The Coordinating Committee will recommend and participate in opportunities for
effective public discussion and communication.
• The lifespan of the Advisory Committee will be the duration of the management planning
process. Subsequent to the completion of the management plan, members of the
Advisory Committee will be put on standby and invited to participate in periodic public
25meetings to discuss the effectiveness of the plan and suggest necessary modifications.
The frequency of these meetings will be specified in the management plan.
• The Coordinating Committee will continue to exist indefinitely and will be required to
meet periodically because of the expected adaptive nature of the management plan.
Membership
• The Coordinating Committee will consist of one individual from each of the parties
actively involved with managing the Sturgeon River Plains Bison Population:
o Sturgeon River Plains Bison Stewards
o Saskatchewan Ministry of Environment
o PANP
Each party in the Coordinating Committee should have one or two stand-in alternates
available to contact if the primary Coordinating Committee member is temporarily
unavailable. Alternates may also provide logistical and clerical support to primary
Coordinating Committee members.
• The Advisory Committee will include individuals and parties that are directly affected by
the Sturgeon River Plains Bison population and associated management actions and/or
other parties interested in the long-term conservation of the population. When possible
the same representative(s) from each party should consistently attend meetings and
workshops related to bison management planning. However, alternates should be made
available from each party and are encouraged to participate only when a primary
Advisory Committee member from a given party is unable to attend. It is ultimately the
responsibility of primary Advisory Committee members to ensure their respective parties
are kept up-to-date with current management planning activities and the proceedings
from each management planning meeting/workshop.
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