Bill C-73

Nature Accountability Act

An Act respecting transparency and accountability in relation to certain commitments Canada has made under the Convention on Biological Diversity

This enactment imposes certain duties on the Minister of the Environment to promote transparency and accountability in relation to certain commitments that Canada has made under the Convention on Biological Diversity.

[Sophie Chatel, Liberal, Pontiac, QC]

I'll say it again.

I said that she doesn't want to talk about the bill that we are supposed to talk about. It's Bill C-73, and I—

[The Chair, Liberal, Francis Scarpaleggia]

I think we're getting off topic. I think the Bay du Nord is very relevant to the discussion of Bill C-73, but I don't think, personally, that the Trans Mountain pipeline is.

[Monique Pauzé, Bloc, Repentigny, QC]

According to our understanding, the federal government has relinquished management to the Atlantic provinces in order to have oil and gas development. At least, that's what we're seeing.

Could Bill C-73 prevent the Atlantic provinces from continuing to develop offshore oil and gas in sensitive areas?

[Monique Pauzé, Bloc, Repentigny, QC]

Thank you, Mr. Chair.

Minister, thank you for being here.

In your presentation, you said that every government had to assume its responsibilities and that everyone had to work together. I think the Bloc Québécois fully agrees with that. Quebec and the provinces take care of the land, and the federal government takes care of the oceans.

Oceans come under federal jurisdiction, so I'll take you back in time and talk about the Bay du Nord project. All the environmental groups had asked that this project not be approved, but you approved it. Of course, environmental groups were disappointed and criticized you. However, this project may not come to fruition because of a lack of investors and a lack of financial viability.

Basically, Bill C-73, under our consideration, is sort of a framework bill that involves the government's participation in what was signed in the United Nations Convention on Biological Diversity. However, if this bill were turned into framework legislation, but public policies were different and oil development was promoted, would this bill prevent the development of a project similar to the one in Bay du Nord?

[Steven Guilbeault, Liberal, Laurier—Sainte-Marie, QC]

Thank you very much, Mr. Longfield.

I think it is correct to make a parallel between Bill C-73 and the Canadian Net-Zero Emissions Accountability Act, in the sense that the act imposes a certain number of things on our government and future governments. We have to produce action plans like the emissions reduction plan produced in 2022. We have to update those plans. They have to be tabled in the House of Commons. They have to be made public. We have to do consultations in the lead-up to that. We already have targets for 2022, but we have to set targets for future commitment periods, whether it's for nature or climate.

I think it's about accountability towards Canadians. It's about transparency. It's about ensuring the government puts in place the necessary measures to achieve the targets we set for ourselves.

[Lloyd Longfield, Liberal, Guelph, ON]

Thank you, Mr. Chair.

Thank you to the minister for being with us for two full hours and for showing us your commitment to our committee, as well as for the fine work you're doing on climate change and the exciting legislation that we're going to be discussing today and, hopefully, in future meetings sequentially, so that we can get to the crux of the legislation before us.

Thanks to Mr. van Koeverden for introducing his motion several weeks ago. We've been trying to have this conversation. The Conservatives are blocking. The NDP are putting other motions on the table.

It's great that we're finally starting the conversation together, because halting and reversing biodiversity loss is one of the great challenges we face, on top of climate change. This is a parallel challenge. If we get it right, we can transition to a nature-positive Canada in working with indigenous people, knowing that their knowledge will contribute to our solution together.

We have some profound impacts happening on our collective well-being. The University of Guelph looks at “one health” and says that the one health initiative is important. On biodiversity loss, through the Biodiversity Institute, we're tracking the results of that loss, but we have to start recovering from the loss that we have in front of us.

Can you tell the members why Bill C-73 is so crucial, so that our committee can really grab hold of this study?

[Gerald Soroka, Conservative, Yellowhead, AB]

Thank you, Mr. Chair.

Minister, you painted a very nice picture of what Bill C-73 is supposed to do. My concern is about Liberals talking about things that sound so nice and wonderful. This summer, you proved that concern with the mismanagement of the forest system. There was a lack of biodiversity, a lack of prescribed burns, and no getting rid of the mountain pine beetle and dead trees. One-third of Jasper burned.

Could you please explain to us why Canadians should believe this bill is going to protect the biodiversity of our ecosystem when you've proven that you don't have the ability to do it right now?

[Steven Guilbeault, Liberal, Laurier—Sainte-Marie, QC]

Thank you, Mr. Chair.

Canada's identity is deeply connected to its natural environment. Our forests, lakes, coastlines and wetlands are more than just landmarks. They are the lifeblood of our economy, culture and communities.

Canada plays a vital role in safeguarding the world's ecosystems. As the second-largest country on earth, Canada stewards 25% of the world's temperate rainforests, 24% of boreal forest and 37% of freshwater lakes, along with the longest coastline in the world. As a result, our domestic action has global implications.

The growing impact of environmental degradation—from biodiversity loss to climate instability—cannot be ignored. Forestry, agriculture, fishing and aquaculture are directly threatened by ecological disruptions, with implications for jobs, food security and public health.

Despite the progress we've made, such as the protection of 300,000 square kilometres of land and inland waters since 2017, our work is far from over. That is roughly half the size of Manitoba, and just two weeks ago, we announced the largest indigenous-led conservation project in the world, Mr. Chair, which will span more than one million square kilometres in the Northwest Territories.

In 2022, Canada played a key role in securing the ambitious Kunming-Montreal Global Biodiversity Framework, known as the GBF. The GBF outlines a 2050 vision of living in harmony with nature and sets four goals for 2050, with 23 global targets to halt biodiversity loss by 2030.

In June 2024, Canada was one of the first countries to publish a national strategy to outline how it will implement these targets domestically. At the same time, the government introduced Bill C‑73 in the House of Commons. This bill reflects Canada’s commitment to advancing efforts to halt and reverse biodiversity loss, by establishing a framework for accountability and transparency in delivering on the GBF commitments and ensuring sustained action at the national level.

If passed, Bill C-73 would codify Canada's commitment to contribute to these global targets, as well as future targets and long-term goals. The bill would require me, as Minister of Environment and Climate Change, as well as future ministers, to develop and submit national biodiversity strategies that align with international commitments under the Convention on Biological Diversity. These strategies will outline federal measures and provide opportunities for provinces, territories, indigenous peoples, municipalities and other parties to highlight their actions, ensuring a collaborative approach to biodiversity conservation.

This is essential because no single level of government within Canada can achieve targets alone. Provincial, territorial and indigenous partners, as well as industry and civil society, must work together to secure a prosperous economy based on resilient ecosystems.

This involves ensuring the safety and security of communities, because nature-based climate solutions contribute to both sequestering emissions and mitigating climate change impacts such as heat domes and flooding.

To strengthen accountability, the minister will also be required to prepare national reports that align with international commitments under the CBD, and assess Canada's progress towards global biodiversity targets.

These reports will assess Canada’s progress, highlight where we need to course correct and ensure that we continue to improve. Both the strategies and reports will be tabled in Parliament and made publicly available.

Bill C‑73 places significant emphasis on indigenous leadership. The Government of Canada recognizes that indigenous peoples have long safeguarded the nation’s lands, waters and ice.

As such, Bill C-73 requires the integration of indigenous knowledge into conservation efforts, and mandates respect for indigenous rights, as affirmed by section 35 of the Canadian Constitution and the United Nations Declaration on the Rights of Indigenous Peoples.

To support effective decision-making, the bill also requires that an advisory committee be established. This committee will provide independent advice to the minister on the most effective biodiversity measures to put in place. The committee will ensure that decisions are informed by scientific disciplines, indigenous knowledge, and biodiversity policy expertise at the national and international levels.

The composition of the committee ensures representation from indigenous partners, whose knowledge will complement scientific research, creating a comprehensive approach to biodiversity conservation.

This body can monitor Canada's progress towards achieving biodiversity targets, and recommend course corrections when needed. It will also help ensure the minister can stay aligned with emerging developments in science and policy.

At the heart of this bill lie a number of principles, including the principle of intergenerational equity, meaning that our actions today shape the world we leave for future generations. Bill C-73 ensures that future generations inherit a thriving environment.

The bill does not impose obligations on provinces and territories. It provides a framework for consultations and co-operation across all levels of government and society. Biodiversity conservation is a collective responsibility requiring the participation of governments, industry, indigenous partners, workers, environmental organizations and citizens alike.

To maintain the relevance and effectiveness of this legislation, Bill C-73 mandates a parliamentary review every 10 years. This review cycle aligns with the Convention on Biological Diversity's timeline for setting new global targets, ensuring that Canada's efforts remain responsive to emerging challenges and evolving commitments.

Mr. Chair, Bill C-73 represents a critical opportunity to reaffirm Canada's leadership in biodiversity conservation and environmental accountability. It provides the structure we need to deliver on our commitments, while fostering collaboration and transparency. It is also an opportunity for opposition parties to step up for Canada. This bill is being held up because the Conservative Party of Canada is holding up our important work in Parliament right now. I am calling on all parties to prioritize this bill. I hope we can come together. I look forward to working with all of you to move this important piece of legislation.

Together, we can build a future where nature thrives, ecosystems are restored and citizens have access to a prosperous future.

Thank you, Mr. Chair.

[The Chair, Liberal, Francis Scarpaleggia]

Welcome back.

Once again, we welcome the Minister of Environment and Climate Change. Joining him for this second hour are Heather McCready, director general, legislative and regulatory affairs; and Basile van Havre, director general, Canadian Wildlife Service.

We will be spending the second half of today's meeting on Bill C-73, An Act respecting transparency and accountability in relation to certain commitments Canada has made under the Convention on Biological Diversity.

Now, without further ado, I will turn the floor over to the minister.

[The Chair, Liberal, Francis Scarpaleggia]

I don't think we have the time for that, because we have to go into our second hour, which is on Bill C-73, with the minister again with us.

[Laurel Collins, NDP, Victoria, BC]

I just wanted to respond to Ms. Taylor Roy.

Really, in large part, this is because the Conservatives were filibustering. Our committee business wouldn't have gone forward without this and we wouldn't be able to tackle the climate emergency. Also, they were filibustering Bill C-73, which should have been proposed in committee business, and it was the choice of the Liberals not to do that.

[Adam van Koeverden, Liberal, Milton, ON]

Okay.

I'm concerned that we're bumping all of this important committee business, whether that's the completion of our sustainable finance study or the meeting on Bill C-73 on biodiversity, which I've been asking for for weeks and which members of this committee claim to support, yet here we are debating other things. When are we going to find time to do this, given that we have a short window ahead of us?

I'll just say again that members on the Liberal side of this committee have been in favour of a visit from the environment commissioner, and we've encouraged a visit from the minister. However, Conservative members have filibustered throughout that process and have not allowed that process to come to fruition. As we've stated, we welcome a visit from the commissioner to discuss more thoroughly how Canada will meet its climate objectives.

Thank you, Mr. Chair.

[Lloyd Longfield, Liberal, Guelph, ON]

Thanks, Mr. Chair.

I would like to say that I like the idea of the study. I really like the amendments that are being brought forward.

Mr. Sauvé, welcome. You can see that this isn't an easy committee sometimes, but it's good to set the parameters of our studies and what we're going to be focusing on.

I think that accountability of the government is definitely something that this committee needs to focus on. I also think the committee needs to continue its focus on the oil and gas industry as the major contributor.

I don't think it's in any way avoiding responsibility. I think both amendments clarify what we want to study. I don't think that leaving either of those out would help us with our parameters.

I also like the amendment that was mentioned earlier by Mr. van Koeverden, which was to make sure that Bill C-73 is also included in this agenda item that we have in front of us. I would like to see us get to that amendment.

I would love to support both the amendment and the subamendment as they're written. I'd like to see another amendment come forward that we could support on Bill C-73. Then we're set up for our schedule. We would know what we're doing and we would make sure that we hit our goal of getting these studies all done.

Thank you, Mr. Chair.

[Laurel Collins, NDP, Victoria, BC]

Thank you, Mr. Chair.

I want to say thank you to Ms. Taylor Roy for some of her comments about the climate crisis generally. I think we are in a climate emergency, and the oil and gas sector is the sector that is driving up our emissions. As much as the Conservatives might not want to admit it, that is a fact.

That said, the government is the one responsible for regulating this industry and putting in place the policies that would drive down our emissions. A strong emissions cap and all of these things are vital if we actually want to drive down our emissions generally, and specifically in the oil and gas sector.

I'm not sure how I feel about this subamendment. Honestly, I think the report from the environment commissioner is damning. It is heartbreaking. As much as the government wants to claim that it is a climate leader, we are not on track to meet 40% to 45% by 2030. We have six years, and the report lays this out very clearly. We have six years to do the majority of the reductions that we need to meet our 2030 targets. This is an emergency.

I'm hesitant, honestly, to support the subamendment, mainly because I think there's a bit of redundancy. The report talks about emissions reductions, and I think there will be an opportunity to talk about the things that we can do to reduce our emissions. I think the report itself is something that we do need to focus on, and we do need to, ideally, have the government come to terms with the fact that it's not on track, that Canada has the worst record in the G7 for emissions reductions, and that we've had unreliable emissions reductions estimates. There have been transparency issues. All of these things are really important for us to cover. I'm hesitant to have a government that wants to try to avoid those conversations.

That said, I think it's really clear that the oil and gas sector is responsible for the bulk of our emissions. It is the sector that is emitting more than any other sector. The government, unfortunately, with the emissions cap, has decided to give them a watered-down policy that allows them to continue emitting. It doesn't actually force them to bring down their emissions in the way that we are relying on other sectors to reduce their emissions. These are companies that are making record profits right now.

I have to say that in part I am also a little bit hesitant to support what the Liberals are bringing forward because Mr. van Koeverden and Ms. Taylor Roy said false things about my positions on Bill C-73. I fully support a study on Bill C-73. I've been reaching out to Liberal members, asking that we try to work together to get this motion passed, to stop the Conservatives from filibustering. I've been trying my best to get this committee to function. I am feeling a little bit frustrated with Liberal members, as I have been reaching out and trying to figure out a way to actually dig into these really important issues.

I hope that on Monday, if we have committee business, we can pass a motion on Bill C-73. It is a prestudy. That bill is not coming to committee any time soon, but I would like us to dig into it.

I think part of me is wary of this subamendment because I see the Liberals trying to avoid accountability so often, but I am still mulling it over, to be honest.

[Adam van Koeverden, Liberal, Milton, ON]

I was responding to a point of order.

Thank you, Mr. Chair.

My amendment to the motion as we've heard it is under the first section, where it says, “The committee hold a minimum of three meetings to investigate the Liberal government’s emission reduction policies”. Under (b), I would request that we have a two-hour meeting, with one hour dedicated to the commissioner's report and one hour on Bill C-73. Under (d), I would like to add at the end, after the date, December 13, 2024, “that the committee begin its prestudy of Bill C-73, an act respecting transparency and accountability, within seven days of the minister's appearance.” Once again, I'll add that it could have been more than one week ago, and we will be hearing from the commissioner of the environment in five days.

Thank you. That's it. That's my amendment, Mr. Chair.