Mr. Speaker, before I begin I would like to thank all the members of the environmental and sustainable development committee for their hard work and commitment to this important piece of legislation.
As a committee we listened to a number of witnesses representing conservation groups, hunters and anglers, and native groups who all have a stake in the outcome of what we have to do today regarding this legislation.
While the state of migratory birds in Canada may seem to some as less significant and less newsworthy than bills pertaining to economic matters or crime and justice issues, it is very significant.
As this legislation has remained relatively untouched since 1917 and if the future mirrors the past then it is possible that changes to this new legislation may not occur for another 50, 60, or 70 years.
More important, the health of our migratory birds, indeed the health of all of our wildlife reflects the quality of human health.
It is with these thoughts in mind that the committee members gave very serious consideration to Bill C-23 as drafted and the subsequent committee amendments. The Migratory Birds Convention Act implements the terms of the migratory birds convention signed in 1916 by Canada and the United States.
The migratory birds convention will be undergoing renegotiation in the fall of 1994 to better reflect realities of the 1990s. Bill C-23 will support these changes.
The original migratory birds convention signed in 1916 by Canada and the United States was intended to curb blatant overhunting practices which in some instances led to the extinction of species of birds and of near extinction with other species.
As one witness told us, we were able to create an incredible success story on the northern part of this continent through the migratory bird convention and other strategies to stem the slaughter and near annihilation of certain bird species.
Conditions have changed since the turn of this century and as we approach the next century we must design and implement legislation that acknowledges and better reflects current demands.
The Standing Committee on Environment and Sustainable Development reviewed Bill C-23, heard witnesses, received briefs, and as a result decided Bill C-23 was supportable with a few additional changes.
While a separate process to address First Nations aboriginal or treaty rights is under way and will be included in negotiations to the Canada-U.S. migratory bird convention it was decided by the committee to include a non-derogation clause that clearly acknowledges aboriginal or treaty rights.
For greater certainty nothing in this act shall be construed as to abrogate or derogate from any existing aboriginal or treaty rights of the aboriginal people of Canada under section 35 of the Constitution Act, 1982.
For First Nations people migratory birds play a key role in sustaining a way of life. Migratory birds and wildlife are central to the preservation of not only First Nations culture but in some communities their nutritional survival as well.
This is not to say that conservation and sustainability are at risk. Matthew Coon-Come, Chief of the Grand Cree Council, simply and eloquently stated: "Geese first then Cree and third sports hunting".
Until negotiations to the migratory bird convention that reflect aboriginal treaty rights are complete, special enforcement measures exist that allow for traditional harvesting in closed season of migratory birds and eggs.
Another amendment to Bill C-23 allows for game officers who carry out duties or functions under the act to be exempt from any of its provisions or regulations. This will greatly facilitate the enforcement aspects of the act, as game officers will be able to undertake undercover operations with suspected offenders without fear of being charged. This should improve their ability to gather clear and decisive evidence against offenders.
Canadians value wildlife and the natural resources of this country. While a great many Canadians hunt or fish over 75 per cent enjoy wildlife through non-consumptive participation. They spent $2.4 billion on primary non-consumptive wildlife related trips and outings in 1991; $1.2 billion was spent on hunting.
Preservation of migratory birds is very important to Canadians and contributes in very positive ways to the economy.
Commercial poaching and smuggling of migratory birds pose grave risks. With this in mind, the committee spent a long time deliberating over the level of fines for offenders. After a great deal of thoughtful consideration, it was decided to increase the
fines for summary offences for individuals to a maximum of $50,000 and for a corporation to a maximum of $100,000.
Maximum fines for indictable offences have been increased for individuals to $100,000 and for corporations to $250,000. In the case of subsequent offences, the subsequent fine may be doubled from the previous offence, notwithstanding the maximums already outlined.
Some may scoff that the value of a bird being $100,000 or $250,000 is far too exorbitant. I would suggest that if they do, they do so in ignorance. No monetary value can be placed on the killing of a bird or other wildlife where that killing contributed in a real way to the endangerment of the species.
This government is committed to strengthening the participation of committees in the work of governing the country. I applaud this initiative and see as a result of this new attitude toward governing the substantial contributions made by members of the environment and sustainable development committee in proposing amendments to Bill C-23.
The final amendment I would like to address today arises from suggestions made by witnesses appearing before the committee. I believe the inclusion of this amendment strengthens the democratic process by increasing participation in that process. This amendment proposes that any amendment to the migratory birds convention be tabled in both Houses and debated in the House of Commons.
As we proceeded with the witnesses, it became quite evident that a number of other issues beyond the scope of this legislation must also be addressed if we are to truly protect and enhance the health of migratory birds.
The committee examined both Bill C-23 and Bill C-24, a bill to amend the Canada Wildlife Act. A number of concerns articulated by witnesses pertain to the wider category of wildlife, not only migratory birds.
Issues related to enforcement and habitat protection were most often identified by witnesses. From my experience with the two pieces of legislation, Bill C-23 and Bill C-24, I have come to respect the dedication and commitment shown by officials of the Canadian Wildlife Service.
However, in terms of enforcement they are in dire need of support to increase the number of game officers. Witness after witness spoke of real problems that existed because required coverage was far too vast for the number of available game officers.
As a result, it may be difficult to implement even the best legislation. Habitat protection, another key concern of witnesses, has many dimensions. Many strategies need to be deployed in order to ensure sustainability and viability.
The migratory birds convention was originally intended to deal with the severe overhunting problems that threatened many species at that time. While commercial poaching and smuggling are still significant threats, habitat protection is the number one concern for the preservation of not only migratory birds but all Canadian wildlife.
The amendment to the Canada Wildlife Act to expand the scope of coverage of wildlife to include all living organisms is a much needed change and provides not only a valuable starting point but also a valuable rethinking of what species preservation really means.
If we are really serious about preserving and protecting wildlife in this country, we must first and foremost be very serious about habitat protection. Wildlife have been called the barometer of the landscape. The capacity of the land or habitat to support fish, birds and mammals is a good indicator of its capacity to meet human needs; wildlife habitat is human habitat.
As long as we have endangered spaces in this country we will continue to have endangered species. There are a number of strategies and programs designed to rehabilitate, preserve and protect habitats.
We have entered into agreements with the United States and now recently with the Mexican government through the North American waterfowl management plan to ensure that migratory waterfowl have safe and healthy areas for nesting and feeding.
As I stated earlier in my speech, even though we have achieved a truly unique and wonderful success story in reversing the trend toward endangerment and annihilation for some species, I fear we are falling behind. Our precious wetlands, the most biologically diverse ecosystems, are under attack. They are being drained for agricultural uses and development purposes.
Toxic substances have entered our watersheds and contaminated the fish the birds eat resulting in deformities, soft eggshells that cannot withstand the pressure of parental incubation, crossed bills, jaw defects and malformed feet and joints. Forests that provided habitat protection for wildlife have been lost due to clear-cutting.
These are for the most part beyond the scope of the legislation before us. However, they are important considerations that we must not forget if we are to truly preserve the sustainability and health of migratory birds.
I urge the members of this House to support Bill C-23 and its proposed amendments fully without delay.