Ground-breaking Co-management i n the Split Lake Resource Management Area of Manitoba , Canada

Settlement i n June 1992, o f the N o r t h e r n F l o o d Agreement between Mani toba , Canada, Mani toba H y d r o and the Split Lake Cree First N a t i o n resulted i n the establishment o f the Split Lake Resource Management Board ( S L R M B ) w h i c h is comprised o f community representatives and government appointees. T h e responsibilities o f the S L R M B include: developing annual programs and budgets, conducting wildlife population and habitat assessments, developing land and resource plans, moni tor ing resource use, and reviewing land use and management proposals. T h e Board's m a n date extends to management o f all natural resources including several distinct caribou (Rangifer tarandus) populations w h i c h frequent the Split Lake Resource Management Area ( R M A ) . After one year o f operation, the S L R M B has several accomplishments. Its success is attributable i n part, to the Board's effective m i x o f Split Lake Cree First N a t i o n and government o f Mani toba appointees. A good communicat ion strategy has also been crucial for increasing understanding about the board, delivering essential resource management messages, and soliciting input at the community level. Rapport , teamwork, credibility and a resulting "strong voice" have set the framework for the S L R M B to play a significant role i n resource management i n a large part o f northern Manitoba .


Split Lake settlement
Beginning in the 1970s, the regulation of Lake Winnipeg and diversion of the Churchill River in northern Manitoba, has drastically impacted many resources and the communities which depend on those resources (Norway House, Cross Lake, Nelson House, York Land and Split Lake).In 1977 the Northern Flood Agreement (Department of Indian Affairs and Northern Development, 1977) between the governments of Manitoba and Canada, the Manitoba Hydro-electric Board and the Northern Flood Committee Incorporated, set the framework for assessing impacts on natural resources and ensuring impact compensation.Under this agreement, communities were assured of damage compensation and involvement in development decisions within their respective Registered Trapline Zones.Those users with an existing "right as law" (defined by the existence of the Registered Trapline Zones) would be allowed continued use at current levels.In the early 1990s, settlement of outstanding claims under a "global settlement" was attempted by all parties to reduce costs and facilitate development in northern Manitoba.However, negotiations broke down because of disagreements among the communities over settlement priorities.
In June 1992, a separate comprehensive settlement was negotiated between the Split Lake Cree First Nation, the governments of Canada and Manitoba and the Manitoba Hydro-electric Board (Canada et ai, 1992).The agreement included settlement terms for: monetary and land compensation, water management, establishment of easements, land-use permits, integrated land-use and resource management, environmental monitoring (approximately $1.5 million), economic and social development (approximately $12 million), resource compensation funding and social development (approximately $11 million), remedial works (approximately $13 million), and implementation (approximately $4 million).In addition, terms and conditions were established for project employment, creation of a Split Lake Cree Distribution Company and operation of a trust account (Tataskweyak Trust).Upon approval, the trust account can be used for natural resources projects, including caribou management.

The Split Lake Resource Management Board
The Split Lake Resource Management Board (SLRMB), formed in December 1992 under Article 5 of the Split Lake Settlement (Canada et al., 1992), comprises five members appointed by the government of Manitoba and five members appointed by the Split Lake Cree First Nation.The government appointees are selected to reflect the interests of the Manitoba government departments of Natural Resources and Northern Affairs, Manitoba Hydro, and the Manitoba Mining Association.The Split Lake Cree appointees are members of the community of Split Lake and include councillors and elders.As defined in the Split Lake Settlement (Canada et al., 1992), the objective of the SLRMB is to ensure that "Integrated Land Use and Resource Management is...achieved" (Article 5.2.1.,Canada et al., 1992).The Board's responsibilities are summarized in Figure 1 and include the following specific obligations (Canada et al., 1992): (1) to promote integrated land and resource use (2) to assess consumptive and non-consumptive resource use (3) to monitor resource use (4) to investigate populations and habitats (5) to identify measures to preserve and enhance areas of special significance (through land use plans, zoning, and monitoring) and ( 6) to review specific plans for forest, land and water management, harvesting of resources, extraction of minerals and commercial interests.The jurisdiction of the SLRMB extends throughout the Split Lake Registered Trapline Zone, which is referred to as the Resource Management Area (RMA) (Fig. 2).

Annual program and budget
The SLRMB is responsible for developing and recommending annual programs and budgets which are to be shared between the government of Manitoba and the Split Lake Cree First Nation.For the fiscal year, 1993-1994 the SLRMB agreed to combine the Board's funding with technical assistance, office support and travel contributions from both parties, totalling approximately $187,000.This budget was used to support a chairperson, a secretariat, a local Project Manager, resource planning experts, and a wide range of resource management activities including biological surveys, collection of traditional land-use knowledge and publication of Board newsletters and an annual report.While much of this work has been done within existing government structures, both parties recognize the work as being specific, and accountable to, the Split Lake Settlement (Canada et al., 1992).At the time of this writing, proposed activities for the fiscal year 1994-1995 include continuance of wildlife monitoring, development of locally-based conservation and education programs, development of a fire-watch program, development of a fish stocking program, land-use mapping, as well as providing technical and travel support for the Board.

Caribou and the Split Lake RMA
The RMA is within the range of several caribou herds (Fig. 2) including the Qamanirjuaq barrenground (R. tarandus groenlandicus) herd, the migratory Cape Churchill woodland caribou (R. tarandus caribou) herd, the Pen Island woodland caribou herd (R. tarandus caribou) and other small resident woodland caribou (_R.tarandus caribou) herds.In the winter of 1991-1992and 1993-1994, the Pen , the Pen Island caribou ventured further inland than usual (C.Elliott, pers.comm.), bringing them close to the communities of Split Lake, York Landing, Ilford and Gillam.In anticipation of additional harvest by treaty Indians, the government of Manitoba reduced the hunting season and increased their public information efforts in the affected communities.Public information emphasized the role of migration in bringing the Pen Island Caribou Herd into the range of many communities, rendering it an important regional, rather than local, resource.These efforts were effective in eliciting an informed and conservation-based response from the communities, largely because a good working relationship had previously been established between the government and the communities.
The SLRMB has established its monitoring and coordination role, recognizing that a lot of the ground work through cooperative initiatives from field staff has been done effectively and has eased its task considerably.The community liaison aspects are day-to-day business in this region, and not an agreement-based obligation.As part of the SLRMB's efforts to ensure long term management of caribouhuman interactions, the Board is planning to develop an information package designed to increase community awareness of management of the Pen Island Caribou Herd.Key concepts to be incorporated into this package include: the significance of migration, the concept of sustainable harvest and its importance in setting harvest levels, and the range of communities dependent on this caribou herd.
The Split Lake Settlement (Canada et al, 1992) stipulates that the SLRJV1B shall develop and recommend land use plans to guide development policies and decisions by the government of Manitoba and the Split Lake Cree First Nation, including resource management plans for the RMA or any portion of it.Both the Split Lake Cree First Nation and the government of Manitoba have directed the Board to proceed quickly on these initiatives.At present, all requests for resource allocations are referred to the SLRMB until land use and resource management plans are completed and approved.The Board has therefore focused its activities on compiling base line data and traditional information on ecosystem components.Moose (Alces alces) was a priority in 1993-1994, because of its consistent and traditional value to the residents, demand from subsistence users, and requests from recreational hunters and outfitters for non-resident use.Caribou are next for concerted management efforts.To date, the Board has recognized sensitivity of caribou to disturbance and access by recommending stringent conditions for mining exploration, to be conditions of the Department of Natural Resources annual work permit.

Conclusions
(1) After just over one year of operation, the Split Lake Resource Management Board has rapidly coalesced into an effective and credible team founded on trust and cooperation among the representatives from the Manitoba government and the Split Lake Cree First Nation.
( (5) Woodland caribou management, including assessment of populations, distribution, harvest, and development proposals in relation to key habitats, will require priority attention starting with the 1994-1995 program-year.Public information and communication will be key components of the Board's approach.
(6) The mandate of the SLRMB is to bring about cooperative resource management and to manage key wildlife and fisheries species to ensure their sustainability in the face of development, local and Provincial needs, public demand, and habitat changes.
(7) The SLRMB is being assessed and evaluated by other Communities and First Nations across Manitoba and elsewhere, for its effectiveness and value in co-management.It can set the standard and template not only for co-management agreements, but also for a positive, productive and effective working relationship between government and aboriginal people.

Fig. 2 .
Fig. 2. Approximate distribution of Caribou herds in theSplit Lake Resource Management Area.

• To recommend how lands and resources in the Resource Management Area can be used. Land Use Plans Resource Management Plans • basic planning statement • zoning of land and waters • protection of wildlife habitat • preservation of culturally significant lands and waters • development of policies regarding cabins for commercial harvesters • outlining of procedures for land use applications including permits and leases • fish and wildlife harvesting methods and quotas • fish and wildlife protection and enhancement • procedures for fish and wildlife and other resource use applications including permits and licenses • enforcement of plans • commercial uses of resources including tourism and sports fishing 1 1
Fig. 1.Responsibilities of the Split Lake Rescource Management Board.