Co-managing the herds

The Beverly and Qamanirjuaq herds of barren-ground caribou (rangifer tarandus groenlandicus) are two of six major herds of barren-ground caribou in northern Canada. Named after the lakes where they give birth to their calves, these herds are nomadic and range in northern Manitoba, northern Saskatchewan, the Northwest Territories and Nunavut. Both herds spend from April to October on the tundra before moving to or past the treeline between November to March, to winter in more sheltered areas. Today, the Beverly and Qamanirjuaq caribou herds are healthy and bountiful. Surveys conducted in the summer of 1994 estimated the Qamanirjuaq herd at 496,000 (plus or minus 105,400 according to confidence levels) and the Beverly herd at 276,000 (plus or minus 111,000 according to confidence levels).

In the late 1970s, population estimates created concern that the Qamanirjuaq herd faced possible extinction within a decade. This herd was estimated at 39,000 in 1980 -- down from more than 145,000 in the early 1950s. This appeared to be a serious decline. The Beverly herd mirrored the downward spiral. A 1980 estimate of 105,000 animals was down from 177,000 in the previous 1974 census. In hindsight, we know now that the population estimates might have been based on inadequate or inaccurate surveys.

To respond to the perceived crisis, an interim group representing government agencies was established in late 1979. Aboriginal users of the herds refused to accept population data in light of their own traditional knowledge and experiences on the land. They claimed that the animals had merely moved to another area, and that government surveys were wrong. Governments recognized that changes in management strategy were needed, but were unwilling to accept the insistence of Aboriginal people that their traditional knowledge and practices gave them the right to manage the caribou in their own way.

Slaughter a national embarassment

Then, in the winter of 1979-1980, the Beverly herd wintered in northern Saskatchewan in areas accessible by road, and 15,000 to 20,000 animals were killed. Dead animals appeared to have been abandoned on frozen lakes with only their hindquarters and/or tongues removed. Photographs and articles published in the national and international press embarrassed federal, provincial and territorial governments. Aboriginal people were blamed for this slaughter and for the decline of caribou numbers. Provincial governments said that Indians were a federal responsibility and that Ottawa should do something to control them. Ottawa took the position that caribou, being game, were a provincial/territorial responsibility, and that it was up to those governments to control the hunting of caribou. A confrontational atmosphere developed between native people and wildlife managers.

In December 1980, federal, provincial and territorial ministers met in Winnipeg to discuss the developing crisis. They agreed that co-operative action was needed and that a solution to the problem had to fully involve Aboriginal people. After a series of consultations, there was agreement to form a management board in which Aboriginal people held the majority. Eight individuals would represent Aboriginal people, and five individuals would represent the governments of Canada, Manitoba, Saskatchewan and the Northwest Territories.

In 1999, the board's composition changed to reflect the new territory of Nunavut. The board is allowed to have up to 15 members (8 to 10 as community representatives, and 5 as government representatives). Today, the Board consists of 13 members, including a chairman and vice chairman. Eight individuals represent Aboriginal people, and five individuals represent the governments of Manitoba, Saskatchewan, the Northwest Territories, Nunavut, and Canada.

Board advice heeded by governments

The BQCMB is an advisory board but governments have generally followed its advice on overall herd management and view the board as a convenient single forum for the resolution of caribou issues.

As it's turned out, board decisions are generally based on consensus. A few issues, such as the commerical use of caribou, split members but never into government/Aboriginal sides. In fact, the board is seen to work as a team with common objectives. Aboriginal people and government representatives alike have become full partners in managing the caribou resource.

For a complete history of the Board, download a copy of 20th Anniversary Report: Beverly and Qamanirjuaq Caribou Management Board 1982 - 2002, available in PDF format.