ICMM - International Council on Mining & Metals

CASE STUDY

Canada's mineral and energy resource assessments

Background

Canada’s national parks and other protected areas are created mainly to protect biodiversity, specific species and wildlife habitat; to preserve ecological integrity; and to ensure public access to outstanding natural areas for recreation and tourism. Protected areas are critical to the long-term health of society, while stimulating and maintaining the economy. Mining is also recognised as critical to the wellbeing of the economic and social fabric of Canada; mineral and energy resources constitute more than 30 per cent of Canada’s exports.

Although mineral activities are prohibited in many protected areas and all national parks, under the Whitehorse Accord of 1994 decisions to withdraw any lands from mineral activity must be based on all relevant technical, environmental, social and economic information. This includes information on mineral potential that is gained through unbiased mineral resource assessments.

The MERA Process

The Mineral and Energy Resource Assessment process, established in 1980, is the primary means whereby the Department of Indian and Northern Affairs Canada, Parks Canada, Natural Resources Canada (NRCan) and the territorial governments co-operate in conducting mineral and energy resource assessments. Because MERAs are done before national parks are established in Nunavut, the Northwest Territories and the offshore of Canada, the assessment process is an integral part of establishing a national park.

Sequence of Steps in Conducting a MERA

• Parks Canada informs the MERA Working Group of natural areas under study.
• MERA Working Group provides available information on potential natural resources.
• Parks Canada selects a potential park area.
• Geological Survey of Canada (GSC) sets Terms of Reference for the mineral and energy resource assessment.
• Senior MERA Committee approves the Terms of Reference, with revisions if necessary.
• Parks Canada informs public that a MERA will be conducted for the area of interest.
• Parks Canada prepares documents for Senior MERA Committee and the public on natural and cultural resources of the area and social and economic implications of the proposed park.
• GSC undertakes mineral and energy resource assessment, including field and laboratory analyses to bring information base up to modern standards.
• GSC rates the mineral and energy potential of the area.
• Territorial government conducts a hydroelectric power assessment, if necessary, and presents results to Senior MERA Committee.
• The Minerals and Metals Sector of NRCan and other members of the MERA Working Group prepare comments on strategic and economic value of resources of the area to the territory and to Canada.
• Parks Canada presents a park proposal to the Senior MERA Committee.
• MERA Working Group presents technical reports and recommendations on a proposed park boundary to the Senior MERA Committee.
• Senior MERA Committee makes recommendations to the Minister of Indian Affairs and Northern Development on a Government of Canada negotiating position toward park establishment.
• Parks Canada consults with the general public on the park proposal.
• After negotiations with any affected Aboriginal/Inuit group, the Minister of Indian Affairs and Northern Development may recommend a change in the withdrawn lands to reflect the negotiated boundary and to set up some interim rules on land use while the Parliamentary procedure runs its course.

Federal geoscientists are essential to the MERA process. Unbiased research scientists develop mineral deposit models, collect the geoscience information necessary as part of resource assessments and play an integral role in providing stakeholders and policymakers with the results. The experts’ national and international knowledge of mineral deposit and hydrocarbon analogues (such as mineral deposit models and petroleum play histories) is required to translate geoscientific data into assessments of resource potential. The field programmes conducted by the federal scientists bring a consistent level of expertise and adapt national methods of mapping and of geochemical and geophysical surveying to specific areas of interest.

First Phase of a MERA

MERAs are conducted in two stages: preliminary research and, if more information is needed for a final decision, comprehensive field and laboratory studies followed by data analysis. In the first phase, scientists follow five distinct steps:

• Clearly define the study area in partnership with the other government agencies to ensure that the objectives do not change part way through the assessment. Also, geologic units and processes are not necessarily confined to areas defined by politics, climate, drainage or other natural events. MERA study areas are commonly larger than the park proposal.
• Compile geoscience data from existing sources. Typical data collected at this stage from previously completed work would include bedrock geologic maps, quaternary geology maps (surficial cover), geophysical survey data, geochemical survey data and mineral deposit/occurrence data.
• Establish potential deposit types that may occur within the study area.
• Establish ‘conceptual models’ for these deposit types.
• Prepare an initial assessment of resource potential based on the data collected. Once it has been established which deposit models are suitable, the potential for occurrence of these deposit types in the study area is assessed. Seven categories are defined, from very low potential to very high.

Based on the results of Phase I, a Senior MERA Committee makes one of four recommendations. The advantages of a park could outweigh the value of potential non-renewable resources within the study area and thus the committee would recommend that the park be created. The study area could have too much non-renewable resource potential to be considered for a national park, and another candidate area should be chosen. Park creation could proceed but boundaries would be modified to exclude areas of high mineral potential. And last, more information could be required before a final decision is made, so a Phase II study would be recommended.

Second Phase

In Phase II, the highest priority for the work plan is to ensure that knowledge of the bedrock and surficial geology is current and comprehensive. Due to the current limits on government resources and the logistical challenges of non-destructive fieldwork in pristine remote areas, geological mapping is usually thematic and targeted. Scientists use geospatial and geostatistical tools to normalise results over the study area, systematically go through a check list of deposit types and their essential characteristics and subjectively determine the potential of each deposit type for each resource assessment domain. Of course, resource assessments are a snapshot in time based on existing, incomplete knowledge. Though cost and time constraints preclude it, ideally it would be best to re-evaluate each area at regular intervals to reflect changes in data availability and so on.

Conclusions

Improved geological knowledge increases policy-makers’ confidence that parks can be established without seriously compromising future non-renewable resource development. Overall, the MERA process has been an effective tool for sustainable development by encouraging balance, coordination and partnerships involving Canada’s mineral and energy industry, agencies creating protected areas for environmental objectives, and individuals and organisations representing various stakeholder groups, especially the local residents of the lands in question.