Funding agreement between Quebec and Canada to support Quebec’s implementation of its conservation, monitoring and protection measures for caribou populations

Funding agreement between Quebec and Canada to support Quebec’s implementation of its conservation, monitoring and protection measures for caribou populations

between

The Government of Quebec, represented by the Minister of the Environment, the Fight against Climate Change, Wildlife and Parks and the Minister responsible for Canadian Relations (hereinafter referred to as “Quebec”)

- and -

The Government of Canada, represented by the Minister of Environment and Climate Change (hereinafter referred to as “Canada”)

Hereinafter referred to individually as the “Party” and collectively as the “Parties”.

1. Preamble

Whereas, for the purposes of this Agreement, the term “caribou” refers to all the populations of the various ecotypes of Quebec (woodland, mountain and migratory);

Whereas Canada and Quebec are committed to acting to reverse patterns of decline in woodland caribou populations and the mountain caribou population in the Gaspé Peninsula;

Whereas migratory caribou and Torngat Mountains caribou populations require more effort to monitor them;

Whereas the protection of species in a precarious situation is a jurisdiction that Quebec intends to exercise fully within its territory, including the achievement of targets for the conservation and restoration of natural environments and the protection of species in a precarious situation;

Whereas the Parties recognize that the effective protection, conservation and recovery of biodiversity and species in a precarious situation and their habitat will require long-term resources;

Whereas Quebec declared itself bound by the United Nations Convention on Biological Diversity in 1992 and is responsible for implementing the Convention on its territory, and Canada ratified the same Convention in 1992;

Whereas in 2022, Quebec signed on to the objectives of the Kunming-Montreal Global Biodiversity Framework and is committed to implementing it in accordance with its jurisdictions, timetables and resources;

Whereas Canada has adhered to the objectives of the Kunming-Montreal Global Biodiversity Framework, and is committed to implementing it according to its jurisdiction and resources, and committed to achieving the Kunming-Montreal global targets for 2030;

Whereas Canada wishes to contribute $25.0 million over five years to support Quebec’s efforts on its territory to conserve and protect caribou populations and their habitat by 2031;

Whereas the Government of Quebec has been implementing, in several regions and for several years, various measures that contribute to the maintenance and recovery of caribou and its habitat;

Whereas Quebec announced various caribou conservation measures in 2024, including pilot projects for the Charlevoix woodland caribou population and the Gaspésie mountain caribou population, totalling $59.5 million for fiscal years 2024 to 2025 to 2027 to 2028;

Whereas between 2021 and 2024, Quebec invested approximately $6.7 million in additional infrastructure to support measures to manage woodland caribou populations and the Gaspésie mountain caribou population, whose status is at risk;

Whereas Canada financially supports conservation in Quebec, notably through the Financial Support Agreement for Quebec’s Nature Plan 2030 and Quebec’s implementation of the Kunming-Montréal Global Biodiversity Framework in Quebec of $100 million (2024 to 2025 to 2026 to 2027);

Whereas the Parties recognize and support Indigenous leadership in biodiversity conservation and intend to consult and involve Indigenous communities in the implementation of activities for the recovery of the species.

Now therefore, Canada and Quebec agree as follows:

2. Definitions

The following expression, used in the Agreement, will have the scope defined below:

“Agreement” means the funding agreement between Quebec and Canada to support Quebec’s implementation of its measures to conserve and protect populations of woodland caribou, mountain caribou and migratory caribou and their habitat.

“Fiscal year” means the period beginning April 1 of one calendar year and ending on March 31 of the immediately following calendar year.

3. Interpretation

Under this Agreement, neither Party renounces its powers, privileges, prerogatives and immunities.

This Agreement does not create any new legal powers, nor does it alter the functions, obligations and powers conferred, in particular by the laws in force.

This Agreement is without prejudice to the jurisdiction, rights, remedies and claims of either Party with respect to the protection and recovery of species in a precarious situation and must not be interpreted as reducing or affecting any such jurisdiction, rights, remedies and claims.

No representation or warranty, express, implied or otherwise, is made by the Parties except as expressly set out in the Agreement. The following appendices are attached to, and form part of this Agreement:

Appendix 1 - Quebec’s Priorities for Caribou Conservation and Recovery

Appendix 2 - Payment Terms and Conditions and Eligible Expenditures

4. Objectives of the agreement

The purpose of this Agreement is to establish the terms and conditions, obligations and commitments under which Canada will provide funding to Quebec in consideration of the implementation of measures described in Appendix 1 in support of the conservation and recovery of caribou in Quebec.

5. Duration of the agreement

The Agreement will take effect upon the last signature being affixed and will remain in effect until March 31, 2031, unless terminated in writing by Canada or Quebec in accordance with the terms of Section 14. In accordance with Section 7, funding provided under this Agreement will cover the five fiscal years from 2026 to 2027 to 2030 to 2031.

The parties agree that, for the period subsequent to that covered by this Agreement, the Agreement will be renewed by mutual agreement between the Parties.

6. Contribution for the recovery of Quebec Caribou

Subject to the approval of appropriations by Parliament, Canada commits to transfer to Quebec a maximum amount of $25.0 million during fiscal years 2026-2027 to 2030-2031.

The Parties agree that Canada’s role in any project is limited to its financial contribution, and that Canada will not be involved in the implementation and completion phases. Canada is neither a decision-maker nor an administrator under the Agreement but can provide funding directly to Indigenous communities to complement Quebec’s contribution.

7. Payment of the contribution

The payment of the contribution to Quebec by Canada will be allocated in accordance with the amounts listed in the Contribution Breakdown Table by Fiscal Year:

After 2030 to 2031, Canada, subject to Parliamentary appropriations, may seek to renew funding to continue to support Quebec’s actions in caribou conservation and recovery and socio-economic revitalisation.

By 2028, Quebec could seek, subject to Parliamentary appropriations, a renewal of funding for the Agreement for the years 2028 to 2029 to 2030 to 2031. This renewal is conditional on the provision of federal funds for those same years.

8. Appropriations

Notwithstanding any other provision in this Agreement, funding is dependent on an appropriation of funds by the Parliament of Canada and the National Assembly of Quebec for the fiscal year in which payment is to be made.

Canada and Quebec may reduce or terminate any payment under the Agreement in response to the reduction of appropriations or departmental funding levels in respect of transfer payments, the Program under which the Agreement was entered into or otherwise, as evidenced by an appropriation act or the main or supplementary estimates expenditures of Canada and Quebec.

The Parties will not be liable for any direct, indirect, exemplary or punitive damages, regardless of the form of action, whether in contract, tort/extracontractual liability or otherwise, arising from any such reduction or termination of funding.

9. Use of contribution funding

Given that Quebec is responsible for the conservation of biodiversity and the recovery of species in a precarious situation on its territory, Quebec intends to use the federal contributions made under this Agreement to support additional measures for the implementation of priority actions for the conservation and recovery of caribou, including those identified by Quebec as an example in Appendix 1.

Federal funds will be disbursed into a single fund managed by the MELCCFP for the purposes set out in this Agreement.

10. Reports

Quebec is committed to transparency and public dissemination of its environmental actions and progress. In this context, Quebec undertakes to make public, each year, information related to actions designed to monitor populations and conserve caribou and its habitat on its territory. This information will serve as a form of accountability to the people of Quebec.

No later than 60 days after the end of each fiscal year concerned, Quebec will provide Canada with a public report of the expenditures incurred, as well as the programs, activities and initiatives funded during the previous year.

Evaluations, audits and other reviews relating to the funding Agreement may be made public.

11. Communications

Canada and Quebec recognize the importance of ensuring that the public is informed of Canada’s annual financial contributions to Quebec under this Agreement.

Canada and Quebec agree to participate in a joint announcement when the Agreement is signed.

In addition, Canada and Quebec also agree to participate jointly in any ministerial-level announcement on caribou conservation and recovery related to this Agreement. Operational communications are not affected by this commitment.

Lastly, the Parties’ representatives will set up an Agreement Monitoring Committee to encourage the sharing of information.

The Parties must comply with the following terms and conditions with respect to communications. Quebec acknowledges that the following information may be made publicly available by Canada:

1. its name, the amount awarded by Canada and the general nature of the contributions; and
2. any results achieved and evaluation of Canada’s programs related to the Agreement. Where appropriate, Canada will provide Quebec with an opportunity to respond in writing to the report.

1. Purpose

1. The communications procedures outline the roles and responsibilities of each of the Parties regarding communications activities relating to contributions.
2. These communications procedures guide the planning, development and implementation of all communications activities to ensure that the public receives clear, consistent and coordinated messages.
3. The provisions of these communications procedures apply to all communications activities related to the Agreement, but only with respect to those activities for which a sum from Canada’s $25.0 million contribution is allocated.

2. Guiding principles

1. Communications activities (joint and individual) will follow the Parties' respective communication policies to ensure that the public receives consistent information about the Agreement and its contributions.
2. Where appropriate, Canada and Quebec may organize joint communications on project financing to inform the public through clear, consistent and coordinated public information activities.
3. Communications related to the Agreement should start only once the Agreement has been signed and can be planned jointly throughout the duration of the Agreement. This may include the initial funding announcement, progress updates and/or the completion of individual funded initiatives.
4. Unless otherwise agreed by the Parties, all communication products related to this Agreement must acknowledge the funding from Canada and Quebec.
5. The performance of activities and the distribution of communications products to the public should not occur without the prior knowledge and agreement of the Parties.

12. Representatives of the parties

The MELCCFP designates as its representative for the purposes of carrying out the Agreement:

Mr. Jacob Martin-Malus, Assistant Deputy Minister
Sous-ministériat adjoint à la biodiversité, à la faune et aux parcs
Ministère de l’Environnement, de la Lutte contre les changements climatiques, de la Faune et des Parcs

675 René‑Lévesque Boulevard East, 30th Floor
Quebec City QC  G1R 5V7

Tel. 418-521-3860, ext. 4063
Email: jacob.martin-malus@environnement.gouv.qc.ca

Environment and Climate Change Canada designates as its representative for the purposes of carrying out the Agreement:

Ms. Tara Shannon
Assistant Deputy Minister, Biodiversity and Canadian Wildlife Service
Environment and Climate Change Canada

Place Vincent Massey Building
351 St. Joseph Blvd
Gatineau, Quebec K1A 0H3

Email: Tara.shannon@ec.gc.ca

In each case, should a replacement become necessary, each Party undertakes to notify the other in writing as soon as possible.

13. Dispute resolution

The Parties will keep each other informed of any issue that could be contentious. Canada and Quebec are committed to working together and avoiding disputes through government-to-government information exchange, advance notice, quick consultation, and discussions and clarifications to resolve issues as they arise.

Should a dispute arise between the Parties with respect to the interpretation and/or implementation of any of the terms and conditions of this Agreement, the Monitoring Committee (s. 11) will be the first instance to deal with the dispute. If a dispute persists, either Party may notify the other, in writing, of its concerns. Upon receipt of such notice, Canada and Quebec will endeavour to resolve the issue in dispute in whatever manner is deemed appropriate by the designated representatives.

In the event a dispute cannot be resolved by the designated representatives, the issue will be referred, in the first instance, to the federal Deputy Minister of the Environment and Climate Change and Nature and the Quebec Deputy Minister of the Environment, the Fight Against Climate Change, Wildlife and Parks and, in the second instance, to the federal Minister of the Environment and Climate Change and Nature and the Quebec Minister of the Environment, the Fight Against Climate Change, Wildlife and Parks.

14. Modification and termination of the agreement

This Agreement may be modified at any time if the Parties mutually agree to do so in writing, subject to any required approvals. Any modification will become effective on the date agreed by the Parties. A Party may terminate this Agreement by providing the other Party with at least 90 days written notice.

15. Disclaimer

The failure or delay by a Party to exercise any of its rights, powers or remedies under this Agreement does not constitute a waiver of such rights, powers or remedies. Any waiver by either Party of any of its rights, powers or remedies under this Agreement must be in writing and, unless explicitly stated, such waiver does not constitute a continuing waiver.

16. General

This Agreement will be interpreted in accordance with the laws in force in Quebec.

Canada will make public the entire Agreement by posting it on a Government of Canada website.

No member of the House of Commons or the Senate of Canada or of the National Assembly of Quebec shall be a Party to or derive any benefit from this Agreement, in whole or in part, by contract or commission.

If, for any reason, a provision of this Agreement that is not a fundamental term is found to be invalid or unenforceable, in whole or in part, it will be deemed to be severable and will be deleted from this Agreement, but all the other provisions of this Agreement will continue to be valid and enforceable.

The Parties will comply with their respective language requirements.

17. Notice

Any notice, information or document provided for under this Agreement will be effectively given if delivered or sent by email or by letter, postage or other charges prepaid.

Any notice that is delivered will be deemed to have been received on delivery and, except in periods of postal disruption, any notice mailed will be deemed to have been received eight calendar days after being mailed.

The address for notices or communications to Canada will be:

Environment and Climate Change Canada
Place Vincent Massey Building
351 St. Joseph Blvd
Gatineau, QC  K1A 0H3

The address for notices or communications to Quebec will be:

Secrétaire général du ministère de l’Environnement, de la Lutte contre les changements climatiques, de la Faune et des Parcs
425 Jacques-Parizeau Street
Quebec City QC  G1R 4Z1

18. Signatures

The Agreement is signed on behalf of Canada by the Minister of the Environment, Climate Change and Nature and on behalf of the Government of Quebec by the Minister of the Environment, the Fight Against Climate Change, Wildlife and Parks and the Minister responsible for Canadian Relations.

The government of Canada
Julie Dabrusin
Minister of the Environment, Climate Change and Nature

Date

The government of Quebec
Pascale Déry
Minister of the Environment, the Fight Against Climate Change, Wildlife and Parks

Date

Jean Boulet
Minister responsible for Canadian Relations

Date

Appendix 1 – Quebec’s priorities for Caribou conservation, monitoring and recovery

A. Preamble

Quebec has implemented several measures to contribute to the recovery of woodland caribou populations and the Gaspésie mountain caribou population. In particular, Quebec has one of the best systems for monitoring populations of all caribou ecotypes, which makes it possible to improve knowledge of different populations and assess their status by monitoring their distribution, abundance, demographic trends and the health status of individuals. This system helps guide the implementation of conservation measures for populations and their habitats and will help assess their effectiveness.

Caribou conservation measures are divided into two broad types: caribou population management measures and habitat management measures. Population management measures are part of Quebec’s overall approach, complementing habitat conservation actions, to promote the maintenance and, ultimately, the recovery of at-risk caribou populations. Quebec is currently concentrating its efforts of holding caribou in captivity in Val-d’or, Charlevoix and Gaspésie, as well as on predator management measures to reduce the impact of predation on the populations most at risk.

Quebec is currently developing various habitat conservation measures for woodland caribou and the Gaspésie mountain caribou through a comprehensive strategy-based approach (Strategy). The objective is to adequately meet the needs of caribou in order to ensure both their sustainability and the vitality of Quebec and its regions. To this end, the Strategy will include habitat restoration measures and measures to control activities in the areas identified for caribou conservation in a manner that takes into account their needs. Conservation measures for woodland caribou and the Gaspésie mountain caribou represent a unique opportunity to progress towards the targets of the 2022 Kunming-Montreal Global Biodiversity Framework, including the conservation target (target 3), the restoration target (target 2) and the target to urgently reduce the risk of species extinction (target 4). The measures will also contribute to the objective of conserving 50% of the territory north of the 49thparallel under the Act respecting the Société du Plan Nord.

In addition, the safeguarding of large undisturbed and connected tracts of forest for the needs of caribou will contribute to Quebec’s objectives in the fight against climate change by constituting, in some places, excellent carbon reservoirs while representing refuges that promote the adaptive capacity of boreal woodland species or corridors to facilitate their dispersal to better conditions.

The Strategy will also contribute to strengthening bilateral relations with Indigenous communities, which have a relationship with caribou spanning millennia.

For the declining migratory caribou populations and the Torngat Mountains caribou population, population monitoring is imperative.

Key steps in the development of the “Strategy” for woodland caribou and the Gaspésie mountain caribou.

Phase 1

The public consultation on pilot projects for the Charlevoix woodland caribou population and the Gaspésie mountain caribou population took place from April 30, 2024, to October 31, 2024. The consultation report was published on January 9, 2026. Indigenous consultations continue on an ongoing basis. Project adjustments are under consideration to produce a new version of the pilot projects.

Phase 2

Separate consultations with the First Nations concerned were initiated on conservation measures for the territories of the Val-d’or and Pipmuacan populations, as well as the other populations in Saguenay-Lac-Saint-Jean.

Phases 3 and 4

Separate consultations with the Indigenous communities concerned by the territories covered by the agreements in northern territories, the Detour population and consultations on the last territories located on the North Shore will be initiated at a later stage (schedule to be determined).

Government of Quebec’s financial contribution ($M)

Quebec has allocated $59.5 million from 2024 to 2025 to 2027 to 2028 to support various conservation measures for caribou and its habitat (woodland caribou and Gaspésie mountain caribou).

B. Federal government support for Quebec’s activities and priorities

Quebec will use the majority of the Government of Canada’s funding primarily to improve measures in a comprehensive approach based on the Strategy (woodland caribou and Gaspésie mountain caribou). This funding supports conservation and recovery objectives for caribou populations and habitat.

To a lesser extent, funding will also be used to better monitor migratory and Torngat Mountains caribou populations. Quebec also wants to improve the management of these herds by promoting communication and collaboration between stakeholders.

Eligible activities under the Agreement fall into one of the following categories and must result in:

• Habitat management and restoration measures:
  • Development and implementation of frameworks of activities in the territory and development of measures to promote the adherence of partners
  • Protection of habitat from natural disturbances
  • Habitat restoration work
  • Designation of protected or conserved areas
• Population management measures:
  • Management and maintenance of maternity and conservation pens
  • Infrastructure improvements
  • Caribou supplementation
  • Monitoring and management of predators
  • Surveillance of users of the territory
• Participation of Indigenous communities in the protection of the species:
  • Population monitoring and population management measures (predator monitoring and management, pen management, etc.)
  • Consultations on management measures (populations and habitat)
  • Implementation of habitat management measures
  • Knowledge acquisition projects or programs
  • Communications
  • Development and dissemination of awareness and education tools
  • Knowledge exchange and discussion workshops
• Monitoring of migratory caribou and Torngat Mountains caribou populations

Quebec will use the funds to develop, plan and implement measures and actions for the conservation and recovery of caribou and their habitat. The sums provided for in this Agreement may not be used to reimburse expenditures already incurred by Quebec in the course of its own activities.

Appendix 2 - Payment terms and conditions and eligible expenditures

The Government of Quebec undertakes to make public, each year, information related to actions designed to monitor populations and conserve caribou and their habitat on its territory. This information will serve as a form of accountability to the people of Quebec.

Following the tabling of this report, ECCC will transfer the amount established for this fiscal year to the Government of Quebec within a maximum of 60 days of receipt of the report.

For the purposes of this Agreement, expenditures for each of the initiatives, measures and actions for the conservation and recovery of caribou and caribou habitat are eligible and include the following expenditures:

• Salaries and benefits 
• Management and professional services , examples (but not limited to): 
  • Translation, audit and publication costs 
  • Service contracts for veterinary care 
• Travel and accommodation expenses, examples (but not limited to): 
  • Chartering, accommodations and travel, including monitoring of sampling, off-trail snowmobilers and land users
• Fees associated with Indigenous participation
  • Travel 
• Materials and supplies, examples (but not limited to):
  • Printing, production and distribution costs and other communication tools
  • Food for caribou  
• Purchase or lease of equipment and vehicles, examples (but not limited to):
  • Purchase of telemetry collars 
  • Veterinary equipment 
  • Fuel 
• Infrastructure development and maintenance, examples (but not limited to):
  • Maintenance of existing enclosures
  • Trapping equipment
  • Snow removal from enclosures and access roads
  • Monitoring of captive-holding facilities
  • Facilities for caribou needs 
• Costs associated with research and knowledge acquisition projects or programs or analysis costs, examples (but not limited to):
  • Genetic laboratory testing
  • Collection and analysis of samples
• Any GST/HST that is not reimbursable by the Canada Revenue Agency and any PST that is not reimbursable by the provinces; and any other incremental expenditures directly related to the project may be considered in exceptional circumstances if pre-approved by the Minister of ECCC or his/her representatives