Management Consultants. Prairie Shelterbelt Program Evaluation - Benchmarking Study - Prepared For: Agriculture and Agri-Food Canada Review Branch

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1 Prairie Shelterbelt Evaluation - Benchmarking Study - Prepared For: Agriculture and Agri-Food Canada Review Branch Prepared By: July 13, Research Drive, Saskatoon, Saskatchewan, Canada S7N 3R3 Telephone: (306) Facsimile: (306)

2 Prairie Shelterbelt Evaluation - Benchmarking Study - Table of Contents Page 1.0 Introduction Benchmarking Methodology Evaluation Questions Appropriateness Cost Effectiveness Management Effectiveness Best Practices Comparative Analysis 6

3 Benchmark Study Prairie Shelterbelt INTRODUCTION{TC "1.0 INTRODUCTION" \L 0001} During the 2003/2004 Agriculture and Agri-Food Evaluation Plan, the Shelterbelt Centre, and its associated programs, has been selected for a formal assessment. A component of the evaluation is to complete a Benchmarking Study to compare the products, services and practices of the Shelterbelt Centre with those of other like-minded programs. The results of the Benchmarking Study will provide information that will help to address the evaluation questions that are found in the Evaluation Framework. 2.0 BENCHMARKING METHODOLOGY{TC "2.0 " \L 0001} In order to identify suitable tree planting and distribution programs for comparative analysis, a preliminary scan of operating programs was completed. In cooperation with AAFC Audit & Evaluation Team, conducted a literature search for similar tree planting and shelterbelt-style programs and services. A total of twenty-eight programs and services were identified where there appeared to be similar program characteristics, goals and objectives. Initially, tombstone information for each of the twenty-eight programs was prepared. contact information and a short description of the programs were documented. The results of the preliminary scan were reviewed to select a group of twelve to fifteen (12-15) programs that warranted further investigation. In order to gather consistent information on a select number of programs and services, a checklist and interview guide was prepared. Using this guide, telephone interviews were conducted with the managers of individual programs in order to prepare in-depth profiles. The average duration of the interviews was forty-five minutes. These interviews were often supplemented by the interviewee forwarding additional print materials as well as a thorough review of program websites.

4 Benchmark Study Prairie Shelterbelt 2 During the interview process, it became apparent that some programs were not good candidates for profiling due to general program inactivity, dissimilar programming goals or due to a lack of focus on related programming activities. Where possible, a geographic distribution of programs and services was sought. A total of ten programs were profiled in order to conduct a benchmarking comparison. A concise comparison is provided in Section 5.0 where program highlights are documented in a tabular format. 3.0 EVALUATION QUESTIONS{TC "2.0 " \L 0001} Within the Evaluation Matrix that was developed for the Prairie Shelterbelt (PSP), there are a series of evaluation questions that can be addressed by analyzing the data collected through the Benchmarking Study. In this section of the report, questions are identified with a response derived from the study. 3.1 Appropriateness{tc "2.0 " \l 0001} In what manner and to what extent does the PSP: - complement other programs within the Department? - overlap or displace other similar seedling distribution? - work at cross purposes with other programs within agriculture and beyond agriculture? - network with other programs/organizations within agriculture and beyond agriculture? PSP works in a complementary fashion with several other national and regional organizations to accomplish broad-based goals and objectives. For example, with the Partners in Habitat Development program in Alberta, PSP provides all trees and shrubs as a free service. This is done because the Habitat works to advance the same goals and objectives that PSP has for the region. With Alberta-Pacific, a private sector company, PSP has a breeding partnership that develops hybrid poplar stock. This stock is used in reforestation programs. PSP works complementarily with the Sask Power Shand Greenhouse

5 Benchmark Study Prairie Shelterbelt 3 by cross promoting each other's programs and services. According to Shand Greenhouse, the 'Our Treehouse to You' program is intended to be a supplement to the PSP initiatives. Alberta Nurseries/Marketland Corporation used to work in cooperation with the Government of Alberta to deliver the Alberta Shelterbelt. Recently, the Alberta provincial government withdrew any responsibility for shelterbelt programming. This action left Alberta Nurseries with the opportunity to carry on the program. As of 2003, Alberta Nurseries/Marketland Corporation has been in a situation of competition with PSP, much like other for-profit nurseries. According to nursery staff, landowners choose to work with Alberta Nurseries because the seedling selection is different and the cost has been reduced to slightly above cost of production to make it attractive. There are no participation restrictions. For the most part, PSP provides tree seedlings and shrubs to larger farm operations for shelterbelt, windbreak and wildlife habitat uses while Alberta Nurseries/Marketland Corporation and Shand Greenhouse provide a quality seedling to smaller operations that are pursuing smaller planting projects. PSP has a broad network with numerous other regional, national and international programs. Breeding information, insect and disease research, technology transfer information, etc. is shared openly with other government operated programs and private sector nurseries. For example, Lincoln-Oakes Nurseries in North Dakota works in cooperation with PSP to address research and technology transfer issues. PSP has this type of working relationship with several programs and nurseries. 3.2 Cost Effectiveness{tc "2.0 " \l 0001} What alternative programming is possible for the activities of seedling distribution, information/technology dissemination and research? In many of the U.S. shelterbelt, wildlife and environmental programs, the distribution of tree and shrub seedlings is administered as a cost-share program. Farmers and program participants are reimbursed by various levels of government so that the out-of-pocket expenses are significantly reduced. For some programs the reimbursement is 50% while for others it may be as much as 100%.

6 Benchmark Study Prairie Shelterbelt 4 Another option is to operate programs at a 'break-even' level so that the actual cost of the program is borne by the users and not by the government. For example, the Maitland Valley Conservation Authority program manages a breakeven program where the program's staff members take a proactive role in promoting the benefits of land and environmental management through shelterbelts. Aggressive advertising and participant recruitment is necessary to make the program successful. In addition, when farmers purchase trees and shrubs from Maitland Valley, the Conservation Organization prepares the site, plants the trees and provides the landowner with a follow-up maintenance plan. Planning, site preparation and tree planting are common services provided in break-even, cost share and for-profit programs in other jurisdictions as well. Another programming possibility is to operate the distribution, information/technology transfer and dissemination of research at a profit. In western Canada, participants in the PSP initiatives have had several decades of service at no cost and therefore, the change in program implementation would require a significant mindset shift. PSP has offered a free service because it is advancing important environmental and land management principles that may not have been embraced if there had been a cost attached to the effort. Offering programming at a profit would move the function outside of government, and would require background research and business planning. How do current operational costs compare with those of other seedling distribution, information/technology dissemination and research programs? PSP has an annual budget of $2.3 million. This budget is significantly higher than all other programs that were profiled in this Benchmarking Study. It is important to note however, that PSP has a very large geographic area to service and that it is involved in a number of research and climate control activities as well as tree distribution. In addition, PSP operates a much larger program than all other programs that were benchmarked, distributing 5-7 million trees and shrubs annually. 3.3 Management Effectiveness How does the Centre s organization and management of the PSP and other programs compare with that of similar programs?

7 Benchmark Study Prairie Shelterbelt 5 PSP takes responsibility for the growth of trees and shrubs right through to the delivery of these products to the end-user. In other words, PSP is responsible for the whole value-chain, excluding the actual planting of the trees. However, on many occasions, PSP provides technology transfer information to support the planting process. At times, PSP involves a third party distribution group, such as a Rural Service Centre, or a partner such as Partners in Habitat Development, Alberta, to support their program, by delivering and promoting the use of trees to end-users. At other times, when the total number of trees and shrubs is large, delivery of product is made directly to the end-user. Using a full-service approach makes PSP less reliant on partnerships than other similar programs might be. PSP utilizes partnerships to realize organizational goals where appropriate. Some programs that were benchmarked for this research use partnerships more extensively because they don t have the full-service capacity. For example, in Adams County, North Dakota, the Conservation does not operate a nursery, but rather acquires trees and shrubs from state nurseries. Adams County operates in coordination with the state nurseries on behalf of the United States Department of Agriculture Conservation Services, to deliver trees and shrubs to end-users. PSP also operates a significantly larger breeding and research centre than other programs do. Other benchmarked programs focus primarily on production and growth development issues whereas PSP is involved in applied research related to climate control, pesticide management, species improvement, and agroforestry issues as well as on production and hardiness issues. 4.0 PROGRAM BEST PRACTICES{TC "2.0 " \L 00001} A total of ten shelterbelt, environmental and reforestation programs were profiled for this Benchmarking Study. As a result of this review, Garven & Associates have identified a listing of program implementation and management best practices for future program planners to consider.

8 Benchmark Study Prairie Shelterbelt 6 It is important to identify a particular market niche to serve, whether it be small land owner requirements for trees and shrubs or community groups interested in wildlife habitat. Developing strong relationships and partnerships with communities and organizations is a key success factor. Creating partnerships with like-minded agencies to achieve common goals and objectives improves efficiencies. Developing a rapport with local producers requires that programs provide information, technology transfer and follow-up services. Assuming a proactive role in recruiting program participants is necessary to advance the goals and objectives of tree and shrub plantings. This can be accomplished through direct telephone contact, onsite visits, signage, advertising, trade show booths, etc. Making program participation affordable by providing free seedlings, and/or through cost/share programs, encourages a high level of participation. Ensuring simple, straight forward program application, administration and ease of cost reimbursement procedures are important. Providing a high quality stock is important to planting success and tree longevity. Providing a planting service (most landowners do not have the time to plant themselves) has led to many programs success, even when the participant is required to partially pay for the planting costs. Considering the native terrain and incorporating different native species to ensure planting success. 5.0 COMPARATIVE ANALYSIS{TC "2.0 " \L 0001} In order to provide a comparison between the programs that have been benchmarked for this project, a table of key information has been developed. Table 1.2 provides information on each of the programs under the following headings: year established

9 Benchmark Study Prairie Shelterbelt 7 primary funding purpose of the program types of plantings source of plant materials outputs charge for materials and services eligibility requirements partners annual distribution numbers annual program cost

10 Benchmark Study Prairie Shelterbelt 8 Organization Table 1.2 Shelterbelt/Tree Planting Cross Comparison AAFC-PFRA Shelterbelt Centre Adams County Soil Conservation District Prairie Shelterbelt Tree Planting Alberta Nurseries/ Marketland Corporation Alberta Shelterbelt Location Indian Head, SK North Dakota, USA Bowden, AB Established 1901;1969 ~1950 ~1997 Primary Funding Purpose Types of Plantings Source of Plant Materials Outputs Output Eligibility Requirements Partners Distribution of Trees / Shrubs Cost to Participants Cost Federal Federal (USA) Private nursery Increase adoption of agroforestry systems for the social, economic and environmental benefit of Canadians. Shelterbelts & other windbreaks, wildlife plantings, municipal, provincial & federal plantings To facilitate tree planting projects with landowners through a variety of federal cost-recovery programs. Shelterbelts & other windbreaks, wildlife plantings, living snow fences To provide customers with superior quality products and service for their shelterbelt plantings. Shelterbelts & other windbreaks, any other plantings desired* Own nursery State-run nurseries Own nursery Bareroot seedlings, cuttings, promotional materials, information materials, technical support, equipment rentals, applied research, environmental impact/ evaluation studies, collaborative projects 5 to 7 million / year Tree & Shrub Material: Farmers and rural landowners of the prairie provinces and Peace River Region (B.C.) Information and Technical Support: All prairie residents including government Provincial agricultural departments; environmental & wildlife associations; watershed groups; conservation districts; industry groups; universities; agroforestry & windbreak researchers Same as Output Seedlings, planting services, technical support, promotional materials, equipment rentals, species survival studies 90 miles of trees on 54 sites Landowners within Adams County. Specific requirements vary depending on the costshare program for which the participant applies: CRP, CREP, EQUIP, WHIP or Living Snow Fence Federal agriculture department; state game & fish, forestry, and transportation departments 45, ,000 / year (depending on the season) Bareroot seedlings, container seedlings, extension services/ seminars, direct mail campaigns, production and growth research 400,000 trees / year Any landowner No formal partnerships; private nursery Same as Output No charge Cost-share ~$1.75- $1.80 / tree $2.3 million / year Unknown Not Available

11 Benchmark Study Prairie Shelterbelt 9 Table 1.2 Shelterbelt/Tree Planting Cross Comparison (cont d) Organization Alberta-Pacific Forest Industries Poplar Farm Maitland Valley Conservation Authority Roadside Windbreak & Reforestation Assistance s Natural Resources Canada, Canadian Forest Service Forest 2020 Plantation Demonstration & Assessment Initiative Location Boyle, AB Wroxeter, ON Across Canada Established ; 1988 (respectively) 2003 Primary Funding Private company Participating landowners Federal Purpose Types of Plantings Source of Plant Materials Outputs (1) To encourage landowners to consider poplar trees as a viable alternative cropping; (2) To benefit the environment through improved soil, water and air quality, and long-term carbon sinks Tree farms To incorporate positive conservation practices onto marginal land within the watershed Roadside windbreaks; shelterbelts To explore block afforestation with fastgrowing trees as a means of addressing climate change. Specifically, to: (1) Mitigate greenhouse gas emission; (2) Provide new sources of fibre; (3) Explore models for investment vehicles to attract private sector funds to establish plantations in the future Block afforestation plantations Private nurseries Private nursery Private nurseries Seedlings, planting services, technical support. Seedlings, large stock trees, planting services, onsite planning, planting services, production and growth research Seedlings, planting services, advertising & informational materials, technical support Output 600 hectares 4,000-4,500 trees / year Planting begins spring 2004 Goal: 6,000 hectares over 2 years Eligibility Requirements Any registered landowner in the region Any landowner within the watershed Private landowners, municipalities, First Nations Partners Distribution of Trees/ Shrubs Cost to Participants Cost Breeding partnership with AAFC-PFRA Shelterbelt Centre 600 hectares/ year Goal:1,200 hectares/year Participants receive $25 / acre for leased land Not available Provincial ministries of agriculture & food, natural resources, environment; ecological & forestry associations/coalitions; county offices; stewardship councils; nurseries Same as Output Third party delivery agents across Canada (organizations with demonstration, communication & education in addition to forestry in their mandate) Same as Output ~$750 / acre No charge Cost-recovery $20 million for the life of the project (2 years)

12 Benchmark Study Prairie Shelterbelt 10 Table 1.2 Shelterbelt/Tree Planting Cross Comparison (cont d) Organization Nebraska Game & Parks Commission / WILD Nebraska Ohio Department of Natural Resources (ODNR) Division of Forestry Northwest Ohio Windbreak Province of Québec Nebraska Wildlife Prime-Green Shelterbelt Location Nebraska, USA Ohio, USA Québec Established ~ Primary Funding Purpose Types of Plantings Source of Plant Materials Outputs Output Eligibility Requirements Partners Distribution of Trees & Shrubs Cost to Participants Cost Federal & State (USA) Federal & State (USA) Province of Québec To encourage landowners to incorporate more shrubs & better design to shelterbelt projects Shelterbelt add-ins/ supplements Unknown Shrubs and native species, grasses; customized planning services 500 shrubs / year (when fully operational) Any landowner Federal agriculture, wildlife & fish departments; State natural resource districts; conservation & environmental associations To encourage landowners to plant field windbreaks in order to reduce soil erosion, protect crops from wind damage, and enhance wildlife habitat. Shelterbelts, windbreaks State nursery Seedlings, herbicide, planting services, newsletters, technical support To promote good agricultural practices and help farmers adapt production techniques in order to preserve natural resources and protect the environment Shelterbelts, windbreaks, manure installation, Provincial & commercial nurseries Seedlings, plastic mulch, plantings services, technical support 150,000 row feet / year 500-1,000 km windbreak/year Landowner who owns at least 10 acres of agricultural lands Federal agriculture and conservation departments; state soil & water conservation & wildlife divisions; county soil & water conservation districts; conservation organizations Agricultural producers in Québec None presently, Government of Canada in the coming year. Same as Output Same as Output Same as Output Cost-share (Partial reimbursement for charge of $0.60-$0.80 / shrub and planting cost of $1.00 / shrub) Unknown Cost-share (Partial reimbursement for charge of $0.25 / row foot) Break-even Cost-recovery on a program basis, but cost-share due to federal programs Cost-share (70% reimbursement for charge of $3 / metre up to $50 / metre for large trees) Unknown

13 Benchmark Study Prairie Shelterbelt 11 Table 1.2 Shelterbelt/Tree Planting Cross Comparison (cont d) Organization Southern Alberta s Irrigation Districts & Pheasants Forever Partners in Habitat Development Shand Greenhouse Our Treehouse to You Location Southern Alberta Estevan, SK Established Primary Funding Purpose Types of Plantings Source of Plant Materials Outputs Output Eligibility Requirements Partners Distribution of Trees / Shrubs Cost to Participants Cost 1998 Provincial agriculture & sustainable resource development ministries; Alberta southern irrigation districts; conservation & fish & game organizations; federal funding groups; AAFC-PFRA Development & restoration activities in the areas of: (1) upland and wetland habitat development; (2) riparian habitat development; and (3) shelterbelt habitat development Shelterbelts, buffer strip vegetation, wildlife plantings AAFC-PFRA Shelterbelt Centre Seedlings, soil preparation services, planting services, site maintenance Since 1998: 180,000 trees & shrubs; 50 km of fencing; rehabilitation projects; 15 wetland/marshland projects A landowner within the irrigation districts with an interest in wildlife habitat Provincial agriculture & sustainable resource development ministries; Alberta southern irrigation districts; conservation & fish & game organizations; federal funding groups; AAFC-PFRA Since 1998: 180,000 trees & shrubs No charge Unknown 1991 Treemendous 2003 Our Tree House to You SaskPower (Crown corporation) To mitigate CO 2 emissions that SaskPower produces; To support environmental objectives; and, To increase the number of trees in Saskatchewan s environment. Shelterbelts, windbreaks, wildlife habitat projects, environmental reclamation projects Own nursery Containerized seedlings (styro-block), technical support, information services 170, ,000 trees & shrubs / year Anyone who is not using seedlings for (1) landscaping purposes or (2) for the purpose of making a profit Has partnered with Souris Basin Development Authority, Prairie Coal Ltd, Ducks Unlimited Canada, Estevan Diversified Services, HELP International Same as Output No charge Not Available