Order Amending the National Historic Sites of Canada Order: SOR/2026-175

Canada Gazette, Part II, Volume 160, Number 17

Registration
SOR/2026-175 August 7, 2026

CANADA NATIONAL PARKS ACT

P.C. 2026-734 August 6, 2026

Her Excellency the Governor General in Council, on the recommendation of the Minister of the Environment, makes the annexed Order Amending the National Historic Sites of Canada Order under subsections 42(1) and (3) of the Canada National Parks Actfootnote a.

Order Amending the National Historic Sites of Canada Order

Amendments

1 Section 2 of the National Historic Sites of Canada Orderfootnote 1 is replaced by the following:

2 Subsection 8(1), section 12, subsections 16(1) to (3) and sections 17 to 32 of the Canada National Parks Act apply to the National Historic Sites of Canada.

2 The schedule to the Order is amended by adding the following under the heading “Quebec” after the description of Lévis Forts National Historic Site of Canada:

Grosse ÃŽle and the Irish Memorial National Historic Site of Canada comprising the following described area:

Coming into Force

3 This Order comes into force on the day on which it is registered.

REGULATORY IMPACT ANALYSIS STATEMENT

(This statement is not part of the Order.)

Issues

The Grosse ÃŽle and the Irish Memorial National Historic Site (Grosse ÃŽle) was designated under the federal Historic Sites and Monuments Act as a national historic site in 1974. A federal designation does not automatically provide protection or conservation measures, even for federally owned historic sites.

In recent years, a significant increase in the white-tailed deer population on Grosse ÃŽle has been observed. The significant increase in livestock represents a threat to the safety of employees and visitors in the vicinity of the airstrip and roads. Several observations and incidents involving deer have raised the level of urgency to act, including the most recent incident that forced the aircraft to perform an emergency brake application. Since the transportation of employees is done by plane, the safety of the airstrip is critical.

The only way to protect and conserve (including wildlife control) a national historic site owned by Parks Canada is to add the geographic description of the lands to the schedule to the National Historic Sites of Canada Order. In this way, it will be possible for Parks Canada to use the various legal tools at its disposal to protect and conserve the site.

Background

Located in the St. Lawrence River estuary, 50 km from the city of Québec, Grosse ÃŽle served as a quarantine station from 1832 to 1937. At the time, it was the main gateway for immigrants to Canada. It was the scene of a major human tragedy in 1847 when thousands of Irish people succumbed to typhus. For more than a century, quarantine station employees have tried to protect Canadians from epidemics by caring for sick immigrants.

The Grosse ÃŽle Quarantine Station was recognized as a national historic site in 1974 and has been managed by Parks Canada since 1993. In 1996, the site was renamed Grosse ÃŽle and the Irish Memorial National Historic Site, a testament to important aspects of immigration in Canadian history.

A 1.8 km2 island located in the St. Lawrence River, Grosse ÃŽle is accessible by boat from Berthier-sur-Mer in the summer and by plane from Montmagny throughout the year. Compliance with airstrip standards is the responsibility of Parks Canada.

In recent years, a significant increase in the white-tailed deer population on Grosse ÃŽle has been observed. A herd count conducted by Parks Canada resource conservation specialists in the spring of 2023 indicates a presence of 49.5 white-tailed deer per km2, or an abundance index of 89 to 95 individuals. Conservation specialists indicate that the theoretical support capacity is estimated at 8 white-tailed deer for the total area of the island.

Temporary measures to ensure the health and safety of employees as well as several measures to scare white-tailed deer, the effects of which are short-lived and remain mixed, have been put in place by Parks Canada. Since the regular documentation of the patrols done in June 2023 aimed at scaring the animals, more than 1 000 observations of animals have been noted around the airstrip as an aircraft is approaching. The multiple visual and audible scaring methods, such as continuous inspections of the runway in all-terrain vehicles before landings and take-offs, and negative conditioning with the use of paint markers with white chalk balls, must be more and more intense, as white-tailed deer react little or not at all, and some return to the edge of the runway as soon as the staff leaves.

These incidents, which threaten access by plane, add to a concern about access to the island, as Parks Canada is planning major work on the wharf in 2025–2026, and the plane is the only means of access in the winter.

The overabundance of the white-tailed deer population, whose health is threatened by a lack of food, is also an obstacle to maintaining ecological integrity and landscapes on the island. In spring 2024, Parks Canada finalized the Analysis of Site on Species at Risk report, which outlines conservation and recovery measures for species present on Grosse ÃŽle. The analysis identifies overgrazing and trampling by white-tailed deer as the main threat to the plant species present on Grosse ÃŽle.

Objective

The Order Amending the National Historic Sites of Canada Order (the Order) will amend the schedule to the National Historic Sites of Canada Order by adding Grosse ÃŽle and the Irish Memorial National Historic Site of Canada (Grosse ÃŽle). With Grosse ÃŽle included in the Order, certain provisions of the Canada National Parks Act relating to the protection of flora and fauna will apply.

Description

The Order will amend the schedule to the National Historic Sites of Canada Order by adding Grosse ÃŽle and the Irish Memorial National Historic Site of Canada, consisting of surveyed lands, the ownership of which has already been transferred to Parks Canada.

Regulatory development

Consultation

During exchanges between Parks Canada and the Quebec Ministry of the Environment, the Fight against Climate Change, Wildlife and Parks, the Ministry indicated that it cannot issue permits for the use of firearms on Grosse ÃŽle, even in the event of the overpopulation of species such as white-tailed deer. To remove this constraint, the Ministry plans to recommend the repeal of the provincial regulation that prohibits hunting on the island, which will make it legal to control the deer population. Parks Canada has indicated that it will establish, prior to this repeal, the rules governing the use of firearms on the site, in accordance with the objectives of the Order Amending the National Historic Sites of Canada Order.

In addition, and in keeping with its mandate, Parks Canada is committed to protecting and presenting nationally significant examples of Canada’s natural and cultural heritage, and fosters public understanding, appreciation and enjoyment in ways that ensure the ecological and commemorative integrity of these places for present and future generations. Species at risk, their residences, and their habitat are protected in heritage places administered by Parks Canada under its legislative framework, including the Species at Risk Act and its management regimes. Parks Canada is legally responsible for species at risk on lands under its jurisdiction.

In 2017, Parks Canada released the Grosse ÃŽle and the Irish Memorial National Historic Site of Canada Management Plan, which sets out a long-term vision, strategic management direction and objectives. The Grosse ÃŽle management plan embodies Parks Canada’s ongoing commitment to protect and present this historic site for the benefit of present and future generations. The input of many dedicated organizations and individuals, including Indigenous peoples, local and regional residents, visitors, and seniors, was invaluable in developing this plan. The public consultation report (July 2017) is also available to the public.

Under the “Importance of Natural Resources” section of the management plan, the conservation and safety issues caused by the overabundance of white-tailed deer are noted:

“On Grosse ÃŽle, the threats to different species are mainly due to loss of habitat caused by climate change, damage resulting from wildlife, including the white-tailed deer, and the spread of diseases and of exotic invasive species. The presence of white-tailed deer on the island represents a threat to rare plants that are destroyed by grazing and trampling. This heavy concentration of deer on a small territory also raises questions about public safety for personnel as well as visitors.”

The Order Amending the National Historic Sites of Canada Order was prepublished in the Canada Gazette, Part I, from March 7 to April 6, 2026. During this period, four people provided 28 comments.

Most of the comments received acknowledge the complexity of Parks Canada’s stewardship challenge at Grosse ÃŽle and call for a transparent, humane, and ecologically responsible approach to deer management that prioritizes prevention, early intervention, and long-term ecosystem recovery. They emphasize the need to fully assess nonlethal management options — such as fertility control, physical barriers, habitat modification, relocation, and limits on human activity — alongside meaningful Indigenous consultation and participation. They argue that human presence, tourism, and infrastructure (notably the airport) are the primary drivers of ecological damage. They raise concerns about visitor safety and wellbeing, respect for burial grounds, and the effectiveness and funding of a cull. They question past inaction and the limited exploration of available tools, and stress that any legal authority should enable a comprehensive, adaptive management framework rather than simply authorize culling.

A census conducted by Parks Canada conservation specialists in 2024 confirmed a significant overpopulation of white-tailed deer. The deer population on Grosse ÃŽle has no natural predators. This overpopulation has significant consequences for the environment, through intensive grazing and trampling, preventing the natural regeneration of the forest and harming certain rare or endangered plant species on the island. In addition, the overpopulation of deer is posing a serious risk to public safety due to their continued presence on the island airstrip, despite the use of attempted scare tactics, which are essential for access and emergency evacuation of staff and the public. Deer population management is, therefore, necessary to protect ecological health and public safety at the site.

Parks Canada is currently implementing a management plan for the white-tailed deer population at Grosse ÃŽle and the Irish Memorial National Historic Site. As part of this long-term plan, a range of wildlife management measures will be used, including strictly controlled culls, when necessary, as well as the continued use of scare tactics, which have also been implemented in previous years.

The deer management plan was reviewed by a Parks Canada’s Animal Care Committee, consisting of experts in wildlife ecology, ecological restoration, wildlife management and wildlife health (veterinarians). The Animal Care Committee ensures that all wildlife management actions are ethical, aligned with the Canadian Council on Animal Care guidelines, and prioritize animal welfare as well as ecological integrity. As part of this review, several alternatives were assessed — such as fencing, sterilization, and translocation — which were ultimately determined to be unable to address the immediate environmental and safety risks posed by the overabundance of deer. Therefore, a controlled cull was determined to be the most effective approach to address overabundance while protecting the site’s ecological health and ensuring public safety on the island. Over time, only small and more regular reductions would be required to maintain a sustainable and appropriate deer population.

Grosse Île is a historic site of great heritage and commemorative significance for many communities. The measures are intended to ensure responsible wildlife management while protecting the site’s landscapes, ecosystems, and historic character for future generations.

As at other Parks Canada-administered sites, wildlife management measures are implemented only when necessary to protect public safety and maintain the site’s ecological health. Reduction operations would therefore be exceptional, scientifically planned, and carried out by qualified personnel or in collaboration with Indigenous communities, in order to ensure safety and respect ecological objectives. Parks Canada is committed to maintaining an open and transparent dialogue with them, and their position will be assessed annually.

Other comments received centred around the operational aspects of the cull, such as biosecurity measures, ammunition requirements and carcass management protocols. The operational details of the cull are not part of the Order but will be part of the deer management plan.

Indigenous engagement, consultation and modern treaty obligations

Parks Canada undertook an analysis of species at risk on Grosse ÃŽle in 2023–2024, with the goal of gathering expertise and discussing key recovery actions to help species at risk present. From the outset, Parks Canada sent an email with explanatory documentation to the four First Nations concerned, namely the Wolastoqiyik Wahsipekuk, Wendat, Innu and Abenaki (Waban-Aki) Nations, to inform them of the sequence and to invite them to contact Parks Canada for any questions or expressions of interest in collaborating in the process.

Parks Canada has kept First Nations who have expressed interest informed of the process. The full Species at Risk Site Analysis Report will be sent to all First Nations. This communication will serve as a platform to start conversations about the new white-tailed deer management plan. Communities will be informed of Parks Canada’s intentions to implement the management plan (control hunt) and will be invited to discuss the process and see how they might be involved in future years.

Instrument choice

A few avenues have been considered, including a legislative amendment. But given the importance of addressing the issue in a timely manner, a regulatory amendment was considered the best option. Accordingly, the amendment by Order in Council to the schedule to the National Historic Sites of Canada Order is the instrument of choice.

Regulatory analysis

Benefits and costs

The main advantage of this Order is to put in place a federal legal instrument to allow Parks Canada to ban hunting on Grosse ÃŽle and allow wildlife management for the purposes of managing the white-tailed deer population. This measure will subsequently allow the province of Quebec to reduce the provincial level of protection for the territory and lift its regulation prohibiting hunting on Grosse ÃŽle.

This federal legal framework will allow Parks Canada to manage the overabundance of white-tailed deer, which causes safety problems for employees, and to properly manage the island’s natural resources. The costs associated with measures to scare white-tailed deer will be reduced or even eliminated, and the safety of employees, particularly during take-off and landing, will be enhanced. From a conservation perspective, the implementation of the measures contained in the species at risk management plan will be facilitated by the adoption of this Order.

Small business lens

The Order does not impact small businesses.

One-for-one rule

The Order does not impact the regulatory burden on businesses.

Regulatory cooperation and alignment

This Order only affects the mandate of the Minister of the Environment, Climate Change and Nature, and the Minister responsible for Parks Canada.

Effects on the environment

In spring 2024, Parks Canada finalized the Analysis of the Site on Species at Risk report, which outlines conservation and recovery measures for species present on Grosse ÃŽle. The analysis determined that overgrazing and trampling by white-tailed deer were the main threats to the plant species present on Grosse ÃŽle.

The site is known for its rare vascular flora, which includes two species endemic to Quebec (Victorin’s gentian and Victorin’s water-hemlock), one endangered tree species (Butternut) according to Schedule 1 of Canada’s Species at Risk Act and 13 species that are either vulnerable to harvest, vulnerable or threatened in Quebec or likely to be vulnerable or threatened.

Gender-based analysis plus

A more preliminary gender-based analysis plus (GBA+) indicates that the entire Canadian population will benefit from the diversity of habitats on Grosse ÃŽle, with more than 25 tree species and more than 600 floral species recorded. The direct beneficiaries of the Order will be Parks Canada staff and visitors, whose transportation will be safer as a result of the reduction in the white-tailed deer herd, as well as airplane pilots providing transportation. None of the demographic groups will be disproportionately impacted by the Order.

Implementation, compliance and enforcement, and service standards

Implementation

The Order will achieve the objective of the Order in Council to add Grosse ÃŽle and the Irish Memorial National Historic Site to the National Historic Sites of Canada Order.

Grosse Île, like the other islands of the archipelago, is under the cover of the Sûreté du Québec. Parks Canada will contact the Sûreté du Québec to authorize them to intervene in Parks Canada places in the region. Consequently, the application of the law will continue to be done with the Sûreté du Québec once the Order is in force. Parks Canada proceeds in the same way with the municipal police for other sites in the city of Québec region, and there are no costs associated with it.

Contact

Alison Lobsinger
Director
Policy, Legislative and Cabinet Affairs
Parks Canada
Email: alison.lobsinger@pc.gc.ca