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Northern Ontario: Shaping regional development for the North by the North  

Heather M. Hall  

Ontario is home to the largest provincial North – Northern Ontario – in Canada based on population, with over 789,000 people living in the region. Geographically, Northern Ontario spans across two time-zones with a land area of roughly 787,000 km2.i  This is approximately 88 % of the provincial landmass or large enough to fit all of Atlantic Canada (i.e., Newfoundland and Labrador, Nova Scotia, Prince Edward Island, and New Brunswick).  Northern Ontario has always been distinct from the rest of the province for the people who call the region home. Like other provincial Norths, the economy, geography, demographics, lifestyles, and politics are often perceived as vastly different when compared to Southern Ontario.ii  

Northern Ontario has a long history tied to natural resource development, particularly forestry and mining. This includes some of the richest mineral deposits in the world, including critical minerals.2,iii While Northern Ontario is perhaps best known for its natural resources, knowledge and innovations from Northern Ontario have also made important contributions to the region and beyond – from medical advancesiv to the birthplace of ringettev and vehicle testing for durability in cold weathervi. 

The rest of this chapter will provide a brief overview of Northern Ontario. It will also outline northern realities including infrastructure deficits particularly with regards to ICT (information and communications technology), roads, and intercommunity transportation as well as governance challenges with regards to service-delivery and decision-making. Two case studies are then provided – 250 Clark Street, Powassan and the Northern Policy Institute – to highlight initiatives that are enhancing livelihoods and community well-being across the region. The chapter concludes with a discussion of emerging trends and future considerations related to development, climate change, and technology adoption. 

A Brief Overview of Northern Ontario (600-800 words) 

Indigenous peoples have lived in what is now known as Northern Ontario since time immemorial. More specifically, Northern Ontario is situated on the “traditional territory of the Cree, Moose Cree, Ojibway/Chippewa, Nipissing First Nation Anishnabe, Anishnaabeg, Atikameksheng Anishnaabeg, Oji-Cree, Mushkegowuk, and Algonquin peoples.”vii There are five representative First Nation political organizations in the region including the Nishnawbe Aski Nation (NAN), the Anishinabek Nation, Grand Council Treaty #3, the Association of Iroquois and Allied Indians (AIAI), and the Independent First Nations (IFN),viii,ix,x,xi,xii as well as 12 Tribal Councils. 

Defining the boundaries of Northern Ontario has historically, and still is, deeply contested.2 Currently, there are two different administrative boundaries for Northern Ontario. Provincially, the southern boundary of Northern Ontario includes the Parry Sound District,xiii while federally, Northern Ontario extends further south to include the District of Muskoka.xiv Northern Ontario is often further divided administratively into sub-regions including Northeastern Ontario, Northwestern Ontario and the Far North, however these sub-regional boundaries often ignore Indigenous relationships with the land and administrative boundaries like those defined by the NAN or the Anishinabek Nation.xv 

Demographically, over 789,000 people live in Northern Ontario (see Table 1), with most of the population living in the six largest urban centres as seen in Table 2. It is worth noting that this demographic concentration is likely more acute than the official statistics suggest due to “undercounting” Indigenous populations and large “fringe populations” residing just beyond the municipal boundaries of larger centres. This has significant implications for programs and transfers that are often funded on a per-capita basis.xvi,xvii As a whole, the region is growing slowly after experiencing periods of population decline. However, this pattern of growth is uneven across the region, as seen in Tables 1 and 2. According to the Growth Plan for Northern Ontario, released in 2011, “there are 144 municipalities, 106 First Nations, Métis communities, and more than 150 unincorporated communities” in the region.xviii The Government of Canada, also notes that there are over 30 remote First Nations in Ontario which are only accessible by air year-round and they further state that “there are more remote First Nations in Ontario than any other region” in Canada.xix  

Table 1: Population of Northern Ontario, Census Divisions 

Census Division Population, 2021 Population, 2016 % Change 
Algoma (District) 113,777 114,094 -0.3 
Cochrane (District) 77,963 79,682 -2.2 
Greater Sudbury (Census Division) 166,128 161,647 2.8 
Kenora (District) 66,000 65,533 0.7 
Manitoulin (District)  13,935 13,255 5.1 
Nipissing (District) 84,716 83,150 1.9 
Parry Sound (District) 46,909 42,824 9.5 
Rainy River (District) 19,437 20,110 -3.3 
Sudbury (District) 22,368 21,546 3.8 
Thunder Bay (District) 146,862 146,048 0.6 
Timiskaming (District) 31,424 32,251 -2.6 
Total Northern Ontario 789,519 780,140 1.2 

Source: Compiled by author via Statistics Canada 

Table 2: Population of CMAs and CAs in Northern Ontario 

CMA/CA Population, 2021 Population, 2016 % Change 
Greater Sudbury (CMA) 170,605 165,958 2.8 
Kenora (CA) 14,967 15,096 -0.9 
North Bay (CA) 71,736 70,378 1.9 
Sault Ste. Marie (CA) 76,731 78,158 -1.8 
Thunder Bay (CMA) 123,258 121,621 1.3 
Timmins (CA) 41,145 41,788 -1.5 

Source: Compiled by author via Statistics Canada  

Economic development in the region has historically been tied to natural resources development, particularly forestry and mining. More recently, there has been significant interest in the region with regards to the ‘Ring of Fire’ (an area with large mineral deposits), and the potential opportunities related to critical minerals.xx However, the Northern Ontario Development Corporation lists a number of key sectors in the region, including: ICT; health sciences; aerospace; alternative energy; mining; and advanced manufacturing.xxi With regards to aerospace and aviation, for example, North Bay is home to 22 Wing at CFB North Bay which is responsible for “guarding North American air sovereignty.”xxii North Bay also has an Aviation Campus at Canadore College, companies that specialize in flight training, parts supply, and design engineering services as well as a 10,000 foot runaway.xxiii According to Invest North Bay, “With a 10,000 ft runway, you can land anything that flies.” Northern Ontario is also known as a leading region for mining innovation in Canada, particularly in Greater Sudbury where there is a mining innovation cluster that includes, nine operating mines, two mills, two smelters, and a nickel refinery as well as over 300 mining supply and services companies that employ over 12,000 people.xxiv 

With regards to regional development, Northern Ontario has both a provincial Ministry of Northern Development and a federal regional development agency known as FedNor (i.e., Federal Economic Development Agency for Northern Ontario). The Ministry of Northern Development has existed in various forms since 1977 while FedNor was created in 1987.2 In addition, the provincial Northern Ontario Heritage Fund Corporation (NOHFC) provides support for economic development in the regionxxv while there are 24 federal Community Futures Development Corporations (CFDCs) located across Northern Ontario.xxvi 

An Overview of Northern Ontario Realities 

Northern Ontario is recognized for its vast natural amenities with landscapes that inspired the Group of Seven.xxvii The region is situated on the Canadian Shield and is part of the Boreal Forest. There are over 250,000 lakes and riversxxviii and it borders two Great Lakes (Huron and Superior) as well as Hudson Bay. It also includes the largest freshwater island in the world, Manitoulin Island. For the people who call Northern Ontario home, access to these natural amenities creates a quality of life and quality of place that is treasured.  

It is worth noting, however, that there are a number of realities that impact the region. For example, like other rural and remote regions in Canada, infrastructure deficits, like access to broadband and intercommunity transportation, are significant challenges. More specifically, Blue Sky Net, in their 2023 report on the state of broadband in Northern Ontario, found that of the 285 communities in Northern Ontario, only “74 have at least 50% of households with access to 50/10Mbps broadband speeds.”xxix With regards to intercommunity transportation, reliable, same-day, scheduled bus service, can be a particular challenge.xxx,xxxi Although it should be noted that the provincially owned Ontario Northland Transportation Commission has been increasing routes in the region. Similarly, intercommunity transportation is a concern in remote fly-in/fly-out First Nation communities in the Far North, where the Nishnawbe Aski Nation Chiefs declared a winter road State of Emergency in February 2024 as unseasonably warm temperatures created safety concerns that impacted vital shipments of fuel, essential non-perishable goods, and construction materials.xxxii Road safety and transportation concerns, including highway maintenance, were also raised by members of the Northwestern Ontario Municipal Association (NOMA) at the annual Rural Ontario Municipal Association conference in January 2024.  

Additional concerns raised by NOMA include the “urgent healthcare crisis in the North,” where access to health care human resources is a significant concern along with the excessive costs associated with relying on agency nurses and locums. Furthermore, NOMA, the Federation of Northern Ontario Municipalities (FONOM), and the Northern Ontario Service Deliverers Association produced three papers focused on mental health, addictions, and homelessness in the North. In addition, municipalities across Northern Ontario are facing increasing fiscal pressures which limits their ability to provide, maintain, and enhance services and infrastructure.xxxiii  

It is also worth noting that there is a long-standing sense of alienation and discontent in Northern Ontario with provincial policies and decision-making, which have generated both secession movements and quests for greater autonomy over decision-making, natural resources management, and economic development.2 In response, the provincial government has often created programs and initiatives including the Growth Plan for Northern Ontario which was released in 2011.xxxiv  

Sustainable Livelihoods and Community Well-Being: Case Studies (600-800 words) 

Despite the challenges facing Northern Ontario, the region has shown resilience in response to crises and shocks. The following are two examples of initiatives that are enhancing livelihoods and community well-being across the region. 

250 Clark Street – Powassan 

Powassan is located roughly 30 km south of North Bay and the municipality is home to just over 3,340 people.xxxv In 2016, the Municipality purchased the former Powassan Junior Public School – located at 250 Clark Street – to invest in a community hub. Prior to being purchased by the Municipality, the school building was privately owned and renovated to house and school players who played on the local Junior Hockey team in Powassan. Those renovations included the fitness centre and other amenities. 250 Clark Street is now home to the town Fitness Centre, a gymnasium, and meetings rooms that can be used by the community, and municipal offices, the foodbank, and a second-hand clothing store. It also has capacity support through a municipal events coordinator. Since opening, 250 Clark Street has become a vital hub for youth and adult sports and recreation, fitness classes and other community events, like the 2024 community butter tart competition.xxxvi,xxxvii It also provides a meeting space for walking groups and stroller groups as well as for a wellness clinic where community members can drop-in and have a monthly free and confidential session to evaluate blood pressure, heart rate, blood sugar levels, weight, and oxygen saturation.38 250 Clark Street is a great example that showcases how rural infrastructure can be repurposed into a dynamic space to enhance community well-being. 

Northern Policy Institute 

In 2008, members of NOMA, adopted a “Common Voice” approach and committed initial funding to creating an advocacy organization, Common Voice Northwest, with a goal to address regional challenges with made-in-the-region solutions. A policy institute was seen as a first step to providing Northwestern Ontario with an institution that could access good data and be a voice for the region. Through their efforts, a policy institute for Northern Ontario was included as a priority in the Growth Plan for Northern Ontario and the Northern Policy Institute (NPI) was launched in 2012.2  

NPI has offices in Thunder Bay and Kirkland Lake and their current mission includes:  

  • “To advance education on the topic of sustainable growth in Northern Ontario, including sustainable growth for First Nations, Métis, and Inuit people & communities in Northern Ontario, by conducting research and analysis in the field of economic, technological and social trends and then making the results publicly accessible; and  
  • To advance education by providing internship positions to youths within Northern Ontario and by holding meetings, and conferences for the general public, media and government officials.”xxxviii 

NPI has six priority areas for their work, including: Indigenous peoples; Demographics; Environment; Communities; Economy; and Infrastructure.xxxix The Institute is governed by a 16-member Board of Directors, that sets the strategic direction for NPI. An Advisory Council also supports the work of NPI, and a Research Advisory Board provides guidance on potential research areas. The work of NPI is further supported by a President and CEO and staff as well as interns who are hired every summer through the Experience North program.xl NPI receives funding from the NOHFC, FedNor, and community partners while Lakehead University provides office space as an in-kind contribution.  

Over the last decade, the Institute has published over 200 Research Reports, Commentaries, Labour Market Reports, and Policy Notes along with over 150 presentations by authors and staff across the region. In addition to these resources, NPI offers a number of programs including a series of tools that make data more accessible like Community Accounts, ConnectNORTH, Data101, the Northern Ontario Data Consortium and an Employment Calculator. NPI is also hosting the Magnetic North initiative “to encourage community coordination in pan-northern population growth and welcoming community strategy, including attraction, retention, and reconciliation.”xli Over the last 10 years, NPI has also provided 78 summer students with 16-week internships and created post-graduation employment for another 30 youth as part of the Experience North program, which was designed to build capacity for policymaking, communications, and not-for-profit administration in the North, by the North, and for the North. NPI is strong example of a made-in-the-north solution to enhance livelihoods and community well-being across the region through evidence-based research and programs that build and support capacity. 

Northern Ontario – Emerging Trends & Future Considerations (400-600 words) 

Northern Ontario is at a crossroads. The push to develop critical minerals, which are needed to assist with the transition to a net-zero future, is creating opportunities but also tensions. Much of the attention has focused on the so-called Ring of Fire in the Far North, which is a region that covers roughly 42 % of Ontario’s land mass and is home to over 24,000 people living in 31 First Nations communities, two municipalities and one local service board. The Far North is also part of the Hudson Bay Lowlands and Boreal Forest, which play an essential role in reducing global warming, and provide habitat for over 200 sensitive species.xlii A number of Indigenous leaders and communities have requested moratoriums on mining activity in the region as the number of mining claims has increased. There are also concerns regarding how the natural environment will be impacted by increased mineral development.xliii  

Development decisions are also confronting other communities in Northern Ontario. For example, the Wabigoon Lake Ojibway Nation-Ignace area in Northwestern Ontario is one of two areas being considered as a site for Canada’s deep geological repository for used nuclear fuel.xliv This is also within proximity to Dryden – a community of just over 7,300 peoplexlv – where numerous other major projects are in the initial or advanced stages of planning and development. These include the Waasigan Transmission Line and Treasury Metals Goliath Gold Complex among other projects.xlvi If all of these projects are realized, they could bring increased economic benefits (e.g., employment and procurement opportunities) but also new pressures on infrastructure, housing, and the natural environment. With regards to development decisions, direct community benefits that outweigh negative impacts are essential along with decision-making that is transparent and reflective of community priorities versus other levels of government or other organizations (e.g., companies).  

Communities across Northern Ontario are also dealing with the impacts of climate change from more extreme weather events, to increased forest fires, and unpredictable winter roads.xlvii These trends will likely intensify and will require senior governments, local governments, Indigenous governments, industry, NGOs, and community members to work together on mitigating the impacts. Similarly, collaboration, innovative solutions, and more financial support from senior levels of government are needed to invest in the quality of services and infrastructure across Northern Ontario. This includes, drinking water, affordable housing, local access to healthcare, intercommunity connectivity (e.g., air, rail, and road), and broadband. 
 

Finally, the adoption of new technologies is beginning to reshape the future of work and community economic development for many rural and remote communities across Northern Ontario and beyond. More specifically, technology adoption in key sectors like mining could mean less direct local employment in traditional mining jobs while new jobs could require more technology skills.xlviii,xlix Postsecondary institutions and skills and employment training agencies across Northern Ontario have an important role to play in preparing people for the skills of the future. For example, Cambrian College in Sudbury has created the Centre for Smart Mining which includes an Industrial Battery Electric Vehicle Maintenance Course to reskill heavy-duty equipment technicians.l While innovation centres like the NORCAT Underground Centre provide vital space to test and demonstrate new technologies for the mining sector.li Assessing technologies and understanding their impacts on employment, skills, and training as well as business development and regional development will become increasingly significant, particularly for Indigenous governments requiring development and exploration agreements or negotiating equity ownership stakes in projects.  

As communities across Northern Ontario navigate these changes, more investment in decision-making capacity and infrastructure is needed to ensure that they are active participants in shaping the future of regional development versus passive recipients. As the case studies in this chapter highlight, local knowledge is essential for creating innovative solutions that are for the North, by the North. 

About the Author 

Dr. Heather Hall was born and raised in Northern Ontario and still considers the region “home”. She is an Associate Professor in the School of Environment, Enterprise and Development and the Academic Director of the Master of Economic Development and Innovation Program at the University of Waterloo. She is also the Chair of the Research Advisory Board for the Northern Policy Institute and a co-author of Planning Canadian Regions, 2nd Edition.  

Acknowledgements 

I would like to Charles Cirtwill, CEO of the Northern Policy Institute, for reviewing this chapter as well as Dr. Kyle Rich, Brock University, for reviewing the 250 Clark Street case study. 

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