Terms of Reference
Development of Technical Guidelines for the Provision of Scientific Advice on the Various Elements of Fisheries and Oceans Canada Precautionary Approach Framework
National Peer Review – National Capital Region
February 28-29-March 1, 2012
Ottawa, ON
Co-Chairpersons: Estelle Couture and Denis Rivard
Context
The United Nations Agreement on Straddling and Highly Migratory Fish Stocks (UNFA), which came into force in 2001, commits Regional Fisheries Management Organizations to use the Precautionary Approach in the management of fisheries and indirectly commits Canada to do the same for domestic stocks. In 2003, the Privy Council Office, on behalf of the Government of Canada published a framework applicable to all federal government departments that set out guiding principles for the application of precaution to decision making where there is a risk of serious or irreversible harm.
In 2006, Fisheries and Oceans Canada (DFO) Science published A Harvest Strategy Compliant with the Precautionary Approach (SAR 2006/023) that outlined the Precautionary Approach (PA) framework with three zones based on stock status: Healthy Zone, Cautious Zone and Critical Zone. The boundary between the Cautious and Healthy Zones is the Upper Stock Reference and the boundary between the Critical and Cautious Zones is the Limit Reference Point. This framework also introduced the PA requirement that the removal reference (commonly fishing mortality) should decrease when the stock declines from the Healthy Zone into the Cautious Zone, and that removals should be minimized in the Critical Zone.
In 2009, DFO published its policy for the implementation of the PA called “A decision-making framework for implementing a harvest strategy that incorporates the Precautionary Approach (PA)” based on SAR 2006/023. The framework applies where decisions on harvest strategies or harvest rates for a stock must be taken to determine Total Allowable Catch or other measures to control harvests. The framework applies to key harvested stocks managed by DFO; that is, those stocks that are the specific and intended targets of a fishery, whether in a commercial, recreational or subsistence fishery. While application of this framework to key harvested stocks is the minimum requirement, it may be applied more broadly to other stocks where necessary and as circumstances warrant.
In recent years, eco-certification has been an important driver for the implementation of decision-making frameworks consistent with the DFO PA policy in a number of domestic fisheries, including northern shrimp and several groundfish fisheries. Third-party eco-certification requires that a fishery have a precautionary harvest strategy with limit and target reference points and harvest decision rules. International and domestic markets are increasingly demanding that seafood products come from fisheries that have received eco-certification. As a result an increasing number of fisheries in Canada are seeking certification.
Although the policy is in place and scientists have gained experience in providing advice for the implementation of some elements of PA frameworks such as limit reference points, more specific guidance and best practices are needed for all technical aspects of implementing the PA policy to ensure that scientific advice is delivered in a consistent manner across stocks and regions. An important consideration in this regard is to develop comparable methods that can apply to data deficient stocks, stocks with empirical data but no population model, and stocks with an accepted analytical assessment model. The intent of this national advisory process is not to review the content of the PA policy itself but to provide more detailed guidance on the implementation of the policy.
Objectives
The main objective of this advisory process is to produce a technical guidance document (hereafter referred to as “Technical Guidelines”) to assist scientist practitioners responsible for developing the science advice on the elements of the decision framework in the PA policy (i.e. Limit Reference Point, Upper Stock Reference, Target Reference Point, Removal Reference and Harvest Decision Rules in the three zones of the PA framework).
The Technical Guidelines will help to ensure that the science is delivered consistently and efficiently across Canada for all stocks, and that best scientific practices are followed. As such, the Technical Guidelines will provide clarification on the role of science and on the process to be followed in the provision of advice on the elements of the PA policy as well as the required input from fisheries managers. It is expected that those guidelines will contribute to a single science advisory framework for implementing all components of the PA policy for Canadian stocks. A similar science framework currently supports processes such as the Recovery Potential Assessments for species at risk.
Once DFO’s Technical Guidelines have been completed, they will be updated periodically as more information becomes available and as more experience is gained.
Proposed Approach
Similar Guidelines have been produced in various forms in other countries (e.g. New Zealand, Australia, United States, and European Union) and much effort has been put into them. Therefore the development of the DFO Technical Guidelines will be informed by these other countries’ experiences as well as our own.
Working papers will be requested from regional science experts on various aspects of the Fisheries and Ocean Canada policy on the Precautionary Approach and will take into account both current Canadian practices and international best practices. Based on this review the participants will agree on the best practices and key considerations which will form the content of DFO’s Technical Guidelines.
Expected Publications
The results of the meeting are expected to be documented through a CSAS Proceedings document that summarizes the discussion at the meeting. The Technical Guidelines will be included in an appendix and will be based on material submitted for review at the workshop.
Time constraints and the technical complexity of developing the guidelines means that it is possible that final preparation of the Technical Guidelines for publication as a stand-alone corporate document will require a second step. In this case, workshop participants will identify the gaps and formulate a plan to complete the document during a second Advisory Process. Regardless of the approach taken, Technical Guidelines resulting from this advisory process will be generated by an editorial team selected among a core group of PA experts who will work together to consolidate and finalize the document.
Participation
Given that this advisory process will focus on technical guidance for future DFO Science advisory processes, participation will be limited to experts from DFO as well as invited external participants with subject matter expertise.
References
DFO. 2009. A fishery decision-making framework incorporating the Precautionary Approach.
Notice
Participation to CSAS peer review meetings is by invitation only.
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