Southern British Columbia Marine Spatial Planning Framework

Fisheries and Oceans Canada. 2023. Southern B.C. Marine Spatial Planning: Framework DFO Oceans, Vancouver, B.C.

Summary

The Southern B.C. Marine Spatial Planning (MSP) planning area includes the Strait of Georgia and Southern Shelf Marine Bioregions. It is a region of significant cultural, ecological, economic, and social value. It is one of 5 planning areas in Canada where Fisheries and Oceans Canada (DFO) coordinates MSP under Canada's Oceans Act. MSP is an internationally recognized, collaborative process that brings relevant authorities, partners and stakeholders together to better coordinate human uses across marine spaces to achieve shared ecological, economic, cultural and social objectives. Essentially, MSP operates similarly to solving a giant puzzle for the ocean. It involves strategically understanding the diverse elements of human activities and nature to ensure the ocean's well-being for present and future generations.

The Southern B.C. MSP Framework (the Framework) is a DFO-authored document that:

• provides a high-level overview of the planning area
• summarizes the early planning phase efforts from 2020 through 2023
• provides information to consider should there be future planning phases in the region.

The early planning work focussed on information-gathering, relationship-building and learning about preliminary interests in the planning area. The Framework includes input from various groups including:

• Government of Canada departments and agencies
• the Province of B.C.
• First Nations
• Indigenous organizations
• stakeholders.

While the Framework does not provide specific recommendations or guidance, it sets the stage for collaboratively developing future MSP activities with partners.

MSP is an iterative process with specific outputs required to advance towards the development and implementation of a marine spatial plan. The Framework includes a roadmap to guide future planning efforts. The roadmap is informed by input received to date from First Nations, stakeholders, the Fisheries and Oceans Canada's National Guidance for MSP and international MSP guidance, and is intended to evolve with the MSP process. The roadmap is anchored by 3 core pillars, which are vital for MSP:

• engagement
• communication
• knowledge sharing.

Engagement aims to be inclusive, equitable, and diverse, focusing on building relationships and sharing information. Effective communication is essential for facilitating the exchange of information, raising awareness and improving understanding of MSP outputs and outcomes. Knowledge sharing involves gathering and analysing knowledge and data to build an understanding of marine space usage. These core pillars support 4 MSP pathways, each leading to specific outputs that support the development of a marine spatial plan:

• governance
• scoping
• characterizing the planning area
• marine spatial planning

The Southern B.C. MSP Framework is an important step towards an effective marine spatial planning process in the Southern B.C. planning area. It helps to set the groundwork for a sustainable ocean in the future.

Introduction

The Marine Spatial Planning Framework for the Southern B.C. Planning Area (the 'Framework') has been prepared by Fisheries and Oceans Canada (DFO) to summarize the work undertaken to date on the Government of Canada's (GoC) Marine Spatial Planning (MSP) process in Southern British Columbia (B.C.) and to inform and provide guidance on future phases of MSP in Southern B.C. The Framework has been drafted by DFO with input and advice received from representatives of GoC departments and agencies, the Province of B.C., First Nations, Indigenous organizations and stakeholders during initial engagement efforts conducted by DFO between 2020 – 2023. Ongoing engagement will be required to provide opportunity for all interested groups to participate in and inform the MSP process.

Marine spatial planning in Canada

MSP is an internationally recognized, collaborative process that brings relevant authorities, partners and stakeholders together to better coordinate human uses across marine spaces to achieve shared ecological, economic, cultural and social objectives.

Led by DFO, MSP is being advanced in 5 planning areas across the country:

1. Southern B.C.
2. Pacific North Coast
3. Newfoundland and Labrador Shelves
4. Scotian Shelf – Bay of Fundy
5. Estuary and Gulf of St. Lawrence

A key output of MSP is a marine spatial plan or plans (the plan) that identifies existing, expanding and emerging marine uses, as well as areas that may require special protection measures, and to facilitate the long-term resilience and sustainability of the marine environment. Marine spatial plans provide a tool for governments, Indigenous Peoples, communities and marine users to 'plan for the future' by clearly indicating what uses are suitable and compatible in specific areas, while simultaneously providing a mechanism to monitor, evaluate and adapt management over the long term in alignment with objectives. In bringing together relevant authorities, partners and stakeholders, MSP can facilitate a coordinated approach to planning in a shared marine space.

MSP in Canada includes engaging with federal, provincial and territorial governments, Indigenous governments and stakeholders to:

• coordinate ocean uses
• integrate information and knowledge
• advance environmental, economic, social and cultural objectives

MSP builds on knowledge developed through Integrated Oceans Management (IOM) experiences, initiated under Canada's Oceans Act.

To guide the Government of Canada MSP process in the 5 planning areas across Canada, DFO has developed the MSP Process Blueprint that describes the core elements of the process for the advancement of MSP in the Canadian context. The Process Blueprint is based on international guidance for MSP developed by the Intergovernmental Oceanographic Commission (IOC) under the United Nations Educational, Scientific and Cultural Organization (UNESCO) (Ehler and Douvere 2009) and provides DFO and the GoC with a basic frame to support discussions with MSP partners on developing a regionally relevant MSP process.

DFO's National Guidance for Marine Spatial Planning in Canada includes 6 phases. These phases may be undertaken in a linear/iterative manner, or in some circumstances, different phases may be undertaken concurrently, or non-sequentially. MSP partners may refer to this guidance as they develop their approach to collaboratively implement MSP. Collaborative participation of GoC Departments, Provincial governments, First Nations, Indigenous organizations and stakeholders will determine how MSP will unfold in each planning area as priorities of the aforementioned groups and the regional context are considered.

Government of Canada Legislative Context

Canada's Oceans Act provides the minister of DFO with the authority to lead the development of IOM in collaboration with other GoC departments, provincial governments, First Nations, Indigenous organizations and stakeholders in or affecting Canada's coastal and marine environment.

Section 35 of the Constitution Act, 1982 recognizes and affirms existing Aboriginal and Treaty rights of the Aboriginal Peoples of Canada. The Supreme Court of Canada has indicated that the purpose of Section 35 is the reconciliation of assumed Crown sovereignty with the pre-existing sovereignty of Indigenous peoples.

On November 2019, the province of B.C. passed the Declaration on the Rights of Indigenous Peoples Act (Declaration Act) into law, as the Province's framework for reconciliation. The Declaration Act aims to create a path forward that respects the human rights of Indigenous Peoples, conducting work together with enhanced predictability and transparency. The act requires the B.C. government, in consultation and cooperation with Indigenous Peoples, to take all measures necessary to achieve consistency between the laws of B.C. and the UN Declaration. This applies to new and existing laws and policy.

On June 21, 2021, the United Nations Declaration on the Rights of Indigenous Peoples Act (UN Declaration Act) received Royal Assent and immediately came into force. This legislation advances the implementation of the UN Declaration as a key step in renewing the Government of Canada's relationship with Indigenous Peoples. The purpose of UNDA is to affirm the UN Declaration as an international human rights instrument that can help interpret and apply Canadian law and it also provides a framework to advance implementation of the UN Declaration at the federal level.

On June 21, 2023, the UNDA action plan developed in consultation and cooperation with First Nations, Inuit and Métis from across Canada, was released. The implementation of the UN Declaration action plan and the UN Declaration will contribute to the GoC's continued efforts to break down barriers, combat systemic racism and discrimination, close socio-economic gaps and promote greater equality and prosperity for Indigenous Peoples.

The legislative context outlined above, including the Constitution Act, 1982, Oceans Act, Declaration Act, UN Declaration Act, and the associated UN Declaration action plan, will inform the MSP process as we work together toward sustainable use of our shared ocean environment, respecting Indigenous rights and fostering collaborative governance with Indigenous communities. In the context of MSP, specific actions include consultation with potentially affected Indigenous communities, weaving together multiple knowledge systems into the MSP process and, where appropriate, establishing collaborative governance agreements.

Regulatory context

The marine regulatory context in Southern B.C. is complex and involves overlapping legislative authorities and policies of federal, provincial, Indigenous and municipal governments. A delineation of these levels of government and their associated legal tools and responsible authorities has been captured in the list below. Indigenous Peoples have been using their own distinct legal traditions since time immemorial to act as stewards of the land.

Despite the regulatory complexity, it is important to note that MSP does not and will not replace single-sector management processes, nor will it replace existing authorities to regulate specific sectors or associated processes. The Southern B.C MSP Framework is intended to inform decision makers. It Is not to be interpreted or implemented in a manner that fetters the decision-making authorities of any MSP partners. Furthermore, neither this Framework, nor any acts performed in connection with it, are to be used, construed or relied on by anyone as evidence, acceptance or admission of the existence, nature, scope or content of any jurisdiction, treaty or Aboriginal rights or title of a Nation and Crown jurisdiction, rights or title, or how those rights co-exist with each other or other Indigenous Nations.

MSP will enhance intergovernmental collaboration and will ultimately inform decision makers responsible for particular sectors, activities or concerns so decisions can be made in a comprehensive, integrated and complementary way.

Coastal and marine jurisdiction in B.C.^{Footnote 1}

Agreements and legal tools

International

• Convention on Biological Diversity
• UN Convention on the Law of the Sea
• UN Declaration on the Rights of Indigenous Peoples

Indigenous Governments

• Indigenous Law
• Constitution Act, 1982
• Fish and Wildlife Protection Law Act (Tla'amin)
• Fisheries, Wildlife, Migratory Birds and Renewable Resources Act (Tsawwassen)
• Maa-nulth Final Agreement Act (2009)
• Resource Harvesting Act (Maa-nulth)
• Tsawwassen Final Agreement Act (2008)
• UN Declaration on the Rights of Indigenous Peoples Tla'amin Final Agreement Act (2014)

Federal

• Canada National Marine Conservation Areas Act
• Canada National Parks Act
• Canada Shipping Act, 2001
• Canada Wildlife Act
• Canadian Energy Regulator Act
• Canadian Environmental Protection Act
• Canadian Navigable Waters Act (2019)
• Constitution Act, 1982
• Environmental Enforcement Act
• Fisheries Act
• Fishing and Recreational Harbours Act
• Impact Assessment Act
• Marine Act
• Migratory Birds Act
• National Parks Act
• Oceans Act
• Oil Tanker Moratorium Act
• Species at Risk Act
• Telecommunications Act (1993)
• United Nations Declaration on the Rights of Indigenous Peoples Act
• Wrecked, Abandoned or Hazardous Vessels Act (2019)

Provincial

• Community Charter
• Declaration on the Rights of Indigenous Peoples Act
• Ecological Reserve Act
• Environment and Land Use Act
• Environmental Assessment Act
• Environmental Management Act
• Fish and Seafood Act
• Forest and Range Practices Act
• Great Bear Rainforest (Forest Management) Act
• Integrated Pest Management Act
• Interpretation Amendment Act
• Islands Trust Act
• Land Act
• Land Title Act
• Local Government Act
• Maa-nulth Final Agreement Act (2011)
• Oil and Gas Activities Act
• Park Act
• Protected Areas of British Columbia Act
• Tla'amin Final Agreement Act (2013)
• Tsawwassen Final Agreement Act (2007)
• Vancouver Island Natural Gas Pipeline Act
• Wildlife Act

Responsible authorities

International

• Convention on Biological Diversity Conference of the Parties
• United Nations International Maritime Organization

Indigenous Governments

• Indigenous Government

Federal

• Crown-Indigenous Relations and Northern Affairs Canada
• Environment and Climate Change Canada
• Fisheries and Oceans Canada
• Industry Canada
• Parks Canada
• Transport Canada

Provincial

• Ministry of Energy, Mines and Low-Carbon Innovation
• Ministry of Environment and Climate Change Strategy
• Environmental Assessment Office
• Ministry of Forests
• Ministry of Indigenous Relations and Reconciliation
• Ministry of Water, Land and Resource Stewardship
• Islands Trust
• Municipalities
• Regional Districts

Federal policy context

Canada's Oceans Strategy (COS) was developed under the Oceans Act in 2002 and provides the policy framework for GoC's approach to oceans management guided by the principles of sustainable development, IOM and application of a precautionary approach to management. The COS is complemented by an operational framework which recognizes that integrated management must have a collaborative governance model that brings together GoC departments, provincial governments, First Nations, Indigenous organizations and stakeholders to inform the location and design of conservation sites and to identify their interests in blue economic opportunities (Fisheries and Oceans Canada 2002). Multiple goals and objectives rooted in the COS can be pursued and supported through the MSP process, including collaboration with provincial and territorial governments, First Nations, Indigenous organizations and stakeholders to continue to support achievement of Canada's marine conservation targets; advancing reconciliation with Indigenous Peoples; and supporting the growth of the ocean economy.

Southern B.C. Marine Spatial Planning Area

The Southern B.C. MSP planning area includes the Southern Shelf Marine Bioregion and the Strait of Georgia Marine Bioregion, estuaries as defined by the Pacific Estuary Conservation Program (Pacific Birds Habitat Joint Venture Technical Team 2019) and a buffer zone of up to 1,000 metres inland to account for the consideration of long term variation along shorelines due to impacts from climate change and to accommodate datasets associated with features, activities, habitats, or species that utilize the transition zones at the marine-land interface (Figure 2). The planning area supports one of the most densely populated regions in Canada and holds cultural, social, ecological and economic value at local, national and international scales.

The planning area is home to complex and diverse marine ecosystems that support abundant marine species and underpin the cultures and economies of First Nations and coastal communities. To support MSP and other initiatives in the Pacific region, DFO developed Conceptual models of major ecosystems in Canada's Pacific Ocean. The conceptual models are a representation of a system, such as an ecosystem and can be used as a tool to help foster an understanding of the subject they represent. A suite of thirteen conceptual models representing the major ecosystems within Canada's Pacific Ocean, extending from the B.C. coastline to the outer boundary of the Canadian Pacific Exclusive Economic Zone, provide a general overview of the components and processes within each ecosystem. For each ecosystem, a series of 4 illustrations depict: the main ecological components, key interactions between ecological components, main environmental drivers and most common human activities including climate change stressors.

Indigenous Peoples in B.C. maintain profound cultural, spiritual and economic ties to the waters, landscapes, and ecosystems of the region. The ocean is central to the cultures and traditions of the 69 First Nations with traditional territories in or adjacent to the planning area. Among these, 49 have territories overlapping with the planning area, including 7 Modern Treaty First Nations. Modern Treaty First Nations possess a unique space within the constitutional fabric of this country for the recognition and expressions of Indigenous rights protected and affirmed by Section 35 of the Constitution Act, 1982.

Crown-Indigenous relations are also shaped, among other things, by the Truth and Reconciliation Commission's Calls to Action and the United Nations Declaration on the Rights of Indigenous Peoples as implemented by Canada through the Declaration on the Rights of Indigenous Peoples Act. In the Southern B.C. MSP planning area, Modern Treaty First Nations such as those signatory to the Maa-nulth First Nations Final Agreement (Huu-ay-aht First Nations, Ka:'yu:'k't'h'/Che:k'tles7et'h' First Nations, Toquaht Nation, Uchucklesaht Tribe and Yuułuʔiłʔatḥ First Nation), Tla'amin Nation and Tsawwassen First Nation coexist with 20 other Nations that may not have traditional territories in the planning area but are members of organizations interested in the Southern B.C. MSP Program. An example is the Lower Fraser Fisheries Alliance, composed of 22 First Nations with traditional territories extending from the mouth of the Fraser River up to the Fraser Valley.

B.C.'s ocean-dependent economic sectors contribute significantly to the cultural and social fabric of the province. Main sectors of this ocean economy include transportation, seafood, tourism and recreation, coastal forestry, research, infrastructure and marine technology, as well as government activities. In the Southern B.C. planning area, transportation, marine-dependent forestry and tourism and recreation are the 3 largest sectors, each generating between $7B and $8B in direct output. Seafood (commercial harvesting, aquaculture and seafood processing) is the fourth largest at $1.7B (Big River Analytics 2021).

Draft goals for Marine Spatial Planning in Southern B.C.

The intent of the Southern B.C. MSP process is to weave together knowledge of the planning area from multiple knowledge systems and provide a spatially explicit planning tool (the plan) that considers ecological, cultural, social and economic factors. The process will foster reconciliation and facilitate the long-term resilience and sustainability of the marine environment.

During the early planning phase of MSP in Southern B.C., DFO engaged with GoC departments and the Province of B.C. to develop draft goals that provide a starting point for guiding the MSP process. These draft goals are meant to be collaboratively reviewed, revised and finalized with MSP partners who have signed collaborative agreements and with interested groups during the planning phase. The draft goals are broad in nature and specific objectives that support MSP goals will be developed as the MSP process evolves and as the scope of the plan is refined in discussion with GoC departments, the Province of B.C., First Nations, Indigenous organizations and stakeholders.

The following draft goals are provided as a starting point to guide marine spatial planning in Southern B.C.:

• goal 1: Facilitate collaboration between federal, provincial and Indigenous governments, First Nations and stakeholders
• goal 2: Improve the transparency of, confidence in and support for informed decision-making
• goal 3: Protect, conserve and support resilient marine and coastal ecosystems
• goal 4: Reduce user conflict and enable safe and responsible access to the marine environment
• goal 5: Support ocean-based prosperity and a sustainable economy
• goal 6: Reduce impacts to marine ecosystems and coastal communities

Navigating MSP in Southern B.C.

MSP in Southern B.C. is anticipated to be an iterative process with specific outputs required to advance the program through the 'early planning' and 'planning phases', and eventually working towards the development and implementation of a Plan. A roadmap for MSP in Southern B.C. has been developed to help guide future planning efforts, based on input received to date from GoC departments, the Province of B.C., First Nations, Indigenous organizations and stakeholders; the National MSP Process Blueprint and international MSP guidance (Ehler 2021; UNESCO-IOC/European Commission 2021).

The roadmap is anchored by 3 core pillars (engagement, communication and knowledge sharing) which are integral to 4 MSP pathways (Figure 3), each of which have their own respective inputs and outputs:

• governance
• scoping
• characterize planning area
• marine spatial planning

The roadmap is intended to illustrate a practical approach for MSP in Southern B.C. based on information gathered to date in the early planning phase and will continue to evolve as the MSP process proceeds. The roadmap is not intended to be prescriptive or static, but rather a starting point to guide MSP partners when working towards a plan, and to identify the synergies, dependencies and linkages between the phases, MSP pathways and outputs. Given that MSP in Southern B.C. is early in the process, details on the implementation phase are not included in the Southern B.C. MSP Roadmap, and will be determined in the planning phase.

Core pillars

Engagement

Meaningful engagement is an integral component of marine spatial planning in the Southern B.C. planning area. As one of the 3 core pillars, engagement will be woven throughout each of the 4 MSP pathways and will aim to be inclusive, equitable and diverse by providing opportunities for representatives from the Province of B.C., First Nations, Indigenous organizations and stakeholders in the planning area to be engaged and involved in the development and execution of the program. Engagement throughout the planning phase will continue to focus on upholding federal and provincial reconciliation commitments, including: modern treaties in the planning area, relationship-building, transparency in the process, information sharing.

Engagement facilitates awareness from parties on ongoing issues and may take the form of long-term, ongoing dialogue, partnership agreements or interacting to build understanding and relationships. Engagement and consultation are closely interlinked in the context of working relationships, often complementing each other. Consultation is a multifaceted form of engagement that can encompass the legal duty to consult as well as seeking feedback from Indigenous Peoples, stakeholders and federal and provincial governments to inform decisions, programs or initiatives. Consultation with all First Nations in the planning area is necessary to fulfill legal obligations (including the legal duty to consult) related to Aboriginal and treaty rights which are protected under the Constitution Act, 1982, and in such cases a determination of the obligation will depend on the specific circumstances.

In 2016, the Government of Canada endorsed the United Nations Declaration on the Rights of Indigenous Peoples without qualification and committed to its full and effective implementation. The UN Declaration action plan sets out a wide-ranging, whole-of-government and evergreen roadmap to advance the objectives of the UN Declaration, including self-determination, self-government, equality, non-discrimination and harmonious relations, participation in decision-making by Indigenous Peoples and revitalization of languages and cultures. In the short term, the Government of Canada will work with its Indigenous partners to prioritize UN Declaration action plan measures and to develop implementation plans, timelines and metrics.

Communication

Transparent communication is fundamental to the development, delivery and implementation of a Plan in Southern B.C. Effective communication will be essential to facilitating information exchange, an understanding of the process and broad awareness of the MSP outputs and outcomes. Communications tools that can be developed and used to facilitate engagement and knowledge sharing may include the DFO MSP website, an online collaborative space, social media platforms, print materials, workshops and outreach forums.

Sharing knowledge

MSP efforts in Southern B.C. will use an evidence-based process^{Footnote 3} where decisions are supported by robust data and information. At the core of this process is spatial data and information relevant to the planning area that provides the knowledge to build an understanding of the current conditions, to identify future needs and to support assessments and decision-making on spatial allocation and future use of marine space.

Knowledge sharing is an ongoing collaborative process of gathering and analysing data and information and the interpretation and communicating of assessment outcomes with partners and stakeholders throughout the planning process. Effective knowledge sharing requires an enabling environment that includes:

• effective working relationships and trust between MSP partners and stakeholders
• clear roles, responsibilities, agreements and protocols for the sharing, management and stewardship of data, information and knowledge
• common understanding of what knowledge products and MSP tools are required/agreed with MSP partners
• adequate resources and capacity building for all MSP partners

Input data and information requirements for Southern B.C. MSP includes spatially explicit data and other relevant, supporting information on:

1. oceanographic and other physical features, such as:
   1. seasonal ocean temperatures
   2. bathymetry
   3. predominant currents and wave patterns
   4. predicted sea level change scenarios
2. biological and ecological characteristics, including:
   1. distributions of key species
   2. biological communities and ecosystems
   3. vulnerable ecosystems
3. human populations and activities, including:
   1. demographics
   2. distribution of areas of recreational
   3. cultural and spiritual importance
   4. current activity for key commercial sectors
4. governance and regulatory environment, including:
   1. regulatory
   2. administrative and protected area boundaries
   3. management measures within those boundaries
5. projections of future trends in oceanographic, ecological, biological and/or human dimensions

This knowledge will be used to develop initial assessments and knowledge products that comprehensively describe current conditions in the characterize planning area pathway and support the development of preferred scenarios as the process moves towards a plan.

In the early planning phase, information gathering for Southern B.C. has relied primarily on federal and provincial open data sources and interdepartmental collaboration. Government data sources and interdepartmental working groups will continue to be pivotal to knowledge sharing throughout the MSP process. DFO will also seek to broaden the scope of data and information gathering in order to establish a robust evidence base through diverse sources and multiple ways of knowing.

Marine spatial planning pathways

The Southern B.C. MSP Roadmap identifies the pathways and pillars that are essential to the development of a plan. 4 'pathways' have been identified for the MSP process:

1. governance
2. scoping
3. characterize the planning area
4. marine spatial planning

Each of these pathways includes several specific outputs that support MSP and each pathway is rooted in the 3 core pillars of MSP

Governance

Governance for MSP refers to the structures and processes to work collaboratively on MSP in Southern B.C.

Outputs along the governance pathway provide the collaborative foundation and operational structure for achieving outputs and outcomes identified in the other 3 pathways. Governance pathway outputs (i.e., collaborative governance model, collaborative agreements and MSP charter) are intended to be completed before initiating work on the remaining pathways and outputs for the planning phase. Each output is derived from key inputs and supported by processes driven by the core pillars of engagement, communication and knowledge sharing.

Collaborative governance model

Ocean governance is represented across many different sectors with a broad spectrum of regulations and government bodies (i.e., federal, provincial and First Nations). Regional planning processes face challenges as socio-economic systems operate and are managed at different spatial and temporal scales by different authorities. The vast geographic scale of the Southern B.C. planning area results in a large number of interested parties and possible MSP partners. This creates challenges around capacity for all MSP partners to be involved.

Preliminary feedback received during the early planning phase illustrates a common interest in establishing a feasible, efficient and adaptable governance arrangement that is anchored in appropriate jurisdictions, authorities and mandates, and that would provide the structures (steering committees / technical working groups) through which MSP partners work collaboratively in the planning and implementation of a plan for Southern B.C.

Collaborative agreements

Once Southern B.C. MSP partners have been identified through preliminary engagement and a governance model has been agreed upon, a governance structure would be formalized through a trilateral (First Nations, GoC, Province of B.C.) collaborative governance agreement. The collaborative governance agreement will be negotiated by participating parties and will outline the following:

• purpose
• principles for working together
• the governance structure, including:
• roles and responsibilities
• decision-making processes
• dispute resolution
• any other provisions agreed to by the parties

MSP charter

An MSP charter may be collaboratively developed by MSP partners for the Southern B.C. planning area to provide a clear and common understanding on governance structure, collaboration and decision-making process and authority. It is anticipated to include the terms of reference and mechanisms important to inclusive and transparent engagement on planning in Southern B.C., including:

• a stakeholder engagement approach
• risk and mitigation strategies
• guiding principles
• clarity on the scope of the program
• the deliverables and resources required

Clear and transparent guiding principles provide a frame for establishing MSP goals and objectives, and a foundation by which Southern B.C. MSP partners can engage constructively. While MSP is being advanced uniquely in planning areas around the world, the processes typically align with a number of guiding principles. These can include widely accepted and general principles for collaborative planning, but also others that align with specific regional issues.

Scoping

Determining the scope of MSP in Southern B.C. is fundamental to establishing clear workplans and completing outputs under realistic timelines. The complexity of the planning area requires a clear vision and common understanding of the goals and objectives of MSP in Southern B.C. Outputs along the scoping pathway are focused on providing strategic direction for the MSP process in Southern B.C. and the respective outcomes will influence the outputs in the characterize planning area and the marine spatial planning pathways.

MSP action plan

The first step in the scoping pathway will be to identify planning efforts that were undertaken or are underway in the planning area, understand what scale these efforts apply to and determine how they relate to the Southern B.C. planning area. MSP is applied across various geographic scales and jurisdictions, which can present challenges when inputs generated at different scales must be consolidated to support outputs required for the broader planning area. Smaller scale planning efforts, including marine use plans led and developed by First Nations and/or local communities, provide specific goals and objectives for the use of marine resources at the local scale. These inputs take different forms ranging from high level strategic plans to comprehensive plans with detailed implementation tactics. In addition, existing management regimes and overlapping jurisdictions do not always align with how a plan allocates use in space and time.

Once planning area units have been determined, MSP partners can develop an MSP action plan for Southern B.C. to guide the planning phase. Main elements of the MSP action plan could include specific guidance on the development of:

• clarity on roles and responsibilities of MSP partners
• First Nations engagement and consultation
• stakeholder engagement and communications
• process for developing knowledge products and the marine spatial plan(s)
• implementing the marine spatial plan(s)
• monitoring and evaluating the planning process

MSP vision

A common vision for MSP in Southern B.C. sets the intention for what the marine space will look like in the future. The vision should reflect the diverse values and interests in the Southern B.C. planning area. The vision is the cornerstone for setting goals and objectives for the MSP process and the marine spatial plan(s). One of the outputs of the early planning phase was a draft vision for MSP in Southern B.C., developed by DFO to provide preliminary direction for the MSP process. DFO's draft vision for MSP in Southern B.C., which will be discussed and refined with MSP partners and collaborators, is 'a healthy and resilient marine ecosystem that supports vibrant and diverse coastal communities and is actively sustained through collective understanding, mutual respect and collaborative stewardship'. Once collaborative agreements are fully executed and the MSP Charter has been developed, it is anticipated that one of the first tasks to be completed by the MSP partners will be to develop a common vision that represents the broader values and interests in the planning area.

MSP goals and objectives

The development of common goals and objectives for MSP in Southern B.C. is an essential step in ensuring MSP will remain focused and aligned with the vision and guiding principles. Using the draft goals as a starting point partners will collaboratively develop common goals that drive the MSP process in Southern B.C. and form the basis of the marine spatial plan(s). MSP goals are broad, abstract statements that speak to general intentions of the program. The objectives associated with each of the goals will be focused, tangible and measurable.

'A goal is a statement of general direction or intent. They are high-level statements of the desired outcome that you hope to achieve. Goals provide the umbrella for development of all other objectives and reflect the principles upon which subsequent objectives are based'

(Ehler and Douvere 2009)

Characterize planning area

Characterizing the southern B.C. planning area provides the foundation for exploring potential future scenarios of marine use in the planning area. In this pathway data and knowledge about existing conditions and activities are mapped. The outputs from this pathway will support engagement and analysis in the MSP process for the development of alternative future scenarios and the development of the marine spatial plan(s).

Knowledge action plan

The first key output of this pathway is a Knowledge action plan that builds on initiatives developed in the early planning phase (including the Atlas) to outline a data creation and compilation strategy defining:

• data and knowledge requirements and gaps prioritized in relation to MSP goals and objectives (scoping pathway)
• data providers and knowledge holders at the national, regional and local levels, including existing data applications in the region
• data quality requirements for the different data and knowledge systems and categories
• data acquisition and knowledge sharing processes/protocols specific to the different MSP partners and stakeholders (e.g. Indigenous Knowledge)
• strategies to address key data and knowledge gaps and dealing with uncertainties
• tools and processes for access, storage and management of data and knowledge

The Southern B.C. knowledge action plan is intended to reflect the goals and objectives for the planning area as determined through the scoping pathway. First Nation partners will be invited to determine if and how they would like to share Indigenous Knowledge, including any IK sharing processes, conditions and agreements as part of, or separately from the Southern B.C. knowledge action plan. The outcome of this step is a robust understanding of the data and knowledge requirements, knowledge gaps, and knowledge products that must be developed to support the development of a marine spatial plan(s).

Knowledge products

The next step in this pathway is the compilation and analysis of relevant data and knowledge to develop knowledge products for MSP. Knowledge products developed for the southern B.C. planning area may include:

• inventory, supporting reports and summary maps to describe the current distribution of important biological/ecological and cultural areas and human activities and sectors in the planning area
• assessments for planning, including assessments on:
• future projections/trends of marine spatial use for different sectors
• impacts of key environmental drivers on the planning area, including impacts of climate change, demographic changes and innovative technologies
• potential conflicts and compatibilities among existing human uses and between existing human uses and the natural environment
• cumulative effects
• environmental carrying capacity and suitability analysis of marine areas for sector development

Future versions of the Atlas are intended to be developed collaboratively with MSP partners and collaborators. It will seek to expand the data scope and functionality of the Atlas to achieve an interactive mapping tool that can support knowledge sharing and other decision support tools anticipated to be used throughout the MSP process, while adhering to established principles and protocols.

Planning area profile

The knowledge products described in the previous step will be analysed with MSP partners and collaborators, and selected products will be collated to form a planning area profile. The main output of this step is a summary report with relevant maps.

Marine Spatial Planning

Developing a plan is the final pathway to be completed for the planning phase with the ultimate outcome being an approved plan for Southern B.C. The plan is anticipated to support coordination of marine use by considering the breadth of activities over time in an area, potentially including socio-cultural uses, economic uses and/or conservation planning.

Key outputs along this pathway will be derived and supported by outputs completed within the other 3 pathways. Each output is derived from key inputs and supported by the core pillars of engagement, knowledge sharing and communication.

Marine conservation network

The term marine conservation network refers to a collection of Marine Protected Areas (MPAs) and other conserved areas that operate cooperatively to safeguard important ecological components of the ocean and marine biodiversity as a whole. A clear understanding of the spatial extent of areas that require some level of conservation or protection is a key element that informs the MSP process. A coordinated approach for the establishment of a marine conservation network has not been considered or initiated for the Southern B.C. planning area.

MSP design scenario

A draft MSP design scenario(s) for the planning area would consider current uses, suitable areas for future marine activities, areas where human use should be avoided, monitored or managed, or areas where special measures should be put in place for conservation or protection. The process that examines a scenario (or scenarios) involves the creation of alternative images of the future and evaluating them against the MSP vision and goals.

'A spatial scenario provides a vision that projects the future use of marine space based on a core set of values (reflected as principles, goals, objectives and assumptions) about the future'

(UNESCO-IOC/European Commission 2021)

The MSP design scenarios will be developed collaboratively with MSP partners. The steps for developing MSP scenarios include:

• identify criteria for MSP scenario development and agree on MSP tool(s)
• based on information from the early planning phase and existing spatial plans, develop MSP design scenario(s) illustrating current uses, suitable areas for future marine activities and areas that need to be avoided or special measures put in place for conservation or protection
• consider existing information on threats/risks assessments and adjust design scenario(s) as needed
• identify objectives for areas within the MSP design scenario

The intended outcome is to design the optimal MSP design scenario that achieves the vision and goals for MSP in Southern B.C. and has broad support from MSP partners and collaborators.

Marine Spatial Plan

A plan is the primary document that results from the MSP process and identifies specific management measures designed to achieve the vision (or desired future) for the planning area. The plan will identify suitable areas and/or timing of human activities, as well as areas that should be avoided or that may require special protection measures.

The plan will not create or direct legislative authority regarding the use or protection of marine resources. Rather, it is intended to serve as a tool to inform the planning and management of marine activities in the planning area and link marine uses to existing legislative and management instruments.

The plan will be the final output for the planning phase of the MSP process, but the plan itself is a starting point and is meant to be reviewed and amended periodically to reflect any shifting values, goals or challenges that may arise in the planning area over time.

MSP in a changing environment

Socio-ecological systems are dynamic systems that change over time and space in response to environmental and economic drivers. While it is important for the MSP process to consider the different elements of change throughout the planning process, this remains a challenging task (Gissi et al. 2019).

The Southern B.C. planning area has seen rapid population growth in recent decades, which in turn has exerted pressure on ecosystems and resources. Climate change impacts on marine ecosystems and communities are likely to be augmented by other environmental and demographic trends projected for southern B.C. Changes in the abundance and distribution of marine resources combined with increased demand could escalate conflicts and competition for scarce resources (Bush and Lemmen 2019). These drivers of change must be considered throughout the MSP process so that the plan can facilitate resilient ocean management measures. The drivers of change and discussion of these drivers will be contingent on the scope and goals as the program proceeds into the planning process. This subset is meant to describe the key factors that are likely to influence MSP regardless of scope and scale.

Climate change

Climate change impacts in Canada are consistent with global trends and include more extreme weather events, changes in seasonal rainfall patterns and hydrological cycles, thinning glaciers, thawing permafrost and rising sea levels (Bush and Lemmen 2019). Canada's oceans are becoming increasingly warm, increasingly acidic and less oxygenated as a direct effect of climate change. In British Columbia, a warming trend for upper ocean waters has been observed over the last 80 years (Fisheries and Oceans Canada 2021). The Northeast Pacific Ocean has seen consistent observed impacts from extreme high temperature in recent decades and it is also one of the regions that is projected to experience the highest intensity of annual extreme warming events (Cheung and Frölicher 2020; Cheung et al. 2021).

All these changes can lead to negative impacts on the stock biomass and projected catch of key commercial species in B.C.'s Pacific region. B.C. has also recorded sea level rise along most of its coastline, including in southern B.C., with exceptions in areas experiencing land uplift (e.g., Tofino, West Vancouver Island) (Bush and Lemmen 2019). Local sea levels are projected to rise along extensive stretches of the Canadian coastline due to warming temperatures and increased water discharge from melting land-ice. Sea level rise will lead to an increase in frequency and magnitude of extreme high water-level events and catastrophic flooding (Bush and Lemmen 2019).

The ecological complexity of the marine environment in southern B.C. makes it difficult to project climate change impacts on marine ecosystems (Okey et al. 2014). However, there are some recent studies showing that warmer temperature and changes in other ocean characteristics would affect the growth, survival, abundance and distribution of many key commercial species in southern B.C. including salmon and shellfish (Shelton et al. 2020; Talloni-Álvarez et al. 2019). It is anticipated that climate change will continue to drive significant changes in ecosystem structure and function; however, the observed effects may be differential, with many marine species shifting their distribution range due to changing temperature and some species suffering catastrophic declines in response to decreasing oxygen levels and increasing acidity, while other species and ecosystems experience positive change (e.g., increased abundance in response to higher nutrient availability) (Okey et al. 2014). While there is a high degree of uncertainty on the implications of climate change to species distributions, these changes are likely impact sectors that depend on these natural resources, including fisheries, tourism and recreation activities.

Despite the far-reaching effects of climate change, there is still a major gap in climate change integration within ocean management plans worldwide (Magris et al. 2013; Santos et al. 2020). Many existing cases which incorporated climate change adaptation into MSP have focused on regions with coral reefs, therefore future work should be focused on climate-adaptive MSP in regions with other ecosystem types (Wilson et al. 2020).

MSP is a relatively new concept that may facilitate the adoption and implementation of climate change mitigation and adaptation strategies for oceans (UNESCO-IOC/European Commission 2021).

The ecosystem-based and cross-sectoral approach to MSP allows for building ecological, social and economic resilience for climate change throughout the process (Santos et al. 2020).

Integrating climate change considerations into MSP contributes to large-scale global ocean governance goals, including the UN Sustainable Development Goals (SDGs) 13 “Climate Action” and 14 “Life Below Water” of the 2030 Agenda for Sustainable Development (UNESCO-IOC/European Commission 2021).

However, there are still some limitations for embracing climate change adaptation in MSP including a lack of scientific information at appropriate scale and the uncertainties of the impacts and in the frameworks. These limitations make the process for incorporating climate change adaptation in MSP challenging.

The Southern B.C. marine spatial planning process may consider climate change effects, mitigation and adaptation measures in core pillars and MSP pathways by:

• identifying lessons learned and best practices in other MSP processes within and outside of Canada that integrate climate change mitigation and adaptation into their planning process
• considering national, provincial and local policies and plans to address mitigation of and adaptation to climate change
• integrating climate change projections for Southern B.C. in knowledge products and future planning scenarios using the best available science and knowledge
• promoting resilience to climate change through the planning process
• assessing the application of adaptive and dynamic planning approaches, including planning at different scales
• implementing meaningful and consistent engagement and knowledge sharing with MSP partners, other First Nations not currently partnering in the process and stakeholders throughout the planning process

Population growth

Southern B.C. is experiencing one of the highest growth rates in population across Canada (Statistics Canada 2022). The population of B.C. is expected to increase by over 1.5 million people from 2020 to 2041 (Ip and Lavoie 2019) with the majority of this growth happening in coastal areas within the Metro Vancouver Regional District and in the Capital Regional District in southern Vancouver Island (Environmental Reporting B.C. 2018). In contrast to B.C.'s north coast, Southern B.C. is seeing more residential and commercial projects either in progress or being proposed, signalling that density and population numbers will likely climb (Philibert and Bodtker 2018).

The high population growth projected for B.C. is likely to exert increased pressure on the coastal socio-ecological systems in the planning area through increased coastal urbanization and demands for marine resources. Coastal urbanization has direct and indirect impacts on marine ecosystems and can result in changes in marine circulation patterns, coastal erosion, increased pollution, degraded habitats and reduced biodiversity (Bindoff et al. 2019; Philibert and Bodtker 2018).

Increased demands on natural resources can lead to degradation and increased vulnerability of marine ecosystems, loss of ecosystem services, increased competition for marine space and more conflict between users. Indigenous and coastal communities have close cultural, social and economic ties to the marine environment and are likely to be the most impacted by these changes.

The Southern B.C. MSP process can collaboratively develop an understanding of population changes and implications to future demand for marine resources and marine space in the planning area. This could be integrated into relevant knowledge products developed through the knowledge sharing pathway and underpin alternative MSP future scenarios to support the decision-making process.

Technological innovation and the ocean economy

Southern B.C. has a vibrant marine economy that includes Canada’s largest port, domestic and international marine transportation, commercial fisheries, tourism and recreation. The planning area also supports land-based economic activity. For example, about 85% of forestry activities are supported by marine spaces for either the transportation or storage of goods (Big River Analytics 2021). B.C.’s marine sector provides employment to about 22,000 people in 2022 (Government of British Columbia 2022). B.C.’s Economic plan StrongerBC was released in 2022 and outlines the province’s plan for the economy in the next few years. Following the COVID-19 pandemic, floods, wildfires and several other social and environmental hardships, the plan focuses on clean economic growth that supports B.C.’s population. Key goals in the plan include significant investment in trades and technology training, supporting a shift to clean emissions and, in the spirit of meaningful reconciliation, partnering with Indigenous communities in developing economic initiatives.

Advances in technological innovations and digitization have the potential to transform ocean economies, improve the efficiency, environmental performance and productivity of existing ocean-based activities and to open new frontiers for ocean development (e.g., offshore renewable energy, carbon storage and deep-sea mining). New digital technologies are also being applied to develop enhanced knowledge and understanding of marine ecosystems, their functions and sustainable management, by improving data quality, data volumes, connectivity and communications (OECD 2023). Examples of such technologies include:

• artificial intelligence
• big data
• complex digital platforms
• sophisticated arrays of sensors
• small satellites
• genetics and acoustics

The Southern B.C. MSP process can consider innovations in ocean technologies and plans and policies for economic development of the region by:

• working with relevant agencies, Indigenous partners and stakeholders to identify key sectors where technological innovation will provide future sustainable economic opportunities in the planning area
• identifying priority research areas where more in-depth studies are required to have a better understanding of potential future scenarios of ocean use
• supporting and promoting innovative research initiatives and digitization to improve scientific data quality and coverage for a better understanding of marine ecosystems and processes in the planning area
• considering marine space requirements of new sectors in the development of future scenarios for the spatial plan
• promoting a dynamic, flexible and adaptive approach to the MSP process that can accommodate emerging technologies

References

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