Canada's Ocean Noise Strategy

A coordinated approach to minimize impacts on marine life

On this page

• Notes
• Executive summary
• Introducing Canada's Ocean Noise Strategy
  • Context
  • Purpose
  • Scope
  • Guiding principles
  • Structure of the strategy
  • Current actions and collaborative initiatives
  • Working together to manage ocean noise
• Recommendations
• Taking action to address ocean noise
• Glossary
• References

Notes

Unless specified otherwise, in this document:

• Ocean noise refers to human-generated underwater sounds in the marine environment that have a wide range of impacts on marine animals.
• Manage (in the context of ocean noise) refers to all efforts aimed at preventing and reducing ocean noise, as well as addressing its associated impacts.
• "Stakeholders" refers to individuals, groups or organizations who have an interest in, or are affected by, ocean noise. They can be directly or indirectly included in decision-making processes.
• Partners includes, but are not limited to:
  • Indigenous governments and communities
  • provinces and territories that have decision-making powers within their jurisdictions
  • those that lead initiatives jointly with the Government of Canada

The Government of Canada works collaboratively with many partners and stakeholders to better understand and manage ocean noise.

These documents were produced to provide more information and context:

• What we heard report: Public feedback on the Ocean Noise Strategy Discussion Document.
• About ocean noise and its impacts: General information about sound in the marine environment and the impact of ocean noise on marine life. Also explores cultural and societal practices of coastal and Indigenous communities.
• Examples of ocean noise-related initiatives: Highlight some of the Government of Canada's collaborative ocean noise-related initiatives.

Executive summary

Human activities in, or near, water can result in human-generated underwater ocean noise that can negatively impact marine life. Ocean noise can cause behavioural disturbances and sometimes fatal injuries to marine animals, which may result in cultural and economic impacts on coastal and Indigenous communities. At the same time, the marine economy:

• is an important contributor to the wellbeing of Canadians
• enables the transportation of goods to and from other countries
• provides nourishing food
• is a source of recreation

Effective management of ocean noise requires a balance of marine environmental conservation and social and economic considerations. A comprehensive strategy is needed to support this balance and address the complex and evolving problem of ocean noise.

The Government of Canada has key responsibilities for assessing and managing ocean noise; however, efforts to date have often been in response to threats to a particular species or driven by the need to assess and manage specific development projects.

With the goal of undertaking a more coordinated and proactive approach to address this complex issue, federal departments and agencies have worked together to develop the first draft of Canada's Ocean Noise Strategy (the strategy).

Introducing Canada's Ocean Noise Strategy illustrates the context, purpose, scope, guiding principles and structure of the strategy, which includes the themes addressed through the strategy's action-oriented objectives. Due to the highly technical nature of underwater sound, readers may wish to consult the webpage About Ocean Noise and its Impacts for a more in-depth explanation of the issue. Additionally, short descriptions and links to 6 initiatives can be found on the webpage Examples of ocean noise-related initiatives. These initiatives offer valuable insights into the various types of the Government of Canada's collaborative ocean noise-related initiatives around the country.

20 recommendations were set out, intended to guide and support improved coordination of federal efforts in the areas of:

• Theme 1: Science, knowledge gathering and innovation
• Theme 2: Assessment and management
• Theme 3: Communication, coordination and engagement

To minimize impacts of ocean noise on marine life, these recommendations build on existing work while:

• maximizing the use of knowledge and resources
• coordinating actions
• guiding future partnerships to address ocean noise

Canadians are invited to have their say about the recommendations. There is a 60-day consultation period through Fisheries and Oceans Canada's Open Consultation webpage. At the same time, there is an interactive engagement and consultation with Indigenous Peoples, other partners and stakeholders. These opportunities enable discussions focused on the recommendations and potential actions aimed at achieving the objectives of the strategy.

Next steps include the development of the Federal Action Plan. This action plan will track the implementation of the strategy's recommendations and associated actions at the federal level. It will include timelines and the name of the organization(s) leading the actions.

Implementation of the recommendations in this strategy will help to further coordinate and integrate collaborative efforts to:

• identify remaining knowledge gaps
• develop new methodologies and processes to better understand and manage ocean noise
• further recognize the importance of Indigenous Knowledge and community participation in minimizing ocean noise impacts
• accelerate the development of creative approaches to reduce ocean noise in the marine environment, with the goal of preventing or reducing negative impacts
• increase transparency and understanding of federal roles and responsibilities
• facilitate the potential for proactive approaches to address the uncertainties and challenges associated with effective management of ocean noise
• advance Canadians' awareness and understanding of ocean noise and its impacts on marine life

The Federal Action Plan will also provide opportunities to:

• design a coordinated Government agenda
• highlight synergies
• help reduce duplication of efforts
• provide an additional level of accountability and support for the Government's direction in addressing ocean noise impacts

Ultimately, this enhanced knowledge will enable the Government to:

• make better-informed management decisions
• take effective actions to safeguard marine ecosystems and their valuable resources for current and future generations

The final recommendations and first draft of the Federal Action Plan on ocean noise are anticipated to be released in 2025. Subsequently, there will be consultation and engagement focused on the action plan and its implementation. These processes will involve seeking input from partners and stakeholders to ensure comprehensive and well-informed decision making.

Introducing Canada's Ocean Noise Strategy

Context

Sound is essential for life under water. Marine animals rely heavily on sound, ^{Footnote 1 Footnote 2} using it to monitor their environment and assist with:

• navigation and communication
• socializing
• foraging for food
• finding mates
• avoiding predators

Over a long period of time and gradual adaptation, many marine animals have evolved acoustic communication systems that effectively produce and receive sound signals underwater, sometimes over great distances.

Human activities carried out in or near water have increased the level of underwater sound to the point where it is disrupting the ability of marine animals to carry out important life functions. In the context of this first draft of Canada's Ocean Noise Strategy, underwater ocean noise is defined as human-generated sounds that are transmitted beneath the surface of the water and have a wide range of impacts on marine animals. Ocean noise comes from a wide variety of human sources, including:

• vessels
• military
• industrial and construction activities
• echosounders and sonars
• seismic surveys

A growing list of scientific studies confirms that ocean noise can cause a multitude of negative impacts on many different marine species, ^{Footnote 3 Footnote 4 Footnote 5 Footnote 6 Footnote 7} including:

• marine mammals
• fish
• sea turtles
• marine invertebrates
• seabirds

Ocean noise not only affects individual animals; these impacts can also have cascading effects on species at population and community levels. ^{Footnote 8 Footnote 9 Footnote 10}

Research also shows that ocean noise from human sources threatens many of Canada's iconic and culturally important marine species, a situation that also puts at risk many cultural and societal practices of coastal and Indigenous communities. ^{Footnote 11 Footnote 12} For example, subsistence hunters and fishers sometimes rely on certain species being available in specific habitats and at specific times. The presence of ocean noise can drive these species away, disrupt traditional practices and impact the pursuit of constitutionally protected Indigenous rights. ^{Footnote 13} Concerns related to both food security and culture have highlighted the need for more and better sources of information, including:

• Indigenous Knowledge
• science
• research and monitoring
• the development of innovative technologies

Purpose

The behaviour of sound in the marine environment, coupled with the various impacts of ocean noise on marine species, presents an intricate puzzle that is resistant to a single solution. This draft strategy is intended to be a coordinated approach to minimize impacts on marine life. It is designed to guide and support improvements to federal efforts in the areas of:

• science, knowledge gathering and innovation
• assessment and management
• communication, coordination and engagement

The Government of Canada, through various programs and initiatives, has made progress in addressing ocean noise. However, efforts to date have often been in response to threats to a particular species or driven by the need to assess and manage specific human activities. Together with partners and stakeholders, the federal government continues to seek new and innovative solutions to the large and complex problem of ocean noise. The nature of this issue demands ongoing learning, adaptation, intervention and collaboration. A comprehensive strategy is required to:

• address the complexity of this problem
• build on existing work while maximizing the use of knowledge and resources
• support a balance between marine conservation and socio-economic considerations
• coordinate actions
• guide future partnerships to minimize impacts of ocean noise on marine life

Implementing the strategy provides an opportunity to connect projects and identify synergies.

Scope

The Government of Canada has key responsibilities for assessing and managing ocean noise. The strategy is intended to strengthen existing federal and collaborative actions and support future initiatives to better understand and manage ocean noise. The strategy's geographic scope includes Canadian coastal, offshore marine and estuarial waters, such as the St. Lawrence Estuary and Saguenay Fjord. Therefore, the focus of the strategy's policies and desired outcomes is national, while allowing for local and regional flexibility so that those closest to the issues can adapt and implement appropriate best practices and solutions based on important local and regional contexts. The strategy also emphasizes Canada's role in international noise-reduction efforts.

Development of the strategy is an Oceans Protection Plan commitment led by Fisheries and Oceans Canada, with contributions from a number of federal organizations, including:

• Transport Canada
• Crown-Indigenous Relations and Northern Affairs Canada
• Canadian Coast Guard
• Department of National Defence (including Defence Research and Development Canada)
• Impact Assessment Agency of Canada
• National Research Council
• Natural Resources Canada
• Parks Canada
• Atlantic Canada Opportunities Agency

Each of these departments or agencies has an important role to play in coordinating and planning initiatives related to the science and management of ocean noise in accordance to the acts, regulations, policies, guidelines and mandates that govern their actions.

Guiding principles

Successful coordination and planning to advance understanding and effective management of ocean noise requires a common set of principles, shared among organizations. The development and implementation of the strategy are directed by 6 overarching guiding principles. They reflect important priorities of the Government of Canada and align with existing legislation and the Government's domestic and international commitments:

1. encourage the application of ecosystem-based management approaches in an adaptive manner that considers the complexity of ecosystems and recognizes the importance of physical, biological, economic and social interactions
2. balance the pursuit of economic development with environmental protection and conservation for present and future generations
3. contribute to the Government of Canada's commitment to build renewed nation-to-nation, Inuit-Crown and government-to-government relationships with First Nations, Inuit and Métis through respect and protection of Indigenous Peoples' and treaty rights and through meaningful consultation
4. commit to accessibility, diversity, equity and inclusion to ensure that cultures, rights and knowledge systems are respected through the development, consultation and implementation of the strategy

5. employ a precautionary approach to the development and implementation of recommendations using best-available knowledge
6. foster transparency and accountability to enhance domestic and international collaboration and coordination

Structure of the strategy

The draft strategy is organized around 3 themes, 3 objectives and 20 recommendations. These elements highlight the importance of a coordinated and proactive approach to better understand, manage and minimize ocean noise and its impacts on marine life. This structure closely aligns with:

• the Ocean Noise Strategy Roadmap of the United States' National Oceanic and Atmospheric Administration
• the noise mitigation component of the European Marine Strategy Framework Directive from the European Commission

This alignment will support collaborative actions toward reducing ocean noise impacts in transboundary areas as well as to achieving common conservation and economic goals.

The strategy's 3 themes (presented below) identify the major subject areas of the strategy and serve as broad foundational pillars. Each theme has its own action-oriented objective that provides a vision for achieving successful outcomes. The strategy's recommendations identify specific opportunities for the federal government and its partners to address ocean noise. Next steps include the development of a federal action plan to implement the strategy's recommendations.

Theme 1: Science, knowledge gathering and innovation

Objective 1: Gather and integrate evidence to address knowledge gaps and develop innovative methods, tools and technologies.

The strategy's first theme and objective focus on:

• integrating and increasing Canada's collective knowledge of ocean noise
• improving our ability to accurately describe its characteristics and impacts
• gathering information to address specific knowledge gaps

This theme also highlights the importance of tools and technologies to help assess and manage ocean noise. To improve our understanding of ocean noise and its impacts, opportunities exist to learn from Indigenous Knowledge holders, local knowledge holders and the scientific community. This can be accomplished by maximizing the use of existing Indigenous Knowledge and local knowledge to support targeted research and monitoring of the marine environment. Opportunities to innovate also include exploring new partnerships and leveraging investments to develop and test new methods, tools and technologies to help address ocean noise. An important challenge is ensuring that resources are properly directed to address high-priority knowledge gaps and that the tools and technologies necessary to support timely and evidence-based decision making are developed or acquired.

Theme 2: Assessment and management

Objective 2: Enhance collaboration and application of evidence-based tools and technologies to develop and implement clear guidance and management actions.

The strategy's second theme and associated objective address the application of evidence-based tools and technologies to appropriately assess and manage ocean noise stemming from human activities. The effective management of ocean noise requires an understanding of the potential risks of these activities to the marine environment and carefully balancing diverse interests. Consequently, it is important to ensure that multiple organizations within the Government of Canada continue to coordinate with partners and stakeholders to address the problem. Opportunities lie in finding creative ways for public- and private-sector organizations with various interests and priorities to collaborate in the development and implementation of consistent and clear guidance and management actions. Ocean noise can come from many human sources and result in many different types of impacts to both individuals and populations of marine wildlife. The combined presence of multiple marine environmental pressures in the same space and time can result in cumulative impacts, making it challenging to identify and assess specific impacts of ocean noise and manage its associated human activities.

Theme 3: Communication, coordination and engagement

Objective 3: Strengthen communication, coordination and engagement to raise awareness and increase participation in the management of ocean noise.

Theme 3 of the strategy and its objective focus on internal and external communication, strengthening national coordination of noise-related initiatives and effectively engaging with Canadians to raise awareness of ocean noise and its impacts. Increased awareness provides opportunities to enhance knowledge sharing, increase understanding, and maximize resources to better coordinate public- and private-sector initiatives. There is also an opportunity to leverage existing committees and working groups to promote important conversations on ocean noise and more broadly, oceans management. Challenges include:

• creating effective ways to help the government communicate clearly with the public to increase transparency and accountability on ocean noise
• ensuring that the government fulfills its duty to consult Indigenous Peoples
• helping to enable shared stewardship of the marine ecosystem

Current actions and collaborative initiatives

The Government of Canada has led or supported at least 300 distinct ocean noise-related initiatives over the past 10 years. These initiatives have formed a solid foundation of knowledge and experience for this strategy. Examples of initiatives that have supported the strategy include:

• Species at Risk recovery documents identify threats, including ocean noise, and are accompanied by action plans, which outline protective measures and foster collaboration among organizations to conserve and recover at-risk marine species. This includes a threat-based action plan to address the impacts of noise on marine mammal species at risk in the St. Lawrence Estuary.
• Marine Mammal Regulations under the Fisheries Act were amended in 2018 to better protect marine mammals, including at-risk whales, from human disturbance (including ocean noise), by increasing minimum approach distances. In 2023, official consultations began to discuss further amendments to the regulations, aimed at increasing minimum approach distances to better protect Pacific killer whales from human disturbance.
• The Canada Shipping Act was amended in 2019 to provide additional authorities to enact regulations to protect the marine environment from the impacts of navigation and shipping activities, which includes underwater vessel noise.
• Marine Spatial Planning is a collaborative process that supports planning and decision-making associated with human activities, including those that generate ocean noise.
• Internationally, Canada is also working with partners at the International Maritime Organization to revise the Guidelines for the reduction of underwater radiated noise from shipping to address adverse impacts on marine life.

Many Government of Canada initiatives have been, and continue to be, delivered through major commitments, such as the Oceans Protection Plan and the Whales Initiative that mobilize multiple departments, while others are targeted research or management projects that address specific impacts of ocean noise. All of these projects involve federal departments and agencies to some extent, but the majority are collaborations with partners and many are led by external organizations.

Additionally, public consultations and engagement sessions have been held and various communication tools and channels have been used to educate partners, stakeholders and the general public on the impacts of ocean noise. Advisory and technical working groups have also been established to encourage more frequent and more significant domestic and international partnerships on ocean noise-related initiatives.

This strategy recognizes the important work that partners and stakeholders have accomplished over the past several years and highlights some of these projects examples. The recommendations continue to build on that work to ensure coordinated direction in addressing the complex problem of ocean noise.

Working together to manage ocean noise

Many Indigenous partners and communities, provinces and territories, industries, universities and environmental organizations have undertaken extensive and important work on ocean noise. The following 6 initiatives (Table 1) highlight some of these regional and national initiatives to illustrate how ongoing work aligns with the strategy's themes and supports its objectives. Explore these materials further by clicking on the links provided.

Recommendations

A key component of this draft strategy is a series of 20 recommendations intended to guide and support improved coordination of federal efforts in the areas covered by the 3 themes and their associated objectives. Once finalized, the recommendations will be the basis of a publicly available Federal Action Plan on ocean noise.

The Government of Canada recognizes that federal departments and agencies as well as partners and stakeholders, have diverse perspectives, requirements and limitations, are influenced by their respective mandates, resources and many other factors. The recommendations listed here are not intended to represent a prescriptive one-size-fits-all approach. This list of recommendations is not exhaustive and may evolve following consultation with partners and stakeholders and over time to adapt to new circumstances, science and the addition of Indigenous Knowledge.

Each recommendation is paired with a brief rationale that clarifies the reasons behind its development and a desired outcome (see Tables 2-4). While each recommendation is associated with a specific theme and objective, some recommendations may apply to, and have synergies with, more than one of these.

Taking action to address ocean noise

Federal Action Plan

To build on current work and address the strategy's recommendations effectively, a clear and detailed action plan is required that will track the implementation of the strategy's recommendations and associated actions at the federal level. This plan will include timelines and the name of the lead organization(s).

The Federal Action Plan will be developed from several important sources of information. Some of the actions will originate from ongoing commitments under:

• the Oceans Protection Plan
• the Whales Initiative
• Species At Risk recovery documents
• major project decisions in the marine environment

Inclusion of these commitments alongside new ones will ensure that this important ongoing work continues to be prioritized, that the strategy does not duplicate efforts and that synergies are identified. These existing commitments will serve as a starting point for shaping and creating future actions. New actions will originate from feedback provided during the public consultation on the draft strategy and its recommendations. Other actions will result from those proposed by Government of Canada subject-matter experts during the development process for the strategy and through review of recent international policies and academic literature.

As public participation and feedback is critical to this endeavor, insights and perspectives from partners and stakeholders will be sought to discuss, refine, and prioritize Government of Canada recommendations and actions on ocean noise. Next steps have been developed to include time for participation, consultation and finalization to ensure the feedback is taken into account.

Next steps

• the public-comment period is open for 60-days following publication of the strategy (please see Fisheries and Oceans Canada's Open Consultation webpage for details)
• the final recommendations and first draft of the Federal Action Plan on ocean noise are anticipated to be released in 2025
• consultation and engagement on the Federal Action Plan and its implementation will follow

Implementation

The pace and progress of the implementation of new actions will depend on several factors, including the extent of collaboration. The Government of Canada can only lead actions that fall within the mandates of the participating federal departments and agencies. To help advance the objectives of the strategy, all Canadians are encouraged to actively collaborate and participate in the initiatives brought forward in the Federal Action Plan. While the strategy does not prescribe resources directly, it, as well as learnings from consultations, can inform future planning. Throughout the implementation process, the Government of Canada will continue to work with partners through committees and working groups, fostering collective efforts toward effective ocean noise management.

Conclusion

The development of the strategy and the Federal Action Plan that will follow from it provide opportunities to design a coordinated government agenda to address the complex threat of ocean noise. The implementation of the strategy's action plan will help to improve coordination and fill some of the many knowledge gaps that still need to be addressed to provide a more complete understanding of the impacts ocean noise has on marine life. Ultimately, this enhanced knowledge will enable the Government to make better-informed management decisions and take effective actions to safeguard marine ecosystems and their valuable resources while balancing economic prosperity and development for both current and future generations.

Thank you for providing your perspectives. Your input will help shape the direction of this important work now and in the years to come.

Glossary

Acoustic threshold

The level of sound that, once exceeded, can cause changes in the hearing sensitivity (i.e. temporary or permanent hearing damage), behaviour, and even death of marine animals, such as fish, marine mammals or invertebrates. ^{Footnote 16 Footnote 17} Acoustic thresholds can be developed based on the type of noise and the hearing capabilities of different species or groups. ^{Footnote 15 Footnote 18}

Cumulative impacts

The total changes to the individual animal, environment, health, social and economic conditions due to various human activities and natural processes happening over time and in different places. They include the additive effects of a project or development when combined with other past, present and foreseeable future activities. ^{Footnote 19}

Disturbance

Harmful behavioural or physiological changes in animals as a result of predators or humans. ^{Footnote 20 Footnote 21} In the context of ocean noise, disturbance can happen because of sudden loud noises, such as pile driving or seismic surveys, or continuous noises, such as ships moving through the water. ^{Footnote 15}

Ecosystem-based management

An interdisciplinary and adaptive approach to sustainably manage ecosystem resources at appropriate temporal and spatial scales. ^{Footnote 22} This approach is based on best available scientific knowledge and traditional ecological knowledge and focuses on maintaining the long-term health and stability of ecosystems, ^{Footnote 23} which includes their physical characteristics, how they function, what they are made of and all the natural processes that happen within them. ^{Footnote 24}

Guiding principles

A set of important values or beliefs that steer how people, groups or systems act and make choices to achieve specific goals. ^{Footnote 25} In the context of a strategy or action plan, guiding principles can help to ensure that the work is focused, effective, and aligned with the organization's goals.

Indigenous Knowledge

A term used to refer collectively to the complex knowledge systems that are based on the world views of Indigenous Peoples. This term encompasses the distinct cultures, languages, values, histories, governance and legal frameworks unique to Indigenous Peoples. ^{Footnote 26 Footnote 27}

Management framework

A set of tools that support a particular approach to a specific goal. ^{Footnote 28} A management framework can include templates, processes, and activities that are useful for planning, launching, controlling, and completing a project or strategy. Additionally, a framework can define the necessary steps, roles, and expectations to ensure effective management in terms of performance and responsibilities.

Management objective

An outcome or target to be achieved. ^{Footnote 29} It can be expressed as a numerical value or narrative statement describing a desired condition for a given environment, taking into account its characteristics and uses.

Mask (or masking)

A phenomenon where one or more sounds influences or interferes with how another sound is perceived. This interference makes it difficult for the listener to accurately grasp and identify the sound of interest, causing it to become less distinct and harder to understand. ^{Footnote 30} Masking can occur underwater when background noise, such as waves, wind, rain, or human activities, interferes with the detection or communication of sounds produced by marine animals or devices. ^{Footnote 9}

Metric

A tool used to measure progress or performance. ^{Footnote 26} In acoustics, metrics are used to describe and measure sounds based on their characteristics. The results can then be used to assess impacts by measuring the sound pressure level, sound exposure level, and frequency spectrum of a noise. ^{Footnote 31}

Mitigation

The action of reducing the severity, seriousness or harmful effects of potential or existing hazards, such as pollution, disasters, diseases, etc. ^{Footnote 32 Footnote 33}

Numeric criteria

Measurement standards used to assess performance or progress. ^{Footnote 26} In the case of ocean noise, these criteria are the standards that indicate what levels or types of sound in water are considered safe for marine life. These standards can be based on physical measurements, such as how loud the sound is, its duration or frequency, or they can be based on biological measurements, such as how marine species hear or react to the noise. ^{Footnote 34}

Ocean noise models

Computer tools or mathematical methods that mimic how sound moves through water and how it interacts with the surroundings and objects in it. ^{Footnote 35}

Oceanographic conditions

The physical and chemical features of the ocean that vary in space and time. They include factors, such as temperature, salinity, currents, waves, tides, ice concentration and thickness and surface winds. ^{Footnote 36}

Precautionary Approach

A concept in environmental and public policy that guides decision making in situations where scientific information is uncertain, unreliable or inadequate. ^{Footnote 37} The concept emphasizes caution and discourages using the absence of adequate scientific information as a reason to postpone or fail to take action to avoid serious harm to the human health or the environment. ^{Footnote 38}

Soundscape

A term that describes the sound or combination of sounds that create or emerge from a specific environment. ^{Footnote 2} The soundscape can be composed of 3 basic active acoustic sources ^{Footnote 39}:

1. biophony (biological sounds)
2. geophony (natural abiotic sounds)
3. anthrophony (human-generated sounds)

Standards

An agreed-upon set of rules, guidelines or characteristics that provide a framework for activities or their outcomes. Standards establish accepted practices, technical requirements and terminology for various fields. They can be either mandatory or voluntary and are different from laws, regulations and codes, although standards can be referenced in these legal instruments. ^{Footnote 40 Footnote 41}

Transboundary

Transboundary waters flow across, or span, 2 or more countries.