Language selection

Government of Canada / Gouvernement du Canada

Search

Canada's Ocean Noise Strategy

A coordinated approach to minimize impacts on marine life

Call for public feedback

Public engagement on Canada's Ocean Noise Strategy is open from August 23, 2024 to October 22, 2024. Please visit our consultation page to learn how you can get involved or submit a survey.

On this page

Notes

Unless specified otherwise, in this document:

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:

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:

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:

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

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:

The Federal Action Plan will also provide opportunities to:

Ultimately, this enhanced knowledge will enable the Government to:

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.

Your views are important!

Please go to Fisheries and Oceans Canada's Open Consultations webpage where you can indicate your support for recommendations that are meaningful to you, your community or your organization, and that you think should be of particular focus in the near term. You can also suggest any recommendations you think may be missing, including those about future threats or opportunities. Your input will:

  • help us further prioritize and refine the recommendations
  • contribute to the development of the Federal Action Plan
  • help shape the direction of this important work now and in the years to come

The public comment period on this phase of Canada's Ocean Noise Strategy closes 60 days following publication.

Thank you for providing your perspectives.

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:

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:

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:

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

To learn more about how sound behaves underwater and how it affects marine species, please see the webpage About ocean noise and its impacts.

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:

Impacts of ocean noise

Ocean noise can mask or decrease an animal's ability to detect, recognize and understand sound signals in its habitat, thereby disrupting its ability to effectively communicate, identify danger, find food and interact with other members of their species.

Exposure to ocean noise can ultimately lead to physical injuries, developmental, behavioural or physiological changes (including increased stress) and in some extreme cases, may result in death. Footnote 1 Footnote 14 Footnote 15

Simultaneous human activities in an area can expose marine wildlife to multiple sources of ocean noise increasing the risk of harm.

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:

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:

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:

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

The Aboriginal Consultation and Accommodation – Updated Guidelines for Federal Officials to Fulfill the Duty to Consult – March 2011 guides federal departments and agencies in determining when the duty to consult may arise and how it may be fulfilled.

  1. employ a precautionary approach to the development and implementation of recommendations using best-available knowledge
  2. 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:

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.

For your information

The Ocean Noise Strategy Discussion Document was released in Fall 2020 to gather public feedback on a proposed structure for the strategy. This review process highlighted natural synergies and potential gaps, and demonstrated the importance of work done by partners and stakeholders. The feedback prompted refinements and clarifications to the overall structure of the strategy.

Please see the What We Heard report for feedback we received from public engagement of the Ocean Noise Strategy Discussion Document.

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:

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:

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:

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.

Table 1: Types and examples of collaborative ocean noise-related initiatives
Types of ocean noise-related initiatives Initiative Area of initiative
Research and development of vessel-quieting technologies to minimize underwater radiated noise Reducing the impacts of ocean noise from vessels: Government of Canada support for innovation in the marine transport sector National
Domestic and international partnerships to manage ocean noise Collaborating to reduce ocean noise impacts on endangered Southern Resident killer whales Pacific Ocean
Non-regulatory vessel slowdown and route changes How community leadership is directing ocean noise-mitigation in Canada's Arctic Arctic Ocean
Science research, detection and monitoring of marine animals Protecting the St. Lawrence Estuary beluga and other whales from underwater noise St. Lawrence Estuary
Outreach, education and use of Marine Protected Areas as an ocean noise management tool Working together to manage ocean noise in the Gully Marine Protected Area Atlantic Ocean
Monitoring, measurement and modeling of human-generated ocean noise sources Using new technology to listen for whales in Placentia Bay, Newfoundland and Labrador Atlantic Ocean

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.

Strategy recommendations are informed by:

  • published literature
  • submissions from partners and stakeholders during the Ocean Noise Strategy Discussion Document public-consultation process
  • Government of Canada interdepartmental discussions
  • international best practices
  • an analysis of current and past noise-related initiatives led by the Government of Canada and its partners
Table 2: Recommendations that support achieving Strategy Objective 1 (gather and integrate evidence to address knowledge gaps and develop innovative methods, tools and technologies)
Recommendations that support Objective 1 Rationale for development of the recommendation Desired outcome
Recommendation 1: Enhance the Government of Canada's support for collaborative ocean noise research with domestic and international partners. Several decades of ocean noise research have contributed to the establishment of evidence-based management measures, supporting reduction of harm to marine life. However, there is still much to learn about ocean noise and its impacts. Increased collaboration on ocean noise research among governments, Indigenous Peoples, academia, industry and non-governmental organizations is necessary to promote a cross-pollination of ideas and solutions. Government of Canada support for collaborative research with partners is enhanced, resulting in new ideas and synergies and fostering evidence-based decision making.
Recommendation 2: Improve understanding of ocean noise in dynamic and rapidly changing marine ecosystems. Various oceanographic conditions play a role in the levels and behaviour of ocean noise. These conditions are prone to change over time. Tracking and describing these changes is necessary to understand how they may alter ocean noise and its impacts. It is important to continue to study the influences that climate change and other factors have on ocean noise, with a particular emphasis on dynamic and rapidly changing environments, such as the Arctic, to help predict and assess the impacts of ocean noise on marine life. Understanding of changing ocean conditions, particularly in the Arctic, is improved.
Recommendation 3: Conduct further research to address knowledge gaps on individual- and population-level impacts of ocean noise. Marine species rely on sounds in a range of frequencies to perform important activities such as communicating, navigating, foraging and mating. Determining the scope and severity of ocean noise impacts on marine life requires a deeper understanding of the hearing capabilities of individual species and the frequencies of sound they use. Potential population-level impacts (e.g., effects of stress from ocean noise on reproduction) also need to be quantified. Addressing some of these high-priority knowledge gaps for marine species known to inhabit Canadian waters can support evidence-based decision making. High-priority knowledge gaps related to the scope and severity of ocean noise impacts to individuals and populations of marine species are addressed.
Recommendation 4: In collaboration with First Nations, Inuit and Métis across Canada, develop ways to consider and weave together different knowledge systems and cultural perspectives to better understand and manage ocean noise. The Government of Canada recognizes the importance of considering different knowledge systems, including Indigenous Knowledge and western science to inform and enhance evidence-based decision making. Similarly, there is also a need to weave these knowledge systems and cultural perspectives together (e.g., United Nations Declaration on the Rights of Indigenous Peoples Act – Action Plan Measure 40) to enhance our comprehensive understanding and management of ocean noise. Indigenous Knowledge and learnings from knowledge-holders and scientists deepen understanding of ocean noise and impacts, informing more holistic decision making.
Recommendation 5: Support research and monitoring of marine species to understand their distribution and habitat use in areas at risk from existing or potential sources of ocean noise. Distribution data of marine species (over space and time) are important as they can be used to help assess risks to marine species and support management decisions. For example, determining important habitats for marine mammals can be used in combination with soundscape information to identify critical geographic areas for further study. Areas with existing or potential sources of ocean noise and a high density of marine species that may be exposed to this noise, may require assessment to identify risks, particularly with respect to species of concern. Generation of distribution and habitat use data for marine species is supported, enabling the identification of important geographic areas where ocean noise and population densities of different marine species overlap.
Recommendation 6: Support technologies that directly reduce ocean noise at its source. Technological developments and innovations are essential for ocean conservation. The Government of Canada requires robust investment geared toward the development and/or implementation of technology designed to reduce ocean noise. For example, Transport Canada's Quiet Vessel Initiative is testing the most promising technologies, vessel designs, retrofits and operational practices to make vessels quieter. Support for technology facilitates the accelerated development and implementation of safe, environmentally responsible and effective low-noise technologies and operational practices.
Recommendation 7: Develop or adopt common best practices and standardized methodologies across federal organizations for acoustic data collection, storage, processing and reporting. Technological advances in acoustic monitoring (e.g., innovative data collection methods, larger data-storage capabilities, lower costs) are enabling the creation of many large and complex data sets that can be difficult to consolidate. Best practices and common standards applied throughout the data lifecycle will be necessary to support effective and efficient coordination and integration of data from multiple initiatives. Standardized methodologies and best practices are developed and applied across the Government of Canada for acoustic data collection, storage, processing and reporting.
Recommendation 8: Sustain and increase strategic acoustic data collection by continuing investments in underwater sound-monitoring instruments. Continued investment in and deployment of underwater sound monitoring instruments is needed to collect measurements in existing locations and add monitoring at other strategic locations. Investment to build on current acoustic data-collection initiatives is needed to increase understanding of natural and human-generated sounds in the marine environment and how marine species use their habitat. Furthermore, additional and enhanced information is needed to validate ocean noise models and support the evaluation of ocean noise management measures. Acoustic data collection is sustained and enhanced, leading to a deeper understanding of marine soundscapes and how marine species use their habitat, validation of ocean noise models and improved support for evaluating ocean noise management measures.
Recommendation 9: Promote the use of innovative methods and techniques (i.e., analytical tools, computing power and training) to efficiently analyze acoustic data. The ability to deploy increasing numbers of marine monitoring instruments and collect immense volumes of acoustic data surpasses the current capacity to examine it for trends and acoustic signals of interest. To facilitate the identification of crucial insights from ever-expanding datasets, expedite and enhance data analysis, and support agile and adaptive management of ocean noise-generating activities, the adoption of innovative methods and techniques should be encouraged. These include analytical tools, as well as investments in resources and training. Innovative analytical methods and tools are adopted and investments in training and capacity are increased, facilitating efficient data processing and enabling faster identification of crucial insights and trends that contribute to agile ocean noise management.
Recommendation 10: Promote the development of evidence-based tools and guidance to better assess impacts of ocean noise on marine life. Despite significant research, there remains an incomplete understanding of the extent marine species are exposed to ocean noise from human sources and how animals are affected. A variety of assessment tools and guidance can be used to integrate and leverage complex existing information from various sources (including Indigenous and coastal knowledge) to support ocean noise management decisions. For instance, continued development of acoustic metrics from Canadian marine data is essential to establish clear, evidence-based numeric criteria or acoustic thresholds for assessing impacts of ocean noise on marine species. These tools can be used to help decide what levels and types of ocean noise are safe for marine species (including species of concern) in certain situations and what levels and types of ocean noise present a high risk. While domestic tools are being developed, assessment tools from other jurisdictions may be evaluated for their application in the Canadian marine environment. Evidence-based tools (e.g., metrics, criteria, thresholds) and guidance to better assess impacts of ocean noise on marine life are developed and available to support management decisions in the Canadian marine environment, including to support the recovery of marine species of concern.
Table 3: Recommendations that support achieving Strategy Objective 2 (enhance collaboration and application of evidence-based tools and technologies to develop and implement clear guidance and management actions)
Recommendations that support Objective 2 Rationale for development of the recommendation Desired outcome
Recommendation 11: Establish a clear and transparent Government of Canada framework for ocean noise management with defined roles and responsibilities. Multiple federal departments and agencies have established laws and regulations to govern activities that generate ocean noise, creating a complex management landscape. A Government of Canada management framework that summarizes federal authorities under various statutes, describes roles and responsibilities and outlines regulatory tools is needed to support timely selection, establishment and monitoring of evidence-based management measures. Laying out roles and responsibilities would provide enhanced regulatory efficiency and clarity for ocean users and help facilitate increased collaboration within and between federal departments and agencies. This national approach can then serve as a model for developing regional management frameworks. A new federal management framework is established that reduces complexity, ensures accountability, and promotes transparency.
Recommendation 12: Establish national guidance to support the assessment of ocean noise risks from marine activities and projects. Effectively assessing the risks of ocean noise is an important part of managing this threat in Canada's marine environment. Assessments under various legislation often focus on specific marine activities or projects as they arise, resulting in case-by-case evaluations. Currently, there is a lack of nationally consistent guidance that can be applied to assessments involving ocean noise. The use of different approaches to assess ocean noise and its impacts may create uncertainty and cause confusion to some ocean users. Clearer and more consistent guidance that considers regional conditions and ecosystem differences is needed to assess the risks of ocean noise, including how proposed activities or projects contribute to existing ocean noise and cumulative impacts. Guidance on assessing the risks of ocean noise from marine activities and projects is developed, resulting in more consistent outcomes and greater clarity and certainty for regulators, partners and stakeholders.
Recommendation 13: Develop appropriate management objectives supported by the implementation of specific and timely measures to help minimize impacts of ocean noise on marine species. The Government of Canada regularly takes action to safeguard marine species from the impacts of ocean noise (e.g., Management measures to protect Southern Resident killer whales). However, to better address management objectives and further reduce risks to marine species, timely development and implementation of additional management measures supported by specific legislative authorities may be required. Ocean noise management objectives are developed and supported by specific measures that are employed in a timely manner to minimize impacts on marine species.
Recommendation 14: Support the active leadership of Indigenous communities in initiatives to understand and manage ocean noise. The Government of Canada is committed to advancing reconciliation with Indigenous Peoples through a renewed relationship based on the recognition of rights, respect, cooperation and partnerships. With respect to ocean noise, the federal government can contribute to reconciliation and strengthened self-determination through support for capacity building in Indigenous communities to understand and manage ocean noise. This includes supporting initiatives to raise community awareness and opportunities to provide leadership and participate in planning, information gathering and analysis, and decision-making associated with ocean noise. Indigenous communities are supported and encouraged to lead and participate in planning, information gathering and analysis and decision-making associated with ocean noise management.
Recommendation 15: Promote participation in voluntary ocean noise measures and enhance compliance with mandatory ocean noise measures. In recent years, the Government of Canada has introduced several new management measures to minimize the impacts of ocean noise on marine species. Ensuring awareness of and compliance with these measures requires effective communication, engagement and enforcement. Enhancing participation of partners and stakeholders with voluntary measures and enforcing regulatory measures are key to helping protect marine species from further impacts of ocean noise. Increased participation in voluntary measures is achieved, together with greater compliance with mandatory measures that aim to minimize the impacts of ocean noise on marine species.
Recommendation 16: Develop and employ standardized methods and indicators to measure the effectiveness of ocean noise management measures. Demonstrating the effectiveness of management measures is required to evaluate the success of and support for further management responses. However, when evaluation methods vary, it can be difficult to determine if the intended results have been achieved. Standardized methods to determine effectiveness are needed so that indicators of success can be clearly established. These indicators should align with the requirements and limitations of the marine project, or activity being evaluated, and be understood and accepted by all parties involved in the decision-making process. Standardized performance-measurement methods and indicators are developed and employed to accurately evaluate the effectiveness of specific management actions.
Recommendation 17: Support of international cooperation and joint initiatives to manage ocean noise. Ocean noise has impacts on marine life across territorial boundaries and international collaboration is often required for effective management. There is a need to actively support international cooperation and collaborative initiatives aimed at minimizing the impacts of ocean noise. Support for international cooperation and joint initiatives to address ocean noise is increased, resulting in more effective collaboration and management along with increased international awareness of the threat posed by ocean noise.
Table 4: Recommendations that support achieving Strategy Objective 3 (Strengthen communication, coordination and engagement to raise awareness and increase participation in the management of ocean noise)
Recommendations that support Objective 3 Rationale for development of the recommendation Desired outcome
Recommendation 18: Strengthen coordination between the Government of Canada and partners and stakeholders concerning ocean noise assessment and management. To support effective and inclusive decision-making, the Government of Canada needs participation and input from multiple groups, including other governing bodies and those directly affected by decisions (i.e., users of the ocean space). Ocean noise assessment and management decision-making processes should continue to focus on consulting, engaging and involving partners and stakeholders from the earliest stages. This may include using existing committees and working groups whenever possible to discuss the management of ocean noise to maximize participation and information sharing without increasing demands on partners and stakeholders. Coordination and collaboration between the Government of Canada and partners and stakeholders continue to be strengthened, leading to greater trust in decision-making processes associated with ocean noise assessment and management and an enhanced ability to arrive at informed decisions that consider diverse interests.
Recommendation 19: Increase the sharing of ocean noise information and knowledge among federal departments and agencies. The Government of Canada relies on teams with specific roles and expertise to provide timely advice and deliver programs. However, effectively coordinating and communicating large volumes of rapidly evolving information (including data) among specialized teams and initiatives across the federal government poses a significant challenge. Concerted efforts and systems to increase information and knowledge flow across federal departments and agencies are needed to help address ocean noise impacts on marine life. Effective and timely information-sharing processes are established, reducing duplication and facilitating better understanding, planning and evidence-based decision making across federal organizations.
Recommendation 20: Partner with public- and private-sector organizations and Indigenous communities to foster enhanced awareness and understanding of ocean noise and its impacts. Development of new and innovative outreach and engagement programs related to ocean noise and its national and regional impacts should be explored. Partnerships with Indigenous communities, museums, universities, non-governmental organizations and industry to produce and present exhibitions and educational programs, including expert demonstrations, workshops and conferences, can broaden the Government of Canada's educational reach. Awareness and understanding of ocean noise and its impacts are enhanced through various outreach activities delivered with partners.

Your views are important!

Please go to to Fisheries and Oceans Canada's Open Consultation webpage where you can indicate your support for recommendations that are meaningful to you, your community or your organization and that you think should be of particular focus in the near term. You can also suggest any recommendations you think may be missing, including those that may relate to future threats or opportunities. Your input will help us further prioritize and refine the recommendations and contribute to the development of the Federal Action Plan. The public comment period on this phase of Canada's Ocean Noise Strategy closes 60 days following publication.

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:

Purpose of the Federal Action Plan:

  • increase transparency and awareness of the scope of government initiatives
  • focus on efficient and effective actions to address ocean noise
  • create synergies and opportunities for collaboration
  • identify and fill knowledge gaps
  • track and highlight key Government of Canada initiatives on ocean noise
  • track implementation of strategy recommendations

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

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.
Date modified: