Regional Oceans Plan - Scotian Shelf, Atlantic Coast, Bay of Fundy
Background and Program Description
Table of Contents
Collaboration and Engagement
Collaboration is fundamental to the Oceans Act to ensure multiple perspectives, knowledge sources and approaches are utilized when managing Canada’s ocean and coastal spaces.
Collaboration is especially important given the wide range of marine managers, users and interests within the Maritimes Region. The Plan recognizes the importance of strong internal aliignment within DFO and continues to support collaboration with other government departments, Aboriginal organizations and stakeholders using a variety of mechanisms and processes.
Departmental
A collaborative or “whole of DFO” approach to decision making and policy implementation is the most effective and efficient way to meet departmental strategic outcomes. A key goal for the Plan is to achieve coordinated, consistent and coherent approaches across the department when developing policies, implementing programs and taking decisions within the marine environment. Internal coordination and alignment helps DFO respond to external partners and stakeholders with one voice on a range of cross-cutting issues, such as oil and gas exploration and development, marine renewable energy development, aquaculture siting, conservation planning, and environmental assessments.
Further, there are a number of policy initiatives and strategies being implemented by DFO that require collaboration and input from multiple sectors within the department. These include activities related to the following:
- Maritimes Region Ecosystem Approach to Management (EAM) Framework
- Policies under the Sustainable Fisheries Framework
- SARA recovery and action planning
- Sustainable Aquaculture Strategy
- Fisheries management and protection
- Climate change research, risk assessment and adaptation
- Ecosystem science research and advice
- Geospatial data management and mapping
- Environmental incident preparedness and response
Internal alignment by DFO sectors helps identify the type of information needed to inform decisions. This allows the department to identify and consolidate the information typically required by its decision makers into readily accessible knowledge products. This work relates to the goal for effective decision making and is a priority under the Plan.
Within DFO, the Oceans and Coastal Management Division provides products, such as maps, data and risk assessments, that help in the implementation of departmental policies, strategies and management measures. The division also supports efforts to better coordinate activities related to policy and management integration, such as processes for ensuring that all departmental interests and responsibilities are addressed during the review of marine-related projects and activities.
In addition to effective coordination and alignment, the Plan places an emphasis on the incorporation of ecosystem approaches to management (EAM) in departmental policies, programs and operations. Within the Maritimes Region, DFO is advancing this through its EAM Framework which lays out a common structure with consistent terminology and definitions. This will foster a clearer understanding and uniform application of EAM across the various sectors of the department. A number of departmental sectors are actively working to understand and apply this approach to their operations. Resource Management was among the first in DFO to incorporate this approach into its program, specifically within the structure of Integrated Fisheries Management Plans and through the advancement of the Sustainable Fisheries Framework. Ecosystem Management, which includes the Oceans and Coastal Management Division, Species at Risk Management Division and Fisheries Protection Program, serves as the current regional lead for the EAM Framework and has advanced the approach through various management initiatives. For example, the risk assessment and management analysis process for bioregional EBSAs uses the organizing principles of the EAM Framework. Oceans and Ecosystems Science has provided much of the scientific basis and rigour for the EAM Framework and has adopted it as an organizing principle for its research prioritization and assessment processes.
DFO’s Sustainable Fisheries Framework: Departmental Collaboration at Work
DFO’s Resource Management sector aims to provide Canadians with a sustainable fishery resource that supports an economically viable and diverse fishing industry. Delivery of the programs is guided by the Sustainable Fisheries Framework. The Framework consists of a set of policies on the conservation and sustainable use of the fishing resource and a set of tools for helping Resource Management implement the policies. This implementation requires the engagement and input of several DFO sectors, including Oceans and Ecosystems Science, Policy and Economics, and Ecosystem Management. The following policies and tools are in place to guide the regional implementation of the Sustainable Fisheries Framework:
Integrated Fisheries Management Plans (IFMPs)
One of the main tools under the Framework is the IFMP. IFMPs are developed to manage the fishing of a particular species in a particular region. They provide a planning framework for addressing the impacts of the fishery on both target species and non-target species, as well as significant impacts the fishery might have on habitat.
The Ecosystem Approach to Management (EAM) Framework
The EAM Framework has been incorporated into the Region’s IFMPs with the expectation that once incorporated into the business of other management sectors, it will help DFO understand the cumulative effects on the ecosystem from various human uses, and ultimately the implications of cumulative effects for fisheries management strategies.
Precautionary Approach (PA) Policy
The PA Policy applies where decisions are made on harvest strategies or harvest rates for stocks that are targeted by a fishery. The policy requires that precautionary decision-making frameworks be developed that include reference points linked to stock and ecosystem indicators and harvest control rules. Work is ongoing to refine and expand PA frameworks in the Region’s IFMPs, including incorporating socio-economic considerations where appropriate, and to implement rebuilding plans for stocks that are below or approaching limit reference points.
Sensitive Benthic Areas (SBA) Policy
The purpose of the SBA Policy is to help manage fisheries in a manner that mitigates the impacts of fishing on sensitive benthic areas or avoids impacts of fishing that are likely to cause serious or irreversible harm to sensitive marine habitat, communities and species. Up-to-date fishing maps developed in support of conservation planning and oceans and coastal management are also facilitating the assessments of the cumulative impact of fishing on these sensitive areas. Assessments of regional EBSAs with potentially sensitive bottom features are also being used to support the continued application of the policy. Spatial protection measures, such as the sponge conservation area, that result from this policy represents important contributions to the bioregional MPA network.
Policy on Managing Bycatch
A policy on bycatch has been developed under the Framework. Priorities for managing the risks associated with bycatch are being addressed through two processes. The first is on a fishery-by-fishery basis through the development of IFMPs. Under the IFMP process, two species and fishery-specific plans for addressing priority bycatch species have been developed: the Workplan to Address Incidental Catch in Canadian Large Pelagic Fisheries; and the Atlantic Canadian Loggerhead Turtle Conservation Plan. The second process to address bycatch is on a cross-fishery basis under the Regional Bycatch Action Plan. Under this initiative, estimates of discards from commercial fisheries were developed and reported to identify species that may be at risk because of higher discard amounts and fisheries with significant gaps in monitoring data.
Collaboration
Collaboration under the Regional Oceans Plan to support the Sustainable Fisheries Framework will continue to occur in the areas of spatial analysis and the creation of information and mapping products.
Intergovernmental
Intergovernmental collaboration and coordination is critical for the many departments with a legislated role and mandate for oceans and coastal management. Coordination allows different levels and departments of government to be more efficient and effective in carrying out their responsibilities through support for joint priority setting, sharing of data and information, coordinated work planning, and improved communication.
Intergovernmental collaboration allows DFO to engage and work with other levels and departments of government to advance program responsibilities, while also providing an avenue for DFO to influence how others undertake their responsibilities in these areas. In this manner, DFO will continue to support and participate in coordinating bodies and provide leadership where appropriate.
Additional efforts will be directed at advancing formal arrangements, such as memoranda of understanding (MOUs), to support improved coordination.
A number of mechanisms are currently in place to support intergovernmental coordination. Examples of these mechanisms include the following:
Regional Committee on Coastal and Oceans Management
The Maritime Provinces Regional Committee on Coastal and Oceans Management (RCCOM) is a senior executive forum for federal and provincial government departments. It provides oversight, coordination and strategic direction to oceans and coastal management processes in Nova Scotia, New Brunswick and Prince Edward Island. The RCCOM is supported by a Coordination Committee that is comprised of federal and provincial staff and meets regularly to foster information sharing, capacity building and priority setting for oceans and coastal management activities.
In addition, a dedicated structure has been established in New Brunswick to support provincial participation in the RCCOM. This inter-agency arrangement includes tables for both program and senior management level engagement.
In Nova Scotia, provincial participation is coordinated through its inter-agency Provincial Oceans Network (PON). The PON is chaired by the Nova Scotia Department of Fisheries and Aquaculture to provide expertise and facilitate coordination on coastal management issues and initiatives across the provincial government.
While DFO is not a member of either provincial structures, the department is invited to use these as a venue to share information and seek feedback on various issues from a broad range of provincial departments.
Gulf of Maine Council
The Gulf of Maine Council (GOMC) on the Marine Environment is a United States-Canadian partnership of government and non-government organizations established in 1989. The GOMC works to maintain and enhance environmental quality in the Gulf of Maine to allow for sustainable resource use by existing and future generations. The GOMC and its committees organize conferences and workshops, offer grants and recognition awards, conduct environmental monitoring, provide science translation to management, raise public awareness about the Gulf, and connect people, organizations and information.
A number of committees support the work of the GOMC and foster intergovernmental coordination. DFO works on several of these committees, including those focussed on ecosystem indicators, coastal and marine spatial planning, and State of the Gulf of Maine reporting.
Nova Scotia Federal-Provincial One Window Committee on Tidal Energy
The Nova Scotia Federal-Provincial One Window Committee on Tidal Energy involves the full range of departments with regulatory authorities and responsibilities related to tidal power development.
The aim of the Committee is to promote certainty and predictability of process, avoid regulatory duplication, and increase efficiencies in the review of in-stream tidal energy development projects under 50 megawatts within Nova Scotia.
Environment Canada – Environmental Emergencies Science Table
DFO works with Environment Canada and other federal and provincial agencies to ensure effective notification and response to environmental emergencies in Canada.
During significant incidents, Environment Canada can establish a “Science Table” to provide expert advice in support of an environmental response. The Science Table brings together experts from government agencies, Aboriginal organizations, local communities, resource users, conservation groups and academic institutions to develop consensus advice on protection priorities and response strategies. DFO representatives on the Science Table help disseminate information on an environmental incident within the department in order to coordinate the appropriate advice and action within marine, coastal and freshwater areas. DFO Maritimes Region maintains a regional environmental response protocol and set of procedures for notification, communications, preparedness, response and recovery stages of an environmental incident.
Intergovernmental Memoranda of Understanding
In addition to structures that are established and meet to support intergovernmental coordination, a number of formal arrangements are also in place to foster and provide direction for coordinated oceans and coastal management.
Canada-Nova Scotia MOU on Coastal and Ocean Management
In 2011, an MOU was signed between the Government of Canada and the Province of Nova Scotia to provide for further collaboration among these parties in their shared priorities for oceans and coastal management, including marine conservation planning, data and information sharing, and research. In addition to supporting general collaboration, this MOU allows for the development of specific subsidiary agreements, working groups, or other instruments to allow targeted collaboration in a number of areas involving federal and provincial organizations. Work plans and reporting structures may be created to formalize these arrangements.
A formal arrangement is also being considered between the Government of Canada and the Province of New Brunswick. As with Nova Scotia, this would help facilitate greater intergovernmental coordination and collaboration on shared priorities.
Canada-Nova Scotia Offshore Petroleum Board-DFO MOU
DFO and the Canada-Nova Scotia Offshore Petroleum Board (CNSOPB) maintain an MOU to align roles and responsibilities of both agencies in support of informed and responsible petroleum development in offshore Nova Scotia. The MOU arrangement includes joint annual work plans covering the coordination of strategic and project-level environmental assessment, environmental effects monitoring, species at risk, MPA planning and other related Oceans Act initiatives, and environmental preparedness and response.
Stakeholder
There are a wide range of interests with a stake in the use of Canada’s marine and coastal environment. Oil and gas exploration and development, fishing, aquaculture, shipping, tourism, pipelines and sub-sea cables, research, maritime defence and conservation interests are all present within this area. DFO supports marine stakeholder participation as part of its management responsibilities under the Oceans Act in order to:
- Validate, share and communicate information
- Receive input, advice and recommendations
- Inform the implementation of action plans and activities
- Collaborate on projects and issues
DFO needs to share and consider information and feedback from others with a wide variety of backgrounds, perspectives and expertise. The nature of a stakeholder’s involvement will depend on the level of their interest and the extent to which the work underway is likely to affect them. There are a number of different approaches used by DFO in order to meet the objectives listed above.
Mechanisms for stakeholder and sector participation are chosen based on the purpose of the activity and can occur at a national or regional level. Types of engagement can also range from those involving broad public and multiple sectors, to more focussed bilateral or small group mechanisms, each with its intended purpose, focus and advantages. Under the Plan, a range of engagement methods can be used. The following are some examples with DFO participation:
DFO Maritimes Region – Marine Environmental Non-Governmental Organizations (ENGO) Forum
This Forum is the primary body for discussion between DFO and regional ENGOs on issues regarding the sustainable development and conservation of marine resources. The Forum provides a vehicle for information exchange, relationship building, and dialogue on strategic policy and marine management issues.
Scotia-Fundy Fishing Sector Roundtable
The Roundtable is the primary body for discussion between DFO and the commercial fishing industry in Maritimes Region. This body provides an opportunity for representatives of all industry sectors and groups to learn about and provide input to policy and management topics of relevance to commercial fisheries in the Maritimes Region. DFO uses this venue to discuss oceans and coastal management and marine conservation topics with the fishing sector.
Canada-Nova Scotia Offshore Petroleum Board (CNSOPB) Fisheries Advisory Committee
The CNSOPB Fisheries Advisory Committee includes representatives from various fishing groups, DFO, Natural Resources Canada, and Nova Scotia’s Departments of Energy and Fisheries and Aquaculture. This group meets regularly and serves as an information sharing and advisory mechanism for the CNSOPB on various aspects of petroleum-related activities and projects.
Atlantic Coastal Zone Information Steering Committee (ACZISC)
Established in 1992, ACZISC fosters cooperation in Atlantic Canada on oceans and coastal management, mapping and geomatics. This multi-sector group includes representatives from government, industry, academia and non-governmental organizations. The ACZISC meets several times a year and maintains a popular website and e-newsletter.
Bay of Fundy Ecosystem Partnership (BOFEP) BOFEP is a long-standing non-governmental organization to facilitate cooperative and integrated research on the Bay of Fundy ecosystem. Its main goal is to promote wise management and conservation for marine resources and habitats in the bay by disseminating information, monitoring the state of the ecosystem and facilitating collaborative research activities.
Bras d’Or Lakes Collaborative Environmental Planning Initiative (CEPI)
The Bras d’Or CEPI is a multi-stakeholder group with an interest in or mandate for the management of the Bras d’Or Lakes and watershed lands. Representatives include First Nations, federal, provincial and municipal governments, environmental interests, industry and academics. The aim of CEPI is to develop integrated management approaches to better understand, protect and restore this significant ecosystem.
Southwest New Brunswick Marine Advisory Committee (MAC)
The Southwest New Brunswick MAC is a citizen-based group formed to provide feedback to government on marine issues, policy and strategic matters pertaining to southwestern New Brunswick. The group is guided in its advice by a set of community values that include social, economic and environmental criteria. DFO and the New Brunswick Department of Fisheries provide core support to this initiative.
MPA Advisory Committees
Stakeholder consultation is a fundamental element of DFO’s MPA Program and occurs during the planning, selection, designation and ongoing management of MPAs. In the Maritimes Region, stakeholder advisory committees have been created for individual MPAs, such as the Gully and Musquash Estuary, to give industry, Aboriginal groups, government agencies, and other interests a voice in the management of these areas. A similar committee has been established to involve stakeholders in the MPA designation process currently underway for the St. Anns Bank Area of Interest. Due to the diverse fishing interests in this area, a separate Fishing Industry Working Group was formed to gather industry input.
At the bioregional scale, DFO and its partners are initiating a process to develop an MPA network plan that will guide site selection in the future. This multi- year planning process will include various stakeholder consultation approaches, including cross-sector and multi-stakeholder engagement.
In addition to the existing groups and fora described above, additional approaches to engage, inform and collaborate with others are available under the Plan. These include the following:
- Focussed geographic or issue-based events (e.g. open houses, workshop series)
- Focussed technical or working groups (e.g., for MPA planning)
- An up-to-date, comprehensive and representative contact list and network of ocean and coastal sector stakeholder groups to facilitate engagement and consultation
- Website and social media
- Public outreach and education activities (e.g., Oceans Day, Coastal Zone Canada conferences, seminars and guest lectures).
Consultation on the Proposed St. Anns Bank Marine Protected Area
The process that led to the regulatory proposal for the recommended St. Anns Bank MPA was open and transparent, consistent with the principles of sustainable development, and based on the best available scientific information and traditional ecological knowledge. All interested parties, including First Nations and Aboriginal groups, federal and provincial government agencies, local governments, industry, and conservation organizations contributed to the recommended MPA design for the legal designation process. DFO held a total of 70 meetings with a variety of organizations and individuals during the consultation period. This comprehensive approach resulted in a solid understanding of all interests and priorities, and well-informed and practical inputs to the MPA designation process.
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